Communication from the Commission to the Council and the European Parliament - External Actions through Thematic Programmes under the Future Financial Perspectives 2007-2013
Date: 2005-08-03
Institutions: European Commission
Subjects: Community loan, action programme, cooperation policy, foreign policy, multiannual financial framework, principle of subsidiarity, third country

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 3.8.2005 
COM(2005) 324 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND 
THE EUROPEAN PARLIAMENT 

External Actions through Thematic Programmes under 
the Future Financial Perspectives 2007-2013 

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1. 

INTRODUCTION 

In  the  context  of  the  next  Financial  Perspectives  2007  –  2013,  the  Commission  proposed  a 
simplified  structure  for  the  delivery  of  the  Community’s  external  assistance  geared  towards 
facilitating  coherence  and  consistency,  and  achieving  better  and  more  with  resources 
available. In place of the existing range of geographical and thematic instruments, which have 
grown  in  an  ad  hoc  manner  over  time,  six  instruments  have  been  proposed  for  the  future. 
Three  of  them  are  designed  as  horizontal  instruments  to  respond  to  particular  needs 
(humanitarian aid instrument, stability instrument, instrument for macro-financial assistance) 
and three are designed with a defined geographical coverage to implement particular policies 
(instrument  for  pre-accession  assistance  (IPA),  European  neighbourhood  and  partnership 
instrument  (ENPI)  and  development  cooperation  and  economic  cooperation  instrument 
(DCECI)). For four of the six instruments, the Commission adopted new legislative proposals 
on 29th September 2004; for the two others (macro-financial assistance and humanitarian aid) 
the existing legal bases are considered adequate in their current form. In the meaning of the 
Financial Regulation, these six regulations will provide the ‘basic acts’ for the relevant budget 
appropriations  under  Heading  4  ‘The  EU  as  a  Global  Player’  of  the  future  Financial 
Perspectives. 

The  future  of  thematic  programmes  with  a  global  geographical  coverage  has  been  of 
considerable concern to the European Parliament and the Council, but also to European non-
governmental  organisations,  which  traditionally  implement  a  significant  part  of  those 
programmes  under  ‘grant  agreements’  with  the Commission.  In  response  to  these  concerns, 
President Barroso announced to the Parliament on 12th April that the Commission will present 
its  proposals  to  this  end  in  the  form  of  the  present  Communication.  In  drawing  up  its 
proposals, the Commission consulted civil society and, to the extent possible, took their views 
and concerns already into account. 

The proposed simplification has indeed a substantial impact on the way thematic programmes 
will be defined and managed in future. The significant number of existing specific thematic 
regulations such as those for the “European Initiative for Democracy and Human Rights”1 or 
on “aid to fight poverty diseases in developing countries”2 will be integrated into these new 
enabling  regulations,  which  will  therefore  provide  the  legal  bases  for  future  thematic 
programmes.  The  Commission  will  define  thematic  programmes,  which  will  cut  across  the 
geographical coverage of the three policy driven instruments (DCECI, IPA, ENPI), and adopt 
strategy  papers,  which  contain  multi-annual  indicative  financial  allocations.  In  addition,  the 
DCECI makes explicit provisions for global initiatives and for the support to the provision of 
global  public  goods,  in  order  to  have  a  clear  and  unique  legal  base  for  Community 
contributions. This may mean that in exceptional circumstances programmes will benefit non-
developing countries. The three horizontal instruments provide mechanisms for responding to 
specific situations and are therefore implemented through specific strategies and, in the cases 
of long-term cooperation, through multi-annual programming.  

Overall, while recognizing the added value of thematic programmes, the new architecture of 
instruments for external actions provides an opportunity to rethink the scope and content of 
thematic  programmes  including  the  respective  budget  appropriations  and  to  extend  to  them 

1 
2 

EC No. 975/1999 of 29 April 1999. 
EC No 1568/2003 of 15 July 2003. 

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the concept of simplification by consolidating and rationalising them with a view to improve 
their effectiveness and efficiency. The present document sets out the Commission’s proposal 
on  the  criteria  for  thematic  programmes,  the  scope  and  rationale  for  the  programmes 
envisaged and critical aspects of the management procedures foreseen for their programming, 
budgeting and adoption. This takes into account lessons learned from evaluations (see annex). 
The full contents of each thematic programme including the respective strategies and precise 
delineation will be subject to further detailed proposals by the Commission. 

2. 

PROPOSAL  FOR  THEMATIC  PROGRAMMES  UNDER  THE  NEXT  FINANCIAL 
PERSPECTIVES 

2.1. 

Concepts and scope  

For the purpose of this Communication, the following definition shall be used:  

A  thematic  programme  encompasses  a  specific  area  of  activity  of  interest  to  a  group  of 
partner countries not determined by geography, or cooperation activities addressed to various 
regions or groups of partner countries, or an international operation that is not geographically 
specific, including multilateral or global initiatives3 to promote the Union’s internal policies 
abroad. 

An  important  principle  underlying  the  concept  for  thematic  programmes  is  “subsidiarity”. 
Geographical programmes are the privileged instrument for cooperation with third countries. 
However, in some circumstances, programmes of a geographic nature (country, multi-country 
and  regional)  are  not  the  best  instrument  for  interventions  in  a  particular  domain.  This  is 
where  thematic  programmes,  which  need  to  be  coherent  with  and  provide  added  value  to 
geographical programmes, come in. 

The Framework for Country Strategy Papers agreed between the Commission and the Council 
in November 2000 emphasises that geographic programming should be ‘comprehensive’ and 
that  country  and  regional  strategy  papers  are  indeed  the  right  tool  to  ensure  the  appropriate 
policy  and  instrument  mix  in  the  relations  with  third  countries,  thereby  contributing  to  the 
coherence  of  Community  policies.  This  means  that  country  and  regional  strategies  should 
consider the implications of the EU’s relevant internal policies. Moreover, cross-cutting issues 
such  as  gender  and  environment  are  to  be  addressed  through  both  geographic  and  thematic 
programmes  in  an  integrated  fashion.  In  the  context  of  the  simplification  of  instruments  for 
external actions, the Commission has reiterated its commitment to these principles”.4  

In  principle,  country  and  regional  strategies  are  implemented  with  the  financial  resources 
allocated to national and regional programmes. The latter should reflect bilateral or regional 
cooperation  priorities  in  the  light  of  partner  countries’  development  strategies  and  the 
complementary  interventions  of  other  donors.  As  part  of  the  policy  and  instrument  mix, 
cooperation  programmes  funded  under 
the  national  and  regional  programmes  are 
supplemented by thematic programmes. 

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For  the  purpose  of  this  communication,  “Global  Initiatives”  are  defined  as  political  initiatives 
in the area of sustainable development or supply of Global Public Goods endorsed and supported by the 
international community and implemented through multilateral mechanisms, including global funds.  
Commission  Communication 
COM(2004) 487 final. 

Perspectives 

Financial 

2004, 

July 

the 

on 

14 

of 

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Programmes implementing Community policies targeting a specific region under a common 
theme will be considered ‘regional programmes’. Therefore, certain existing programmes will 
be continued under a geographical rather than thematic framework and will not be dealt with 
in this Communication.5 

2.2. 

Definition criteria 

Based  on  the  above  concepts,  thematic  programmes  will  be  defined  on  the  basis  of  their 
distinctive  added  value  and  their  compliance  with  the  principle  of  subsidiarity  set  out 
above.  The  following  criteria,  which  are  not  mutually  exclusive,  will  help  to  define  the 
thematic programmes and the type of activities they could cover. Thematic programmes may 
be established, if 

(1) 

The  EU  policy  objectives  can  not  be  achieved  through  the  country  and 
regional programmes and the programme is implemented by or through an 
intermediary  organisation,  such  as  non-governmental  organisations  or  other 
types  of  non-state  actors  and  international  organisations  or  multilateral 
mechanisms, i.e.  

(a) 

(b) 

Global initiatives in the area of sustainable development or in support 
of global public goods (or in the fight against global public “bads”)  

Actions 
in  EU  Member  States 
(e.g. co-financing of public awareness by NGOs)  

and 

candidate 

countries 

and/or 

(2) 

The  programme  leads  to  actions  in  partner  countries  and regions,  which  are 
additional to and coherent with actions funded under the country and regional 
programmes,  where  they  exist.  In  those  cases,  it  is  more  effective  (i.e.  the 
expected results of the thematic actions are superior to those achieved through 
country  or  regional  programmes)  or  more  efficient (the  management  cost  is 
less) to use thematic programmes, i.e.  

(a) 

The action is multi-regional and/or cross-cutting (including pilots and 
innovations) 

(b) 

There is no agreement on the action with the partner government(s)  

(c) 

The  action  is  in  response  to  a  unilateral  policy  priority  or  an 
international obligation or commitment of the EC  

(d) 

There is no CSP and NIP or these have been suspended  

2.3. 

Proposed thematic programmes  

In drawing up thematic programmes under the next Financial Perspectives, the Commission is 
proposing a more efficient and rational framework for creating and managing them in order to 

5 

This is notably the case for the programme of assistance to ACP banana suppliers, which will expire in 
2008; any future assistance to ACP sugar producing countries; aid to up-rooted people in Asia; et. al. 

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avoid  unnecessary  fragmentation  and  to  improve  priority  setting  within  them.  This  requires 
that the proposed programmes need to be internally coherent and comprehensive.  

In addition to actions for implementing external policies, external aspects of internal policies 
shall  also  be  covered  by  the  new  Regulations6.  Where  relevant,  they  have  been  taken  into 
account in this framework.7  

Thematic  programmes  are  proposed  in  the  areas  set  out  below.  Their  broad  outlines  are 
described, but the detailed Communications to be presented on each thematic programme will 
determine the final proposals of the Commission. 

(1) 

Democracy and human rights 

The Commission intends to propose a thematic programme for the promotion of democracy 
and  human  rights  worldwide,  replacing  the  current  European  Initiative  for  Democracy  and 
Human  Rights.  Following  the  specific  objectives  of  the  Treaties8,  the  thematic  programme 
would  promote  the  founding  values  of  the  European  Union  in  its  external  relations  by 
channelling  financial  support  to  activities  aimed  at  the  promotion  and  protection  of  human 
rights  and  fundamental  freedoms,  and  the  furtherance  of  democracy  and  democratic 
processes.  It  would  cover  global,  regional  and  country-specific  financial  support  to  actions, 
which  are  primarily  implemented  by  non-state  actors,  civil  society-based,  and  regional  and 
international organisations. The programme would support the high political visibility of the 
EU in the field of human rights and democratisation, particularly in global issues such as the 
international criminal justice system and the International Criminal Court, the abolition of the 
death  penalty,  the  fight  against  torture  and  racism,  discrimination  against  minorities  and 
indigenous  peoples,  and  democratisation  and  election  observation.  The  granting  of  financial 
support through the thematic programme would be independent of approval by the authorities 
of the beneficiary country and the existence of a country strategy or national programme.  

(2)  Human and social development 

The  Commission  intends  to  propose  a  single  thematic  programme  for  human  and  social 
development  that  would  be  based  on  a  coherent  and  comprehensive  strategy  to  support  the 
achievement of the development policy goals regarding human and social development and to 
fulfil the EC’s international commitments in this area. 

The  thematic  programme  could  address  appropriate  aspects  of  health,  AIDS,  population, 
education  and  training,  gender  equality,  decent  work9,  social  cohesion  and  culture  and 
promote  the  related  international  agendas,  based  on  the  Millennium  Declaration,  the  Cairo, 
Beijing and Copenhagen agendas, the Education for All initiative etc. It would cover the EC’s 

6 

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8 
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the 

Instruments 

for  External  Assistance 

Commission  Communication 
COM(2004) 626 final. See also SEC(2004) 1203/2 of 29.9.2004. 
Programmes in the areas of taxation and customs (Customs/Fiscalis Programme), education and training 
and  (TEMPUS  Plus)  will  be  covered  under  the  geographical  programmes  .  In  the  case  of  TEMPUS 
Plus,  the  ENPI  and  ECDCI  will  establish  one  multi-annual  allocation  per  instrument  within  the 
appropriate  multi-country  or  regional  programmes.  A  mechanism  on  a  country  by  country  basis 
ensuring a predictable budgetary framework will be implemented for the IPA countries for as long as 
they participate in TEMPUS Plus 
Articles 11(1) TEU, 177(2), 181a(1) TEC. 
The  concept  of  “decent  work”  is  defined  by  the  ILO.  It  covers  employment,  social  protection, 
fundamental rights at work including core labour standards, social dialogue and gender equality. 

29.9.2004,  

of 

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approach  to  strategic  partnerships  with  related  UN  agencies  and  institutions,  international 
partnerships  and  global  funds  and  initiatives  dedicated  to  promote  and  implement  these 
agendas as well as work with international or regional networks of civil society active in the 
areas covered.  

(3) 

Environment and sustainable management of natural resources including energy 

The Commission intends to propose a single thematic programme in the area of environment 
and natural resources. It would address the environmental dimension of development and help 
promote the European Community’s environmental and energy policy abroad. 

The thematic strategy could: 

targeting 

•  Provide support for global and EU initiatives as well as international organisations 
(including  NGOs) 
the  environmental  dimension  of  sustainable 
development, environmental global public goods and the sustainable management 
of natural resources, which could inter alia include appropriate aspects of climate 
change,  environmental  challenges  to  health,  chemicals  and  wastes  management, 
biodiversity,  forests,  land  management,  marine  resources,  freshwater  and 
sustainable patterns of consumption and production, as well as the strengthening 
of international environmental governance, monitoring and assessment; 

•  Support  efforts  and  strengthen  the  capacity  of  developing  country  governments 
and  civil  society  to  integrate  the  environmental  dimension  into  development 
cooperation and to meet their obligations and commitments under, and strengthen 
their participation in, global or regional environmental conventions, initiatives or 
processes;  support  the  strengthening  of  natural  resources  management  in 
developing countries;  

•  Provide  operational  support  –  through  voluntary  contributions  –  to  Multilateral 
Environmental  Agreements  and  for  other  international  environmental  initiatives, 
processes and organisations (including NGOs);  

•  Promote  EC’s  environmental  policy  abroad 

including 

inter  alia 

through 

supporting and contributing to public and/or private initiatives  

A  distinct  strand  is  envisaged  for  “energy  for  sustainable  development”,  which  would 
provide an appropriate link with the future Intelligent Energy – Europe Programme II, would 
complement sustainable energy actions in the components above, and would be coherent with 
the other elements of the thematic programme. The overall objective of this strand would be 
poverty alleviation. It could support access to sustainable, high quality, reliable and affordable 
energy  services  in  developing  countries  by  helping  to  integrate  sustainable  energy  in 
development  strategies,  to  strengthen  administrative  and  regulatory  capacity,  to  establish 
adequate  financing  arrangements  in  order  to  attract  investment,  and  to  encourage  regional 
cooperation to establish interconnection infrastructure. 

(4) 

Non-State Actors in development 

The  Commission  intends  to  propose  a  thematic  programme  aimed  at  providing  support  to 
civil  society  organisations  and  other  non-state  actors  active  in  development  and  originating 
from the EU and partner countries. Support to local authorities in partner countries could also 

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be considered in this framework. More specifically, this programme could have the threefold 
objectives of seeking to support (i) non-state actors contributions to the development process, 
both  at  partner  country  and  regional  level,  including  by  means  of  confidence  building 
measures,  fostering  advocacy,  networking  and  dialogue  capabilities,  facilitation  of  greater 
grassroots participation and and promotion of development synergies between state and non-
state  actors;  (ii)  better  understanding,  partnership  and  solidarity  between  European  citizens 
and  civil  societies  in  developing  countries  by  promoting  awareness  raising  and  information 
for  development  issues  amongst  the  citizens  of  the  EU  and  candidate  countries  (iii) 
cooperation and coordination between civil society networks and between these networks and 
EU institutions. 

(5) 

Food security 

The  Commission  envisages  a  thematic  programme  that  could  i)  support  the  delivery  of 
international  public  goods  contributing  directly  to  food  security  (e.g.  agricultural  research) 
and  the  financing  of  global  programmes  (e.g.  early  warning  systems),  ii)  address  food 
insecurity in countries or regions where either governments are not in place, or not in control 
of  parts  of  a  country,  or  no  country  strategic  framework  is  operational,  and  iii)  promote 
innovative policies and strategies in the field of food security.  

(6) 

Cooperation with industrialised countries 

This thematic programme would cover cooperation with a selected number of those countries 
defined as countries other than developing countries for the purpose of the DCECI and would 
aim  to  provide  a  specific  and  rational  response  to  the  need  to  cooperate  and  engage  further 
with  such  often  highly  important  political  and  trading  partners  in  both  bilateral  and 
multilateral  settings.  Cooperation  activities  would  be  intended  to  support  the  objectives  laid 
down  in  the  various  bilateral  instruments  (agreements,  political  declarations,  action  plans) 
governing  relations  between  the  European  Community  and  the  partner  countries,  with  the 
overall  objective  of  creating  a  more  favorable  environment  for  the  conduct  and  further 
development  of  these  relations.  More  specific  cooperation  objectives  would  notably 
encompass: the reinforcement of linkages between socio-economic actors in the EU and the 
partner  countries;  the  enhancement  of  the  understanding  and  of  the  influence  of  the  EU  in 
partner countries; and the broadening and deepening of partnerships and collaborative projects 
in a diversified range of areas.  

(7)  Migration and asylum 

For  several  years  now,  the  European  Union  has  developed  the  concept  of  partnership  with 
third  countries  in  the  area  of  migration,  emphasising  the  need  to  adopt  a  comprehensive 
approach  to  migration  in  association  with  the  countries  and  regions  concerned.  In  order  to 
give  concrete  expression  to  this  concept,  the  Aeneas  programme  for  cooperation  with  third 
countries in the areas of migration and asylum was created in 2004. It aims to provide specific 
and  complementary  financial  and  technical  assistance  to  third  countries  in  support  of  their 
efforts to address all aspects of migration issues.  

The  Aeneas  programme  is  envisaged  to  continue  as  a  thematic  programme,  designed  to 
strengthen  the  integration  of  migration  and  asylum  issues  in  the  Community's  external 
relations,  as  internal  EU  cross-cutting  priorities.  The  instrument  would  also  provide  a 
horizontal Community framework that helps strengthen cooperation between EU actors, third 
countries  and  international  actors  concerned  by  the  migration  phenomenon,  with  a  view  to 

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encouraging  greater  understanding  of  the  challenges  and  contributing  to  the  quest  for 
balanced and mutually satisfactory solutions. 

3. 

INVOLVEMENT OF THE EUROPEAN PARLIAMENT, THE COUNCIL AND CIVIL SOCIETY 

The Commission recognises that there is a need for a political debate with and guidance by 
the European Parliament and the Council on the strategic direction of thematic programmes 
preceding  the  annual  budgetary  process.  Therefore,  the  Commission  proposes  that  before  it 
prepares  and  adopts  thematic  strategies,  it  will  enter  into  discussions  with  the  European 
Parliament and the Council on the scope, objectives, and political priorities for each thematic 
programme,  based  on  a  formal  communication  to  the  institutions.  In  drawing  up  thematic 
strategies,  it  will  take  into  account  the  political  will  of  the  European  Parliament  and  the 
Council as expressed in their respective conclusions and resolutions. 

The  Commission  will  provide  an  indication  on  the  overall  amount  of  funding  foreseen  for 
each  thematic  programme  within  the  instruments  concerned  under  heading  4  (external 
actions)  of  the  Financial  Perspectives,  on  the  basis  of  a  multi-annual  indicative  framework, 
presented  to  the  European  Parliament  and  the  Council  in  year  n-2,  before  the  start  of  the 
budgetary process for year n. This would enable the Parliament and the Council to pronounce 
themselves  on  the  strategic  choices  and  priorities  before  the  Commission  prepares  the 
Preliminary  Draft  Budget.  The  Commission  will  as  a  general  rule  consult  civil  society  and, 
where  appropriate,  international  actors  before  drawing  up  the  proposals  it  will  make  to  the 
European Parliament and the Council. 

4. 

MANAGEMENT ASPECTS  

4.1. 

Programming  

The  thematic  programmes  identified  in  the  previous  chapter  are  internally  coherent  in  the 
sense  that  they  define  areas  with  broad  common  denominators  responding  to  specific 
Community policies and objectives. Therefore, in parallel to the programming of geographic 
resources, the financial resources allocated to each thematic programme will be programmed 
on the basis of a strategy document. 

Following  the  scope  and  definition  criteria  set  out  in  chapter  3,  thematic  programmes  must 
not  substitute  but  supplement  actions  under  geographical  programmes.  Their  specific  added 
value  needs  therefore  to  be  identified  in  the strategies.  Where  thematic  programmes  lead  to 
actions in third countries, an important challenge lies in the linking of country-based thematic 
projects  and  strategies  and  priorities  established  in  the  Country  and  Regional  Strategies, 
where  they  exist.  Country  and  Regional  Strategies,  in  establishing  the  policy  mix,  should 
identify  opportunities  for  adding  value  to  the  national  and  regional  programmes10  by  using 
thematic programmes. In turn, thematic strategies – where they lead to actions supplementary 
to  national  and  regional  programmes  –  should  identify  countries  and  regions  of  particular 
importance  in  attaining  the  intended  objectives  and  will  take  into  account  the  country  and 
regional strategies, where they exist. 

10 

Under the ENPI and the DCECI, these are the “National and Regional Indicative Programmes”. 

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Thematic strategies will set out the objectives, expected results, performance indicators, and 
priority  areas  for  Community  interventions  as  well  as  their  complementarities,  added  value 
and  synergy  with  actions  of  other  international  actors.  The  Commission  will  apply  a 
standardised framework for thematic strategies similar to the one for country strategy papers 
and  a  harmonised  adoption  procedure  following  the  three  main  stages  of  drafting,  quality 
control and formal approval. 

4.2. 

Implementation through the new instruments for external actions 

The thematic programmes identified above cut across the geographical coverage of the three 
instruments  with  a  defined  geographical  scope.  However,  as  far  as  the  Instrument  for  Pre-
Accession Assistance (IPA) is concerned, supplementary actions under thematic programmes 
are normally not required,  since  the  pre-accession strategies already cover,  through national 
and/or multi-country programmes, all aspects of the acquis communautaire (the 36 chapters 
of  the  negotiation  process)  and  all  Community  policies,  including  the  participation  of 
beneficiary countries in Community programmes.  

A specific case is the thematic programme for democracy and human rights, which would be 
implemented  through  all  three  policy  driven  instruments  and  the  stability  instrument.  The 
thematic  programme  “Cooperation  with  industrialised  countries”  will  be  implemented  only 
through the DCECI. All other thematic programmes would be implemented only through the 
European  Neighbourhood  and  Partnership  Instrument  (ENPI)  and  the  Development 
Cooperation and Economic Cooperation Instrument (DCECI).  

Two aspects need to be highlighted: 

•  Assignment  of  funds  from  the  envelopes  co-decided  by  the  budgetary  authority  for  the 

various instruments 

Each  of  the  two  instruments,  DCECI  and  ENPI,  will  be  endowed  with  a  financial  envelope 
co-decided  between  the  two  arms  of  the  legislator.  This  implies  that  financial  resources 
allocated to thematic programmes need to be clearly assigned to the two instruments. Global 
initiatives and programmes for the provision of Global Public Goods will however be solely 
assigned to the DCECI.  

For  thematic  programmes,  which  cut  across  different  instruments,  funds  would  be  assigned 
and specifically identified from the respective envelopes as part of the multi-annual indicative 
framework. 

•  Implementation  on  the  basis  of  the  different  regulations  (ENPI,  DCECI,  and  IPA  and 

stability instrument for democracy and human rights issues). 

The  regulation  that  governs  cooperation  with  a  specific  region  will  also  govern  the  actions 
under  thematic  programmes  in  that  region.  Actions  in  the  areas  of  global  public  goods  and 
global initiatives would be governed by DCECI. The implementing provision proposed by the 
Commission under the ENPI and the DCECI are largely identical or fully consistent in respect 
of the implementation of thematic programmes.  

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5. 

CONCLUSIONS 

The Commission recognises the continuing need and usefulness for thematic programmes in 
the  area  of  external  cooperation.  By  consolidating  and  rationalising  thematic  programmes, 
which leads to reducing their number by about one half, it aims at ensuring an effective and 
efficient  implementation  of  future  cooperation  programmes  in  pursuance  of  Community 
policies  and  priorities.  In  drawing  up  the  thematic  programmes,  the  Commission  will  fully 
involve the European Parliament and the Council and will consult civil society.  

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ANNEX: LESSONS LEARNED FROM EVALUATIONS  

The Commission has evaluated most of the thematic regulations under the current Financial 
Perspectives.  Moreover,  a  significant  number  of  country  strategy  evaluations  have  been 
undertaken in recent years, which throw light upon the link between country programmes and 
thematic  programmes.  Certain  general  findings  and  lessons  to  be  drawn  from  these  studies 
need  to  be  taken  into  account  in  the  concept  and  definition  of  future  thematic  programmes, 
particularly where they are implemented at country level. On one hand, the evaluations show 
that thematic programmes have had a positive impact: 

•  Thematic programmes have proven useful for  implementing Community  actions in cases 
when  the  government  of  the  partner  countries  blocks  them  under  the  geographic 
programmes, which is notably the case in sensitive areas such as human rights, democracy 
or support to civil society. 

•  They  have  been  assessed  as  useful  to  initiate  actions,  often  with  innovative  approaches, 

with pre-selected partners. 

•  Actions are often more easily accepted by partner countries when funding is “additional”. 

•  Thematic  programmes  have  proven  useful  to  intervene  in  fragile  states  and  difficult 

partnerships, particularly in supporting programmes implemented by non-state actors. 

On  the  other  hand,  the  thematic  programmes  and  budget  lines  have  demonstrated  certain 
weaknesses.  They  are  currently  large  in  numbers  and  fragmented.  The  narrowly  defined 
thematic focus, once determined by legislative act, limits the flexibility to adapt to new needs. 
The parallel implementation of numerous thematic programmes and the country programme 
poses managerial challenges and loss of efficiency11. Interventions in third countries funded 
under  thematic  programmes  create  by  their  nature  problems  of  coherence  with  country  and 
regional  strategies12.  Thematic  interventions  need  to  be  consistent  with  the  country  analysis 
and should respond or relate to country strategies13. Consequently, they should also be part of 
the complementarity assessment made in the context of country strategies. The substance of 
thematic programmes should be integrated into the policy dialogue with partner governments.  

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Example: “About fifty budget lines, of which around thirty that function and are regulated differently 
were mobilised to finance almost 400 identified projects”. Evaluation of the EC Country Strategy for 
Honduras, February 2004. 
Breakdown of the legal bases: if the European initiative for democracy and human rights is excluded, 
these  various  thematic  regulations  concern  crisis  situations  (refugees,  humanitarian  aid)  or  post-crisis 
situations  (rehabilitation)  within  the  framework  of  which  actions  in  favour  of  human  rights  are  one 
component  of  the  aid.  However,  if  this  falls  exactly  within  the  objective  of  mainstreaming,  it  is 
particularly  difficult  within  these  circumstances  to  precisely  identify  which  projects  –  and  which 
budgets – are implemented in favour of human rights. 
Example:  “Secure  further  coherence  between  all  the  EC  instruments  and  budget  lines  deployed  in 
Bangladesh.  …develop  procedures  to  ensure  that…deployment  of  the  budget  lines  concerned  is 
coherent with the Country Strategy, and pursues country specific objectives. ”. Recommendation 5 of 
the Evaluation of the EC Country Strategy for Bangladesh, November 2003 

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Correspondence list of current and future thematic programmes 

(The content and substance of thematic programmes may not necessarily correspond exactly 
to current programmes.) 

Heading 4 in 2000 – 2006  

Heading 4 in 2007 – 2013  

●  Democracy and the rule of law and 

respecting human rights and fundamental 
freedoms (Reg. No. 975/1999 and 
976/1999) 

●  Poverty diseases (Reg No. 1568/2003 plus 

550/97 on AIDS/HIV) 

●  Reproductive and sexual health and rights 

in developing countries (Reg. No. 
1567/2003 plus 1484/97 population 
policies and programmes in developing 
countries)  

●  Gender equality in development 
cooperation (Reg. 806/2004) 

● 

Integration of environmental dimension in 
development process (Reg. No. 2493/2000) 
●  Conservation and sustainable management 
of tropical forests and other forests in 
developing countries (Reg. No 2494/2000) 

●  Some international funding currently 

included in DG ENV budget 
Intelligent Energy (COOPENER) 

● 

●  Decentralised cooperation (Reg. No. 

1659/98 plus amendments)  

●  Co-financing operations with NGOs (Reg. 

No 1658/1998) 

●  Food aid policy and food aid management, 
special operations in support of food 
security (Reg. No. 1292/1996) 

●  Cooperation and commercial relations 
between the EU and the industrialised 
countries (Reg. No. 382/2001) 

●  Rehabilitation and reconstruction 

operations in developing countries (Reg. 
No. 2258/1996) 

●  Aid to up-rooted people in Asia and Latin 

America (Reg. No. 2130/2001) 

1. 

Democracy and human rights 

2. 

Human and social development 

3. 

Environment and sustainable 
management of natural resources 

4. 

Civil society and decentralised 
cooperation 

5. 

Food security 

6. 

7. 

Cooperation with industrialised 
countries 

Programmes transferred to 
geographic programmes 
(regional programmes) 

•  Assistance  to  third  countries  in  the  area  of 
migration and asylum (Reg. 491/2004) 

8. 

Migration and asylum 

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