Proposal for a Decision of the European Parliament and of the Council establishing a Community Programme for Employment and Social Solidarity - PROGRESS {SEC(2004) 936}
Date: 2004-07-14
Institutions: European Commission
Subjects: EU programme, anti-discriminatory measure, employment policy, gender equality, social security, working conditions

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 14.7.2004 
COM(2004) 488 final 

2004/0158 (COD) 

Proposal for a 

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

Establishing a Community Programme for Employment and Social Solidarity - 
PROGRESS 

(presented by the Commission) 

( SEC(2004) 936 } 

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EXPLANATORY MEMORANDUM 

1. 

CONTEXT 

The Lisbon European Council agreed on a strategic goal for the Union to build a competitive 
and  dynamic  knowledge-based  economy  capable  of  sustaining  economic  growth  with  more 
and better jobs and greater social cohesion. By dynamically addressing challenges related to 
rapid change in international competitive conditions, the Social Policy Agenda (SPA) is the 
Union's roadmap in the employment and social sphere as part of the overall Lisbon Strategy.  

In its Communication "Building our common Future - Policy challenges and budgetary means 
of  the  enlarged  Union  2007-2013"1,  the  Commission  identified  the  implementation  of  the 
SPA  as  an  important  tool  contributing  to  the  competitiveness  for  growth  and  employment 
objective  of  the  new  financial  perspectives.  The  same  Communication  calls  for  a  further 
strengthening of the Social Policy Agenda, in order to face the new challenges common to all 
Member  States  and  to  manage  change  in  the  context  of  enlargement,  globalisation  and 
demographic ageing.  

To  reach  the  Lisbon  objectives,  the  SPA  relies  on  a  combination  of  instruments,  notably 
legislation, the open method of co-ordination (OMC), European social dialogue, as well as the 
European  Social  fund  and  a  number  of  other  financial  tools  directly  managed  by  the 
Commission.  The  present  explanatory  memorandum  only  concerns  the  latter  mentioned 
financial tools and reflects the efforts made to rationalise them. 

2. 

JUSTIFICATION OF THE ACTION 

The Commission has underlined the importance of using the revision of the legal instruments 
for the next financial perspectives to create a significant movement towards greater simplicity. 
Serious consideration was given to all the different options. 

One option would have been to discontinue the current financial instruments. However, a high 
level  of  employment  and  of  social  protection,  improved  working  conditions,  anti-
discrimination,  gender  equality,  free  movement  of  workers  and  social  dialogue  are  explicit 
objectives of the European  Union without which the Lisbon policy goals will  not  become a 
reality. 

Whilst the Member States have the main competence in those areas, modest financial means 
will remain necessary in the future in their support for a host of reasons: 

•  Financial  means  remain  necessary  to  ensure  a  coherent  implementation  of  the  existing 
acquis,  to  improve  the  knowledge  and  understanding  of  the  situation  prevailing  in  the 
Member  States  and  to  support  the  promotion  of  rights,  free  movement  of  workers,  anti-
discrimination and gender equality. 

•  Community funding in support of the implementation of the OMC in the employment and 
social  area  should  continue  to  act  as  a  catalyst  by  facilitating  the  definition  and 

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implementation  of  reform  measures  by  Member  States  in  their  labour  market  and  social 
policies  and  should,  as  such,  bring  about  important  policy  developments  with  modest 
financial means.  

•  Adequate financial resources are indispensable to allow the Commission to fully exploit its 
autonomous  Treaty  based  competence  of  promoting  social  dialogue  at  EU  level  in  line 
with  art.  138.  Partnership  for  change  will  play  a  crucial  role  in  giving  appropriate 
responses in terms of harnessing change and economic restructuring.  

By investing resources through those three channels, the Union will actively contribute to the 
Lisbon objectives of competitiveness, more and better jobs and greater social cohesion. 

3. 

CHOICE OF THE INSTRUMENT 

In order to effectively simplify and rationalise the current situation, whilst taking account of 
the  different  decision  making  procedures,  it  is  proposed  to  structure  the  employment  and 
social  policy  activities  in  two  main  areas,  each  corresponding  to  one  budget  line  and  each 
based on its own decision making process: 

1. 

2. 

The  first  one  will  take  the  form  of  an  integrated  programme  for  Employment  and 
Social Solidarity (PROGRESS) covering the period 2007 to 2013. It will be adopted 
by  way  of  the  attached  Parliament  and  Council  Decision.  This  programme 
incorporates  four  specific  Community  Action  Programmes  currently  supporting  the 
implementation  of  the  social  policy  agenda  as  well  as  a  number  of  budget  lines  in 
relation to working conditions. Its financial allocation will amount to 628.8 million 
Euros over the period. 

The second one entitled "Sustaining Social Dialogue, free movement of workers 
and studies and special reports in the social field" will be dealt with in a separate 
Communication as no legislative decision is needed. This area of activity will cover 
expenditure based on existing regulations and autonomous powers conferred on the 
Commission by the Treaty as confirmed in art 49.2.c of the financial regulation and 
art  33.1  of  its  implementing  rules.  This  second  budget  line  will  amount  to  479.9 
million Euros over the 2007-2013 period. 

It will mainly deal with financial support to promote and facilitate social dialogue at 
European  level.  The  implication  of  the  social  partners  in  the  legislative  process  is 
compulsory according to articles 138/139 of the Treaty and they play a fundamental 
role in the emergence of real European governance. The Commission will therefore 
continue  to  encourage  and  support  partnership  and  social  dialogue  both  at  inter-
sectoral  and  at  sectoral  levels  To  this  end,  it  will  finance  activities  related  to 
negotiations,  information,  training  and  capacity-building  of  the  actors,  and  the 
dissemination and promotion of results at all levels. 

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It  will  equally  financially  support  activities  relating  to  social  analysis  and  to  free 
movement  of  workers,  notably  the  EURES  network  as  provided  for  in  part  2  of 
Council Regulation 1612/682. 

A further 266.4 million Euros should be foreseen for the financing of the two agencies active 
in the employment and social area3 from 2007 to 2013.  

Finally,  reflecting  the  equality  goals  of  the  Lisbon  agenda,  and  on  the  basis  of  political 
agreement  which  has  been  reached  within  the  Council,  the  European  Council  expressed  its 
support for the establishment of a European Gender Institute and invited the Commission to 
bring forward a specific proposal. The Commission plans to adopt the corresponding Proposal 
before the end of the year and intends to allocate 52.7 million Euros to it over the 2007-2013 
period.  The  setting  up  of  the  institute  will  be  budgetary  neutral  as  this  amount  has  been 
deducted from the programme PROGRESS. The primary task of the Institute will to provide 
the  Community  and  its  Member  States  with  objective,  reliable  and  comparable  information 
and data on  gender equality in order to establish  measures in this field. It will  also act as a 
catalyst  for  developing,  analysing  and  disseminating  information  that  improves  gender 
equality  in  Europe.  The  precise  scope  of  its  competencies  will  be  carefully  defined  in  the 
proposal mentioned above as to avoid any overlap with other institutes or agencies. 

In order to avoid overlap between the interventions covered by the proposed programme, co-
operative exchange and synergy mechanisms will be put in place. 

4. 

OBJECTIVES OF THE NEW CREATED COMMUNITY PROGRAMME 

As mentioned above, only a part of the expenditure foreseen for the period 2007-2013 has to 
be based on an intermediate legislative decision. This is the purpose of the attached Council 
and  Parliament  Decision  which  creates  a  new  Community  Programme  for  Employment  and 
Social Solidarity (PROGRESS). 

The  overall  objective  is  reinforcing  the  initiative  role  of  the  Commission  in  proposing  EU 
strategies; implementing and  following-up  EU objectives and their translations into national 
policies;  transposing  and  following-up  of  EU  legislation's  application  in  a  coherent  way 
through Europe; promoting the co-operation and co-ordination mechanisms between Member 
States and cooperating with organisations that represent civil society.  

General objectives of the programme have been defined to address this overall objective: 

(1) 

Improving the knowledge and understanding of the situation prevailing in the Member 
States  (and  in  other  participating  countries)  through  analysis,  evaluation  and  close 
monitoring of policies; 

2 

3 

EURES  is  a  network  for  co-operation  between  Employment  Services  of  the  Member  States,  their 
partners and the Commission to exchange information concerning vacancies and job applications, the 
state and trends of the labour market and living and working conditions. 
The  European  Foundation  for  the  Improvement  of  Living  and  Working  Conditions  (Dublin)  and  the 
European Agency for Health and Safety at Work (Bilbao). The European Monitoring Centre on Racism 
and Xenophobia (Vienna) is not included as it will be superseded by the Fundamental Rights Agency 
foreseen under budget heading 3. 

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(2) 

(3) 

(4) 

(5) 

Supporting the development of statistical tools and methods and common indicators in 
the areas covered by the programme ; 

Supporting  and  monitoring  the  implementation  of  EU  law  and  policies  objectives  in 
the Member States and assessing their impact; 

Promoting networking, mutual learning, and identification and dissemination of good 
practice at EU level;  

Enhancing  the  awareness  of  the  stakeholders  and  the  general  public  about  the  EU 
policies pursued under each of the 5 sections; 

(6) 

Boosting the capacity of key EU networks to promote and support EU policies. 

The  objectives  set  for  each  section  have  finally  been  translated  into  operational  objectives 
which  correspond  to  the  types  of  supports  (analytical  and  mutual  learning  activities, 
awareness and dissemination activities, support to main actors) to be addressed in each policy 
domain. The operational objectives will correspond to the need to carry out actions, financed 
at Commission level, to target some specific actors who need to act in this context. 

5. 

SECTIONS FORESEEN UNDER THE PROGRAMME 

The Programme will be divided in 5 sections corresponding to the 5 main fields of activities: 

(1) 

Employment 

(2) 

Social protection and inclusion 

(3)  Working conditions 

(4) 

Anti-discrimination and diversity 

(5) 

Gender equality 

Section 1 will support the implementation of the European Employment Strategy as stipulated 
in the Employment Title of the EC Treaty (Articles 125 to 130). 

Section 2 will support the implementation of the open method of coordination in the field of 
social protection and inclusion according to Article 137 as amended by the Nice Treaty which 
sets  a  role  for  the  Community  to  "support  and  complement  the  activities  of  the  Member 
States"  in  a  range  of  objectives  relevant  to  social  protection  notably  "combating  of  social 
exclusion" and "modernisation of social protection systems". 

Section 3 will support the improvement of the working environment and conditions including 
health and safety at work as enshrined in the Treaty in its article 137 (1) a) and b). 

Section 4 will support effective implementation of the principle of non-discrimination on the 
grounds  of  racial  or  ethnic  origin,  religion  or  belief,  disability,  age  or  sexual  orientation  as 
enshrined in Article 13 of the Treaty. It will furthermore promote the mainstreaming of anti-
discrimination in EU policies and the benefits of diversity. 

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Section 5 will support, on the one hand, an effective implementation of the principle of gender 
equality and, on the other hand, a better gender mainstreaming in EU policies, as enshrined in 
Articles 2, 3§2,13 and 141 of the Treaty. 

6. 

EXTERNAL CONSULTATION 

This  planned  rationalisation  of  the  employment  and  social  policy  programmes  and  budget 
structure  is  of  direct  interest  to  key  stakeholders.  Consultations  have  been  organised  with 
social partners and non-governmental organisations. 

7. 

EX-ANTE EVALUATION 

The ex-ante evaluation of the programme is attached to the present proposal for a Parliament 
and Council Decision. It has been performed internally by the DG EMPL evaluation unit in 
cooperation with all units involved in the process of defining the programme. 

The evaluation results available show the appropriateness of the different actions supported to 
achieve the goals set in the Social Policy Agenda. Several innovative approaches have been 
evaluated.  The  evaluation  results  already  published  are  presented  in  annex  1  of  the  ex-ante 
evaluation. 

8. 

SIMPLIFICATION 

The proposed approach will contribute to the key objective of simplifying instruments both in 
legal  and  management  terms  and  of  streamlining  the  budget  structure.  It  will  also  increase 
coherence  and  consistency  between  and  avoid  duplication  of  instruments.  Whilst  additional 
human resources will be necessary to cope with future enlargements, a better allocation of the 
human  resources  will  be  achieved  by  discontinuing  smaller  budget  lines  (which  are  human 
resources  consuming)  and  regrouping  existing  programmes  into  a  single,  coherent  and 
streamlined  programme.  This  will  result  in  more  proportionality  between  the  amount  of 
expenditure and the administrative cost managing it. 

The  proposed  approach  will  also  result  in  a  reduction  in  the  number  of  budget  lines  (not 
including agencies) managed directly by the Commission in the employment and social field 
from 28 to 2. A single decision would replace the host of decisions currently in place. This 
would enormously simplify the decision making process. Further to substantially reducing the 
number of budget lines, rationalisation will also be achieved by reducing and harmonizing the 
scope  of  the  current  four  Community  Action  Programmes.  In  the  implementation  of  the 
Programme, the Commission will be assisted by a single Programme Committee, instead of 
four. 

The proposed rationalisation will also benefit the end user as it increases the visibility, clarity 
and  coherence  of  these  instruments.  Potential  beneficiaries  will  find  it  easier  to  apply  for 
funding  under  the  different  sections  of  the  new  Programme  thanks  to  the  standardised 
approach  and  harmonised  implementing  provisions.  As  a  single  project  could  work  towards 
the objectives of more than one section of the programme, it provides the end user with a "one 
stop shop". 

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9. 

DETAILED EXPLANATION PER ARTICLE 

The Decision contains 20 articles. 

Article 1 establishes the PROGRESS programme. 

Article 2 defines its general objectives, common to the 5 sections. 

Article  3  presents  the  overall  structure  of  the  programme  which  is  divided  into  5  sections 
corresponding to the 5 main fields of activity. 

Articles 4 to 8 present, for each of the programme's section, a list of operational objectives. 

Article  9  defines  the  different  types  of  actions  foreseen  under  the  programme  in  order  to 
achieve the objectives set in articles 2 and 4 to 8. 

Article 10 lists the potential actors of the programme. 

Article 11 defines the different methods of application for support which should be used by 
the actors mentioned in Article 10. 

Article 12 sets the implementing provisions of the programme and particularly the role of the 
Committee referred to in Article 13. 

Article  13  foresees  that  the  Commission  will  be  assisted  by  a  management/consultative 
Committee in order to implement the Programme. 

Article  14  foresees  the  cooperation  of  the  Committee  mentioned  in  Article  13  with  other 
relevant  committees  either  monitoring  other  programmes  or 
to  cooperation 
mechanisms in the framework of the open method of coordination. 

linked 

Article 15 expresses the need to coordinate and ensure complementarity of actions financed 
under  this  Programme  with  other  EU  actions  not  only  in  the  employment  and  social  sphere 
but  also  in  areas  which  may  have  common  objectives  (education,  culture,  justice  and  home 
affairs…). 

Article  16  allows  the  participation  of  non  EU  Member  States  in  this  programme  namely 
EEA/EFTA  countries,  candidate  countries  associated  to  the  EU,  as  well  as  western  Balkan 
countries included in the stabilisation and association process. 

Article 17 sets the overall financial amount available for the 7 years programming period. It 
also  foresees  a  minimum  percentage  to  be  allocated  to  the  different  sections  of  the 
programme. 

Article  18  sets  the  conditions  to  be  respected  to  ensure  the  protection  of  the  Communities' 
financial interests during the implementation of the Programme. 

Article 19 foresees the monitoring and evaluation mechanisms which should be put in place to 
ensure a smooth and effective implementation of the programme. 

Article 20 sets the condition under which the Decision will enter into force. 

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2004/0158 (COD) 

Proposal for a 

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

Establishing a Community Programme for Employment and Social Solidarity - 
PROGRESS 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having regard to the Treaty establishing the European Community, and in particular Articles 
13(2), 129, 137(2) a) thereof, 

Having regard to the proposal from the Commission4, 

Having regard to the opinion of the European Economic and Social Committee5, 

Having regard to the opinion of the Committee of the Regions6, 

Whereas: 

(1) 

(2) 

The Lisbon European Council of 23 and 24 March 2000 incorporated, as intrinsic to 
the overall strategy of the Union, the promotion of employment and social inclusion to 
achieve  its  strategic  goal  for  the  next  decade  of  becoming  the  most  competitive  and 
dynamic  knowledge-based  economy  in  the  world,  capable  of  sustainable  economic 
growth,  with  more  and  better  jobs  and  greater  social  cohesion.  It  set  ambitious 
objectives  and  targets  for  the  EU  to  regain  the  conditions  for  full  employment, 
improve  quality  and  productivity  at  work,  promote  social  cohesion  and  an  inclusive 
labour market. 

In  line  with  the  Commission's  stated  intention  to  consolidate  and  rationalise  EU 
funding  instruments,  this  Decision  should  establish  a  single  and  streamlined 
Programme providing for the continuation and development of the activities launched 
on  the  basis  of  Council  Decision  2000/750/EC  of  27  November  2000  establishing  a 
Community  action  programme  to  combat  discrimination  (2001  to  2006)7,  Council 
Decision 2001/51/EC of 20 December 2000 establishing a Programme relating to the 
Community  framework  strategy  on  gender  equality8  and  European  Parliament  and 
Council  Decisions  50/2002/EC  of  7  December  2001  establishing  a  programme  of 
Community action to encourage cooperation between Member States to combat social 
exclusion9 and 1145/2002/EC of 10 June 2002 on Community incentive measures in 

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OJ C , , p. . 
OJ C , , p. . 
OJ C , , p. . 
OJ L 303, 2.12.2000, p. 23 
OJ L 17, 19.11.2001, p. 22 
OJ L 10, 12.1.2002, p. 1 

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(3) 

(4) 

(5) 

(6) 

(7) 

(8) 

the field of employment10, as well as those activities undertaken at Community level in 
relation to working conditions. 

The  Extraordinary  European  Council  on  Employment  in  Luxembourg  in  1997 
launched  the  European  Employment  Strategy,  encompassing  the  coordination  of 
Member  States'  employment  policies  on  the  basis  of  commonly-agreed  employment 
guidelines  and  recommendations.  The  European  Employment  Strategy  now  has  the 
leading role in the implementation of the employment and labour market objectives of 
the Lisbon Strategy. 

The Lisbon European Council, concluded that the number of people living below the 
poverty  line  and  in  social  exclusion  in  the  Union  was  unacceptable  and  therefore 
deemed  it  necessary  to  take  steps  to  make  a  decisive  impact  on  the  eradication  of 
poverty  by  setting  adequate  objectives.  Such  objectives  were  agreed  by  the  Nice 
European  Council  of  7,  8  and  9  December  2000.  It  further  agreed  that  policies  for 
combating  social  exclusion  should  be  based  on  an  open  method  of  coordination 
combining national action plans and a Commission initiative for cooperation. 

Demographic  change  represents  a  major  long-term  challenge  to  the  ability  of  social 
protection systems to deliver adequate pensions and health and long-term care and it is 
important  to  promote  policies  that  can  achieve  both  adequate  social  protection  and 
financial sustainability. This balance is achieved in accordance with the open method 
of coordination. 

Ensuring minimum standards and the constant improvement of working conditions in 
the EU constitutes a central feature of the European social policy and corresponds to 
an  important  overall  objective  of  the  European  Union.  The  Community  has  an 
important role to play to support and complement the activities of the Member States 
in the fields of workers' health and safety, working conditions, protection of workers 
where  their  employment  contract  is  terminated,  information  and  consultation  of 
workers,  representation  and  collective  defence  of  the  interests  of  workers  and 
employers. 

Non Discrimination  is  a fundamental principle of the European Union. Article 21 of 
the Charter of Fundamental Rights of the European Union prohibits discrimination on 
a  variety  of  grounds.  The  specific  features  of  the  diverse  forms  of  discrimination 
should  be  accommodated.  Therefore,  the  particular  needs  of  people  with  disabilities 
should be taken into account in terms of the accessibility of activities and results. 

On  the  basis  of  Article  13  of  the  Treaty  establishing  the  European  Community,  the 
Council has adopted Directive 2000/43 of 29 June 2000 implementing the principle of 
equal  treatment  between  persons  irrespective  of  racial  or  ethnic  origin11  which 
prohibits  discrimination  based  on  racial  or  ethnic  origin  in,  inter  alia,  employment, 
vocational training, education, goods and services and social protection; and Directive 
2000/78 of 27 November 2000 establishing a general framework for equal treatment in 

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OJ L 170, 29.6.2002, p. 1 
OJ L 180, 19.7.2000, p. 22 

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employment  and  occupation12  which  prohibits  discrimination  in  employment  and 
occupation on the grounds of religion or belief, disability, age and sexual orientation.  

(9) 

Equal treatment for women and men is a fundamental principle of Community law and 
the Directives and other acts adopted on the basis of this principle have played a major 
part  in  improving  the  situation  of  women.  Experience  of  action  at  Community  level 
has  shown 
in  EU  policies  and  combating 
discrimination in practice call for a combination of instruments involving legislation, 
funding  tools  and  mainstreaming  designed  to  reinforce  one  another.  In  line  with  the 
principle  of  gender  mainstreaming,  equality  between  men  and  women  should  be 
integrated into all sections of the Programme. 

that  promoting  gender  equality 

(10)  Since  the  objectives  of  the  proposed  action  cannot  be  sufficiently  achieved  by  the 
Member States because of the need for exchange of information at EU-level and the 
Community-wide  dissemination  of  good  practice  and  can  therefore  by  reason  of  the 
multilateral dimension of the Community actions and measures, be better achieved at 
Community  level,  the  Community  may  adopt  measures  in  accordance  with  the 
principle  of subsidiarity  as  set  out  in  Article 5 of the Treaty.  In accordance with the 
principle of proportionality as set out in that Article, this Decision does not go beyond 
what is necessary to achieve those objectives. 

(11)  This  Decision  establishes  a  financial  framework  for  the  entire  duration  of  the 
programme which is to be the principal point of reference for the budgetary authority, 
within  the  meaning  of  point  33  of  the  interinstitutional  agreement  of  6  May  1999 
between  the  European  Parliament,  the  Council  and  the  Commission  on  budgetary 
discipline and improvement of the budgetary procedure13. 

(12)  The measures necessary for the implementation of this Decision should be adopted in 
accordance  with  Council  Decision  1999/468/EC  laying  down  the  procedures  for  the 
exercise of implementing powers conferred on the Commission14. 

HAVE DECIDED AS FOLLOWS 

Article 1 

Establishment of the Programme 

This Decision establishes the Community Programme for Employment and Social Solidarity, 
named  PROGRESS,  to  financially  support  the  implementation  of  the  objectives  of  the 
European  Union  in  the  employment  and  social  affairs  area  and  thereby  contribute  to  the 
achievement of the Lisbon Strategy goals in these fields. It shall run from 1 January 2007 to 
31 December 2013. 

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OJ L 303, 2.12.2000, p. 16 
OJ C 172, 18.6.1999, p. 1 
OJ L 184, 17.7.1999, p. 23 

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Article 2 

General objectives of the Programme 

The present programme pursues the following general objectives: 

(1) 

(2) 

(3) 

(4) 

(5) 

to improve the knowledge and understanding of the situation prevailing in the Member 
States  (and  in  other  participating  countries)  through  analysis,  evaluation  and  close 
monitoring of policies. 

to support the development of statistical tools and methods and common indicators in 
the areas covered by the programme. 

to support and monitor the implementation of Community law and policies objectives 
in the Member States and assessing their impact. 

to promote networking, mutual learning, and identification and dissemination of good 
practice at EU level. 

to  enhance  the  awareness  of  the  stakeholders  and  the  general  public  about  the  EU 
policies pursued under each of the 5 sections. 

(6) 

to boost the capacity of key EU networks to promote and support EU policies. 

Article 3 

Structure of the Programme 

The programme shall be divided into the following 5 sections: 

(1) 

Employment 

(2) 

Social protection and inclusion 

(3)  Working conditions 

(4) 

Antidiscrimination and diversity 

(5) 

Gender equality 

Article 4 

SECTION 1: Employment 

Section 1shall support the implementation of the European Employment Strategy by: 

(1) 

Improving  the  understanding  of  the  employment  situation,  in  particular  through 
analysis and studies and the development of statistics and indicators. 

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(2) 

(3) 

(4) 

Monitoring  and  evaluating  the  implementation  of  the  European  Employment 
Guidelines  and  Recommendations  and  analysing  the  interaction  between  the  EES 
and other policy areas. 

Organising  exchanges  on  policies  and  processes  and  promoting  mutual  learning  in 
the context of the EES. 

Raising  awareness,  disseminating  information  and  promoting  the  debate  about 
employment  challenges  and  policies,  including  among  regional  and  local  actors, 
social partners and other stakeholders. 

Article 5 

SECTION 2: Social protection and inclusion 

Section 2 shall support the implementation of the open method of coordination in the field of 
social protection and inclusion by: 

(1) 

Improving  the  understanding  of  poverty  issues,  social  protection  and  inclusion 
policies,  in  particular  through  analysis  and  studies  and  the  development  of  statistics 
and indicators. 

(2)  Monitoring and evaluating the implementation of the Open Method of Coordination in 
the field of social protection and inclusion and analysing the interaction between this 
OMC and other policy areas. 

(3) 

(4) 

Organising exchanges on policies and processes and promoting mutual learning in the 
context of the social protection and inclusion strategy. 

Raising awareness, disseminating information and promoting the debate about the key 
challenges and policy issues raised in the context of the EU coordination process in the 
field  of  social  protection  and  social  inclusion,  including  among  NGO's,  regional  and 
local actors and other stakeholders. 

(5) 

Developing the capacity of key EU networks to pursue EU policy goals. 

Article 6 

SECTION 3: Working conditions 

Section 3 shall support the improvement of the working environment and conditions including 
health and safety at work. by: 

(1) 

Improving  the  understanding  of  the  situation  in  relation  to  working  conditions,  in 
particular  through  analysis  and  studies  and  the  development  of  statistics  and 
indicators,  as  well  as  assessing  the  impact  of  existing  legislation,  policies  and 
practices; 

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(2) 

(3) 

(4) 

Supporting  the  implementation  of  EU  labour  law  through  reinforced  monitoring, 
training  of  practitioners,  development  of  guides  and  networking  amongst  specialised 
bodies;  

Initiating preventive actions and fostering the prevention culture in the field of health 
and safety at work; 

Raising awareness, disseminating information and promoting the debate about the key 
challenges and policy issues in relation to working conditions. 

Article 7 

SECTION 4: Antidiscrimination and diversity 

Section  4  shall  support  the  effective  implementation  of  the  principle  of  non-discrimination 
and promote its mainstreaming in EU policies by: 

(1) 

(2) 

(3) 

Improving the understanding of the situation in relation to discrimination in particular 
through analysis and studies and the development of statistics and indicators as well as 
assessing the impact of existing legislation, policies and practices 

the 

Supporting 
through 
reinforced  monitoring,  training  of  practitioners  and  networking  amongst  specialised 
bodies dealing with anti-discrimination;  

implementation  of  EU  anti-discrimination 

legislation 

Raising awareness, disseminating information and promoting the debate about the key 
challenges  and  policy  issues  in  relation  to  discrimination  and  the  mainstreaming  of 
anti-discrimination in EU policies; 

(4) 

Developing the capacity of key EU networks to pursue EU policy goals; 

Article 8 

SECTION 5: Gender equality 

Section  5  shall  support  the  effective  implementation  of  the  principle  of  gender  equality  and 
promote gender mainstreaming in EU policies by: 

(1) 

(2) 

(3) 

Improving  the  understanding  of  the  situation  in  relation  to  gender  issues  and  gender 
mainstreaming,  in  particular  through  analysis  and  studies  and  the  development  of 
statistics and indicators, as well as assessing the impact of existing legislation, policies 
and practices; 

Supporting  the  implementation  of  EU  gender  equality  legislation  through  reinforced 
monitoring,  training  of  practitioners  and  networking  amongst  specialised  equality 
bodies;  

Raising awareness, disseminating information and promoting the debate about the key 
challenges and policy issues in relation to gender equality and gender mainstreaming; 

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(4) 

Developing the capacity of key EU networks to pursue EU policy goals. 

Article 9 

Types of actions 

1. 

The Programme shall finance the following types of actions: 

(a) 

Analytical activities 

–  Collection, development and dissemination of data and statistics 

–  Development and dissemination of common methodologies and indicators/benchmarks 

–  Carrying-out of studies, analysis and surveys and dissemination of their results 

–  Carrying-out of evaluations and impact assessments and dissemination of their results 

–  Elaboration and publication of guides and reports 

(b)  Mutual learning, Awareness and Dissemination activities 

–  Identification  of  best  practices  and  organisation  of  peer  review  by  means  of 

meetings/workshops/seminars at EU or national level 

–  Organisation of Presidency conferences/seminars 

–  Organisation  of  conferences/seminars  in  support  of  the  development  and  implementation 

of Community law and policy objectives 

–  Organisation of media campaigns and events 

–  Compilation and publication of materials to disseminate information as well as results of 

the programme 

(c) 

Support to main actors 

–  Support to running costs of key EU networks 

–  Organisation of working groups of national officials to monitor the implementation of EU 

law 

–  Funding  of  training  seminars  addressed  to  legal  practitioners,  key  officials  and  other 

relevant actors 

–  Networking among specialised bodies at EU level 

–  Funding of experts' networks 

–  Funding of EU level observatories 

–  Exchange of personnel between national administrations 

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–  Cooperation with international institutions 

2. 

Types  of  actions  foreseen  under  paragraph  (1)  b)  should  have  a  strong  EU 
dimension,  an  appropriate  scale  in  order  to  ensure  a  real  EU  added-value  and  be 
carried  out  by  (sub)national  authorities,  specialised  bodies  foreseen  under 
Community legislation or actors which are considered the key player in their area. 

Article 10 

Access to the programme 

1. 

Access to this programme shall be open to all public and/or private bodies, actors and 
institutions, in particular: 

–  Member States; 

–  Public employment services; 

–  Local and regional authorities; 

–  Specialised bodies foreseen under EU legislation; 

–  Social partners; 

–  Non-governmental organisations organised at EU level; 

–  Universities and research institutes; 

–  Experts in evaluation 

–  National statistical offices; 

–  Media. 

2. 

The  Commission  can  also directly access the programme as far as actions  foreseen 
under Article 9 paragraph 1 a) and b) are concerned. 

Article 11 

Method of application for support 

The types of actions referred to in Article 9 may be financed by: 

–  a  service  contract  following  a  call  for  tenders.  For  cooperation  with  national  Statistical 

Offices, the Eurostat procedures shall apply. 

–  a partial subsidy following a call for proposals. In this case, the EU co-financing may not 
exceed,  as  a  general  rule,  80  %  of  the  total  expenditure  incurred  by  the  recipient.  Any 
subsidy in excess of this ceiling can only be granted under exceptional circumstances and 
after close scrutiny. 

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The type of actions foreseen under Article 9 (1) b) may be subsidised in respond to requests 
for subsidies, for example from Member States. 

Article 12 

Implementing provisions 

1. 

The  measures  necessary  for  the  implementation  of  this  Decision  relating  to  the 
following  matters  shall  be  adopted  in  accordance  with  the  management  procedure 
referred to in Article 13§2: 

(a) 

the general guidelines for the implementation of the programme;  

(b) 

the work programme for the implementation of the programme;  

(c) 

the financial support to be supplied by the Community;  

(d) 

(e) 

the annual budget and the distribution of funding between the different sections 
of the programme;  

the procedures for selecting the actions to be supported by the Community and 
the draft list of actions to receive such support submitted by the Commission;  

The measures necessary for the implementation of this Decision relating to all other 
matters  shall  be  adopted  in  accordance  with  the  advisory  procedure  referred  to  in 
Article 13§3. 

Article 13 

Committee 

The Commission shall be assisted by a Committee. 

Where  reference  is  made  to  this  paragraph,  Articles  4  and  7  of  Decision 
1999/468/EC shall apply. 

The  period  laid  down  in  Article  4(3)  of  Decision  1999/468/EC  shall  be  set  at  two 
months. 

Where  reference  is  made  to  this  paragraph,  Articles  3  and  7  of  Decision 
1999/468/EC shall apply. 

The Committee shall adopt its rules of procedure. 

2. 

1. 

2. 

3. 

4. 

Article 14 

Cooperation with other committees 

1. 

The  Commission  shall  establish  the  necessary  links  with  the  Social  Protection 
Committee and the Employment Committee in order to ensure that they are regularly 

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2. 

1. 

2. 

3. 

4. 

5. 

and appropriately informed about the implementation of activities referred to in this 
Decision. 

Where  appropriate, 
the  Commission  shall  establish  regular  and  structured 
cooperation between this Committee and the monitoring committees established for 
other relevant policies, instruments and actions. 

Article 15 

Consistency and complementarity 

The  Commission  shall,  in  cooperation  with  the  Member  States,  ensure  overall 
consistency  with  other  Union  and  Community  policies,  instruments  and  actions,  in 
particular by establishing appropriate mechanisms to coordinate the activities of the 
programme  with  relevant  activities  relating  to  research,  justice  and  home  affairs, 
culture, education, training and youth policy, and in the fields of enlargement and the 
Community's  external  relations.  A  special  attention  should  be  given  to  the  possible 
synergies  between  the  present  programme  and  those  in  the  field  of  education  and 
training. 

The  Commission  and 
the  Member  States  shall  ensure  consistency  and 
complementarity  between  actions  undertaken  under  the  programme  and  other 
relevant Union and Community actions, in particular under the Structural Funds and 
especially the European Social Fund. 

The  Commission  shall  make  sure  that  expenditures  covered  and  charged  by  the 
programme shall not be charged to any other Community financial instrument. 

The  Commission  shall  keep  the  Committee  referred  to  in  Article  13  regularly 
informed of other Community action contributing to the Lisbon strategy goals in the 
field of employment and social policy. 

Member  States  shall  make  all  possible  efforts  to  ensure  consistency  and 
complementarity  between  activities  under  the  programme  and  those  carried  out  at 
national, regional and local levels. 

Article 16 

Participation of third countries 

The programme shall be open to the participation of: 

•  the  EFTA/EEA  countries  in  accordance  with  the  conditions  established  in  the  EEA 

Agreement; 

•  the  candidate  countries  associated  to  the  EU,  as  well  as  to  the  western  Balkan  countries 

included in the stabilisation and association process. 

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Article 17 

Financing 

The  financial  framework  for  implementing  the  Community  activities  referred  to  in 
this  Decision  for  the  period  1  January  2007  to  31  December  2013  shall  be  628.8 
million EUR. 

The  financial  breakdown  between  the  different  sections  shall  respect  the  following 
lower limits: 

Section 1  Employment 

21 % 

Section 2 

Social protection and inclusion 

28 % 

Section 3  Working conditions 

8 % 

Section 4  Antidiscrimination and diversity  23 % 

Section 5  Gender equality 

8 % 

A maximum of 2 % of the financial envelop shall be attributed to the implementation 
of the programme to cover, for example, the expenditure related to the functioning of 
the  Committee  foreseen  under  Article  13  or  the  evaluations  to  be  carried  out 
according to Article 19. 

The annual appropriations shall be authorised by the budgetary authority within the 
limits of the financial perspectives. 

The Commission may have recourse to technical and/or administrative assistance, to 
the mutual benefit of the Commission and of the beneficiaries, as well as to support 
expenditure. 

Article 18 

Protection of the Communities' financial interests 

The Commission shall ensure that, when actions financed under the present decision 
are  implemented,  the  financial  interests  of  the  Community  are  protected  by  the 
application  of  preventive  measures  against  fraud,  corruption  and  any  other  illegal 
activities, by effective checks and by the recovery of the amounts unduly paid and, if 
irregularities  are  detected,  by  effective,  proportional  and  dissuasive  penalties,  in 
accordance with Council Regulations (EC, Euratom) No 2988/95 and (Euratom, EC) 
No  2185/96,  and  with  Regulation  (EC)  No  1073/1999  of  the  European  Parliament 
and of the Council. 

For  the  Community  actions  financed  under  this  decision,  the  notion  of  irregularity 
referred to in Article 1, paragraph 2 of Regulation (EC, Euratom) No 2988/95 shall 
mean  any  infringement  of  a  provision  of  Community  law  or  any  breach  of  a 

1. 

2. 

3. 

4. 

5. 

1. 

2. 

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3. 

1. 

2. 

3. 

contractual  obligation  resulting  from  an  act  or  omission  by  an  economic  operator, 
which  has,  or  would  have,  the  effect  of  prejudicing  the  general  budget  of  the 
Communities or budgets managed by them, by an unjustified item of expenditure. 

Contracts  and  agreements  as  well  as  agreements  with  participating  third  countries 
resulting from this decision shall provide in particular for supervision and financial 
control by the Commission (or any representative authorized by it) and audits by the 
Court of Auditors, if necessary on-the-spot. 

Article 19 

Monitoring and evaluation 

In  order  to  ensure  a  regular  monitoring  of  the  programme  and  allow  necessary 
reorientations,  annual  activity  reports  shall  be  elaborated  by  the  Commission  and 
transmitted to the programme Committee referred to in Article 13. 

The programme shall also be the subject of a mid-term evaluation at the level of the 
different  sections  with  an  overview  on  the  programme  in  order  to  measure  the 
progress made regarding the impact of the programme objectives and its EU added 
value. This evaluation may be supplemented by on-going evaluations. These shall be 
carried  out  by  the  Commission  with  the  assistance  of  external  experts.  When 
available, their results shall be reported in the activity reports referred to in paragraph 
1. 

An ex-post evaluation covering the whole programme shall be carried out, one year 
after it ends, by the Commission with the assistance of external experts, in order to 
measure the impact of the programme objectives and its EU added value. It shall be 
transmitted  to  the  European  Parliament,  the  Council,  the  European  Economic  and 
Social Committee and the Committee of the Regions. 

Article 20 

Entry into force 

This Decision shall enter into force on the twentieth day following that of its publication in 
the Official Journal of the European Union 

Done at Brussels,  

For the European Parliament 
The President 

For the Council 
The President 

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LEGISLATIVE FINANCIAL STATEMENT 

Policy area(s): Employment and Social Affairs 

Activit(y/ies): 0401 ; 0402 ; 0403 ; 0404 ; 0405 

TITLE  OF  ACTION:  ESTABLISHING  A  COMMUNITY  PROGRAMME  FOR  EMPLOYMENT  AND 

SOCIAL SOLIDARITY – PROGRESS 

1. 

BUDGET LINE(S) + HEADING(S) 

Financial Perspectives 2007-2013 : Headings 1a  

2. 

OVERALL FIGURES  

2.1. 

Total allocation for action (Part B): € 660,5 million for commitment 

2.2. 

Period of application: 

1/1/2007 – 31/12/2013 

2.3. 

Overall multi-annual estimate of expenditure: 

(a) 

Schedule  of  commitment  appropriations/payment  appropriations 
intervention)  

(financial 

€ million (to three decimal places) 

2007 

2008 

2009 

2010 

2011 

2012 
et 
exer. 
suiv. 
182,4 

Total 

593,8 

Commitments 

77,9 

79,9

Payments 

31,0 

54,0

82,0

77,0

84,8

83,0

86,8

86,0

262,8 

593,8 

(b) 

Technical and administrative assistance and support expenditure  

Commitments 

Payments 

5,0 

5,0 

5,0

5,0

5,0

5,0

5,0

5,0

5,0

5,0

10,0 

35,0 

10,0 

35,0 

Subtotal a+b 

Commitments 

Payments 

82,9 

36,0 

84,9

59,0

87,0

82,0

89,8

88,0

91,8

91,0

192,4 

628,8 

272,8 

628,8 

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(c) 

Overall  financial  impact  of  human  resources  and  other  administrative  expenditure  

23,83 

23,83

23,83

23,83

23,83

47,66  166,81 

Commitments/ 
payments 

TOTAL a+b+c 

Commitments 

106,73  108,73

110,83

113,63

115,63

240,06 

795,61 

Payments 

59,83 

82,83

105,83

111,83

114,83

320,46 

795,61 

2.4. 

Compatibility with financial programming and financial perspective 

X 

Proposal is compatible with next financial programming 2007-2013. 

Proposal  will  entail  reprogramming  of  the  relevant  heading  in  the  financial 
perspective. 

Proposal  may  require  application  of  the  provisions  of  the  Interinstitutional 
Agreement. 

2.5. 

Financial impact on revenue: 

X 

Proposal  has  no  financial  implications  (involves  technical  aspects  regarding 
implementation of a measure) 

OR 

Proposal has financial impact – the effect on revenue is as follows: 

(NB All details and observations relating to the method of calculating the effect on 
revenue should be shown in a separate annex.) 

Budget line 

Revenue 

(€ million to one decimal place) 

Prior to
action 
[Year 
n-1] 

[Yea
r n] 

Situation following action 

[n+1] [n+2] [n+3

[n+4]  [n+5] 

] 

a) Revenue in absolute terms 

b) Change in revenue 

 ∆ 

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3. 

BUDGET CHARACTERISTICS 

Type of expenditure 

New 

EFTA 
contribution 

Contributions 
form applicant 
countries 

Heading in 
financial 
perspective 

Non-comp 

Diff 

NO 

YES 

YES 

No 1a-… 

4. 

LEGAL BASIS  

Articles of the Treaty n° 13.2, 40, 129 and 137.1 a/b/j/k 

5. 

DESCRIPTION AND GROUNDS 

5.1. 

Need for Community intervention  

5.1.1.  Objectives pursued 

The  European  Union  has  an  important  role  to  play  in  the  development  of  a  modern, 
innovative and sustainable European Social Model with more and better jobs in an inclusive 
society based on equal opportunities. Article 2 of the Treaty states that the Community shall 
have as part of its tasks that of promoting a high level of employment and of social protection 
and  the  raising  of  the  standard  of  living  and  quality  of  life  throughout  the  Community  and 
economic and social cohesion. 

In  order  to  achieve  those  objectives,  the  Framework  Programme  will  address  a  number  of 
problems have to be addressed: 

(1) 

(2) 

(3) 

(4) 

(5) 

The  Commission  has  to  ensure  that  it  has  the  necessary  knowledge  and 
understanding  of  the  situation  prevailing  in  the  Member  States  in  order  to 
exercise its right of initiative; 

policy 

Effective 
social 
in 
protection/inclusion  areas  requires  the  development  of  statistical  tools  and 
methods and common indicators; 

coordination 

employment 

and 

the 

The  Commission  has  to  ensure  that  the  EU  law  and  policies  objectives  are 
implemented  in  a  uniform  way  in  the  Member  States  and  should  be  able  to 
assess their impact; 

policy 

coordination 

Effective 
social 
in 
protection/inclusion  areas  requires  the  promotion  of  networking,  mutual 
learning,  identification  and  dissemination  of  good  practice  at  EU  level 
between institutional actors;  

employment 

and 

the 

There  is  a  clear  need  to  increase  the  awareness  of  the  stakeholders  and  the 
general  public  about  the  EU  policies  pursued  in  the  employment  and  social 
protection/inclusion areas; 

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(6) 

Similarly, there is a lack of capacity of the key EU networks to promote and 
support EU policies in the employment and social protection/inclusion areas. 

The  example  of  indicators  and  criteria  for  the  evaluation  are  presented  in  the  ex-ante 
evaluation. 

5.1.2.  Measures taken in connection with ex ante evaluation  

The DG EMPL multi-annual evaluation plan foresaw the ex-ante of the programmes mainly 
in 2005. The context described above implies carrying out the ex-ante evaluation at an early 
stage. This ex-ante evaluation has been performed internally by the DG EMPL evaluation unit 
in cooperation with all units concerned in the process of defining the programme.  

5.1.2.1.  Use of evaluation results and lessons from the past 

In the context described above the evaluation results available show the appropriateness of the 
different  actions  supported  to  achieve  the  goals  set  in  the  Social  Policy  Agenda.  Several 
innovative  approaches  have  been  evaluated.  The  evaluation  results  already  published  are 
presented in annex 1 Evaluation results and annex  2: list evaluation carried  out.  The exante 
evaluation pointed out the main ex-post and on-going results (p.3). 

5.1.2.2  Support to the definition of objectives 

A  'logic  frame'  derived  from  the  evaluation  of  the  programmes  has  helped  to  structure  the 
definition of general, specific and operational objectives of the Framework programme.  

The  preparatory  works  have  started  just  after  the  financial  perspective  decision.  Internal 
working  group  have  been  set  up  with  representatives  of  the  units  concerned,  SPP  and 
evaluation unit. 

5.1.2.3  Recommendations 

In addition to give a support in the design of the policy, the aims of the ex-ante evaluation was 
also  to  identify  further  actions  needed  to  implement  the  new  framework  programme.  Some 
recommendations  related  to  the  conclusions  have  been  identified.  They  are  presented  in  a 
synthetic  table  with  the  main  conclusions.  Further  evaluation  results  will  be  reported  and 
taken into account to implement the framework programme decision.  

The main conclusions from the ex-ante evaluation have been summarised in a table with some 
corresponding  recommendations.  The  evaluation  report  is  annexed  to  the  Commission 
Communication with the Proposal for the programme decision and the financial statement. 

Conclusions 

Recommendations for 
implementation 

Conclusion 1 
–  The approach is relevant and justified regarding the overall objectives;  
–  Actions supported are effective and need to be focused on activities that create 

the most EU added value  

–  There is an adequate level of efficiency with the current level of funding and it is 

necessary to merge the smaller budget lines (often created under the EU 
parliament pressures) 

–  The proposals to improve and simplify the delivery mechanisms are appropriate 

No specific 
recommendation 

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and it is necessary to take into account the human resources constrains. 

Compared with the previous period of implementation, the main change introduced 
is the reinforcement on certain types of activities needed to ensure the Commission 
initiative role in promoting EU governance. 

Conclusion 2 

The framework programme objectives have been designed to ensure a more explicit 
targeting on the instruments/strategy needed to implement the EU objectives. 
Specific objectives have been defined regarding the EU competencies fixed in the 
Treaty. The value added has been identified regarding those specific objectives. 
Operational objectives have been set-out and examples of related indicators 
provided. 
The common framework for definition of objectives will significantly reinforce the 
internal / external coherence of the activities financed at the level of the 
Commission. 
One of the main changes introduced compared with the 2001-2006 generation of 
programmes is to rationalise the interventions previously carried out under different 
budget lines into one single framework programme. That will allow more budgetary 
coherence. 
Main stakeholders will be targeted taking into account the experience from the 
previous interventions. 

Conclusion 3 

This programme decision bringing all the budget lines into the same framework will 
introduce much more coherence and complementarity in the delivery of the 
activities. 

–  The delivery mechanism have been examined in order to define them at an early 
stage but allowing flexibility needed to ensure concentration on the most needed 
actions.  

–  The monitoring and evaluation processes are defined to take into account the 

current experience with the Community action programmes. 

Conclusion 4 

In general the very specific nature of the framework programme intervention in the 
field of social policy will not create any duplication or risk of overlap.  
Nevertheless, for closely linked interventions, exchanges and mutual learning effects 
will continue to be supported.  
The programme decision has included a chapter on complementarity to ensure it is 
present ands foresees that it should be evaluated.  

Conclusion 5 

Cost effectiveness and EU value added have been fully integrated in the definition of 
the approach. They have been the central concepts used to rationalise the design of 
the intervention in the competencies of DG EMPL 

5.1.3.  Measures taken following ex post evaluation 

Attention should be 
devoted to ensuring that 
simplification does not 
create a lack of visibility 
for each policy field. 

In the implementation of 
the Decision, attention 
should be given to the 
definition of Framework 
guidelines and 
corresponding work 
programme and more 
specific definition of 
target operators and 
activities 

Special attention will be 
devoted in avoiding 
overlap for action 
designated to be financed 
under the autonomous 
basis. 

No specific 
recommendation 

Lessons from the available interim evaluations have been taken into consideration in the ex-
ante evaluation. 

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5.2. 

Action envisaged and budget intervention arrangements 

In  order  to  achieve  the  general  objectives  described  in  point  5.1.1,  it  has  been  decided  to 
establish  a  Framework  programme  split  into  5  sections  corresponding  to  specific  objectives 
relating to 5 different areas of activities: 

(1) 

Employment 

Section  1  will  support  the  implementation  of  the  Treaty  based  European  Employment 
Strategy 

(2) 

Social protection and inclusion 

Section 2 will support the implementation of the open method of coordination in the field of 
social protection and inclusion. 

(3)  Working conditions  

Section 3 will support the improvement of the working environment and conditions including 
health and safety at work as enshrined in the Treaty. 

(4) 

Antidiscrimination and diversity  

Section 4 will support effective implementation of the principle of non-discrimination on the 
grounds  of  racial  or  ethnic  origin,  religion  or  belief,  disability,  age  or  sexual  orientation  as 
enshrined  by  the  Treaty  and  promote  the  benefits  of  diversity.  It  will  also  promote  anti-
discrimination mainstreaming in EU policies. 

(5)  Gender equality 

Section  5  will  support  the  effective  implementation  of  the  principle  of  gender  equality  as 
enshrined in the Treaty and promote gender mainstreaming in EU policies. 

Each of these specific objectives has then been further specified in operational objectives as 
mentioned in the Decision (see articles 4 to 9). 

In  order  to  achieve  the  respectively  main,  specific  and  operational  objectives,  the  Decision 
establishing the Framework programme foresees a wide range of possible actions. They can 
be classified in 3 different types: 

•  Analytical and mutual learning activities : 

This type of actions will cover the carrying out of studies, surveys, evaluations, peer reviews, 
the  elaboration  of  guides  and  reports  and  the  development  of  common  methodologies  and 
indicators. 

•  Awareness and Dissemination activities 

This type of actions will cover among others the organisation of conferences in support to the 
implementation of Community law and policy objectives, media campaigns, events, training 
seminars… 

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•  Support to main actors 

This type of actions will cover the financing of key EU networks acting in at least one of the 
section  of  the  Framework  programme,  the  funding  of  networks  of  experts  and  institutional 
bodies, EU level observatories, training seminars for legal practitioners etc… 

A detailed presentation of the practical actions foreseen under each section and their link with 
the operational objectives is included in the table under Point 6.2. 

5.3 

Methods of implementation 

The above mentioned types of actions may be financed either by: 

•  a service contract following a call for tenders 

•  or a partial subsidy following a call for proposals. In this case, the EU co-financing may 
not exceed, as a general rule, 80 % of the total expenditure incurred by the recipient. Any 
subsidy in excess of this ceiling can only be granted under exceptional circumstances and 
after close scrutiny. 

The  Commission  will  implement  this  Framework  programme  and  may  have  recourse  to 
technical and/or administrative assistance to the mutual benefit of the Commission and of the 
beneficiaries, for example to finance outside expertise on a specific subject. 

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6. 

FINANCIAL IMPACT 

6.1. 

Total financial impact on Part B - (over the entire programming period) 

6.1.1.  Financial intervention 

The envisaged breakdown, indicated below, shall be subject to modifications during 
the  programming  period  following  decisions  from  the  Programme  Committee.  The 
minimum part for each section is indicated under the article 15 of the decision. 

Commitments (in € million to three decimal places) 

Breakdown 

2007 

2008 

2009 

2010 

2011 

2012 et 
suiv. 

Total 

Section 1: Employment 

18,9 

19,5

20,0

20,7

21,2 

44,3

144,6

Section 2: Social protection 

23,7 

26,0

26,7

27,7

28,3 

59,4

191,8

and inclusion 

Section 3: Working 

10,4 

9,0

9,3

9,5

9,8 

20,5

68,5

conditions 

Section 4: 

Antidiscrimination and 

diversity 

20,7 

21,3

21,9

22,6

23,2 

48,5

158,2

Section 5: Gender equality 

7,6 

7,6

7,6

7,8

7,8 

16,15

54,55

Support to the 

implementation of the 

programme 

1,6 

1,5

1,5

1,5

1,5 

3,55

11,15

TOTAL 

82,9 

84,9 

87,0 

89,8 

91,8 

192,4 

628,8 

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6.1.2.  Technical  and  administrative  assistance,  support  expenditure  and  IT  expenditure 

(commitment appropriations) 

2007 

2008 

2009 

2010 

2011 

2012 et 
suiv. 

Total 

1) 
administrative assistance 

Technical 

and 

Technical 

a) 
offices

assistance 

b)  Other 
administrative assistance: 

technical 

and 

- intra muros: 

- extra muros: 

of  which  for  construction 
of 
maintenance 
and 
computerised  management 
systems 

Subtotal 1 

2) Support expenditure 

a) Studies 

b) Meetings of experts 

c) Information and 
publications 

Subtotal 2 

TOTAL 

0,8 

1,7 

2,5 

5,0 

5,0 

0,8 

1,7 

2,5 

5,0 

5,0 

0,8 

1,7 

2,5 

5,0 

5,0 

0,8 

1,7 

2,5 

5,0 

5,0 

0,8 

1,7 

2,5 

5,0 

5,0 

1,6 

3,4 

5,0 

10,0 

10,0 

5,6 

11,9 

17,5 

35,0 

35,0 

The Programme's financial envelop can also cover expenditure relating to preparatory, follow-
up,  control,  audit  and  evaluation  activities  which  are  directly  necessary  for  the  programme 
management  and  for  the  achievement  of  its  objectives,  in  particular  studies,  meetings, 
information  activities  and  publication,  informatics  networks  aiming  at  exchanges  of 
information  as  well  as  any  other  technical  assistance  expenditure  to  which  the  Commission 
can resort for the management of the programme. 

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6.2. 

Calculation  of  costs  by  measure  envisaged  in  Part  B  (over  the  entire 
programming period) 

Commitments (in € million to three decimal places) 

Breakdown  

Type 

Section 1: Employment 
- Improving the understanding of the employment 
situation, in particular through analysis, studies and 
the development of statistics and indicators 

- Monitoring and evaluating the implementation of 
the European Employment guidelines and 
Recommendations and analysing the interaction 
between the EES and other policy areas. 

- Organising exchanges on policies and promoting 
mutual learning between institutional actors in the 
context of European Employment Strategy  

- Raising awareness, disseminating information and 
promoting the debate about the employment 
challenges and policies, including among regional 
and local actors, social partners and other 
stakeholders 

of outputs 

(projects, files ) 
1 

Collection, 
development & 
dissemination of data 
& statistics 

Carrying-out of 
studies, analysis and 
surveys 

Impact assessment 
studies 

Identification of best 
practices and 
organisation of peer 
review projects 

Organisation of 
conf./seminars in 
support to the 
implementation of 
Community law & 
policy objectives, 
Presidency 
conf/seminars, events 

Elaboration & 
publication of guides 
& reports 

Funding of EU level 
observatories 
Cooperation with 
international 
institutions 

Development & 
dissemination of 
common 
methodologies & 
indicators/benchmark 

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Number 
of 
outputs 
(total for 
years 
1…n)  

2 

42 

Average 
unit cost 

Total cost 

(total for years 
1…n) 

3 

4=(2X3) 

0,600 

25,200 

70 

0,450 

31,500 

14 

0,700 

9,800 

30 

1,000 

30,000 

80 

0,200 

16,000 

15 

0,320 

4,800 

7 

15 

2,400 

16,800 

0,300 

4,500 

20 

0,300 

6,000 

144,600 

   EN 

 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
Section 2: Social protection and inclusion 
- Improving the understanding of poverty issues, 
social protection and inclusion policies in particular 
through analysis and studies and the development of 
statistics and indicators. 

- Monitoring and evaluating the implementation of 
the Open Method of Coordination in the field of 
social protection and inclusion and analysing the 
interactions between this OMC and other policy 
areas. 

Funding of surveys 
(Eurobarometer, 
special modules of 
LFS) 

Co-funding EU-SILC 
Common 
methodologies and 
indicators – 
workshops 

Support the 
development of 
statistical bases 
(ESSPRO, etc) 

Development of new 
indicators 
Studies, analysis, 
dissemination of 
results 

Funding of the 
pension forum 
Joint projects with 
other international 
institutions (OECD, 
WHO, UNDP, ILD) 

Evaluation of OMC 
(workshops) 

Evaluation of OMC 
(studies) 
Funding of EU 
observatory on social 
services 

Funding of MISSOC 
network 
Funding of EU 
experts' network on 
social inclusion 

7 

1,000 

7,000 

7 
7 

6,500 
0,050 

45,500 
0,350 

7 

0,700 

4,900 

7 

21 

7 

5 

0,700 

4,900 

0,300 

6,300 

0,300 

2,100 

0,400 

2,000 

4 

0,050 

0,200 

7 

7 

7 

7 

0,300 

2,100 

0,500 

3,500 

0,800 

5,600 

1,000 

7,000 

- Organising exchanges on policies and processes 
and promoting mutual learning between institutional 
actors in the context of the social protection and 
inclusion strategy. 

Peer review seminars 

63 

0,200 

12,600 

Presidency 
conferences 
Round table on 
poverty/exclusion 

24 

7 

0,300 

0,500 

7,200 

3,500 

EN 

30 

   EN 

 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
- Raising awareness, disseminating information and 
promoting the debate about the key challenges and 
policy issues raised in the context of the EU 
coordination process in the field of social protection 
and social inclusion, including among NGO's, 
regional and local actors and other stakeholders. 

Organisation of 
media campaigns and 
events: 
- support of 
awareness raising 
events 

- EU level seminars, 
conferences, media 
campaigns 

Networking among 
specialised 
institutional bodies at 
EU level 
Compilation and 
publication of 
materials to 
disseminate 
information as well as 
results 
Publication of reports 
on national strategies 
(Health and pensions) 

Reports on social 
inclusion 
Joint report on social 
protection and social 
inclusion 

Exchange of 
personnel between 
national/regional 
administrations 

EU networks on 
poverty/social 
exclusion 

Carrying-out of 
studies and impact 
assessments 

Granting subventions 
for research projects 
Conferences, 
meetings workshops 
at EU or national 
levels 
Carrying-out of 
surveys and research 
projects 

Statistics on accident 
and illness at work 
Guides of good 
practices 

- Developing the capacity of key EU networks to 
pursue EU policy goals. 

Section 3: Working conditions 
- Improving the understanding of the situation in 
relation to working conditions in particular through 
analysis and studies and the development of statistics 
and indicators as well as assessing the impact of 
existing legislation, policies and practices. 

7 

3,000 

21,000 

2 

7 

7 

7 

7 

7 

7 

3,000 

6,000 

3,000 

21,000 

0,500 

3,500 

0,050 

0,350 

0,050 

0,350 

0,050 

0,350 

0,300 

2,100 

7 

3,200 

22,400 

191,800 

33 

0,200 

6,600 

60 

40 

0,150 

9,000 

0,100 

4,000 

25 

0,250 

6,250 

7 

5 

0,400 

2,800 

0,140 

0,700 

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- Supporting the implementation of EU labour law 
through reinforced monitoring, training of 
practitioners, development of guides and networking 
amongst specialised bodies 

- Initiating prevention actions and fostering the 
prevention culture in the field of health and safety at 
work 

Funding of surveys 
(module of LFS 
about accidents and 
illness at work) 

Carrying-out of 
studies and analysis 

1 

1,600 

1,600 

20 

0,120 

2,400 

Granting subventions 
Conferences, 
seminars 

60 
40 

0,110 
0,070 

6,600 
2,800 

Subventions 

15 

0,100 

1,500 

35 

7 

0,080 

2,800 

0,065 

0,450 

220 

0,050 

11,000 

Health and safety 
campaigns 
Exchange of 
inspectors 
Meetings/initiatives 
of the Advisory 
Committee H&S at 
work & working 
groups 

- Raising awareness, disseminating information and 
promoting the debate about key challenges and 
policy issues in relation to working conditions 

Organisation of 
conferences, seminars 
and workshops 

50 

0,100 

5,000 

Section 4: Anti-discrimination and diversity 
- Improving the understanding of situation in relation 
to discrimination in particular through analysis and 
studies and the development of statistics and 
indicators as well as assessing the impact of existing 
legislation, policies and practices 

Subventions 
Publications 

30 
40 

0,100 
0,050 

3,000 
2,000 
68,500 

7 

1,500 

10,500 

17 

0,500 

8,500 

25 

0,150 

3,750 

7 

0,300 

2,100 

Funding of expert 
groups covering all 
grounds of 
discrimination 

Carrying-out of 
studies, analysis and 
surveys and 
dissemination of the 
results  

Elaboration and 
publication of guides 
and reports of studies  

Conferences/seminars 
to identify best 
practices and 
organisation of peer 
review  

EN 

32 

   EN 

 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
Collection, 
development and 
dissemination of data 
and statistics 

3 

1,000 

3,000 

- Supporting the implementation of EU anti-
discrimination legislation through reinforced 
monitoring, training of practitioners and networking 
amongst institutional actors including specialised 
bodies dealing with anti-discrimination;  

Training seminars for 
legal practitioners, 
key officials and 
other relevant actors 

Support for working 
groups of national 
officials to monitor 
the implementation of 
EU law and policy 
objectives 

Support for 
networking among 
specialised bodies 

90 

0,200 

18,000 

7 

0,300 

2,100 

7 

0,300 

2,100 

- Raising awareness, disseminating information and 
promoting the debate about the key challenges and 
policy issues in relation to discrimination and the 
mainstreaming of anti-discrimination in EU policies 

Media campaign 

7 

5,400 

37,800 

- Developing the capacity of key EU networks to 
pursue EU policy goals; 

National conferences 
and seminars in 
support of awareness 
raising (incl. 
disability specific) 

Presidential 
conferences/seminars 
(incl disability 
specific) 
Compilation and 
publications of 
materials to 
disseminate 
information and 
results 

Support to running 
costs (subsidies) : 
- networks 
representing and 
defending the rights 
of people potentially 
exposed to 
discrimination 

- other smaller key 
networks  

175 

0,150 

26,250 

21 

0,300 

6,300 

7 

0,800 

5,600 

35 

0,800 

28,000 

35 

0,120 

4,200 

158,200 

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Section 5: Gender equality 
- Improving the understanding of the situation in 
relation to gender issues and gender mainstreaming 
in particular through analysis and studies results and 
the development of statistics and indicators as well 
as assessing the impact of existing legislation, 
policies and practices 

- Supporting the implementation of EU gender 
equality legislation through reinforced monitoring, 
training of practitioners and networking amongst 
institutional actors including equality bodies;  

- Raising awareness, disseminating information and 
promoting the debate about the key challenges and 
policy issues raised in relation to gender equality 
and gender mainstreaming; 

Policy analysis and 
impact assessment: 
Experts networks 

Development of 
harmonised statistics 
and common 
indicators 

Analytical studies 

Legal experts 
network 

14 

0,700 

9,800 

14 

0,700 

9,800 

7 

7 

0,800 

5,600 

0,700 

4,900 

Seminars 

7 

0,500 

3,500 

European conferences

21 

0,550 

11,550 

dissemination of 
information, 
publications 

7 

0,500 

3,500 

- Developing the capacity of key EU networks to 
pursue EU policy goals 

EU network of NGOs 

7 

0,843 

5,900 

Support to the implementation of the programme 
- Evaluation of the programme 
- Programme committee 

studies 
meetings 

8 
90 

1,000 
0,035 

TOTAL COST 

54,550 

8,000 
3,150 

628,800 

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7. 

IMPACT ON STAFF AND ADMINISTRATIVE EXPENDITURE  

7.1. 

Impact on human resources 

Description of tasks deriving from the 
action 

Staff to be assigned to management of the 
action using existing and/or additional 
resources 

Number of 
permanent posts 

Number of 
temporary posts 

133 

133 

9 

46 

55 

Total 

142 

46 

188 

Types of post 

Officials or 
temporary staff 

Other human resources 

Total 

7.2. 

Overall financial impact of human resources 

Type of human resources 

Amount (€) 

Method of calculation *  

Officials 

Temporary staff 

Other human resources 

- Number of staff based on  

14,36 mio€ 

B 2004 + pre-allocation of APS 2005 

0,97 mio€ 

3,60 mio€ 

- standard average cost : 108.000 € 

Average  cost  based  on  B2004  budget 
lines 04.010201 and 04.010405 

The amounts are total expenditure for twelve months. 

Total  18,93 mio€ 

7.3. 

Other administrative expenditure deriving from the action 

Budget line 

(number and heading) 

Amount € 

Method of calculation 

Overall allocation (budget line 04.010211) 

4,7 mio€ 

Estimated 
programme 
expenditure of the policy area 04 :  

framework 
the  administrative 

part 
in 

of 

A0701 – Missions 

A07030 – Meetings 
A07031 – Compulsory committees 1 
A07032 – Non-compulsory committees 1 

A07040 – Conferences 

A0705 – Studies and consultations 

Other expenditure (specify) 

Information systems (A-5001/A-4300) 

Other expenditure - Part A : training 

65 % 

0,1 mio€ 

0,1 mio€ 

Total  4,9 mio€ 

Part of B2004 prorata staff working 
on framework programme 

The amounts are total expenditure for twelve months. 

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1 Specify the type of committee and the group to which it belongs. 

I. 

II. 

Annual total (7.2 + 7.3) 

Duration of action 

III. 

Total cost of action (I x II) 

 23,83 mio€ 

7 years 

166,81 mio€ 

The  needs  for  human  and  administrative  resources  shall  be  covered  within  the  allocation 
granted to the managing DG in the framework of the annual allocation procedure. 

The allocation of posts will depend, on the one hand, on the internal organisation of the next 
Commission,  and,  on  the  other  hand,  on  the  possible  reallocation  of  posts  between  services 
following the new financial perspectives. 

8. 

FOLLOW-UP AND EVALUATION 

8.1. 

Follow-up arrangements 

The arrangements for monitoring are described in the article 19 of the decision proposal. 

The  impact  of  the  operational  objectives  will  be  measured  by  their  contribution  to  the 
implementation of each specific objective. The main factor to assess the success of the actions 
financed will be the EU value added they generated (see EU value added chapter 6 of ex-ante 
evaluation). 

Indicators  will  be  put  in  place  to  monitor  the  efficiency  and  the  effectiveness  of  the 
implementation of the operational objectives. The output indicators are directly related to the 
specific  activity  carried  out.  They  will  be  defined  in  terms  of  number  of  projects,  main 
characteristic and cost. 

The Framework programme will be monitored regularly in order to follow the implementation 
of the activities carried out under each section. Annual activity reports will be transmitted to 
the Framework programme Committee referred to in Article 13 of this Decision, in order to 
inform its members on the progress made and discuss the necessary reorientations. 

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Example of indicators and criteria for the evaluation are presented in the ex-ante evaluation. 

Example of type of action to 
achieve the operational 
objectives  

Analytical and mutual learning 

Example of 
Type of outcome indicators 

Example of 
Type of impact indicators 

Development of indicators 

N° of indicators defined in a 
common format 

Use in the discussion on the 
achievement of the related 
objective 

Collection and disseminations of 
data 

N° of indicator filled 
robustness of data collection 
(validity, margin of error, etc) 
use of databases 

Results available through Europe 
(such as Euro barometer) 
Robustness of comparisons 
through EU 

Studies 
Evaluation 
Assessment of impact 

% of topics covered 
coverage rate of surveys 
key issues and relevance of 
recommendations 

Coverage of publication 
Use in the programming decisions 

Seminar / peer review 

Awareness and dissemination 
activities 

N° and type of participants 
Satisfaction rate 
Type of learning effects 

Progress made in the 
implementation on the 
achievement of the related 
objective 

EU level conferences 
Events 

N° and type of participants 
Satisfaction rate 
Type of learning effects 

Publication 

Coverage of potential 
beneficiaries 

Coverage of the event (media) 

Publication on the related subject
Quality in the message 
communicated 
Policy making influence 

% of target population addressed
Quality in the message 
communicated 

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Support to the main actors 

EU organisation 
Networks 

Trainings / seminars / exchanges 
between officials 

Expert networks 

EU level observatories 

Cooperation with international 
institutions 

Topic coverage at EU level 
n° and representative of 
supporting organisations and 
MS  
 Lessons learned  

N° and type of participants 
Satisfaction rate 
Type of learning effects 

N° of participants 
Satisfaction rate 
Type of learning effects 

% of EU topics covered 
coverage rate of EU surveys 
key EU issues and relevance of
recommendations 

Effects of the exchanges / 
Transfer of information to " 
organisations" and other main 
stakeholders 

Progress made in the 
implementation on the 
achievement of the related 
objective 

Publication on the related subject
Policy making influence 

Publication on the related subject
Policy making influence 

N° / coverage of shared topics  Adoption of common "objectives" 

8.2. 

Arrangements and schedule for the planned evaluation 

The arrangements for evaluation are described in the article 18 of the decision proposal. 

The impact of specific objectives will depend on the effectiveness of their contribution to the 
implementation of the overall objective in Europe.  

The  nature  of  the  programme  objectives  is  qualitative.  The  type  of  effect  created  will  be 
improvement  of  EU  governance  through  better  understanding,  monitoring,  exchange  and 
dissemination of EU policy objectives. Most of those effects 

The Framework programme will also be the subject of an on-going evaluation at the level of 
the different sections with an overview on the Framework programme in order to measure the 
progress  made  regarding  the  impact  of  the  programme  objectives  and  its  EU  added  value. 
These  evaluations  will  be  carried  out  by  the  Commission  with  the  assistance  of  external 
experts.  When  available,  their  results  will  be  reported  in  the  activity  reports  mentioned  in 
paragraph 1. 

An  ex-post  evaluation  covering  the  whole  Framework  programme  will  be  carried  out,  one 
year  after  it  ends,  by  the  Commission  with  the  assistance  of  external  experts.  It  shall  be 
transmitted  to  the  European  Parliament,  the  Council,  the  European  Economic  and  Social 
Committee and the Committee of the Regions. 

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9. 

ANTI-FRAUD MEASURES 

The  Commission  shall  ensure  that,  when  actions  financed  under  the  present  decision  are 
implemented,  the  financial  interests  of  the  Community  are  protected  by  the  application  of 
preventive  measures  against  fraud,  corruption  and  any  other  illegal  activities,  by  effective 
checks and by the recovery of the amounts unduly paid and, if irregularities are detected, by 
effective,  proportional  and  dissuasive  penalties,  in  accordance  with  Council  Regulations 
(EC,  Euratom)  No  2988/95  and  (Euratom,  EC)  No  2185/96,  and  with  Regulation  (EC) 
No 1073/1999 of the European Parliament and of the Council. 

For the Community actions financed under this decision, the notion of irregularity referred to 
in  Article  1,  paragraph  2  of  Regulation  (EC,  Euratom)  No  2988/95  shall  mean  any 
infringement  of  a  provision  of  Community  law  or  any  breach  of  a  contractual  obligation 
resulting  from  an  act  or  omission  by  an  economic  operator,  which  has,  or  would  have,  the 
effect of prejudicing the general budget of the Communities or budgets managed by them, by 
an unjustifiable item of expenditure. 

Contracts  and  agreements  as  well  as  agreements  with  participating  third  countries  resulting 
from  this  decision  shall  provide  in  particular  for  supervision  and  financial  control  by  the 
Commission (or any representative authorized by it) and audits by the Court of Auditors, if 
necessary on-the-spot. 

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