Communication from the Commission to the Council and the European Parliament - Consolidation and expansion of the External Service
Date: 2005-06-06
Institutions: European Commission
Subjects: Commission Delegation, European Commission, devolution, foreign policy, institutional reform

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 6.6.2005 
COM(2005) 239 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND 
THE EUROPEAN PARLIAMENT 

Consolidation and expansion of the External Service 

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1. 

INTRODUCTION 

The network of Delegations and the latest changes 

50  years  after  the  establishment  of  the  first  representation  abroad  of  the  European 
Communities,  the  External  Service  has  evolved  into  a  very  broad,  consistent  and 
coherent network. With the full implementation of the latest decisions concerning the 
evolution  of  the  network,  there  are  now  127  Delegations  and  other  representations 
through  which  the  Commission  represents  the  Communities  and  promotes  the 
European Union's interests throughout the world. All in all, the Commission is now 
represented  in  155  countries,  and  it  also  has  5  Delegations  to  International 
Organisations.  More  than  1000  officials  and  3800  other  staff  are  currently  serving 
abroad. 

In 2001, the Commission gave new impetus to the network of Delegations, launching 
a  process  of  regionalisation  and  a  review  of  the  entire  network,  which  led  to  a 
number  of  new  openings,  closures  and  other  changes.  In  2003,  the  Commission 
decided  on  further  significant  changes  to  increase  the  coherence  of  the  network, 
including  2  new  openings  (in  Yemen  and  in  New  Zealand)  and  16  upgrades  and 
name  changes,  which  led  to  the  conclusion  of  a  number  of  Establishment 
Agreements  and  to  the  redeployment  of  officials  from  other  Delegations  in  the 
region. Both Communications have been now entirely implemented. 

In  parallel,  a  major  effort  took  place  to  implement  the  deconcentration  process, 
which is an essential part of the reform of the Commission1. Deconcentration to the 
majority  of  the  80  Delegations  concerned  has  now  been  accomplished.  This  has 
required  the  mobilisation  of  very  significant  additional  human  and  financial 
resources;  at  the  end  of  this  period  (2000-2004)  a  total  of  1561  staff  (359  officials 
and 1202 external staff) had been mobilised to work in delegations. The financing of 
devolution has been secured through a mix of resources; the costs for officials have 
in particular been financed against the External Service former A-6 budget line. 

The above effort has imposed a very significant investment in human and financial 
terms. In that context, the Commission has striven to implement the latest changes to 
its network of Delegations within the budgetary limits of former title A-6 for 2004, 
through the redeployment of human and financial resources (see table below). 

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The objectives of deconcentration were to reduce substantially the time taken to implement projects; to 
make significant improvements in the quality and responsiveness of project/programme management; to 
ensure  robust  financial,  technical  and  contractual  management  procedures  in  line  with  the  best 
international standards on propriety and accountability; and to improve the impact and visibility of EC 
development cooperation and aid 

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Table 1 – financial impact from openings within last three years (estimates) 

Delegation 

Date of 
establishment

Start-up costs
(in €) 

Yearly costs 
(in €) 

Total 

Paraguay 

30/11/2001 

Cambodia 

14/12/2001 

0

0

102.636 

102 636 

33.816 

33 816 

Nepal 

13/03/2002 

93.700

24.708  118 408 

Singapore 

05/04/2002 

113.500

545.220 

658 720 

Taiwan 

27/11/2002 

113.500

371.220  484 720 

Cuba 

29/01/2003 

83.700

72.708 

156 408 

Malaysia 

13/02/2003 

182.200

419.928 

602 128 

Laos 

20/03/2003 

93.700

21.708  115 408 

Saudi Arabia 

23/09/2003 

142.200

461.928 

604 128 

Yemen 

18/12/2003 

93.700

24.708 

118 408 

N. Zealand 

16/02/2004 

113.500

383.220 

496 720 

Total 

1.029.700

2.461.800  3 491 500 

The  need  to  absorb  the  financial  impact  of  these  openings  within  the  limits  of  the 
available  resources  has  further  stretched  the  limited  resources  of  the  External 
Service. 

2. 

DEVELOPMENT OF THE NETWORK 

2.1. 

Political priorities for next openings 

New  political  priorities  for  new  openings  have  arisen  since  the  adoption  of  these 
changes.  The  establishment  of  Delegations  in  Switzerland  (Berne)2  and  Moldova 
(Chisinau)3 is now envisaged. In addition, a regionalised Delegation is proposed at a 
later  stage  for  Uzbekistan  (Tashkent),4  to  be  headed  by  a  Chargé  d’Affaires  a.i. 
reporting to a non-resident Head of Delegation. Furthermore, given the evolution of 
EU-Sri  Lanka  relations  and  the  longer-term  EU  response  to  the  Tsunami  in  South-
East  Asia,  it  is  proposed,  as  a  matter  of  priority,  to  upgrade  the  regionalised 
Delegation in Sri Lanka to a fully fledged Delegation. Finally, the future opening of 

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3 
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Already envisaged in document SEC(1998)1261 of 22 July 1998 
Suggested in COM(2001)381 of 3 July 2001, subject to the existence of appropriate conditions. 
Envisaged in document SEC(1998)1261 of 22 July 1998 

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Delegations in Timor Leste and Iraq is also envisaged, as soon as the political and 
practical conditions allow. 

Most  of  these  openings  had  already  been  mentioned  in  past  proposals,  which 
specified that they should be confirmed when the appropriate circumstances prevail. 
From  an  analysis  of  the  current  political  situation  and  the  advice  of  the  relevant 
departments,  it  appears  that  this  is  now  the  case;  very  strong  factors  make  these 
openings timely and necessary: 

–  Despite  the  importance  of  EU-Switzerland  relations,  the  Commission  does  not 
yet have a Delegation in Berne. The need for this opening is recognised both by 
the  Swiss  authorities  and  by  the  Commission.  Many  factors  militate  for  the 
establishment  of a Delegation  in  Berne:  the unique geographical situation of the 
Helvetic Confederation; the closeness of our relations (no other third country has 
as many agreements with the EU as Switzerland); and the importance of our trade 
flows (Switzerland is the EU’s 4th largest commercial partner in absolute terms) 
are just a few of them. This question is becoming even more urgent as the overall 
bilateral relationship develops. 

–  For  Moldova,  the  growing  economic  and  political  bilateral  relations  militate  in 
favour  of  a  permanent  presence  in  the  country.  Indeed,  the  Commission  has 
already  expressed  its  support  in  the  past  for  such  a  presence  as  soon  as  the 
political  situation  allows.  Moldova  is  the  only  country  covered  by  a  European 
Neighbourhood  Policy  Action  Plan  where  the  Commission  does  not  yet  have  a 
Delegation.  The  Action  Plan  will  necessitate  the  opening  of  the  Delegation  by 
2005 in order to implement the policies it endorses. Moldova is also keen to see 
greater  EU  involvement  in  the  settlement  of  the  Transnistria  issue;  with  a 
delegation, the Commission will be in a better position to support this process. 

–  It is also envisaged given the evolution of the Western Balkans countries to open a 

Liaison Office in Montenegro. 

–  In  view  of  the  evolution  of  bilateral  relations,  and  as  part  of  the  longer-term 
European  Union  response  to  the  natural  cataclysm  in  South-East  Asia,  the 
regionalised Delegation in Sri Lanka should become a fully fledged Delegation, 
in  support  of  the  European  Union's  longer-term  effort  to  help  repair  the  damage 
suffered. 

–  Openings  in  Uzbekistan  and  in  Timor  Leste  are  also  envisaged,  subject  to  the 
fulfilment of the necessary political and practical requirements, and provided the 
appropriate  resources  are  available,  which  is  currently  not  the  case.  These 
openings must be seen, respectively, in the context of the growing importance of 
our  strategic  interests  in  Central  Asia  and  in  the  framework  of  the  accession  of 
East Timor to the EU-ACP Cotonou Agreement. 

–  Similarly,  when  the  appropriate  political  and  practical  requirements  are  met,  a 
Delegation in Iraq should also be established, to contribute to the EU's efforts to 
bring greater stability to that country. At the moment the necessary resources are 
not available. 

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–  Finally, a liaison office in Kosovo has also been set up as a priority, to meet the 
current  political  circumstances  in  the  area.  For  Montenegro  such  an  opening  is 
justified from a political point of view by the pressing need to strengthen the EU 
presence  in  the  Region  and  from  an  assistance  point  of  view  by  the  need  to 
replace  the  EAR.  It  is  envisaged  to  open  the  Montenegro  office  as  soon  as 
possible,  according  to  the  availability  of  resources.  The  preparation  of  ad  hoc 
systems  for  representation  in  the  International  Civil  Aviation  Organisation 
(Montreal) and in the Council of Europe (Strasbourg) is also underway. 

2.2. 

Timing envisaged 

In  view  of  the  political  priorities,  DG  Relex  is  aiming  to  upgrade  the  Sri  Lanka 
Delegation by May 2005 and to open the Delegation in Moldova in the first half of 
2005,  to  be  followed  by  the  opening  of  a  Delegation  in  Switzerland  later  on  in  the 
year. 

2.3. 

Human and budgetary resources 

As  soon  as  the  political  priorities  above  were  identified,  the  Commission  started 
work  on  identifying  the  necessary  resources  for  these  openings.  However,  due  to 
conflicting  priorities,  appropriations  for  these  openings  could  not  be  entered  in  the 
2005 budget proposal. It has therefore been necessary to consider alternative means 
of funding these openings by making savings elsewhere. 

It  needs  to  be  borne  in  mind  that,  as  the  network  is  already  over-stretched  and  the 
previous  openings  were  already  implemented  by  reassigning  priorities  within  the 
allocated  appropriations,  only  very  limited  opportunities  for  savings  have  been 
identified to date, which makes it necessary to prioritise the timing of these openings. 

Notwithstanding  these  budgetary  problems,  the  above-mentioned  political  priorities 
make  these  openings  necessary  and  timely;  they  will  therefore  have  to  be  put  into 
effect  with  what  resources  as  are  currently  available.  This  is  to  be  accomplished 
mainly through redeployment of existing human resources - in particular from other 
Delegations in the region - and via the redistribution of budgetary resources from the 
entire network in order to cover the running costs, infrastructure, personnel and other 
expenses. This will involve a process of further rationalisation of available resources. 

In the light of all the points set out above, the following table provides a guide as to 
the basic cost estimates and the preliminary timetable for the openings: 

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Table 2 - Foreseen impact and timetable 

Delegation/ 
Concept 

Sri  Lanka(4) 
(upgrade) 

Moldova(4) 

Switzerland 

Total 

3A 
2B 
1C 
2A 
1B 
1C 
1A 
1B 
1C 
6A 
4B 
3C 

1 AL III 
(admin) 

1 AL II 
1 AL III 
1 AL IV(3) 
1 AL II 
1 AL III 
1 AL IV 
2 AL II 
3 AL III 
2 AL IV 

Personnel 

Officials 
(1) 

Other staff 
(1) 

Total 
Estimated 
Start-upcosts 
(2) 

Costs 
Total 
Estimated 
Yearly costs 
(1) 

Total 
costs 

678.000 

718.536 

1.396.536 

Tentative 
Opening 
date 

May/June 
2005 

583.500 

308.376 

891.876 

July 2005 

528.000 

875.988 

1.403.988 

October 2005 

1.789.500 

1.902.900 

3.692.400 

(1) only additional costs linked to the openings/upgrades are listed here, as staff will be re-deployed. 
(2) all costs will be covered by existing resources within the 2005 budget through a review of priorities. 
(3) when Contract Agents are introduced, 1 secretary and 1 informatics officer are foreseen for Moldova.  
(4) the necessary staff for the cooperation/aid and finances-contracts sections will be determined at a later stage 
with DG Aidco. 

3. 

CONCLUSIONS 

The new openings described above will be implemented as a matter of priority. The 
necessary financial and human resources will be covered by restructuring the current 
network,  redeploying  posts  and  reducing  costs  elsewhere.  These  reductions  should 
not  compromise  the  quality  of  the  network,  either  at  the  new  Delegations  or  in  the 
Delegations  subject  to  reductions  in  their  resources  to  allow  for  the  new  openings. 
Hence the gradual timetable proposed above. 

This  effort  also  needs  to  be  seen  in  the  context  of  the  preparatory  work  for  the 
implementation of the Constitutional Treaty, subject to its ratification by the Member 
States.  The  Treaty,  which  was  signed  by  the  Heads  of  State  and/or  Government  in 
Rome on 29 October 2004, includes a number of provisions which will deeply affect 
the  structure  and  organisation  of  the  external  relations  of  the  European  Union  and 
therefore  of  the  External  Service.  The  Treaty  provides,  among  other  things,  for 
European  Union  Delegations  to  represent  the  Union  in  third  countries  and  in 
international organisations. 

Against this backcloth, it must be borne in mind that, although they are hierarchically 
part  of  the  Commission  structure,  in  practice  Delegations  serve  the  interests  of  the 
European Union as a whole, as described by the Commission in its Communication 
of 3 July 20015. They do so by publicising, explaining and implementing EU policy, 
analysing  the  policies  of  the  countries  where  they  are  accredited,  and  conducting 
negotiations in accordance with the mandate they have been given. 

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COM(2001) 381 of 3 July 2001. 

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The measures described in this Communication will contribute to the consolidation 
and expansion of a more coherent network, able to take on the additional obligations 
and duties from the new Constitutional Treaty. 

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FICHE FINANCIERE SIMPLIFIEE 

Domaine(s) politique(s): RELATIONS EXTERIEURES 

Activité(s): Service Extérieur 

DÉNOMINATION  DE  L’ACTION:  COMMUNICATION  DE  LA  COMMISSION  AU  CONSEIL  ET  AU 

PARLEMENT EUROPÉEN – CONSOLIDATION ET EXPANSION DU SERVICE EXTERIEUR. 

1. 

LIGNE(S) BUDGÉTAIRE(S) + INTITULÉ(S) 

XX.010102:  Dépenses  relatives  au  personnel  en  activité  des  délégations  de  la 
Commission. 

XX.010202: Personnel externe des délégations de la Commission 

XX.010212: Autres dépenses de gestion des délégations de la Commission 

XX.010302:  Dépenses  immobilières  et  dépenses  connexes  des  délégations  de  la 
Commission. 

2. 

2.1 

DONNÉES CHIFFRÉES GLOBALES  

Enveloppe totale de l’action (partie B): 2,582 Mio€ en CE en 2005 et 1,903 par 
année par la suite. 

2.2 

Période d’application 

L’expansion prévue dans cette communication sera entamée et complétée au cours de 
l’exercice 2005. S’agissant de «l’upgrade» d’une délégation et l’ouverture des deux 
nouvelles délégations il n’y a pas une date limite prévue pour l’action. 

2.3 

Estimation globale pluriannuelle des dépenses 

a)  Echéancier  crédits  d'engagement/crédits  de  paiement  (intervention  financière) 
(cf. point 6.1.1) 

Mio€ (à la 3ème décimale) 

Année 
n 

n + 1 

n + 2 

n + 3 

n + 4 

Total 

n + 5 
et 
exer. 
suiv. 

Crédits 
d'engagement 

 2,582 

1,903 1,903 

 1,903 

 1,903 

 1,903 

 12,097 

Crédits de paiement 

 2,582 

1,903  1,903 

 1,903 

 1,903 

 1,903 

 12,097 

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b)  Assistance  technique  et  administrative  (ATA)  et  dépenses  d’appui  (DDA) 
(cf. point 6.1.2) 

CE 

CP 

Sous total a+b 

CE 

CP 

CE 

CP 

2,582 

1,903 

1,903 

1,903 

1,903 

1,903 

12,097  

2,582 

1,903 

1,903 

1,903 

1,903 

1,903 

12,097  

2,582 

1,903 

1,903 

1,903 

1,903 

1,903 

12,097  

2,582 

1,903 

1,903 

1,903 

1,903 

1,903 

12,097  

2.4 

Compatibilité avec la programmation financière et les perspectives financières 

  Proposition compatible avec la programmation financière existante. 

  Cette proposition nécessite une reprogrammation de la rubrique concernée des 

perspectives financières. 

  Y  compris,  le  cas  échéant,  un  recours  aux  dispositions  de  l’accord 

interinstitutionnel. 

  Type de dépense: il s'agit de définir la classification économique des dépenses 
en  distinguant  les  dépenses  courantes  des  dépenses  en  capital.  Cette  classification 
permet une meilleure articulation entre la comptabilité budgétaire et la comptabilité 
générale. 

  Dépenses courantes: elles sont liées aux charges de l'exercice. 

  Dépenses  en  capital:  elles  sont  liés  aux  postes  du  bilan.  Quel  type  d'activité, 

ces dépenses sont-elles destinées à financer? 

3. 

CARACTÉRISTIQUES BUDGÉTAIRES 

Nature de la dépense 

Nouvelle 

Participation 
AELE 

Participation 
pays 
candidats 

Rubrique PF

DO 

CND 

OUI 

NON 

NON 

N° 5 

4. 

BASE LÉGALE  

Statut  des  fonctionnaires  des  Communautés  européennes,  et  notamment  ses  articles 
27 à 31, 33 et 65 bis ainsi que ses annexes III, VII et X. 

Régime applicable aux autres agents des Communautés européennes. 

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5. 

5.1 

DESCRIPTION ET JUSTIFICATION 

Nécessité d'une intervention communautaire6 

5.1.1  Objectifs poursuivis 

Afin de mieux gérer les relations économiques et politiques de la Commission avec 
la Suisse et la Moldavie il est considéré nécessaire à ce stade d’ouvrir des délégations 
de la Commission dans ces pays. Dans le cas du Sri Lanka, il est nécessaire d’adapter 
la structure de la délégation pour faire face à l’évolution des relations avec ce pays 
ainsi de gérer la réponse de la Communauté au désastre naturel qui a eu lieu dans la 
région. 

5.1.2  Dispositions prises relevant de l’évaluation ex ante 

L’ouverture des nouvelles délégations est décidée sur base des nécessités en termes 
de  l’évolution  des  relations  économiques  et  politiques  de  la  Communauté  avec  les 
pays en question et en étroite collaboration avec tous les services et autres Directions 
générales concernés. 

5.1.3  Dispositions prises à la suite de l’évaluation ex post 

Les  délégations  en  questions  feront  partie  du  « network »  des  délégations  de  la 
Communautés  et  ainsi  seront  l’objet  de  contrôle  dans  le  cadre  des  visites  de 
l’Inspection  des  délégations  ainsi  que  du  service  de  Contrôle  Interne  du  Service 
Extérieur. 

5.2 

Actions envisagées et modalités de l'intervention budgétaire 

Il  s’agit  des  dépenses  administratives  liées  à  l’ouverture  de  deux  nouvelles 
délégations et l’upgrade d’une délégation régionalisée à une délégation normale. Les 
dépenses  supplémentaires  de  l’exercice  2005  seront  financées  à  partir  des  crédits 
existants  en  faisant  des  économies  sur  d’autres  dépenses.  Ces  actions  amèneront  à 
une amélioration des relations politiques et économiques avec les pays en question et 
permettront à la Commission de mieux gérer ses activités dans ces pays. 

5.3 

Modalités de mise en œuvre 

Comme  pour  toutes  les  dépenses  administratives  des  délégations  la  gestion  sera  en 
mode  directe  par  la  Commission  en  utilisant  du  personnel  statutaire  et  externe 
(agents locaux). 

6 

Pour plus d'informations, voir le document d'orientation séparé. 

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