Proposal for a Decision of the European Parliament and of the Council establishing for the period 2007-2013 the programme "Citizens for Europe" to promote active European citizenship {SEC(2005) 442}
Date: 2005-04-06
Institutions: European Commission
Subjects: EU programme, European citizenship, economic and social cohesion

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 6.4.2005 
COM(2005) 116 final 

2005/0041 (COD) 

Proposal for a 

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

establishing for the period 2007-2013 the programme "Citizens for Europe" to promote 
active European citizenship 

(presented by the Commission) 

{SEC(2005) 442} 

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EXPLANATORY MEMORANDUM 

INTRODUCTION 

The  European  Union  today  forms  a  dense  network  of  institutional,  social  and  political 
relationships  which  has  become  even  richer  in  the  context  of  an  enlarged  Europe  and  will 
continue to do so in the context of future enlargements. European citizens are at the heart of 
this  process  and  their  active  involvement  is  essential  in  order  to  ensure  a  democratic  and 
balanced development of the European Union.  

The  European  Union  is,  however,  currently  facing  a  paradox:  despite  the  successes  and 
achievements  of  the  European  Union  since  its  creation,  European  citizens  seem  to  have 
developed  a  certain  distance  towards  the  European  institutions  and  to  have  difficulties  in 
identifying  themselves  within  the  process  of  European  integration.  The  low  level  of 
participation  in  the  last  elections  for  the  European  Parliament  is  a  recent  illustration.  The 
European Council has recognised on several occasions the need to bring the European Union 
and  its  institutions  closer  to  the  citizens  of  the  Member  States  and  it  has  encouraged  the 
Union's institutions to promote citizens' participation in public life and in decision-making. 

The Commission has identified three different types of responses to this problem, which are to 
be  implemented  by  different  initiatives  of  the  Commission.  First,  there  is  a  need  for  better 
information  of  citizens  about  European  institutions  and  better  communication  on  European 
issues in general. Second, citizens need to be fully aware, and make full use, of their rights as 
citizens  of  the  European  Union,  as  described  in  Article  17  of  the  EC  Treaty,  and  of  their 
fundamental  rights  under  the  Charter  on  Fundamental  rights.  Third,  citizens  should  also  be 
aware  of  their  duties  as  citizen  and  become  actively  involved  in  the  process  of  European 
integration, developing a sense of belonging and a European identity.  

The  aim  of  this  programme  is  to  tackle  the  third  issue.  The  challenge  of  bridging  the  gap 
between citizens and the European institutions is closely linked to another challenge, that of 
strengthening cohesion among Europeans, particularly after the accession of 10 new Member 
States  on  1  May  2004.  In  such  a  context,  the  shared  values,  such  as  freedom,  fairness, 
tolerance and solidarity, which hold our societies together, become more important than ever. 

The European Union therefore requires a programme which puts citizens at the centre, which 
offers  them  the  opportunity  to  fully  assume  their  responsibilities  as  European  citizens  and 
which responds to the need to improve their participation in the construction of Europe. This 
programme  would  encourage  cooperation  between  citizens  and  their  organisations  from 
different  countries  in  order  to  meet,  to  act  together  and  to  develop  their  own  ideas  in  a 
European environment that goes beyond a national vision and which respects their diversity. 
Mutual understanding, solidarity and a sense of belonging to Europe are the building blocks 
for the involvement of citizens.  

1. 

CONTEXT OF THE PROPOSAL 

The  Council  Decision  establishing  a  Community  programme  to  promote  active  European 
citizenship  (civic  participation)  was  adopted  on  26  January  2004  provided  a  legal  basis  for 

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grants  towards  the  promotion  of  active  European  citizenship,  for  a  period  of  three  years 
(2004–2006)1. 

The  Commission  Communication  "Building  our  common  Future:  Policy  challenges  and 
Budgetary  means  of  the  Enlarged  Union  2007-2013"2  proposed  developing  European 
citizenship  as  a  main  priority  for  EU  action.  This  included  the  need  to  make  citizenship  a 
reality  by  fostering  European  culture  and  diversity,  covering  areas  directly  involving 
European citizens with the integration process, including that of citizenship. In the light of the 
above and of the results of the public consultation, as well as of the ex-ante evaluation of the 
future  instrument,  the  Commission  is  presenting  this  legislative  proposal  as  part  of  the  new 
generation programmes for the period 2007-2013. The proposed programme both ensures the 
continuity of the current Civic participation programme and opens the way to new activities, 
providing a degree of flexibility in order to be able to adapt to future developments.  

2. 

OUTCOME OF THE PUBLIC CONSULTATION WITH INTERESTED PARTIES AND OF THE 
IMPACT ASSESSMENT 

2.1. 

Public consultations 

As part of the development of this proposal for a new programme, extensive consultation has 
been  carried  out  concerning  the  problems  and  issues  to  be  addressed,  the  target  users,  key 
objectives and potential options for implementation. An online consultation, from December 
2004  to  February  2005,  resulted  in  more  than  a  thousand  responses,  including  around  700 
from organisations and around 300 from individuals. A Consultative Forum was organised on 
3 and 4 February 2005, gathering approximately 350 participants, covering the full range of 
stakeholders.  

The main outcome of this consultation was an overwhelming support for a new programme. 
The  overall  approach  proposed,  of  targeting  both  citizens  directly  and  civil  society 
organisations, was massively supported.  

The  success  of  the  current  activities,  such  as  town  twinning  and  operating  grants  for 
organisations, was evidenced by the strong support for pursuing them. The main innovations 
sought were multi-annual projects, pooling of experience between local projects of different 
Member States, development of innovative partnerships with new partners and major events 
mobilising citizens at EU level, notably in the context of intercultural dialogue.  

Different general principles, which should guide the implementation of the programme, have 
been  stressed.  The  transnational  dimension  was  considered  essential.  The  need  to  pay 
particular  attention  to  building  bridges  between  the  citizens  of  “old”,  “new”  and  future 
Member  States  was  underlined.  Development  of  synergies  between  the  various  activities 
carried  out  and  networking  between  different  kinds  of  stakeholders  were  considered 
important. There was also a call for bridges between this programme and other Commission 
programmes.  

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OJ L 30, 2.2.2004, p. 6. 
COM(2004) 101, 10.2.2004. 

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2.2. 

Ex-ante evaluation 

The ex-ante evaluation report presents the results of the consultation to back up the proposal. 
It underlines the necessity to respond to the needs of citizens and civil society organisations 
for a scheme to support transnational activities in the field of active citizenship. It stresses the 
complementarity  with  other  programmes  and  activities  of  the  European  Union,  especially 
those implemented by the Directorate General for Press and Communication, the Directorate 
General for Research and the Directorate General for Justice, Freedom and Security. 

3. 

OBJECTIVES OF THE NEW PROGRAMME  

The global aim of the proposed programme is to contribute to: 

–  giving  citizens  the  opportunity  to  interact  and  participate  in  constructing  an  ever  closer 

Europe, united in and enriched through its cultural diversity; 

–  forging a European identity, based on recognised common values, history and culture; 

–  enhancing  mutual  understanding  between  European  citizens  respecting  and  celebrating 

cultural diversity, while contributing to intercultural dialogue.  

Taking  into  account  the  current  situation  and  the  identified  needs,  the  most  appropriate 
specific objectives, which are to be implemented on a transnational basis, are to: 

–  bring  together  people  from  local  communities  across  Europe  to  share  and  exchange 

experiences, opinions and values, to learn from history and to build for the future  

The  programme  will  foster  the  direct  participation  of  citizens  across  Europe,  both  in  the 
activities of the programme and in the development of the notion of a European identity. One 
of  the  most  effective  ways  of  participation  is  directly  experiencing  other  cultures  in  an 
environment that fosters exchange and where people learn through involvement in issues and 
actions  related  to  the  essence  of  Europe.  This  intercultural  exchange  will  contribute  to  the 
improvement of the mutual knowledge of the culture and history of the European peoples, and 
will therefore bring our common cultural heritage to the fore and strengthen the basis for our 
common future.  

–  foster  action,  debate  and  reflection  related  to  European  citizenship  through  cooperation 

between civil society organisations at European level  

There  is  a  need  to  support  transnational  cooperation  among  civil  society  organisations  at 
European  level.  Those  Europe-wide  organisations,  representing  a  vast  spectrum  of  citizens, 
can act as multipliers and offer a voice in Europe for citizens, through transnational and cross-
sectoral actions, debate and reflection, linked to citizenship of the European Union. 

–  make  the  idea  of  Europe  more  tangible  for  its  citizens  by  promoting  and  celebrating 

Europe's values and achievements, while preserving the memory of its past 

There  is  a  need  for  activities  addressing  the  widest  possible  audience  across  frontiers,  built 
around  shared  ideas,  values  or  achievements,  and  reaching  the  greatest  possible  number  of 
Europeans. These activities across Europe have the objective of forging a sense of belonging 

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to  common  European  ideals,  adding  to  the  existing  sense  of  national  and  regional  identity. 
They will contribute to bringing the common cultural heritage to the fore. 

–  encourage  the  balanced  integration  of  citizens  and  civil  society  organisations  from  all 
Member  States,  contributing  to  intercultural  dialogue  and  bringing  to  the  fore  both 
Europe’s diversity and unity, with particular attention to the activities with Member States 
that have recently joined the European Union 

Without the strong and full participation of the citizens and civil society organisations of the 
newer  Member  States,  the  development  of  Europe  will  be  severely  compromised.  All  the 
above  objectives  will  therefore  take  this  last  objective  into  account,  which  will  be 
implemented  in  all  the  programme’s  activities.  Transnational  cooperation  will  play  an 
essential role with regard to this objective. 

4. 

ACTIONS 

4.1 

Action 1: Active citizens for Europe 

Town twinning 

This  measure  is  aimed  at  activities  that  involve  or  promote  direct  exchanges  between 
European  citizens 
including 
conferences  or  seminars  on  subjects  of  common  interest,  along  with  related  publications, 
organised in the context of town-twinning activities. This measure will actively contribute to 
strengthening mutual knowledge and understanding between the citizens. 

town-twinning  activities, 

their  participation 

through 

in 

Citizens’ projects and support measures 

Under  this  measure,  a  variety  of  projects  of  transnational  and  cross-sectoral  dimension, 
directly  involving  citizens,  will  be  supported.  The  scale  and  scope  of  such  projects  will 
depend on the developments within society and will explore, through innovative approaches, 
possible responses  to the  identified needs. Those projects will gather citizens from different 
horizons,  who  will  act  together  or  debate  on  common  European  issues,  hereby  developing 
mutual understanding as well as raising awareness of the process of European integration. In 
order  to  improve  citizen’s  projects,  it  is  also  necessary  to  develop  support  measures  to 
exchange best practices, to pool experiences between stakeholders at local and regional levels, 
including public authorities, and to develop new skills, for example through training.  

4.2. 

Action 2: Active civil society in Europe 

Structural support for European public policy research organisations (think-tanks) 

Bodies  providing  new  ideas  and  reflections  on  European  issues  are  important  institutional 
interlocutors able to provide independent strategic, cross-sectoral recommendations to the EU 
institutions... They can undertake activities that feed the debate notably on citizenship of the 
European Union and on European values and cultures. This measure is aimed at strengthening 
the  institutional  capacity  of  those  organisations,  which  are  representative,  provide  real 
European  added  value,  can  bring  about  important  multiplier  effects  and,  finally,  are  able  to 
cooperate  with  other  beneficiaries  of  this  programme.  The  strengthening  of  transeuropean 
networks is an important element in this area. 

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Structural support for organisations of civil society at European level 

Civil society organisations need to exist and to be able to operate and cooperate at European 
level  in  a  large  number  of  fields  of  general  interest  (e.g.  common  values  and  heritage, 
voluntarism, social issues). This measure will provide them with the capacity and stability to 
act  as  transnational  catalysts  for  their  members and  for  civil  society  at  European  level.  The 
strengthening of transeuropean networks is an important element of this area. 

Support for projects initiated by civil society organisations 

Civil  society  organisations,  such  as  non-governmental  organisations, 
trade  unions, 
federations, think-tanks, etc., can, through debate, publications, advocacy and other concrete 
transnational projects, involve citizens or represent their interests. Introducing or building on 
a  European  dimension  in  the  activities  of  civil  society  organisations  will  enable  them  to 
enhance  their  capacities  and  reach  wider  audiences.  Direct  cooperation  among  civil  society 
organisations  from  different  Member  States  will  contribute  to  mutual  understanding  for  the 
different cultures and point of views and to the identification of shared concerns and values. 

4.3. 

Action 3: Together for Europe 

High-visibility events 

This  measure  will  support  events  organised  by  or  in  cooperation  with  the  European 
Commission  which  are  substantial  in  scale  and  scope,  strike  a  significant  chord  with  the 
peoples  of  Europe,  help  to  increase  their  sense  of  belonging  to  the  same  community,  make 
them aware of the history, achievements and values of the European Union, involve them in 
intercultural dialogue and contribute to the development of their European identity.  

Studies 

In order to get a better understanding of active citizenship at European level, the Commission 
will carry out studies, surveys and opinion polls.  

Information and dissemination tools 

The  focus  on  citizens  and  the  variety  of  initiatives  in  the  field  of  active  citizenship  call  for 
comprehensive  information  on  the  various  activities  of  the  programme,  on  other  European 
actions  related  to  citizenship  and  on  other  relevant  initiatives  to  be  provided  through  an 
Internet portal and other tools.  

5. 

LEGAL ASPECTS OF THE PROPOSAL  

5.1. 

Legal basis 

The  essential  importance  of  promoting  mutual  understanding  and  intercultural  dialogue  and 
the necessary focus on our values, culture and history, as the building blocks of our European 
identity, is reflected by each of the programme’s objectives.  

Those objectives are linked to Article 151 of the EC Treaty on “Culture”, but the reference to 
Article  308  of  the  EC  Treaty  is  also  necessary  in  order  to  cover  the  actions  under  the 
programme that do not have a specific legal basis in this Treaty.  

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5.2. 

Subsidiarity  

The  actions  envisaged  by  the  programme  are  complementary  to  actions  carried  out  by  the 
Member States, notably in the field of culture and education. The Commission believes that it 
has  a  complementary  role  to  play  by  proposing  a  specific  and  ambitious  programme  to 
promote  the  active  involvement  of  citizens  in  the  development  of  Europe,  based  on 
transnational activities. Indeed specific reflection and action at European level and the issue 
of co-operation and mobility, addressed by, for example, the town-twinning projects, are not 
systematically addressed at Member State level.  

5.3. 

Proportionality 

The  proposed  programme  will  focus  on  the  objectives  of  the  Treaty:  it  will  bring  common 
values  to  the  fore,  while  respecting  national  and  regional  diversity.  It  will  encourage  active 
participation  by  citizens  in  the  values,  ideals  and  life  of  Europe  as  well  as  cooperation 
between Member States and third countries. The actions envisaged in this programme do not 
go further than what is necessary to achieve these objectives, in keeping with the principle of 
proportionality. 

5.4. 

Choice of instrument 

A  legislative  instrument  would  not  be  appropriate  to  promote  citizen  participation  as 
described above.  The proposed objectives call for the implementation of concrete actions at 
European  level  requiring appropriate financial support and could not be achieved by simple 
recommendations or co-operation between Member States. 

5.5. 

Simplification 

In its above-mentioned communications of 10 February and 9 March 2004, the Commission 
underlined  the  importance  of  profiting  from  the  review  of  legal  instruments  to  significantly 
simplify the design and implementation of Community instruments and to rationalise the new 
programmes as much as possible.  

Simpler methods for beneficiaries 

The Commission will examine all means currently available for reducing the constraints upon 
beneficiaries while respecting the financial rules in force, in particular ways of:  

–  simplifying forms and application methods; 

–  limiting, in some cases, the amount of information contained in grant agreements; 

–  making the award procedure more transparent and improving information for applicants; 

–  applying  the  principle  of  proportionality  as  much  as  possible,  for  example  by  using  flat-

rate systems for small contributions; 

–  allowing, for small grants, co-financing in kind. 

In  order  to  facilitate  the  administrative  management  of  the  programme,  the  proposal  for  a 
legal basis incorporates the derogations authorised by Council Regulation (EC, Euratom) No 
1605/2002 and its implementing measures.  

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Developing multiannual partnership agreements 

The  programme  will  develop  the  principle  of  multiannual  partnerships,  based  on  agreed 
objectives, building on the analysis of the results, in order to ensure mutual benefits for both 
civil society and the European Union.  

Rationalised management 

The programme will be managed in a centralised way, either directly or indirectly. In order to 
strengthen the effectiveness and efficiency of the programme, the Commission will entrust the 
management  of  some  measures  to  an  executive  agency.  If  necessary,  the  programme  could 
also be partly managed at Member state level (centralised indirect management).  

Simplification of budget lines 

The  programme  will  also  simplify  the  financial  management  of  these  activities  for  the 
Commission, as there will be only one budget line instead of eight (administrative expenditure 
not included).  

6. 

BUDGETARY IMPLICATIONS 

The cost of the programme for the period 2007-2013 is EUR 235 million. 

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2005/0041 (COD) 

Proposal for a 

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

establishing for the period 2007-2013 the programme "Citizens for Europe" to promote 
active European citizenship 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having regard to the Treaty establishing the European Community, and in particular Articles 
151 and 308 thereof, 

Having regard to the proposal from the European Commission3, 

Having regard to the opinion of the European Economic and Social Committee4, 

Having regard to the opinion of the Committee of the Regions5, 

Acting in accordance with the procedure laid down in Article 251 of the Treaty6, 

Whereas: 

(1) 

Union citizenship should be the fundamental status of nationals of the Member States.  

(2) 

(3) 

(4) 

The  Community  should  encourage  European  citizens  to  take  full  advantage  of  all 
aspects  of  the  citizenship  of  the  European  Union,  which  is  to  be  promoted  with  due 
regard for subsidiarity. 

For citizens to give their full support to European integration, greater emphasis should 
therefore  be  placed  on  their  common  values,  history  and  culture  as  key  elements  of 
their  membership  of  a  society  founded  on  the  principles  of  freedom,  democracy  and 
respect for human rights, while respecting their diversity.  

In order to bring Europe closer to its citizens and to enable them to participate fully in 
the construction of an ever closer Europe, there is a need to address all citizens and to 
involve them in transnational exchanges and cooperation activities, contributing to the 
forging of a sense of belonging to common European ideals.  

(5) 

The European Parliament, in its Resolution of 15 April 19887, considered it desirable 
that  a  major  effort  be  undertaken  to  step  up  contacts  between  citizens  of  different 

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OJ C , , p. . 
OJ C , , p. . 
OJ C , , p. . 
OJ C , , p. . 
OJ C 122, 9.5.1988, p. 38. 

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Member  States  and  stated  that  specific  support  from  the  European  Union  for  the 
development of twinning schemes between municipalities in different Member States 
is both rational and desirable. 

The  European  Council  has  recognised  on  several  occasions  the  need  to  bring  the 
European Union and its institutions closer to the citizens of the Member States. It has 
encouraged  the  Union's  institutions  to  maintain  an  open,  transparent  and  regular 
dialogue with civil society and to promote citizens' participation in public life and in 
decision-making, while emphasising the essential values that are shared by the citizens 
of Europe8. 

The  Council  established  in  its  Decision  of  26  January  20049  a  Community  action 
programme  to  promote  active  European  citizenship  (civic  participation),  which  has 
confirmed the need to promote sustained dialogue with civil society organisations and 
municipalities and to support the active involvement of citizens.  

Civil  society  organisations  at  European,  national  and  regional  levels  are  important 
intermediaries  for  reaching  citizens.  Their  transnational  cooperation  should  therefore 
be encouraged.  

European  public  policy  research  organisations  can  provide  ideas  and  reflections  to 
feed the debate at European level. They can also provide a link between the European 
institutions and the citizens, and should therefore be supported. 

(6) 

(7) 

(8) 

(9) 

(10)  Special  attention  should  be  paid  to  the  balanced  integration  of  citizens  and  civil 
society organisations from all Member States into transnational projects and activities. 

(11)  The  candidate  countries  and  the  EFTA  countries  that  are  parties  to  the  EEA 
Agreement  are  recognised  as  potential  participants  in  Community  programmes,  in 
accordance with the agreements made with them.  

(12)  The Thessaloniki European Council of 19 and 20 June 2003 adopted the “Thessaloniki 
Agenda  for  the  Western  Balkans:  moving  towards  European  integration”,  which 
invited  the  Western  Balkan  countries  to  participate  in  Community  programmes  and 
agencies;  therefore,  the  Western  Balkans countries  should  be  recognised  as  potential 
participants in Community programmes. 

(13)  The programme should be regularly monitored and evaluated in cooperation with the 
Commission  and  the  Member  States  in  order  to  allow  for  readjustments,  particularly 
with respect to the priorities for implementing the measures. 

(14)  Council  Regulation  (EC,  Euratom)  No  1605/2002  of  25  June  2002  on  the  Financial 
Regulation applicable to the general budget of the European Communities (hereinafter 
“the  Financial  Regulation”)10  and  Commission  Regulation  (EC,  Euratom)  No 
2342/2002 of 23 December 2002 laying down detailed rules for the implementation of 

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Conclusions  of  the  European  Councils  of  7-9  December  2000,  14-15  December  2001  (and  annexed 
Laeken Declaration), 4-5 November 2004 and 16-17 December 2004.  
Decision 2004/100/EC - OJ L 30, 4.2.2004, p. 6. 
OJ L 248, 16.9.2002, p. 1. 

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Council  Regulation  (EC,  Euratom)  1605/200211,  which  safeguard  the  Community’s 
financial interests, have to be applied taking into account the principles of simplicity 
and consistency in the choice of budgetary instruments, a limitation on the number of 
cases where the Commission retains direct responsibility for their implementation and 
management,  and  the  required  proportionality  between  the  amount  of  resources  and 
the  administrative  burden  related  to  their  use.  It  is  also  necessary  to  provide  for 
specific  arrangements  for  the  application  of  Council  Regulation  (EC,  Euratom)  No 
1605/2002 and its implementation measures, as well as for the derogations from these 
texts necessitated by the features of the beneficiaries and the nature of the actions.  

(15)  Appropriate  measures  should  also  be  taken  to  prevent  irregularities  and  fraud  and  to 

recover funds lost or incorrectly paid or used. 

(16)  The  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 … of the Interinstitutional Agreement of … between the 
European  Parliament,  the  Council  and  the  Commission  on  budgetary  discipline  and 
improvement of the budgetary procedure. 

(17)  Since  the  objectives  of  the  programme  “Citizens  for  Europe”  cannot  be  sufficiently 
achieved by the Member States and can therefore, by reason of the transnational and 
multilateral  nature  of  the  programme's  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 in order to achieve those objectives.  

(18)  The measures necessary for the implementation of this Decision should be adopted in 
accordance  with  Council  Decision  1999/468/EC  of  28  June  1999  laying  down  the 
procedures for the exercise of implementing powers conferred on the Commission12. 

(19)  Transitional measures to monitor actions started before 31 December 2006 should be 

adopted, pursuant to Decision 2004/100/EC.  

HAVE DECIDED AS FOLLOWS:  

Article 1 
Subject, matter and scope of the programme 

1.  This  decision  establishes  the  programme  “Citizens  for  Europe”  for  the  period  from  1 
January 2007 to 31 December 2013. 

2. The programme shall contribute to the following general objectives : 

–  Giving  citizens  the  opportunity  to  interact  and  participate  in  constructing  an  ever  closer 

Europe, united in and enriched through its cultural diversity; 

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OJ L 357, 31.12.2002, p. 1. 
OJ L 184, 17.7.1999, p. 23. 

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–  Forging a European identity, based on recognised common values, history and culture; 

–  Enhancing  mutual  understanding  between  European  citizens  respecting  and  celebrating 

cultural diversity, while contributing to intercultural dialogue.  

Article 2 
Specific objectives of the programme 

The programme shall have the following specific objectives, which shall be implemented on a 
transnational basis:  

(a) 

(b) 

Bring  together  people  from  local  communities  across  Europe  to  share  and 
exchange experiences, opinions and values, to learn from history and to build 
for the future;  

Foster  action,  debate  and  reflection  related  to  European  citizenship  through 
cooperation between civil society organisations at European level;  

(c)  Make  the  idea  of  Europe  more  tangible  for  its  citizens  by  promoting  and 
celebrating Europe's values and achievements, while preserving the memory of 
its past; 

(d) 

Encourage  the  balanced  integration  of  citizens  and  civil  society  organisations 
from all Member States, contributing to intercultural dialogue and bringing to 
the  fore  both  Europe’s  diversity  and  unity,  with  particular  attention  to  the 
activities with Member States that have recently joined the European Union.  

Article 3 
Actions 

1.  The  objectives  of  the  programme  shall  be  pursued  through  support  for  the  following 
actions, details of which may be found in Part I of the Annex:  

(a) 

Active citizens for Europe, consisting of:  

– 

– 

town-twinning; 

citizens’ projects and support measures. 

(b) 

Active civil society in Europe, consisting of: 

– 

– 

– 

structural  support  for  European  public  policy  research  organisations 
(think-tanks); 

structural support for organisations of civil society at European level; 

support for projects initiated by civil society organisations. 

(c) 

Together for Europe, consisting of: 

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– 

– 

– 

high visibility events, such as commemorations, awards, European-wide 
conferences; 

studies, surveys and opinion polls; 

information and dissemination tools. 

2.  In  each  action,  priority  may  be  given  to  the  balanced  integration  of  citizens  and  civil 
society organisations from all Member states, as provided for in the specific objective set out 
in Article 2(4).  

3. Community measures may take the form of grants or public procurement contracts. 

4. Community grants may be provided through specific forms such as operating grants, action 
grants, scholarships, prizes.  

5. Public procurement contracts will cover the purchase of services, such as organisations of 
events, studies and research, information and dissemination tools, monitoring and evaluation. 

6. To be eligible for a Community grant, the beneficiaries must satisfy the requirements set 
out in Part II of the Annex. 

Article 4 
Participation in the programme 

The  programme  shall  be  open  to  the  participation  of  the  following  countries,  hereinafter 
referred to as the “participating countries”: 

(a) 

the Member States; 

(b) 

(c) 

(d) 

the EFTA States that are party to the EEA Agreement, in accordance with the 
provisions of that Agreement; 

the candidate countries benefiting from a pre-accession strategy, in accordance 
with  the  general  principles  and  the  general  terms  and  conditions  for  the 
participation  of  these  countries  in  Community  programmes  laid  down, 
respectively, in the framework agreement and the decisions of the Association 
Councils ; 

the  countries  of  the  western  Balkans,  in  accordance  with  the  arrangements  to 
be  established  with  these  countries  under  the  framework  agreements  on  the 
general principles for their participation in Community programmes. 

Article 5 
Access to the programme  

The  programme  shall  be  open  to  all  stakeholders  promoting  active  European  citizenship,  in 
particular to local communities, European public policy research organisations (think-tanks), 
citizen’s groups and other civil society organisations such as non-governmental organisations, 
platforms, networks, associations and federations, trade unions.  

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Article 6 
Cooperation with international organisations  

The  programme  may  cover  joint  activities  with  international  organisations  competent  in  the 
field of active citizenship, such as the Council of Europe and UNESCO, on the basis of joint 
contributions  and  in  accordance  with  the  Council  Regulation  (EC,  Euratom)  No  1605/2002 
and various rules of each institution or organisation.  

Article 7 
Implementing measures 

1.  The  Commission  shall  adopt  the  measures  necessary  for  the  implementation  of  the 
programme in accordance with the provisions of the Annex. 

2.  The  following  measures  shall  be  adopted  in  accordance  with  the  management  procedure 
referred to in Article 8(2): 

(a) 

the  arrangements  for  the  implementation  of  the  programme,  including  the 
annual work plan, the selection criteria and the selection procedures; 

(b) 

the general balance between the various actions of the programme; 

(c) 

the procedures for monitoring and evaluating the programme. 

3. All other measures necessary for the implementation of the programme shall be adopted in 
accordance with the advisory procedure referred to in Article 8(3). 

4.  As  part  of  the  procedure  mentioned  in  paragraph  2,  the  Commission  may  draw  up 
guidelines  for  each  of  the  actions  in  the  Annex  in  order  to  adapt  the  programme  to  any 
changes of priority in the field of European active citizenship.  

Article 8 
Committee 

1.  The  Commission  shall  be  assisted  by  a  committee,  hereinafter  referred  to  as  “the 
Committee”. 

2. Where reference is made to this paragraph, Articles 4 and 7 of Decision 1999/468/EC shall 
apply, having regard to the provisions of Article 8 thereof. 

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

3. Where reference is made to this paragraph, Articles 3 and 7 of Decision 1999/468/EC shall 
apply, having regard to the provisions of Article 8 thereof. 

4. The committee shall adopt its Rules of Procedure. 

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Article 9 
Coherence with other instruments of the Community and of the European Union 

1.  The  Commission  shall  ensure  the  coherence  and  the  complementarity  between  this 
programme and instruments in other areas of action of the Community, especially education, 
vocational training, culture, sport, fundamental rights and freedoms, social inclusion, gender 
equality, combating discrimination, research and the Community external action, in particular 
in the context of the European Neighbourhood policy. 

2.  The  programme  may  share  resources  with  other  Community  and  Union  instruments  in 
order  to  implement  actions  meeting  the  objectives  of  both  this  programme  and  these  other 
instruments. 

Article 10 
Budgetary Resources 

1. The budget for the implementation of this programme for the period referred to in Article 1 
is hereby set at EUR 235 million. 

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

Article 11 
Financial provisions 

1.  Under  the  terms  of  Article  176(2)  of  Commission  Regulation  (EC,  Euratom)  No 
2342/2002,  the  Commission  may  decide,  in  accordance  with  the  characteristics  of  the 
beneficiaries  and  the  nature  of  the  actions,  to  exempt  them  from  verification  of  the 
professional  competencies  and  qualifications  required  to  complete  the  proposed  action  or 
work programme.  

2. Financial aid shall take the form of grants to legal persons. Grants may in certain cases be 
awarded  to  natural  persons  under  the  terms  of  Article  114(1)  of  Council  Regulation  (EC, 
Euratom) No 1605/2002.  

3.  The  Commission  may  award  prizes  to  natural  or  legal  persons  for  actions  or  projects 
implemented under the programme.  

4. In accordance with Article 181 of Commission Regulation (EC, Euratom) No 2342/2002, 
and depending on the nature of the action, flat-rate financing and/or the application of unit-
cost rates may be authorised.  

5.  Operating  grants  awarded  under  this  programme  to  bodies  pursuing  an  aim  of  general 
European interest, as defined in Article 162 of Commission Regulation No 2342/2002, shall 
not be automatically decreased, in accordance with Article 113(2) of Council Regulation (EC, 
Euratom) No 1605/2002 in the event of renewal. 

6. For small grants, co-financing in kind may be permitted.  

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7. The amount of information may be limited in the case of small grants such as scholarship 
and individual mobility grants.  

8. In specific cases such as the award of a small grant, the beneficiary need not be required to 
demonstrate its financial capacity to perform the planned project or the work programme.  

Article 12 
Protection of Community financial interests 

1.  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. 

2.  For  the  Community  actions  financed  under  the  programme,  the  notion  of  irregularity 
referred  to  in  Article  1(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 unjustified item of expenditure. 

3.  The  Commission  shall  reduce,  suspend  or  recover  the  amount  of  financial  assistance 
granted for an action if it finds irregularities, including non-compliance with the provisions of 
this  Decision  or  the  individual  decision  or  the  contract  or  agreement  granting  the  financial 
support in question, or if it transpires that, without Commission approval having being sought, 
the  action  has  been  subjected  to  a  change  which  conflicts  with  the  nature  or  implementing 
conditions of the project. 

4. If the time limits have not been observed or if only part of the allocated financial assistance 
is justified by the progress made with implementing an action, the Commission shall request 
the  beneficiary  to  submit  observations  within a  specified  period.  If  the  beneficiary  does  not 
give a satisfactory answer, the Commission may cancel the remaining financial assistance and 
demand repayment of sums already paid. 

5. Any undue payment shall be repaid to the Commission. Interest shall be added to any sums 
not repaid in good time under the conditions laid down by the Financial regulation. 

Article 13 
 Monitoring and Evaluation 

1. The Commission shall ensure the regular monitoring of the programme. The results of the 
monitoring  and  evaluation  process  shall  be  utilised  in  implementing  the  programme. 
Monitoring shall include in particular the drawing up of the reports referred to in paragraph 
3(a) and (c). 

The specific objectives may be revised according to the results of the monitoring reports. 

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2.  The  Commission  shall  ensure  regular,  external  and  independent  evaluation  of  the 
programme.  

3. The Commission shall submit to the European Parliament, the Council, the Economic and 
Social Committee and the Committee of the Regions: 

(a) 

(b) 

an interim evaluation report on the results obtained and on the qualitative and 
quantitative aspects of the implementation of the programme not later than 31 
December 2010; 

a  Communication  on  the  continuation  of  the  programme  not  later  than  31 
December 2011; 

(c) 

an ex-post evaluation report not later than 31 December 2015. 

Article 14 
Transitional provision 

Actions  started  before  31  December  2006  pursuant  to  Decision  2004/100/EC  of  26  January 
2004 shall continue to be governed, until their completion, by the said Decision.  

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

Article 15 

It shall apply from 1 January 2007. 

Done at Brussels,  

For the European Parliament 
The President 

For the Council 
The President 

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ANNEX  

I. DESCRIPTION OF ACTIONS 

ACTION 1: ACTIVE CITIZENS FOR EUROPE 

This  action  forms  that  part  of  the  programme  directed  specifically  at  activities  involving 
citizens,  either  directly  or  indirectly.  These  activities  fall  under  two  types  of  measures  as 
follows:  

Town-twinning 

This  measure  is  aimed  at  activities  that  involve  or  promote  direct  exchanges  between 
European citizens through their participation in town-twinning activities. These may be one-
off or pilot activities, or take the form of  structured, multi-annual, multi-partner agreements 
following  a  more  programmed  approach  and  comprising  a  set  of  activities  ranging  from 
citizens meetings to specific conferences or seminars on subjects of common interest, along 
with related publications, organised in the context of town-twinning activities. This measure 
will  actively  contribute  to  strengthening  mutual  knowledge  and  understanding  between 
citizens and between cultures. 

To help implement this measure, structural support may be provided directly to the Council of 
European Municipalities and Regions (CEMR), a body pursuing an aim of general European 
interest, active in the field of town twinning.  

Citizens’ projects and support measures  

Under  this  measure,  a  variety  of  projects  of  transnational  and  cross-sectoral  dimension, 
directly  involving  citizens,  will  be  supported.  The  scale  and  scope  of  such  projects  will 
depend  on  the  developments  within  the  society  and  will  explore,  through  innovative 
approaches,  the  possible  responses  to  the  identified  needs.  The  use  of  new  technologies,  in 
particular Information Society Technologies, shall be encouraged. Those projects will gather 
citizens from different horizons, who will act together or debate on common European issues, 
hereby  developing  mutual  understanding  as  well  as  raising  awareness  of  the  process  of 
European integration.  

In  order  to  improve  citizen’s  projects,  it  is  also  necessary  to  develop  support  measures  to 
exchange best practices, to pool experiences between stakeholders at local and regional levels 
including public authorities, and to develop new skills, for example through training.  

As an indication, approximately 40% of the total budget allocated to the programme will be 
devoted to this action.  

ACTION 2: ACTIVE CIVIL SOCIETY IN EUROPE 

Structural support for European public policy research organisations (think-tanks) 

Bodies  providing  new  ideas  and  reflections  on  European  issues  are  important  institutional 
interlocutors able to provide independent strategic, cross-sectoral recommendations to the EU 
institutions... They can undertake activities that feed the debate notably on citizenship of the 

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European Union and on European values and cultures. This measure is aimed at strengthening 
the  institutional  capacity  of  those  organisations,  which  are  representative,  provide  real 
European  added  value,  can  bring  about  important  multiplier  effects  and,  finally,  are  able  to 
cooperate  with  other  beneficiaries  of  this  programme.  The  strengthening  of  transeuropean 
networks is an important element in this area. Grants may be awarded on the basis of a multi-
annual work programme bringing together a range of themes or activities.  

Structural  support  may  be  provided  directly  for  the  association  “Groupement  d’études  et  de 
recherches Notre Europe”, a body pursuing an aim of general European interest.  

Structural support for organisations of civil society at European level 

Civil society organisations need to exist and to be able to operate and cooperate at European 
level  in  a  large  number  of  fields  of  general  interest  (e.g.  common  values  and  heritage, 
voluntarism, social issues). This measure will provide them with the capacity and stability to 
act  as  transnational  catalysts  for  their  members and  for  civil  society  at  European  level.  The 
strengthening of transeuropean networks is an important element of this area of work. Grants 
may be awarded on the basis of a multi annual work programme bringing together a range of 
themes or activities.  

Structural  support  may  be  provided  directly  for  two  bodies  pursuing  an  aim  of  general 
European interest: the Platform of European Social NGOs and the European Movement. 

Support for projects initiated by civil society organisations 

trade  unions, 
Civil  society  organisations,  such  as  non-governmental  organisations, 
federations, think tanks etc., can, through debate, publications, advocacy, and other concrete 
transnational projects, involve citizens or represent their interests. Introducing or building on 
a  European  dimension  in  the  activities  of  civil  society  organisations  will  enable  them  to 
enhance  their  capacities  and  reach  wider  audiences.  Direct  cooperation  among  civil  society 
organisations  from  different  Member  States  will  contribute  to  mutual  understanding  for  the 
different cultures and point of views and to the identification of shared concerns and values. 
While this may be in  the form of single  projects, a longer-term approach will also ensure a 
more sustainable impact and the development of networks and synergies. 

As an indication, approximately 30% of the total budget allocated to the programme will be 
devoted to this action.  

ACTION 3: TOGETHER FOR EUROPE 

High-visibility events 

This  measure  will  support  events  organised  by  or  in  cooperation  with  the  European 
Commission,  which  are  substantial  in  scale  and  scope,  strike  a  significant  chord  with  the 
peoples  of  Europe,  help  to  increase  their  sense  of  belonging  to  the  same  community,  make 
them aware of the history, achievements and values of the European Union, involve them in 
intercultural dialogue and contribute to the development of their European identity.  

These  events  may  include  the  commemoration  of  historical  events,  the  celebration  of 
European  achievements,  awareness-raising  around 
issues,  European-wide 
conferences and the awarding of prizes to highlight major accomplishments. The use of new 
technologies, in particular Information Society Technologies, shall be encouraged. 

specific 

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Studies 

In order to get a better understanding of active citizenship at European level, the Commission 
will carry out studies, surveys and opinion polls.  

Information and dissemination tools 

Given  the  focus  on  citizens  and  the  variety  of  initiatives  in  the  field  of  active  citizenship, 
comprehensive  information  on  the  various  activities  of  the  programme,  on  other  European 
actions related to citizenship and on other relevant initiatives needs to be provided through an 
Internet portal and other tools.  

Structural  support  may  be  provided  directly  for  the  “Association  Jean  Monnet”  and  for  the 
“Centre  européen  Robert  Schuman”,  both  bodies  pursuing  an  aim  of  general  European 
interest.  

As an indication, approximately 15% of the total budget allocated to the programme will be 
devoted to this action.  

II. PROGRAMME MANAGEMENT 

The  implementation  of  the  programme  will  be  guided  by  the  principles  of  transparency  as 
well as openness, to a large variety of organisations and projects. As a consequence, projects 
and activities will be selected, as a general rule, via open calls for proposals. Derogations will 
be possible only in very specific circumstances and in full compliance with article 168.1, c), 
d) of the implementing rules of the Financial regulation.  

The  programme  will  develop  the  principle  of  multi-annual  partnerships  based  on  agreed 
objectives, building on the analysis of the results, in order to ensure mutual benefits for both 
civil society and the European Union.  

For some actions, it might be necessary to adopt an indirect centralised management.  

All  actions  will  be  implemented  on  a  transnational  basis.  They  will  encourage  mobility  of 
citizens and ideas within the European Union.  

The  elements  of  networking  and  focussing  on  the  multiplier  effects,  including  the  use  of 
information and communication technologies, will be important and will be reflected both in 
the  types  of  activities  and  the  range  of  organisations  involved.  The  development  of 
interactions  and  synergies  among  the  various  types  of  stakeholders  involved  in  the 
programme will be encouraged.  

The programme budget may also cover expenditure associated with the preparation, follow-
up,  monitoring,  auditing  and  evaluation  activities  directly  necessary  for  the  management  of 
the  programme  and  the  realisation  of  its  objectives,  in  particular  studies,  meetings, 
information  and  publication  activities,  expenditure  associated  with  the  IT  networks  for  the 
exchange  of  information  and  any  other  administrative  and  technical  support  expenditure  on 
which the Commission may decide for the management of the programme. 

The  Commission  may  undertake  information,  publication  and  dissemination  activities  as 
appropriate. Such activities may be financed by means of grants or be organised and financed 
directly by the Commission, through service contracts. 

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III. CONTROLS AND AUDITS 

For  projects  selected  in  accordance  with  the  procedure  described  in  Article  13(1)  of  this 
Decision, a sampling audit system will be established. 

The beneficiary of a grant must make available to the Commission all supporting documents 
relating  to  expenditure  for  a  period  of  five  years  from  the  date  of  the  final  payment.  The 
beneficiary  of  a  grant  must  ensure  that,  where  applicable,  supporting  documents  in  the 
possession of partners or members are made available to the Commission. 

The Commission may have an audit of the use made of the grant carried out either directly by 
its own staff or by any other qualified outside body of its choice. Such audits may be carried 
out  throughout  the  lifetime  of  the  contract  and  for  a  period  of  five  years  from  the  date  of 
payment of the balance. Where appropriate, the audit findings may lead to recovery decisions 
by the Commission. 

Commission staff and outside personnel authorised by the Commission must have appropriate 
access  to  the  offices  of  the  beneficiary  and  to  all  the  information,  including  information  in 
electronic format, needed in order to conduct such audits. 

The Court of Auditors and the European Anti-Fraud Office (OLAF) will have the same rights, 
especially of access, as the Commission. 

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Annex 1

LEGISLATIVE FINANCIAL STATEMENT 

This document is intended to accompany and complement the Explanatory Memorandum. 
As such, when completing this Legislative Financial Statement, and without prejudice to 
its legibility, an attempt should be made to avoid repeating information contained in the 
Explanatory  Memorandum.  Before  filling  in  this  template,  please  refer  to  the  specific 
Guidelines  that  have  been  drafted  to  provide  guidance  and  clarification  for  the  items 
below.  

1. 

NAME OF THE PROPOSAL : 

Proposal  for  a  Decision  of  the  EUROPEAN  PARLIAMENT  and  of  the  COUNCIL 
establishing the programme “Citizens for Europe” promoting active European citizenship 
(2007-2013). 

2. 

ABM / ABB FRAMEWORK 

Policy Area(s) concerned and associated Activity/Activities: 

Education and Culture – Dialogue with the citizens 

3. 

BUDGET LINES 

3.1. 

Budget  lines  (operational  lines  and  related  technical  and  administrative 
assistance lines (ex- BA lines)) including headings : 

15.0601… 
15.0104... 

3.2. 

Duration of the action and of the financial impact: 

7 years (01.01.2007 – 31.12.2013) 

3.3. 

Budgetary characteristics: 

Budget line 

Type of expenditure 

New 

EFTA 
contribution 

Contributions 
from applicant 
countries 

Heading in 
financial 
perspective 

15.0601… 

Non-
comp 

Diff13 

NO 

YES 

15.0104… 

Non-

Non-

NO 

YES 

YES 

YES 

No 3 

No 3 

13 

Differentiated appropriations. 

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comp 

diff 

4. 

SUMMARY OF RESOURCES 

4.1 

Financial Resources 

4.1.1. 

Summary of commitment appropriations (CA) and payment appropriations (PA) 

Expenditure type 

Section 
no. 

Operational expenditure14 

EUR million (to 3 decimal places) 

2007 

2008 

2009 

2010 

2011 

2012 

2013 
and 
later 

Total 

Commitment 
Appropriations (CA) 

8.1 

a  18,160  24,430

26,050

30,830

33,840 35,630  38,530

207,470 

Payment 
Appropriations (PA) 
Administrative expenditure within reference amount15 

b  12,712  22,549

25,564

29,396

32,937 35,093  49,219

207,470 

Technical & 
administrative 
assistance (NDA) 

8.2.4 

c 

3,040 

3,670 

3,750 

4,070 

4,160 

4,370 

4,470 

27,530 

TTOOTTAALL  RREEFFEERREENNCCEE  AAMMOOUUNNTT  

Commitment 
Appropriations 

Payment 
Appropriations 

a+c 

21,200  28,100

29,800

34,900

38,000 40,000  43,000

235,000 

b+c 

15,752  26,219

29,314

33,466

37,097 39,463  53,689

235,000 

Administrative expenditure not included in reference amount16 

Human resources and 
associated 
expenditure (NDA) 

Administrative costs, 
other than human 
resources and 
associated costs, not 
included in reference 
amount (NDA) 

8.2.5 

d 

1,359 

1,386 

1,414 

1,442 

1,714 

1,749 

1,784 

10,848 

8.2.6 

e 

0,438 

0,447 

0,456 

0,465 

0,474 

0,484 

0,493 

3,257 

Total indicative financial cost of intervention 

14 
15 
16 

Expenditure that does not fall under Chapter xx 01 of the Title xx concerned. 
Expenditure within article xx 01 04 of Title xx. 
Expenditure within chapter xx 01 other than articles xx 01 04 or xx 01 05. 

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TOTAL CA 
including cost of 
Human Resources 

TOTAL PA 
including cost of 
Human Resources 

a+c+d+e 

22,997  29,933

31,670

36,807

40,188 42,233  45,277

249,105 

b+c+d+e 

17,549  28,052

31,184

35,373

39,285 41,696  55,966

249,105 

Co-financing details 

If the proposal involves co-financing by Member States, or other bodies (please specify 
which),  an  estimate  of  the  level  of  this  co-financing  should  be  indicated  in  the  table 
below (additional lines may be added if different bodies are foreseen for the provision of 
the co-financing): 

EUR million (to 3 decimal places) 

Co-financing body 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

Total 

…………………… 

f 

TOTAL CA 
including co-
financing 

a+c+d+e+f 

4.1.2.  Compatibility with Financial Programming 

(cid:133) 

Proposal is compatible with existing financial programming. 

Proposal  will  entail  reprogramming  of  the  relevant  heading  in  the  financial 

(cid:133) 
perspective. 

Proposal  may  require  application  of  the  provisions  of  the  Interinstitutional 

(cid:133) 
Agreement17 (i.e. flexibility instrument or revision of the financial perspective). 

4.1.3.  Financial impact on Revenue 

⌧ 

Proposal has no financial implications on revenue 

(cid:133) 

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. 

17 

See points 19 and 24 of the Interinstitutional agreement. 

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EUR million (to one decimal place) 

Situation following action 

200
7 

200
8 

200
9 

201
0 

201
1 

201
2 

201
3 

Budget line 

Revenue 

Prior to
action 
2006 

a) Revenue in absolute terms 

b) Change in revenue 

 ∆ 

(Please  specify  each  revenue  budget  line  involved,  adding  the  appropriate 
number of rows to the table if there is an effect on more than one budget line.) 

4.2. 

Human Resources FTE (including officials, temporary and external staff) – 
see detail under point 8.2.1. 

Annual 
requirements 

Total  number  of 
human resources 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

36 

41 

41 

43 

45 

46 

46 

5. 

CHARACTERISTICS AND OBJECTIVES 

Details  of  the  context  of  the  proposal  are  required 
in  the  Explanatory 
Memorandum.  This  section  of  the  Legislative  Financial  Statement  should  include 
the following specific complementary information: 

5.1. 

Need to be met in the short or long term 

This is clearly identified in the explanatory Memorandum (see introduction and context 
of the proposal). This proposal is targeting all citizens (that is without focussing on any 
specific group or category). The overall approach is to involve both citizens directly and 
civil society organisations. 

5.2. 

Value-added  of  Community  involvement  and  coherence  of  the  proposal 
with other financial instruments and possible synergy 

5.2.1. 

Several alternatives were analysed before opting for a new programme: 

Instruments other than a programme 

A  legislative  instrument  would  not  be  appropriate  to  promote  citizen  participation  as 
described above. The proposed objectives imply the implementation of concrete actions 

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at a European level requiring appropriate financial support and could not be achieved by 
simple recommendations or co-operation between Member States. 

The “no action” scenario 

The  option  of  not  presenting  a  programme  post  2006  would  be  politically 
incomprehensible  at  a  time  when  the  Union  has  undertaken  to  reinforce  European 
citizenship.  A  promise  has  been  given  to  citizens  and  cannot  go  unanswered.  There 
would  be  a  predictably  high  level  of  outrage  and  criticism  of  the  Commission  in  such 
circumstances. In more general terms the European institutions risk being accused of not 
giving sufficient importance to the distance which h has arisen between them and citizens 
and  to  contradict  themselves  with  regard  to  their  undertakings  to  citizens  (such  as  the 
political priorities of the Dutch presidency and the speech of Mr Barroso in his hearing at 
the parliament). In addition, the end of the programme would involve suppressing a series 
of  successful  activities  involving  citizens  such  as  town  twinning.  In  order  to  avoid  a 
serious loss of credibility by the European institutions, the European Parliament, a strong 
supporter  of  such  activities,  asked  the  Commission  to  present  a  concrete  programme 
proposal in 2005. 

The “no change” scenario 

The current programme was established with the objective of establishing a legal base for 
the  granting  of  a  series  of  subventions  for  the  promotion  of  active  citizenship.  This 
programme is therefore characterised by a series of grants linked to different budget lines 
which  while  having  a  basic  logic  linking  the  different  elements,  suffers  from  a  lack  of 
sufficient  cohesion.  This  programme  has  been  largely  criticised  by  the  Parliament  and 
civil  society  organisations  for  its  lack  of  ambition.  Simply  continuing  the  programme 
would be insufficient to realise the objectives set out below. 

Mainstreaming 

This  option  is  not  sustainable  in  that  no  other  sectoral  programme  can  cover  the 
objectives  as  set  out.  This  programme  differentiates  itself  from  the  other  European 
initiatives  specifically  because  of  its  horizontal  dimension  and  its  comprehensive 
approach to promoting active European citizenship. 

Conclusion : the need for a new programme 

In response to the emergence of the question of citizenship among the political priorities 
of the Union, the adoption of a new specific programme is the best option for achieving 
the desired objectives. 

In order to respond properly to the expectations of citizens, this programme must firmly 
place the citizen at the centre of the actions, and is distinguished by its educational and 
transnational  aspects.  The  first  element  gives  citizens  the  necessary  instruments  to 
become  involved  at  a  European  level,  and  the  second  creates  favourable  conditions  for 
the  mobility  of  citizens.  It  thus  gives  people  the  opportunity  to  develop  their  mutual 

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understanding and to share a feeling of solidarity through the common European values 
that  unite  them.  In  addition,  this  programme  integrates  the  principle  of  participative 
democracy introduced in article 47 of the draft establishing a constitution for Europe. 

Through  this  approach  the  programme  attempts  to  respond  as  closely  a  possible  to  the 
needs of civil society. It develops a public arena devoted to dialogue and citizenship open 
to  all  citizens  and  decentralised  across  the  whole  of  Europe  through  a  support  to  town 
twinning, to all types of transnational citizens' initiatives and to events with a European 
dimension. At the same time it encourages a structured participative process on questions 
linked  to  the  construction  of  Europe  and  the  values  on  which  it  is  based.  Finally  it 
respects the diversity which on which the richness of the European Union is founded 

5.2.2.  European added-value 

As indicated above, all actions will be implemented on a transnational basis. They will 
encourage  mobility  of  citizens  and  of  ideas  within  Europe.  Twinning  projects  are  by 
nature  transnational,  but  the  programme  will  also  encourage  transnational  cooperation 
between regional organisations, NGO’s, think tanks etc. It will support the development 
of  the  transnational  activities  of  civil  society  organisations  and  the  structuring  of  civil 
society  at  European  level.  Some  special  events  will  bring  more  visibility  to  those 
transnational  activities.  Transnational  debate  and  exchange  of  ideas  will  be  supported. 
Studies by the Commission or research projects by think tanks will feed this debate.  

The  programme  will  pay  due  attention  to  broad  geographic  coverage  of  supported 
activities  and  projects.  Special  emphasis  will  be  put  on  the  integration  of  citizens  and 
organisations  from  new,  or  future,  Member  states  into  transnational  projects  and 
networks.  

5.2.3.  Coherence with other financial instruments and possible synergy 

Citizenship is an essential and broad concept in the EU; hence it is no surprise that many 
actions implemented by the European Commission relate to this wide area, but they have 
different objectives and different targets, as the following examples illustrate. 

Within the DG Education and Culture programmes, the dimension of active citizenship is 
a recurrent theme. The programmes in the field of Education foresee actions promoting 
European citizenship. One of the objectives of the Youth programme is to promote young 
people’s  active  citizenship  in  general  and  their  European  citizenship  in  particular.  It 
encourages  voluntary  work  of  young  Europeans.  The  Culture  programme,  by  fostering 
cultural  cooperation  and  intercultural  dialogue,  also  contributes  to  strengthening  the 
feeling  of solidarity and  mutual understanding, essential for the building of a European 
citizenship.  However,  these  programmes  are  aimed  either  at  specific  sectors  (such  as 
culture),  specific  groups  (such  as  youth)  or  specific  activities  (such  as  education  and 
culture)  whereas  the  actions  proposed  by  this  programme  are  specifically  aimed  to  be 
horizontal  and  inclusive,  addressing  issues  which  do  not  fit  comfortably  into  the  other 
programmes.  It  can,  however,  act  as  a  nexus  between  all  these  activities,  thus  further 

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adding value to its own actions. For example, links between schools and town twinning 
can easily be imagined.  

In the field of Justice, Freedom and Security, the Commission has activities in relation to 
citizenship, for example the Preparatory action to support civil society in the ten Member 
States which acceded to the European Union on 1st May 2004, in the areas of the rule of 
law,  democracy,  fundamental  rights,  media  pluralism  and  the  fight  against  corruption. 
The  aim  of  this  action  is  to  reinforce  civil  society  in  those  countries  mainly  through 
support for Non-Governmental Organisations in promoting fundamental rights. The DG 
is  preparing  a  programme  on  Fundamental  rights  and  citizenship  for  the  period  2007-
2013.  Those  activities  have  a  clear  focus  on  citizenship  rights  and  fundamental  rights. 
The  support  to  NGO’s  therefore  is  limited  to  those  promoting  fundamental  rights.  The 
development of this programme of JLS and that of DG EAC are being carried out in close 
consultation to ensure maximum synergy. 

In  the  context  of  its  research  activities,  and  more  specifically  on  it  work  in the  field  of 
Citizens and governance in a knowledge-based society, the Sixth Framework Programme 
for  Research  and  Technological  Development  has  an  objective  of  research  directed 
towards providing a sound scientific base for the management of the transition towards a 
European knowledge based society, conditioned by national, regional and local policies 
and  by  decision  making  by  individual  citizens,  families  and  other  societal  units.  This 
covers scientific research on: the implications of European integration and enlargement; 
new forms of governance; resolution of conflicts and restoration of peace or new forms of 
citizenship and cultural identities. This research is relevant for policy makers and could 
be used to improve the EU policy in favour of the active involvement of citizens and their 
organisations.  

In the field of communication, the Commission will be undertaking significant activities 
aimed  at  bringing  the  proposed  constitution  to  the  attention  of  citizens,  and  building 
understanding  of  fundamental  rights  and  the  need  for  active  citizenship.  However,  this 
activity is top-down and informative whereas this programme has a more bottom-up and 
participative  focus.  However,  when  appropriate,  cooperation  with  DG  PRESS  will  be 
organised, particularly regarding Action 3 of the programme (Together for Europe).  

To what regards the external relations of the EU, complementarities could be envisaged 
in  the  context  of  the  Neighbourhood  policy.  The  proposed  programme  will  be  open  to 
candidate  countries  and  to  the  countries  of  the  Western  Balkans,  which  should  join  the 
EU.  It  will  not  be  open  to  other  Third  countries.  However,  the  expertise  of  the 
programme could be useful for implementing actions involving citizens and civil society 
in  those  countries.  This  would  be  in  line  with  the  objective  of  tightening  the  relations 
with our neighbouring countries.  

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5.3. 

Objectives,  expected  results  and  related  indicators  of  the  proposal  in  the 
context of the ABM framework 

This  Education  and  Culture  policy  area  aims  at  reinforcing  the  human  dimension  of 
Europe,  notably  by  developing  the  feeling  for  a  European  citizenship.  The  current 
programme will contribute to this overall purpose by:  

- 

- 

- 

Giving citizens the opportunity to interact and participate in constructing an ever 
closer Europe, united in and enriched through its cultural diversity; 

Forging  a  European  identity,  based  on  recognised  common  values,  history  and 
culture; 

Enhancing  mutual  understanding  between  European  citizens  respecting  and 
celebrating cultural diversity, while contributing to intercultural dialogue.  

To  that  end,  four  specific  objectives  (here  below)  have  been  identified;  they  will  be 
implemented  on  a  transnational  basis  by  three  sets  of  actions  (following)  which 
constitute the operational objectives: 

Specific  objective  1:  Bring  together  people  from  local  communities  across  Europe  to 
share and exchange experiences, opinions and values, to learn from history and to build 
for the future  

The programme will foster the direct participation of citizens across Europe, both in the 
activities of the programme and in the development of the notion of a European identity. 
One of the most effective ways of participation is directly experiencing other cultures in 
an  environment  that  fosters  exchange  and  where  people  learn  through  involvement  in 
issues  and  actions  related  to  the  essence  of  Europe.  This  intercultural  exchange  will 
contribute to the improvement of the mutual knowledge of the culture and history of the 
European peoples, and will therefore bring our common cultural heritage to the fore and 
strengthen the basis for our common future.  

Specific objective 2: Foster action, debate and reflection related to European citizenship 
through cooperation between civil society organisations at European level  

There is a need to support transnational cooperation among civil society organisations at 
European  level.  Those  Europe-wide  organisations,  representing  a  vast  spectrum  of 
citizens,  can  act  as  multipliers  and  offer  a  voice  in  Europe  for  citizens,  through 
transnational and cross-sectoral actions, debate and reflection, linked to citizenship of the 
European Union. 

Specific objective 3: Make the idea of Europe more tangible for its citizens by promoting 
and  celebrating  Europe's  values  and  achievements,  while  preserving  the  memory  of  its 
past 

There  is  a  need  for  activities  addressing  the  widest  possible  audience  across  frontiers, 
built  around  shared  ideas,  values  or  achievements,  and  reaching  the  greatest  possible 

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number  of  Europeans.  These  activities  across  Europe  have  the  objective  of  forging  a 
sense of belonging to common European ideals, adding to the existing sense of national 
and  regional  identity.  They  will  contribute  to  bringing  the  common  cultural  heritage  to 
the fore.  

Specific  objective  4:  Encourage  the  balanced  integration  of  citizens  and  civil  society 
organisations  from  all  Member  States,  contributing  to  intercultural  dialogue  and 
bringing  to  the  fore  both  Europe’s  diversity  and  unity,  with  particular  attention  to  the 
activities with Member States that have recently joined the European Union.  

Without strong and full participation from citizens, and civil society organisations from 
the  newer  Member  States,  the  development  of  the  European  space  will  be  severely 
compromised.  All  the  previous  objectives  will  therefore  take  this  last  objective  into 
account,  which  will  be  implemented  in  all  the  programme’s  activities.  Transnational 
cooperation will play an essential role with regard to this objective. 

The  above  objectives  will  be  implemented  via  the  following  sets  of  actions,  presented 
below  with  their  expected  results.  The  elements  of  networking  and  focussing  on  the 
multiplier effects, including the use of information and communication technologies, will 
be  important,  and  will  be  reflected  both  in  the  types  of  activities  and  the  range  of 
organisations involved. The development of interactions and synergies among the various 
types of stakeholders involved in the programme will be encouraged. This contributes to 
the notion of sustainability and building a structure which can encourage the emergence 
of a European active citizenship beyond the constraints  and lifetime of the  programme. 
This  therefore  involves  not  only  developing  and  strengthening  networks  but  also  the 
organisations  themselves.  By  bringing  together  and  reflecting  diversity  of  people  and 
organisations,  the  programme  can  contribute  to  the  development  of  a  dynamic  and 
innovative society. 

Action 1: Active citizens for Europe 

This  action  forms  the  part  of  the  programme  directed  specifically  at  citizens,  either 
directly or indirectly. These are broken down into two types of activity as follows:  

- Town twinning 

The  measure  is  aimed  at  activities  that  involve  or  promote  direct  exchanges  between 
citizens  through  their  participation  in  town-twinning  activities.  These  activities  may  be 
one-off  or  pilot  in  nature:  these  will  include  citizens  meeting  (approx.  1250/year)  and 
conferences or seminars on subjects of common interest (approx 60/year). They can also 
take  the  form  of  structured  multi-annual  multi-partner  agreements  which  take  a  more 
programmed  approach  (approx.  13/year).  This  measure  will  actively  contribute  to 
strengthening  mutual  knowledge  and  understanding  between  citizens  and  between 
cultures. 

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For  helping  in  the  implementation  of  this  measure,  structural  support  may  be  provided 
directly  to  the  Council  of  European  Municipalities  and  Regions  (CEMR),  a  body 
pursuing an aim of general European interest, active in the field of town twinning.  

- Citizens’ projects and support measures 

Under  this measure,  a  variety  of  projects  of  transnational and  cross-sectoral  dimension, 
directly  involving  citizens,  will  be  supported  (approx.  60/year).  The  scale  and  scope  of 
such projects will depend on the evolutions within the society and will explore, through 
innovative approaches, the possible responses to the needs that will have been identified. 
Those  projects  will  gather  citizens  from  different  horizons,  who  will  act  together  or 
debate on common European issues, hereby developing mutual understanding as well as 
raising awareness of the process of European integration. 

It also appears necessary to develop support measures to exchange best practices, to pool 
experiences  between  stakeholders  at  the  local  and  regional  levels  including  public 
authorities, and to develop new skills for example through training, in order to improve 
citizens’ projects.  

Action 2: Active civil society in Europe 

- 

Structural support to European public policy research organisations (think tanks) 

Bodies providing new ideas and reflections on European issues are important institutional 
interlocutors able to provide independent strategic, cross-sectoral recommendations to the 
EU institutions... They can undertake activities that feed the debate notably on citizenship 
of  the  European  Union  and  on  European  values  and  cultures.  This  measure  is  aimed  at 
strengthening  the institutional  capacity  of those organisations,  which  are  representative, 
provide  real  European  added  value,  can  bring  about  important  multiplier  effects  and, 
finally,  are  able  to  cooperate  with  other  beneficiaries  of  this  programme.  The 
strengthening of transeuropean networks (3/year) is an important element in this area. 

Structural support may be provided directly to the association “Groupement d’études et 
de recherches Notre Europe”, a body pursuing an aim of general European interest.  

- 

Structural support to organisations of civil society at European level 

Civil  society  organisations  need  to  exist  and  to  be  able  to  operate  and  cooperate  at 
European level in a large number of fields of general interest  (e.g. common values and 
heritage,  voluntarism,  social  issues).  This  measure  will  provide  them  with  the  capacity 
and  stability  to  act  as  transnational  catalysts  for  their  members  and  for  civil  society  at 
European level. The strengthening of transeuropean networks is an important element of 
this  area.  The  Commission  anticipates  to  contribute  to  the  operating  expenses  of 
approximately  20  networks/year;  in  order  to  maximize  the  cost-effectiveness  of  this 
action, a sufficient amount will be allocated to relatively small operating grants (50.000-
100.000 €). 

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Structural  support  may  be  provided  directly  to  two  bodies  pursuing  an  aim  of  general 
European interest: the Platform of European Social NGOs and the European Movement. 

- 

Support to projects initiated by civil society organisations 

Civil  society  organisations,  such  as  non-governmental  organisations,  trade  unions, 
federations,  think  tanks,  etc.,  can,  through  debate,  publications,  advocacy  and  other 
concrete transnational projects, involve citizens or represent their interests. Introducing or 
building  on  a  European  dimension  in  the  activities  of  civil  society  organisations  will 
enable  them  to  enhance  their  capacities  and  reach  wider  audiences.  Direct  cooperation 
among civil society organisations from different Member States will contribute to mutual 
understanding  for  the  different  cultures  and  point  of  views  and  to  the  identification  of 
shared concerns and values. Approx. 125 projects will be funded each year to that end. 

Action 3: Together for Europe  

- High-visibility events 

This measure will support events (approx. 5/year) organised by or in cooperation with the 
European Commission, which are substantial in scale and scope, strike a significant chord 
with  the  peoples  of  Europe,  help  to  increase  their  sense  of  belonging  to  the  same 
community,  make  them  aware  of  the  history,  achievements and  values of  the  European 
Union, involve them in intercultural dialogue and contribute to the development of their 
European identity.  

- Studies 

In  order  to  get  a  better  understanding  of  active  citizenship  at  European  level,  the 
Commission will carry out studies, surveys and opinion polls (2 /year).  

- Information and dissemination tools 

The focus on citizens and the variety of initiatives in the field of active citizenship call for 
comprehensive  information  on  the  various  activities  of  the  programme,  on  other 
European  actions  related  to  citizenship  and  on  other  relevant  initiatives  to  be  provided 
through an Internet portal and other tools.  

Structural support may be provided directly to the “Association Jean Monnet” and to the 
“Centre  européen  Robert  Schuman”,  both  bodies  pursuing  an  aim  of  general  European 
interest.  

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The  following  table  presents  the  indicators  planned  for  measuring  the  results  and 
impact of the programme activities: 

Objectives 

General 

Indicators 

The  general  objectives  are  to  contribute 
to: 

Giving citizens the opportunity to interact 
and  participate  in  constructing  an  ever 
closer  Europe,  united  in  and  enriched 
through its cultural diversity  

Forging  a  European  identity,  based  on 
recognised  common  values,  history  and 
culture 

Enhancing mutual understanding between 
European 
and 
celebrating  cultural  diversity,  while 
contributing to intercultural dialogue  

respecting 

citizens 

•  Change  in  behaviour  of  programme 

participants 

•  Change  in  perceptions  of  programme 

participants 

•  Change  in  attitudes  of  programme 

participants 

Specific 

Indicators 

from 

together  people 

Bring 
local 
communities  across  Europe  to  share  and 
exchange  experiences,  opinions  and 
values, to learn from history and to build 
for the future  

•  Proportion  of 

launched/completed 
projects  that  specifically  seek/sought 
to bring citizens together 

•  Number  of  citizens  taking  part,  via 
the  medium  of  the  programme,  in 
exchanges and collaborations 

•  Number  of  communities  taking  part, 
via the medium of the programme, in 
exchanges and collaborations 

•  Proportion  of 

relevant  completed 
projects  that,  if  not  funded  by  the 
programme, would probably not have 
been  undertaken  (based  on  survey  of 
participants) 

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Foster  action,  debate  and 
reflection 
related  to  European  citizenship  through 
cooperation 
society 
civil 
organisations at European level  

between 

•  Proportion  of 

launched/completed 
projects  that  specifically  seek/sought 
to facilitate a structured and dynamic 
civil society 

•  Extent  of  new  knowledge  and  ideas 
which  have  been  developed  with  the 
support of the programme 

•  Proportion of relevant projects that, if 
not funded by the programme, would 
probably  not  have  been  implemented 
(based on survey of participants) 

•  Press  and  media  coverage  of  the 
events – qualitative and quantitative  

Make  the  idea  of  Europe  more  tangible 
its  citizens  by  promoting  and 
for 
and 
celebrating 
the 
achievements,  while  preserving 
memory of its past 

Europe's 

values 

Encourage  the  balanced  integration  of 
citizens  and  civil  society  organisations 
from  all  Member  States,  contributing  to 
intercultural dialogue and bringing to the 
fore  both  Europe’s  diversity  and  unity, 
with  particular  attention  to  the  activities 
with  Member  States  that  have  recently 
joined the European Union  

•  Proportion  of 

launched/completed 
projects  that  specifically  seek/sought 
to bring organisations together 

•  Proportion  of 

launched/completed 
projects  that  specifically  seek/sought 
to involvement of new Member State 
and  candidate  country  organisations 
and citizens 

• 

in 

involvement 

Increase 
in 
transnational activities by participants 
from  new  Member  States  and  the 
candidate countries 

•  Proportion of relevant projects that, if 
not funded by the programme, would 
probably  not  have  been  implemented 
(based on survey of participants) 

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Operational 

Indicators 

Active citizens for Europe:  

•  Number of town twinning projects 

–  town twinning 

•  Proportion of total programme budget 

used to support town twinning  

–  citizens projects and support measures 

•  Number  of  projects  to  encourage 

active citizenship launched 

•  Number of support measures funded 

•  Proportion of total programme budget 
used to support citizens’ projects and 
support measures  

•  Level of use of information portal 

•  Proportion of total programme budget 
this  operational 

used 
objective (indicative target 40 %). 

to  support 

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Active civil society in Europe:  

•  Number  of  actions  involving  policy 

-  Structural  support  of  European  public 
policy research organisations 

-  Structural  support  to  organisations  of 
civil society at European level 

-  Support  to  projects  initiated  by  civil 
society organisations 

research organisations 

•  Number  of  supported  public  policy 

research organisations 

•  Proportion of total programme budget 
research 
to  support  policy 

used 
organisations  

•  Number  of  European  organisations 
active  in  the  field  of  civil  society 
supported 

•  Proportion of total programme budget 
used to support such organisations  

•  Number of projects supported 

•  Level of use of information portal 

•  Proportion of total programme budget 
this  operational 

used 
objective (indicative target 30 %). 

to  support 

Together for Europe 

•  Number of events supported 

•  Number of conferences supported 

•  Level of use of information portal 

•  Number  of 

funded 

studies  and 

research projects 

•  Proportion of total programme budget 
this  operational 

used 
objective (indicative target 15 %). 

to  support 

The percentages mentioned under each action are indicative. The total does not cover the 
totality of the programme’s budget, in order to preserve some flexibility and to take into 
account administrative expenditures.  

5.4.  Method of Implementation (indicative) 

Show below the method(s)18 chosen for the implementation of the action. 

18 

If more than one method is indicated please provide additional details in the "Relevant comments" 
section of this point. 

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X 

Centralised Management 

X  Directly by the Commission 

X 

Indirectly by delegation to: 

X 

ٱ 

Executive Agencies 

bodies  set  up  by  the  Communities  as  referred  to  in  art. 
185 of the Financial Regulation 

X  National public-sector bodies/bodies with public-service 

mission 

ٱ 

Shared or decentralised management 

ٱ  With Member states 

ٱ  With Third countries 

ٱ 

Joint management with international organisations (please specify) 

Relevant comments: 

Most of the actions will be implemented through centralised management as follows: 

–  The Commission will manage directly strategic activities, in particular those involving 
the development of partnerships or the organisation of major events: structural support 
to think tanks and to civil society networks, town-twinning support measures, citizen’s 
initiatives,  studies  and  polls,  and  most  of  the  special  events  and  dissemination  of 
information. 

–  The  Executive  Agency  will  manage  by  delegation  smaller-scale  projects:  town-
twinning  projects  (citizen’s  meetings,  conferences  and  seminars)  and  civil  society 
projects. 

–  In specific circumstances, and in specific countries, the Commission could decide to 
entrust  national  public-sector  bodies/bodies  with  public  service  mission  with  the 
management of the programme.  

6. 

MONITORING AND EVALUATION 

6.1.  Monitoring system 

The specific objectives of the programme and the actions will be subject to monitoring. 
Data will be collected as follows: 

EN 

37 

   EN 

 
–  All participants to the programme will fill in a survey before and after the action takes 
place,  in  order  to  measure  the  changes  in  behaviour,  perceptions  and  attitude;  this 
survey will also enquire on whether projects, would or not have been undertaken, had 
they not been funded by the programme. 

–  All relevant quantitative data will be collected by the managing institution/body. 

–  Information  providing  a  measure  of  the  performance,  results  and  impact  of  the 
programme  will  be  also  taken  from  audit  reports  on  a  sample  of  programme 
beneficiaries (30 per year). 

–  The information portal will include a counter. 

6.2. 

Evaluation 

6.2.1.  Ex-ante evaluation 

The  ex-ante  evaluation  was  carried  out  by  the  Commission  (August  2004-February 
2005), with the support of an external consultant. As part of this exercise, an extensive 
consultation has been carried out of the problems and issues to be addressed, the target 
users, key objectives and potential options for implementation, in three steps: 

a) Public on-line consultation (15 December 2004- 15 February 2005) 

The online consultation was done with the IPM tool and resulted in more than thousand 
responses,  including  around  700  from  organisations  and  around  300  from  individuals. 
Almost all respondents agreed with the need for a new programme. This highlights that 
there is overwhelming support for a new programme. The overall approach proposed, of 
involving both citizens directly and civil society organisations, was massively supported. 
The  success  of  the  current  activities,  such  as  town  twinning  and  operating  costs  of 
organisations,  was  evidenced  by  the  strong  support  for  pursuing  them.  The  main 
innovations  sought  are  multi-annual  projects,  pooling  of  experience  between  local 
projects of different Member States, development of innovative partnerships/cooperation 
with  new  partners  and  major  events  mobilizing  citizens  at  EU  level,  notably  in  the 
context of intercultural dialogue. The ideas of exchanging good practices in the voluntary 
sector  and  the  networking  of  think  tanks  were  also  welcomed.  Simplification  of 
procedures is requested by a large number of respondents. 

Full results will soon be available on DG EAC website as well as on the “Your Voice in 
Europe” page. 

EN 

38 

   EN 

 
b) Bilateral meetings with key stakeholders (January-February 2005) 

These  bilateral  contacts  provide  the  opportunity  to  have  an  in-depth  discussion  with  a 
limited number of key interlocutors representing a variety of “profiles”19. 

Meeting reports are available (EAC.D.4). 

c) Consultation Forum (3-4 February 2005) 

think 

including  NGOs, 

Approximately  350  participants  took  part  in  the  consultative  forum,  covering  the  full 
range  of  stakeholders 
tanks,  regional  and  municipal 
representatives,  European  networks,  advocacy  groups,  trade  unions  and  European 
associations.  The  transnational  dimension  was  considered  essential.  The  intercultural 
dimension  was  underlined,  as  well  as  the  need  to  pay  particular  attention  to  building 
bridges  between  the  citizens  of  “new”,  “old”  and  future  Member  States.  There  was  a 
demand  for  a  better  recognition  of  the  aspect  of  volunteering  which  is  intrinsic  to  this 
field. There was also a view that the programme should benefit both individual citizens 
and  Europe  as  a  whole.  Another  conclusion  was  that  the action  of  bringing  the  various 
stakeholders together should be built upon in future. It was suggested that there should be 
more  scope  for  events  with  a  certain  visibility  and  to  celebrate  together  certain 
achievements and key moments of our history. 

Continuity  came  out  as  a  recurrent  theme,  without  it  being  contradictory  to  the 
introduction  of  innovation.  There  was  strong  support  for  a  continuation  of  the  town-
twinning activities. The situation was the same as regards support for operating costs of 
NGOs  and  other  civil  society  organisations,  reflecting  their  need  for  sufficient  public 
sources  of  funding  in  order  to  preserve  their  independence.  Already  well  established 
organisations like trade unions may use their networks for contributing and debating on 
European issues. European think tanks activities have to be supported, strengthened and 
structured. Many of the issues raised at the forum related to implementation and the need 
for simplification of the procedures. 

The  notion  of  multi-annual  funding  was  seen  as  an  opportunity  to  actively  assist  in 
capacity  building  and  enhanced  stability  in  all  activities  although  scope  for  short-term 
actions  should  be  maintained,  be  it  for  innovative  actions  or  for  small  entities 
(particularly in the town-twinning area). Cross-fertilisation between the various activities 
carried out under the programme was recommended, for example between town-twinning 
and  NGOs.  Networking  was  also  considered  as  important.  This  networking  should  not 
only be between the same types of stakeholders but between them – for example, linking 
think tanks (ideas) and civil society organisations (action). It was also asked that bridges 

19 

European Trade Union Confederation (ETUC), Platform of European Social NGOs, Solidar, Euro 
citoyen  action  et  service  (ECAS),  Fondation  pour 
les  générations  futures,  COMECE 
(Confédération des Episcopats de la CE), European Policy Centre (EPC), AVSO (Association of 
Voluntary  Service  Organisations)  and  SCI  (Service  Civil  International),  Association  « Notre 
Europe »,Four Town Twinning Committees (during the Forum). 

EN 

39 

   EN 

 
                                                 
between this programme and other Commission programmes be ensured (in the fields of 
Youth, Education, Justice, Social Affairs…). 

Full  transcription  of  the  debates  as  well  as  the  parallel  sessions  reports  will  be 
incorporated into a CDRom, that will be sent to all participants, and also be available on 
DG EAC website.  

These  findings  were  incorporated  in  the  ex-ante  evaluation  analysis  and  taken  into 
account in the programme proposal. They underline the necessity to respond to the needs 
of  the  citizens  and  of  civil  society  organisations  for  a  support  scheme  to  transnational 
activities  in  the  field  of  active  citizenship.  They  stress  the  complementarity  with  other 
programmes and activities of the European Union, especially those implemented by the 
Directorate General for Press and Communication, the Directorate General for Research 
and the Directorate General for Justice, Freedom and Security.  

6.2.2.  Measures  taken  following  an  intermediate/ex-post  evaluation  (lessons  learned 

from similar experiences in the past) 

At the time of this proposal, the current programme has been implemented for one year 
only. An ex-post evaluation of the current programme (2004-2006) is due by December 
2007; a draft report is anticipated in the beginning of 2006. 

6.2.3.  Terms and frequency of future evaluation 

Mid-term report 

The  first  report  will  be  drawn  up  three  years  after  the  start  of  the  programme  (31 
December 2010 at the latest). The object of this report is to provide an initial assessment 
of  the  results  obtained at  the  halfway  stage so  that  any  changes  or  adjustments  that  are 
deemed  necessary  may  be  made  for  the  second  half  of  the  programme  (31  December 
2011 at the latest).  

Ex-post evaluation 

The ex-post report on the impact of the action in question will be drawn up at the end of 
the seven-year programme (31 December 2015 at the latest). The object of this report is 
to  assess  the  comparative  results  of  support  systems  in  the  light  of  the  programme 
objectives. As with the mid-term report, the Commission will call on outside consultants 
for assistance.  

7. 

ANTI-FRAUD MEASURES  

For projects selected in accordance with the procedure described in Article 13(1) of this 
Decision, a sampling audit system will be established. 

The  beneficiary  of  a  grant  shall  make  available  to  the  Commission  all  supporting 
documents relating to expenditure for a period of five years reckoned from the date of the 

EN 

40 

   EN 

 
final payment. The beneficiary of a grant shall ensure that, where applicable, supporting 
documents  in  the  possession  of  partners  or  members  are  made  available  to  the 
Commission. 

The  Commission  may  have  an  audit  of  the  use  made  of  the  grant  carried  out  either 
directly by its own staff or by any other qualified outside body of its choice. Such audits 
may be carried out throughout the lifetime of the contract and for a period of five years 
from the date of payment of the balance. Where appropriate, the audit findings may lead 
to recovery decisions by the Commission. 

Commission  staff  and  outside  personnel  authorised  by  the  Commission  shall  have 
appropriate access to the offices of the beneficiary and to all the information, including 
information in electronic format, needed in order to conduct such audits. 

The Court of Auditors and the European Anti-Fraud Office (OLAF) shall enjoy the same 
rights, especially of access, as the Commission. 

In order to protect the European Communities' financial interests against fraud and other 
irregularities,  the  Commission  may  carry  out  on-the-spot  checks  and  inspections  under 
this  programme  in  accordance  with  Council  Regulation  (Euratom,  EC)  No  2185/96.20 
Where  necessary,  investigations  shall  be  conducted  by  the  European  Anti-Fraud  Office 
(OLAF) and these shall be governed by Regulation (EC) No 1073/1999 of the European 
Parliament and of the Council21. 

20 
21 

OJ L 292, 15.11.1996, p. 2. 
OJ L 136, 31.5.1999, p. 1. 

EN 

41 

   EN 

 
                                                 
8. 

DETAILS OF RESOURCES 

8.1. 

Objectives of the proposal in terms of their financial cost 

Type 
of 
output 

Av. 
cost 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

TOTAL 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total cost 

Commitment appropriations in EUR million (to 3 decimal places) 

OPERATIONAL 
ACTION No.1: 22 

ACTIVE 
CITIZENS FOR 
EUROPE  

Measure 1: 

TOWN 
TWINNING 

- Citizens’ meetings 

- Conferences & 
Seminars 

Project 
Grant 

Project 
Grant 

- Multi-annual 
TWINNING projects 

Project 
Grant 

- Support of CEMR 

Operati
ng 
Grant 

0,008 

875 

7,000 

1.088 

8,700 

1.125 

9,000 

1.300 

10,400 

1.425 

11,400 

1.513 

12,100 

1.613 

12,900 

8.939 

71,500 

0,025 

52 

1,300 

60 

1,500 

60 

1,500 

72 

1,800 

80 

2,000 

80 

2,000 

84 

2,100 

488 

12,200 

0,200 

4 

0,700 

5 

1,000 

7 

1,300 

9 

1,800 

12 

2,400 

13 

2,600 

17 

3,400 

67 

13,200 

0,250 

1 

0,250 

1 

0,250 

1 

0,250 

1 

0,280 

1 

0,280 

1 

0,280 

1 

0,300 

7 

1,890 

22 

As described under Section 5.3. 

EN 

42 

 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
Type 
of 
output 

Av. 
cost 

Measure 2 

CITIZENS’ 
PROJECTS AND 
SUPPORT 
MEASURES 

- Citizens’ projects 
(Panels…) 

Project 
Grant 

0,020 

- Support measures 
(Training…) 

Project 
Grant/
Market 

0,020 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

TOTAL 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total cost 

6 

0,125 

12 

0,225 

15 

0,310 

18 

0,360 

18 

0,360 

25 

0,500 

94 

1,880 

7 

0,125 

11 

0,225 

16 

0,310 

18 

0,360 

18 

0,360 

25 

0,500 

95 

1,880 

Sub-total Action N° 1 

932 

9,250 

1.167 

11,700 

1.216 

12,500 

1.413 

14,900 

1.554 

16,800 

1.643 

17,700 

1.765 

19,700 

9.690 

102,550 

OPERATIONAL 
ACTION No.2: 

ACTIVE CIVIL 
SOCIETY IN 
EUROPE 

Measure 1: 

STRUCTURAL 
SUPPORT TO 
“THINK TANKS” 

- Think tanks 

- Networks  

- “Our Europe” 
Association 

EN 

Operati
ng 
Grant 

Operati
ng 
Grant 

Operati
ng 
Grant 

0,160 

6 

1,000 

8 

1,300 

9 

1,400 

11 

1,800 

14 

2,200 

15 

2,400 

16 

2,500 

79 

12,600 

0,100 

3 

0,300 

3 

0,300 

4 

0,400 

5 

0,500 

6 

0,600 

7 

0,700 

28 

2,800 

0,650 

1 

0,630 

1 

0,630 

1 

0,630 

1 

0,660 

1 

0,660 

1 

0,660 

1 

0,680 

7 

4,550 

43 

 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Type 
of 
output 

Av. 
cost 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

TOTAL 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total cost 

Measure 2: 

STRUCTURAL 
SUPPORT TO 
CIVIL SOCIETY 
ORGANISATIONS 

- Networks 

- Social Platform 

Operati
ng 
Grant 

Operati
ng 
Grant 

0,160 

11 

1,700 

13 

2,000 

14 

2,200 

16 

2,600 

18 

2,800 

19 

3,000 

20 

3,200 

111 

17,500 

0,640 

1 

0,620 

1 

0,620 

1 

0,620 

1 

0,650 

1 

0,650 

1 

0,650 

1 

0,670 

7 

7 

4,480 

3,000 

- European Movement Operati

0,490 

1 

0,360 

1 

0,380 

1 

0,400 

1 

0,430 

1 

0,450 

1 

0,480 

1 

0,500 

ng 
Grant 

Measure 3: 

CIVIL SOCIETY 
PROJECTS 

- Support to projects 

Project 
Grant 

0,080 

50 

3,000 

78 

4,700 

83 

5,000 

90 

5,400 

95 

5,700 

100 

6,000 

100 

6,000 

596 

35,800 

Sub-total Action N° 2 

70 

7,310 

105 

9,930 

112 

10,550 

124 

11,940 

135 

12,960 

143 

13,790 

146 

14,250 

835 

80,730 

OPERATIONAL 
ACTION No.3: 

TOGETHER FOR 
EUROPE 

Measure 1: 

HIGH VISIBILITY 
EVENTS 

EN 

44 

 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Grant / 

Market 

Type 
of 
output 

- Events 

Measure 2: 

STUDIES 

0,750 

1 

1,000 

3 

2,000 

3 

2,200 

4 

3,000 

4 

3,000 

4 

3,000 

4 

3,300 

23 

17,500 

Av. 
cost 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

TOTAL 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total cost 

- Studies, surveys, 
opinion polls 

Grant / 

Market 

0,200 

1 

0,200 

1 

0,200 

2 

0,300 

2 

0,300 

2 

0,330 

2 

0,400 

10 

1,730 

Measure 3: 

DISSEMINATION / 
INFORMATION 

- Portal / 

Service Contracts 

- Maisons JM & RS 

Market 

0,100 

2 

0,200 

2 

0,200 

2 

0,200 

3 

0,250 

3 

0,330 

4 

0,350 

4 

0,400 

20 

1,930 

Operati
ng 
Grant 

0,200 

2 

0,400 

2 

0,400 

2 

0,400 

2 

0,440 

2 

0,450 

2 

0,460 

2 

0,480 

14 

3,030 

Sub-total Action N° 3 

5 

1,600 

8 

2,800 

8 

3,000 

11 

3,990 

11 

4,080 

12 

4,140 

12 

4,580 

67 

24,190 

TOTAL COST 

1.007 

18,160 

1.280 

24,430 

1.336 

26,050 

1.548 

30,830 

1.700 

33,840 

1.798 

35,630 

1.923 

38,530 

10.522 

207,470 

EN 

45 

 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
8.2. 

Administrative Expenditure 

8.2.1.  Number and type of human resources 

Types of post 

Staff to be assigned to management of the action using existing and/or additional resources 
(number of posts/FTEs) 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

Officials or 
temporary staff23 
(15 01 01) 

A*/AD 

B*, 
C*/AST 

Staff financed24 by art. 

15 01 02 

Other staff25 financed by art. 
15 01 04/05 

TOTAL 

3 

7 

4 

22 

36 

3 

7 

4 

27 

41 

3 

7 

4 

27 

41 

3 

7 

4 

29 

43 

4 

8 

4 

29 

45 

4 

8 

4 

30 

46 

4 

8 

4 

30 

46 

8.2.2.  Description of tasks deriving from the action 

8.2.3. 

Sources of human resources (statutory) 

(When  more  than  one  source  is  stated,  please  indicate  the  number  of  posts  originating 
from each of the sources) 

(cid:133) 

(cid:133) 

(cid:133) 

(cid:133) 

(cid:133) 

23 
24 
25 

Posts currently allocated to the management of the programme to be replaced or 
extended 

Posts pre-allocated within the APS/PDB exercise for year n 

Posts to be requested in the next APS/PDB procedure 

Posts  to  be  redeployed  using  existing  resources  within  the  managing  service 
(internal redeployment) 

Posts required for year n although not foreseen in the APS/PDB exercise of the 
year in question 

Cost of which is NOT covered by the reference amount. 
Cost of which is NOT covered by the reference amount. 
Cost of which is included within the reference amount. 

EN 

46 

   EN 

 
 
 
 
 
                                                 
8.2.4.  Other  Administrative  expenditure  included  in  reference  amount  (15  01  04…  – 

Expenditure on administrative management) 

EUR million (to 3 decimal places) 

Budget line 

(15.0104…) 

1 Technical and 
administrative assistance 
(including related staff costs) 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

TOTAL 

Executive agencies26 

2,551 

3,173 

3,238 

3,540 

3,609 

3,806 

3,883 

23,800 

Other technical and 
administrative assistance 

- intra muros  

- extra muros 

0,062 

0,064 

0,065 

0,066 

0,068 

0,069 

0,070 

0,464 

0,029 

0,030 

0,030 

0,031 

0,031 

0,032 

0,032 

0,215 

Supporting expenditure 

0,398 

0,403 

0,417 

0,433 

0,452 

0,463 

0,485 

3,051 

Total Technical and 
administrative assistance 

3,040 

3,670 

3,750 

4,070 

4,160 

4,370 

4,470 

27,530 

8.2.5.  Financial  cost  of  human  resources  and  associated  costs  not  included  in  the 

reference amount 

EUR million (to 3 decimal places) 

Type of human resources 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

Officials and temporary 
staff (15 01 01) 

Staff financed by art 15 01 
02 (auxiliary, END, contract 
staff, etc.) 

Total cost of Human 
Resources and associated 
costs (NOT in reference 
amount) 

1,127 

1,150 

1,173 

1,197 

1,463 

1,493 

1,523 

0,232 

0,236 

0,241 

0,245 

0,251 

0,256 

0,261 

1,359 

1,386 

1,414 

1,442 

1,714 

1,749 

1,784 

26 

Reference  should  be  made  to  the  specific  legislative  financial  statement  for  the  Executive 
Agency(ies) concerned. 

EN 

47 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
Calculation– Officials and Temporary agents 

(2005): 108.000 € 

Indexation:  1,040  (2007),  1,061  (2008),  1,082  (2009),  1,104  (2010),  1,126  (2011),  1,149  (2012),  1,172 
(2013) 

10 (12) FTE: 3(4) A – 1(2) B – 6 C 

Calculation– Staff financed under art. 15 01 02 

Contract staff: (1) A: 87.014 € - (1) B: 51.140 € - (1) C: 40.037 € - (1) END: 44.316 € 

Indexation:  1,040  (2007),  1,061  (2008),  1,082  (2009),  1,104  (2010),  1,126  (2011),  1,149  (2012),  1,172 
(2013) 

3 FTE: 1A – 1B – 1C & 1 FTE: (END) 

The costs for staff under point 8.2.5 are an estimate for the period 2007-2013. Taking into account the 
increase of operational credits year after year, these human resources would pass from 14 men/years 
in 2007 to 16 men/years in 2013. 

No additional human resources are needed in 2007 compared with the situation in 2006. 

8.2.6 Other administrative expenditure not included in reference amount 

2007 

2008 

2009 

2010 

2011 

2012 

2013 

TOTAL 

EUR million (to 3 decimal places) 

15 01 02 11 01 – Missions 

0,042 

0,042 

0,043 

0,044 

0,045 

0,046 

0,047 

0,309 

15 01 02 11 02 – Meetings & 
Conferences 

0,328 

0,336 

0,342 

0,349 

0,356 

0,363 

0,370 

2,444 

15 01 02 11 03 – Committees27 

0,068 

0,069 

0,071 

0,072 

0,073 

0,075 

0,076 

0,504 

15 01 02 11 04 – Studies & 
consultations 

15 01 02 11 05 - Information 
systems 

Total Other Management 
Expenditure 
(15 01 02 11) 

0,438 

0,447 

0,456 

0,465 

0,474 

0,484 

0,493 

3,257 

27 

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

EN 

48 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
3 Other expenditure of an 
administrative nature 
(specify including reference 
to budget line) 

Total Administrative 
expenditure, other than 
human resources and 
associated costs (NOT 
included in reference 
amount) 

0,438 

0,447 

0,456 

0,465 

0,474 

0,484 

0,493 

3,257 

Calculation - Other administrative expenditure not included in reference amount 

Missions: 5persons * 10missions * 825 € (average) 

Meetings: 2meetings * 50persons * (860 € + (2*150 €)) 

Meetings: 3meetings * 25persons * 860 € (management Committee) 

Conference: Annual conference - (approx. 200.000 €) 

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 should take into account an eventual reallocation of posts between 
departments on the basis of the new financial perspectives. 

EN 

49 

   EN