Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions - The Commission’s contribution to the period of reflection and beyond - Plan-D for Democracy, Dialogue and Debate
Date: 2005-10-13
Institutions: European Commission
Subjects: EU competence, European Union, European citizenship, administrative transparency, citizens' Europe, democracy, political participation, public awareness campaign, social dialogue (EU)

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 13.10.2005 
COM(2005) 494 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

The Commission’s contribution to the period of reflection and beyond:  
Plan-D for Democracy, Dialogue and Debate 

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1. 

INTRODUCTION 

At  the  end  of  the  European  Council  on  18  June  2005,  Heads  of  State  and 
Government  adopted  a  declaration  on  “the  ratification  of  the  Treaty  establishing  a 
Constitution  for  Europe”.  This  declaration  called  for  a  “period  of  reflection” 
following  the  negative  votes  in  France  and  the  Netherlands  on  the  European 
Constitution. 

Heads of State and Government gave guidance to the Member Sates on the type of 
debate  that  could  be  organised:  “the  period  of  reflection  will  be  used  to  enable  a 
broad debate to take place in each of our countries, involving citizens, civil society, 
social partners, national parliaments and political parties”. It also indicated that the 
European Institutions should “make their contribution, with the Commission playing 
a special role in this regard”. The purpose of this communication is to respond to the 
request by Heads of State and Government. 

The European Commission has strongly supported the ratification of the Constitution 
and has provided assistance to all Member States with their information campaigns. 
Individual Commissioners have been active in the national debates. The Commission 
continues  to  consider  that  the  Constitution  would  be  an  important  step  forward  in 
making the European Union more democratic, transparent, effective and stronger to 
the  outside  world.  The  Commission  therefore  regrets  the  fact  that  in  the  current 
circumstances,  it  is  unlikely  that  the  Constitution  will  be  ratified  in  the  foreseeable 
future. Pending the outcome of the ratification process, the Commission believes that 
the  overall  balance  achieved  in  the  Constitution  should  not  be  undermined  by 
piecemeal implementation of parts of the text. It believes that the period of reflection 
should,  in  a  first  stage,  be  used  for  a  broad  and  intensive  debate  on  European 
policies.  Any  vision  of  the  future  of  Europe  needs  to  build  on  a  clear  view  on 
citizen’s needs and expectations. This is the purpose of Plan-D. 

2. 

OBJECTIVES OF PLAN-D 

The Commission has proposed a Plan D for Democracy, Dialogue and Debate, not as 
a rescue operation for the Constitution, but to stimulate a wider debate between the 
European  Union’s  democratic  institutions  and  citizens.  It  has  to  be  seen  as 
complementary to the already existing or proposed initiatives and programmes such 
as  those  in  the  field  of  education,  youth,  culture  and  promoting  active  European 
citizenship. 

Plan-D  dovetails  with  the  Action  Plan  on  communicating  Europe1  which  seeks  to 
improve the way that the Commission presents its activities to the outside world and 
the forthcoming White Paper on communication strategy and democracy which will 
start  a  consultation  process  on  the  principles  behind  communication  policy  in  the 
European  Union  and  the  areas  of  co-operation  with  the  other  European  institutions 
and  bodies.  Together  with  Plan-D  these  initiatives  set  out  a  long-term  plan  to 
reinvigorate  European  democracy  and  help  the  emergence  of  a  European  public 

1 

Action Plan to improve communicating Europe by the Commission SEC(2005)985 - 20/07/2005 

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sphere, where citizens are given the information and the tools to actively participate 
in the decision making process and gain ownership of the European project. 

Restoring public confidence in the European Union 

Faced with declining confidence in political systems, the Commission believes that it 
is important to ensure that representative democracy continues to maintain the trust 
and involvement of Europe’s citizens. The latest Eurobarometer survey2 shows that 
public  approval  of  the  European  Union  has  steadily  decreased  over  recent  months. 
Whether in terms of trust, image or assessment of EU membership, all the indicators 
have  fallen.  A  similar  decline  is  seen  in  the  public  approval  of  and  trust  in  the 
national  political  process.  While  membership  of  the  European  Union  is  still 
supported  by  54%  of  EU  citizens,  the  image  of  the  European  Union  has  steadily 
decreased in citizens’ eyes with only 47% of respondents giving a positive response. 
Trust  in  the  European  Union  has  dropped  from  50%  of  citizens  trusting  the  EU  in 
Autumn 2004 to 44% in Spring 2005. 

People need to feel that Europe provides an added value and they have the ability to 
affect  the  way  decisions  are  taken.  Currently  53%  of  European  citizens  do  not 
believe that their voice counts in the European Union2. Yet, when questioned about 
the desired role of the European Union in five years time, 49% would like it to have 
a greater role while only 14% wish to see it less involved in key policy areas. This 
calls for the emergence of a Europe which listens more in order to meet its citizens’ 
expectations. 

This is crucial, as the European institutions are too often the scapegoat for unpopular 
decisions and are often seen as remote and bureaucratic. One of the main objectives 
of the period of reflection should be to stimulate a more accurate communication of 
the  activities  of  the  European  Union.  Ending  the  blame-game,  both  by  Member 
States and the European institutions, is an important change that must take place. 

Target audiences and modern media 

The Commission believes that the debate must not be limited to the political leaders 
and traditional stakeholders. The Commission shares the views of Heads of State and 
Government  that  these  debates  should  involve  “civil  society,  social  partners, 
national parliaments and political parties” but also believes that there would be an 
added value in listening to specific target groups, such as young people or minority 
groups, that were not reached during the referendum campaigns. Finally, the debates 
can  only  be  a  success  if  the  mass  media  are  engaged  in  the  process,  in  particular 
television. Equally the internet is of prime importance for stimulating the debate. 

A long term commitment 

Plan-D  is  not  limited  to  the  period  of  reflection.  It  is  an  exercise  that  must  run 
throughout  the  lifetime  of  this  Commission,  and  beyond.  The  current  crisis  can  be 
overcome  only  by  creating  a  new  consensus  on  the  European  project,  anchored  in 
citizens’ expectations.  

2 

http://europa.eu.int/comm/public_opinion/archives/eb/eb63/eb63_en.htm 

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From listening to further involvement 

Ultimately, Plan-D for democracy, dialogue and debate is a listening exercise so that 
the European Union can act on the concerns expressed by its citizens. The objective 
of  the  Commission  is  to  stimulate  this  debate  and  seek  recognition  for  the  added 
value that the European Union can provide. The democratic renewal process means 
that EU citizens must have the right to have their voices heard.  

3. 

ASSISTING NATIONAL DEBATES 

3.1. 

Organisation of national debates 

The primary responsibility for responding to the call for a period of reflection rests 
with  Member  States.  All  have  committed  to  undertake  broad  ranging  national 
debates on the future of Europe. 

While  the  Commission  acknowledges  that  a  lively  debate  is  already  under  way  in 
some  Member  States, in others  it  has  yet to start or, where under way, needs to be 
intensified  and  broadened.  The  Commission  is  ready  to  help  add  momentum  by 
suggesting  a  common  approach  and  presenting  its  ideas  on  how  it  could,  as  an 
institution, contribute to the debate. 

The Commission believes that its role is to assist rather than replace Member States 
in  the  organisation  of  national  debates.  The  Commission  will  work  with  national 
Governments to help organise and fund of events promoting the debate. These events 
should  cover  the  whole  political  spectrum  of  views.  The  Representations  of  the 
European  Commission  in  the  Member  States  (Representations)  and  the  European 
Parliament Offices will have a key role in providing assistance during the period of 
reflection. The European Parliament could also play a key role in the national debate, 
both  in  terms  of  working  with  national  institutions  and  through  the  involvement  of 
individual members of the European Parliament. 

There is no standard model for the organisation of debates in the Member States. In 
some, there are permanent structures, forums or platforms which seek to hold regular 
debates  on  European  issues.  In  others,  there  is  less  of  an  organised  system  for 
dialogue and debate. Models such as the National Forum in Ireland or the Platform 
for Europe in Spain may offer inspiration to Member States.  

National,  regional  and  local  Parliaments  have  a  specific  role  to  play  in  the 
organisation  and  promotion  of  debates.  National  Parliaments  are  the  bridge  to 
ensuring effective scrutiny of decisions taken by National Governments on European 
issues. While a number of national Parliaments are examples of best practice, much 
more  can  be  done  to  improve  this  scrutiny  function.  The  Commission  is  therefore 
keen to develop its co-operation with the National Parliaments beyond the targets for 
the  Commission’s  relations  with  the  National  Parliaments,  which  it  started 
implementing in early 2005. These targets revolve around three main themes: mutual 
service;  concrete  networking;  connecting  with  people  and 
their  elected 
representatives, since a greater voice for Parliaments is a greater voice for Europe’s 
citizens.  They  include  a  range  of  concrete  actions  from,  for  example,  high  level 
participation  in  COSAC  and  the  EU  Speakers’  Conference  to  establishing  the 

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National  Parliaments’  requirements  for  types  of  information  and  ways  of  co-
operation, facilitating the electronic exchange of EU-related information between the 
National Parliaments. 

The  Commission  will  as  soon  as  possible,  in  close  co-operation  with  the  European 
Parliament,  and  after  consulting  the  Presidency  in  office  of  the  EU  Speakers’ 
Conference  and the  Presidential Troika of COSAC, invite  the National Parliaments 
of  the  Member  States  to  a  forum  in  Brussels.  The  purpose  will  be  to  discuss  the 
National Parliaments’ contributions during the period of reflection, exchange views 
on  national  experiences  and  best  practices,  and  examine  possible  co-operation  and 
joint actions with and/or support from the EU Institutions during this period. 

3.2. 

Content  

Plan-D for democracy, dialogue and debate sets out a structured process to stimulate 
a public debate on the future of the European Union. The policy content of the public 
debate should feed into the approach taken at the end of the period of reflection.  

In  seeking  to  provide  a  common  framework,  the  Commission  fully  recognises  that 
each debate has its own local, regional and national characteristics. Different issues 
will be highlighted and the importance of the European Union will differ according 
to the country and policy content discussed.  

Notwithstanding  the  individual  national  specificities,  the  national  debates  should 
focus  citizens’  attention  on  the  future  of  Europe,  examining  their  expectations  and 
discussing  the  added  value  and  the  concrete  benefits  of  Community  action.  In  this 
way,  the  debate  should  go  beyond  institutional  questions  and  the  Constitution.  It 
should  focus  on  how  Europe  is  addressing  issues  such  as  jobs,  the  economy, 
transport, the fight against terrorism, the environment, oil prices, natural disasters or 
poverty reduction in Africa and elsewhere. The results of these debates should help 
the  European  Institutions,  and  in  particular  the  Commission  to  better  define  its 
priorities.  

This  should  be  a  two  way  process,  informing  people  about  Europe’s  role  through 
concrete achievements and projects and listening to people’s expectations about what 
should be done in the future. The debate could include the following themes: 

•  Europe’s economic and social development: the capacity of Europe to generate 
growth  and  create  more  jobs,  maximising  the  effects  of  the  strategy  agreed  in 
Lisbon; the common values on which the economic and social models in Europe 
are  based;  the  reforms  needed  in  order  to  face  global  competition  and  the 
conditions for sustainable development. 

•  Feeling  towards  Europe  and  the  Union’s  tasks:  Building  on  previous 
achievements and the concrete benefits brought to them in their daily lives by the 
Union  (e.g.  food  safety,  Erasmus,  single  currency,  consumer  protection,  internal 
market), the debate could consider what people think should be done at local level 
and what they see as the future role for the Union, including developing an area of 
justice, freedom and security or dealing with climate change and natural disasters. 

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•  Europe’s borders and its role in the world: the prospect of new enlargements, 
the Union’s capacity to take in new members, the overall safety of the continent, 
the relation with its neighbours or Europe’s influence in relation to the other large 
blocs  in  the  world.  What  do  people  expect  from  Europe  in  a  globalised  world  - 
from trade (e.g. textiles), to the environment (e.g. climate change), mobility (e.g. 
trans-European  networks), 
in  peace-keeping 
operations),  and  development  (e.g.  help  to  developing  countries,  Third  World’s 
debt relief) ? 

(e.g.  participation 

security 

It  goes  without  saying,  however,  that  within  Plan-D  the  range  of  topics  will  in  no 
way  be  limited.  Indeed,  depending  on  audience  and  circumstances,  the  most 
interesting and vivid topic should be chosen and discussed. The Commission is ready 
to elaborate on these themes at the request of Member States. 

3.3. 

Feedback process  

The  national  debates  need  to  be  structured  to  ensure  that  the  feedback  can  have  a 
direct  impact  on  the  policy  agenda  of  the  European  Union.  The  listening  exercise 
must  be  lead  to  clear  results  that  are  taken  on  board  at  the  end  of  the  period  of 
reflection.  Each  Member  State  should  present  a  synthesis  to  the  Commission  and 
Council Presidency of the initial results of the national debate. This synthesis should 
be made public. 

An  initial  feedback  process  should  take  place  in  April  2006  so  that  a  first  set  of 
conclusions can be drawn. As a first step, the Commission will organise a European 
Conference  on  9  May  2006,  known  as  “Europe  Day”,  on  the  future  of  Europe, 
involving  civil  society,  Member  States’  and  European  and  national  Parliament 
representatives, citizens and other EU institutions and bodies. This will seek to draw 
together  the  main  conclusions  from  the  debate  at  the  European  level  and  activities 
that stem from cross-border debate. In May 2006, the Commission will also prepare a 
document providing an overall synthesis of the national visits and debates organised 
throughout the Union.  

This  will  also  allow  the  Austrian  Presidency  to  orientate  the  preparation  of  the 
stocktaking exercise at the June 2006 European Council as set out in the declaration 
by Heads of State and Government. 

4. 

INITIATIVES AT COMMUNITY LEVEL  

The European Commission stands ready to play a significant role in the wide-ranging 
debate on the future of Europe. Although not the main focus of the debate, it has a 
contribution to make in seeking to ensure that cross-border initiatives are promoted 
and  supported.  A  number  of  high-profile  cross-border  events  can  also  help  to  raise 
the  visibility  of  the  process  and  stimulate  the  involvement  of  new  actors  in  the 
European decision-making process.  

Partnership with the European institutions and bodies 

The Commission will work with the current and forthcoming Presidencies, European 
Parliament, Council, Committee of the Regions and European Economic and Social 

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Committee to stimulate the debate at the European level. The vast majority of these 
initiatives  can  be  undertaken  jointly  with  the  European  Parliament  and  the  other 
institutions  and  bodies.  The  Commission  invites  each  of  the  European  institutions 
and bodies to contribute and discuss the areas of co-operation and joint action.  

The initiative of the Commission seeks to inspire EU citizens to become politically 
active  in  the  debate  on  the  future  of  Europe;  to  publicize  the  added  value  that  the 
European Union brings; and to encourage government, political parties and opinion 
formers to place the issue of Europe at the forefront of public consciousness.  

The  following  initiatives  should  be  taken  at  Community  level  during  the  period  of 
reflection.  

4.1. 

Stimulating a wider public debate 

4.1.1.  Visits by Commissioners to Member States 

The Commission intends to have a more direct contact with citizens, to listen to their 
concerns  and  to  become  more  visible  and  present  in  the  national  and  regional 
debates.  

The  President  and/or  the  Vice-President  for  institutional  relations  will  undertake  a 
series of visits to as many of the Member States as possible. A particular effort will 
be  made  in  the  coming  months.  They  will  be  accompanied  by  the  Commissioner 
from the respective Member State and other Commissioners where appropriate. The 
Commission  would  recommend  that  Members  of  the  European  Parliament  are  also 
involved.  They  should  meet  with  Governments,  national  Parliaments,  business  and 
trade union leaders, civil society, students and regional and local authorities. Media 
events and contacts with civil society will be a key feature of each visit.  

4.1.2.  Commissioners availability to National Parliaments 

National Parliaments are the bridge to ensuring effective scrutiny of decisions taken 
by  National  Governments  on  European  issues.  As  stated  above,  the  Commission 
intends  to  play  an  active  role  in  facilitating  the  debate  on  European  issues  and  to 
increase transparency about European policy making in all political fora.  

In  addition  to  the  fact  that  there  is  a  Vice-President  for  relations  with  national 
Parliaments,  individual  Commissioners  will  strive  to  be  accessible  and  prepared  to 
assist national Parliaments to explain Commission policies and provide an overview 
of recent EU developments. Contacts are on-going with national Parliaments to make 
the practical arrangements.  

4.1.3.  Representations open to the public 

The Commission Representations are the national face of the Commission  but they 
are not sufficiently known by the majority of citizens who continue to perceive the 
Commission  as  a  distant  institution.  The  Commission  is  reinforcing  the  role  of  the 
Representations  and  intends  to make  them known to the public as a focal point for 
getting information and collecting feedback on their concerns on European issues. 

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Representations  have  their  premises  permanently  open  to  the  public.  Additionally, 
the  Head  of  Representation  (where  possible  Commissioners)  will  be  available  for 
regular  question  times  with  citizens.  These  sessions  should  not  be  limited  to  the 
capital  city.  The  European  Parliament  is  invited  to  do  the  same  and  these  events 
should be coordinated. 

4.1.4.  Utilising Europe Direct centres for regional events 

A decentralised network of EU local information relays has been in put in place by 
the Commission in partnership with regional and local host structures. This network 
offers all the EU institutions and bodies a valuable tool for communicating Europe to 
the  citizens  on  the  ground  and  for  implementing  the  Commission’s  approach  to 
communication activities. 

The Representations will make full use of the “new generation” network of Europe 
Direct  centres  in  support  of  Plan-D.  They  should  be  used  as  the  focal  point  of 
activities at the regional level. 

4.1.5.  European Round Table for Democracy 

The  Commission  intends  to  reach  out  to  citizens,  particularly  young  people, 
interested in European Affairs. The objective is to explore ways for enhanced cross-
border debate, promote active citizenship as well as raising awareness of the process 
of European integration. 

The Commission will work with civil society actors. to establish a European Round 
Table  for  democracy.  The  round  table  will  gather  citizens  from  different  horizons 
that will act together or debate on common European issues. Building on the results 
of the European Round Table, meetings should be organised in all Member States. 

4.1.6.  European Goodwill Ambassadors 

Good information and communication activities on what we do will be crucial. Good 
policies  must  be  complemented  by  good  and  creative  initiatives seeking  to  connect 
with the public and the media.  

The  Commission  will  seek  to  work  with  Member  States  to  organise  a  series  of 
regionally  based  events  with  “European  Goodwill  Ambassadors”,  building  on 
previous models like used by the United Nations and the experience of membership 
referenda in new Member States, and invite well known personalities or national and 
local  celebrities  from  the  cultural,  business,  sport  or  any  other  area  of  interest  to 
target  audiences.  These  “ambassadors”  could  be  active  in  the  Member  State 
concerned,  holding  open  meetings,  workshops  and  general  talks  on  specific 
European  areas  or  programmes  such  as  education,  anti-poverty,  electoral 
participation, research and development, etc.  

4.2. 

Promoting citizens’ participation in the democratic process 

4.2.1.  Promoting more effective consultation 

In  recent  years,  the  Commission  has  improved  the  way  it  consults  on  major  policy 
initiatives. The number of consultations with stakeholders through Green and White 

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Papers and internet consultations have risen sharply. As part of the listening process, 
the  Commission  intends  to  use  and  improve  existing  tools  for  collecting  feedback 
directly  from  citizens,  consumers  and  business  in  cooperation  with  the  European 
Parliament and other institutions.  

The Commission will more effectively promote its existing consultation procedures 
in  order  to  achieve  increased  involvement of  national  and  regional  stakeholders,  as 
foreseen in the Action Plan on improving communication. 

4.2.2. 

Support for European citizens’ projects 

In order to deal with the perceived lack of legitimacy and involvement of European 
citizens  in  the  political  systems  there  is  a  need  to  further  enhance  their  sense  of 
participation  and  involvement  in  the  European  ideal  at  all  levels.  The  recently 
proposed programme “Citizens for Europe” to promote active European citizenship 
has defined this precisely as its main objective. 

Furthermore, a whole range of citizens’ panels have been established at local level in 
certain  Member  States  which  are  often  tied  into  the  decision-making  process  at 
regional  level.  The  Commission  will  seek  to  support  European  Citizens’  Panel 
initiatives to assemble, when possible, a representative cross-section of citizens from 
European  regions  to  discuss  specific  policy  areas.  These  should  build  on  existing 
models in the Member States and also provide a potential feedback to the European 
debates.  

4.2.3.  Greater openness  

The European citizen is entitled to expect efficient, open and service-minded public 
institutions. The Commission therefore supports increased transparency at all levels 
in  the  European  institutions,  including  through  its  own  European  Transparency 
Initiative.  As  regards  the  Council,  the  Seville  European  Council  decided  on  the 
opening of Council meetings to the public when the Council acts as a co-legislator. 
These  rules  are  formalised  in  the  Council’s  rules  of  procedure.  This  ensures 
presentation  of  the  main  proposals  and  opening  to  the  public  of  votes  and 
explanations of votes. These commitments have not yet been translated into practice. 
The  British  Presidency  is  currently  considering  a  series  of  options  to  bring  about 
greater openness to Council proceedings. 

The  Commission  fully  supports  this  Presidency  initiative  which  dovetails  with  the 
Commission’s European Transparency Initiative. 

4.2.4. 

Increased voter participation 

The  lower  level  of  participation  in  national  and  local  elections  has  reinforced  the 
sense of lack of legitimacy in the political process. In particular the turnout in certain 
Member  States  at  the  latest  European  Parliament  election  has  been  disappointingly 
low. 

The  Commission  will  propose  to  the  other  European  institutions  that  they  jointly 
look  into  ways  to  increase  voter  participation  in  European  elections  and  national 
referenda on European issues. Specific attention should be given to participation of 

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young  people  and  minority  groups  and  the  use  of  new  technologies  to  increase 
participation.  A  joint  inter-institutional  working  group  could  be  established  to  co-
ordinate efforts in this area. 

4.3. 

Tools to generate a dialogue on European policies 

4.3.1. 

Specific Eurobarometer on the future of Europe 

Plan-D  is  an  exercise  for  listening  and  dialogue.  The  ultimate  objective  of  the 
Commission  is  to  be  able  to  draw  lessons  from  the  concerns  expressed  by  the 
citizens.  This  will  also  help  Member  States  understand  their  citizens’  concerns 
during the period of reflection. 

The  Commission  will  present  a  specific  Eurobarometer  survey  on  the  future  of 
Europe,  assessing  citizens’  views  on  the  future  of  the  European  project  as  well  as 
citizens’ support for and expectations of European policies and actions. 

4.3.2. 

Internet 

Increasingly, experiences shows that the Internet has become an important forum of 
political debate. If the Commission intends to play an active role in moderating the 
debate  on  the  Future  of  Europe  it  should  explore  the  use  of  every  interactive 
communication medium that can facilitate this debate. 

The Commission will therefore use state-of-art Internet technology to actively debate 
and  advocate  its  policies  in  cyberspace,  which  has  become  an  important  opinion-
forming forum of debate. 

4.3.3.  Targeted focus groups  

As  an  essential  part  of  the  listening  exercise,  the  Commission  should  build  on  the 
existing  good  practice  of  using  focus  groups  as  a  first  step  in  open  policy  making 
processes. Particular emphasis should be placed on the views of young people. This 
could help Member States to strengthen the feedback process in the national debates. 

The Commission is ready to provide assistance to Member States to undertake focus 
group work on specific European themes.  

5. 

FUNDING 

The wide-ranging debate on the future of Europe must be supported by appropriate 
financial  assistance.  The  Commission  will  seek  to  assist  Member  States  and  civil 
society through support of individual initiatives.  

At the start of 2005, nine million euros was allocated under the Prince budget line for 
the future of Europe debate (Budget line 250302). All Member States have received 
some financial assistance with just less than six million already allocated during the 
ratification process. The Commission believes that the remaining resources should be 
used to support Member State and civil society initiatives.  

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The  Commission  therefore  supports  the  European  Parliament’s  intention  to  make 
available an additional six million euros for 2006 on the Prince budget line.  

6. 

CONCLUSION  

The  national  debates  on  the  ratification  of  the  European  Constitution  have 
demonstrated  continued  support  for  membership  of  the  European  Union  but  an 
increasing sense of remoteness from the democratic process.  

The Heads of State and Government of the European Union have issued a declaration 
which emphasises the need to listen to citizens’ concerns and enable a broad debate 
to take place. 

Now is the time to listen and act. This communication sets out the content and issues 
falling under Plan-D for democracy, dialogue and debate. It underlines the national 
character  of  the  debate  but  also  recommends  a  structured  feedback  process  and  a 
series of possible initiatives to be taken at the Community level.  

Plan-D must seek to clarify, deepen and legitimise a new consensus on Europe and 
address  criticisms  and  find  solutions  where  expectations  have  not  been  met. 
Accordingly, the European Commission recommends that Member States: 

– 

Take  the  necessary  steps  to  structure  a  national  debate  as  soon  as  possible  in 
each country; 

–  Work  with  the  Commission  and  other  institutions  and  bodies  to  organise  the 
most  effective  assistance  and  contribution,  including  national  visits,  that  they 
can make to the national debate; 

– 

By the next European Council, agree on the feedback process to ensure that the 
concerns  and  expectations  of  citizens  are  disseminated  and  fed  into  the 
stocktaking exercise to be held during the Austrian Presidency. 

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LEGISLATIVE FINANCIAL STATEMENT 

1.  NAME OF THE PROPOSAL: 

The  Commission’s  contribution  to  the  period  of  reflection  and  beyond:  Plan  D  for 
Democracy, Dialogue and Debate 

2.  ABM/ABB FRAMEWORK 

Policy area: 16 – PRESS AND COMMUNICATION 

Associated activities (according to the PDB 2006 nomenclature): 

16 03 

Analysis of public opinion trends and development of general information for 
citizens 

3.  BUDGET LINES 

3.1. Budget line, including its title: 

16 03 04 – Prince – Debate on the future of the European Union 

3.2. Duration of the action and of the financial impact: 

Plan  D  covered  by  this  communication  is  intended  to  be  implemented  on  an  ongoing  basis, 
each year, and funded as part of the multiannual financial programming.  

3.3. Budgetary characteristics (add rows if necessary): 

Budget line 

Type of 
expenditure 

New 

Contribution 
from EFTA 
countries 

Contribution 
from applicant 
countries 

Heading in 
Financial 
Perspective 

Line 16 03 04 

Diff. 

Non-
comp.

No 

No 

No 

3 

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4.  SUMMARY OF RESOURCES 

4.1. Financial resources 

4.1.1.  Summary  of  commitment  appropriations  (CA)  and  payment  appropriations 

(PA) 

                                       EUR million (to 3 decimal places) 

Section 
No 

Type of expenditure 

Operational expenditure4 

Commitment 
appropriations (CA) 

8.1 

Payment 
(PA) 

appropriations 

TTOOTTAALL  RREEFFEERREENNCCEE  AAMMOOUUNNTT 

Subsequent 
years3 

2006 

Total 

6,000 

6,000 

a 

b 

--- 

--- 

6,000 

6,000 

Commitment 
appropriations 

a 

6,000 

--- 

6,000 

Payment appropriations 

b 

6,000 

--- 

6,000 

Administrative expenditure not included in the reference amount5 

Human 
associated 
(NDA) 

resources 

and 
expenditure 

8.2.3 

d 

0,810 

--- 

0,810 

    Total indicative cost of the action 

TOTAL  CA 
including 
cost of human resources 

a+d 

6,810 

--- 

6,810 

3 

4 
5 

Implementation  of  Plan  D  will  continue  in  2007  and  2008  but  the  necessary  appropriations  will  be 
precisely identified when the results of the feedback process are available. 
Expenditure that does not fall under Chapter 16 01 in Title 16. 
Expenditure within Chapter 16 01 other than Articles 16 01 04 and 16 01 05. 

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TOTAL  PA 
including 
cost of human resources 

b+d 

6,810 

--- 

6,810 

4.1.2.  Compatibility with financial programming 

For  the  2005  budget,  the  proposal  is  compatible  with  existing  financial 
programming. 

Implementation  of  Plan  D  in  2005  will  be  funded  by  redeploying  internal 
appropriations available to DG PRESS on the Prince budget line. 

For  2006,  the  needs  will  be  covered  by  the  Prince  budget  line  subject  to 
allocation of the necessary appropriations by the budget authority. Parliament 
has  tabled  various  amendments  with  a  view  to  increasing  the  appropriations 
allocated to this budget line in PDB 2006. 

In 2007 and 2008, implementation of Plan D will continue. For those years, the 
appropriations  will  depend  on  the  outcome  of  the  initial  feedback  process. 
They  are  therefore  not  shown  in  the  tables  set  out  in  this  financial  statement. 
They will be subject to the approval of the Financial Perspective for 2007-2013 
and the resulting multiannual programming.  

4.1.3.  Financial impact on revenue 

Proposal has no financial impact on revenue. 

4.2. Human resources FTE (including officials, temporary and external staff) - see 

details under point 8.2.1. 

Annual requirements 

2006 

Subsequent 
years 

Total 
number 
human resources 

of 

7,5 

--- 

5.  CHARACTERISTICS AND OBJECTIVES 

5.1. Need to be met in the short or long term 

On 18 June 2005 the European Council adopted a declaration calling for a period of reflection 
following the negative votes in France and the Netherlands on the European Constitution. The 
Commission has proposed a Plan D for Democracy, Dialogue and Debate to stimulate a wider 
debate  on  relations  between 
institutions  and  citizens.  This 
the  EU’s  democratic 
communication proposes a set of initiatives aimed at stimulating a wide-ranging public debate 
at  national  and  European  level.  These  initiatives  should  also  reach  out  to  specific  target 
audiences (women, young people, minority groups, jobseekers, etc.) and should be covered by 

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the  appropriate  media.  This  exercise  should  continue  throughout  the  life  of  the  present 
Commission and beyond. 

The Representations in the Member States will be a cornerstone of the process. 

5.2. Value-added of Community involvement and coherence of the proposal with 

other financial instruments and possible synergy 

The added value of the proposed measures is to ensure that feedback from the debate has a 
direct  impact  on  the  EU’s  political  agenda.  The  Commission  therefore  proposes  to  provide 
assistance  in  the  organisation  and  funding  of  events  promoting  the  debate.  The  initiatives 
should wherever possible be organised in cooperation with other EU institutions and bodies.  

Plan  D  will  be  implemented  in  synergy  with  the  Commission’s  Action  Plan  to  improve 
communicating Europe adopted by the College on 20 July 2005.  

5.3. Objectives, expected results and related indicators of the proposal in the context 

of the ABM framework 

Generally  speaking,  the  objectives  of  Plan  D  form  part  of  the  Commission’s  general 
objectives and the operational objectives of DG PRESS as reflected in ABM and ABB. 

This  part  of  the  financial  statement  lists  the  actions  and  objectives  described  in  Plan  D  that 
have a budgetary impact and/or an impact in terms of human resources for DG PRESS.  

The  Commission  Representations  in  the  Member  States  will  be  extensively  involved  in 
achieving all the objectives and carrying out all the actions described below. 

1. Operational objective 1: Assisting national debates 

•  Contribution to the ABM objectives of DG PRESS and the general objectives 

of the Commission 

This  objective  will  be  achieved  through  the  following  actions,  which  all  fall 
under the general objectives of DG PRESS and the existing ABB budget lines: 

1.1.  Organisation  of  national  debates:  the  Commission  will  assist  the 
Member States in organising events promoting the debate. 

1.2.  Feedback  process:  to  be  implemented  among  other  things  through  the 
organisation of a European Conference on 9 May 2006. 

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•  Achievements / expected results / expected impacts / indicators 

Operational 
sub-objectives / 
actions 

Point in Plan D 

Achievements 

Expected results / 
impacts 

Indicators 

1.1  Organisation  of 
national debates 

3.1. 

in 

Assistance 
the 
organisation  of  events 
promoting the debate 

1.2 Feedback process 

3.3. 

Organisation  of 
the 
European  Conference 
in 
2006/ 
May 
synthesis document 

Organisation  of  one 
national  debate  per 
State. 
Member 
Promotion  of  regional 
and 
initiatives 
involvement 
of 
national Parliaments 

Pooling  of  the  initial 
conclusions  emerging 
from  the  debate  and 
the 
pointers 
preparation of the June 
2006 
European 
Council 

for 

Number  of  debates 
organised.  

Reports  by  Member 
States 

Number 
Conference 
participants. 

of 

Ex  ante  and  ex  post 
evaluation 

2. Operational objective 2: Stimulating a wider public debate 

•  Contribution to the ABM objectives of DG PRESS and the general objectives 

of the Commission 

This  objective  will  be  achieved  through  the  following  actions,  which  all  fall 
under the general objectives of DG PRESS and the existing ABB budget lines: 

2.1. Visits by Commissioners to Member States: to be implemented as part 
of the Commission’s Action Plan on improving communication. 

2.2.  Opening  the  Commission  Representations  to  the  public:  to  be 
implemented  by  the  Representations  through  the  frequent  organisation  of 
information meetings and public debates.  

2.3. Utilising Europe Direct centres for regional events: to be implemented 
as part of the Commission’s Action Plan on improving communication. 

2.4. European Round Table for Democracy: to be implemented in particular 
through the establishment of a European Round Table and the organisation of 
meetings at national level. 

2.5.  European  Goodwill  Ambassadors:  to  be  implemented  as  part  of  the 
Commission’s Action Plan on improving communication. 

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•  Achievements / expected results / expected impacts / indicators 

Point in Plan D 

Achievements 

Expected results / 
impacts 

Indicators 

Operational 
sub-objectives / actions 

2.1. 
Visits 
Commissioners 
Member States 

by 
to 

4.1.1. 

2.2. 
the 
Opening 
Representations  to  the 
public 

4.1.3. 

by 
Visits 
to 
Commissioners 
Member 
States, 
increased  contacts 
with  regional  and 
local 
media, 
communication 
actions 

Better understanding 
and image of 
Commissioners in the 
different countries, 
better information 
quality and targeting, 
the EU brought closer 
to citizens 

of 

Organisation 
monthly 
information  events 
and  debates  with 
target  audiences  at 
national level 

institutions 
The  EU 
brought 
to 
closer 
citizens.  Improvement 
listening 
of 
function  at  national 
level 

the 

2.3.  Utilising  Europe 
Direct 
for 
regional events 

centres 

4.1.4. 

Promotion  of 
Europe 
network 

the 
Direct 

at 

collected 
Feedback 
from  different  target 
audiences 
local 
level.  Citizens  better 
informed  and  the  EU 
to 
brought 
citizens 

closer 

2.4.  European  Round 
Table for Democracy 

4.1.5. 

Establishment  of  a 
Round 
European 
Table.  Organisation 
of  national  round 
tables 

dialogue 
Political 
the 
between 
Commission  and  the 
other  institutions  and 
citizens 

Media coverage, 
citizens’ knowledge 
of EU affairs 

of 

Number 
sessions/public 
debates  organised  in 
each Member State. 

Number 
participants 

of 

Number  of  events 
held 
topics 
and 
covered/  number  of 
participants/  ex  ante 
and 
post 
ex 
evaluation 

Number  of 
tables established 

round 

Audiences 
and 
participants 

number 

reached 
of 

2.5.  European  Goodwill 
Ambassadors 

4.1.6. 

of 
Organisation 
attracting 
events 
many 
target 
audiences.  Media 
coverage 

image  of 
Improved 
the  EU  and  better 
understanding  of 
its 
policies.  The  EU 
brought 
to 
citizens 

closer 

Ex  ante  and  ex  post 
evaluation 

Number of events 

Number 
participants  

of 

Quality  of  the  media 
coverage 

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3.  Operational  objective  3:  Promoting  citizens’  participation  in  the  democratic 
process 

•  Contribution to the ABM objectives of DG PRESS and the general objectives 

of the Commission 

This  objective  will  be  achieved  through  the  following  actions,  which  all  fall 
under the general objectives of DG PRESS and the existing ABB budget lines: 

3.1.  Promoting more effective consultation: to be implemented as part of the 
Commission’s Action Plan on improving communication. 

3.2.  Support for European Citizens’ Panels: to be implemented through the 
organisation of panels at inter-regional level. 

3.3.    Greater  openness:  to  be  implemented  through  Council  and  EU 
Presidency initiatives. 

3.4.    Increased  voter  participation:  to  be  implemented  through  joint  action 
by the European institutions in cooperation with Member State institutions.  

•  Achievements / expected results / expected impacts / indicators 

Operational 
sub-objectives / 
actions 

Point in Plan D 

Achievements 

Expected 
results / 
impacts 

Indicators 

3.1.  Promoting more 
effective consultation 

4.2.1. 

Optimum  use  of 
existing  tools  for 
obtaining 
feedback 
the public  

from 

Input 
feedback 
shaping 
policies 

and 
in 
EU 

3.2. 
for 
  Support 
European  Citizens’ 
Panels 

4.2.2. 

3.3. 
openness  

Greater 

4.2.3. 

3.4.    Increased  voter 
participation 

4.2.4. 

EN 

Organisation  of 
panels  at  inter-
regional 
level. 
Recommendat-
ions/reports 
regional 
national 
governments 

to 
and 

Openness  of  the 
Council’s 
and 
other 
institutions’ 
proceedings. 
Opening of votes 
to the public  

Creation  of  an 
interinstitutional 
working group 

18 

to 

in 

Helping 
restore 
confidence 
political 
systems. 
Making  citizens 
feel 
more 
involved 

Council 

Public 
identification 
with 
decisions. 
Understanding 
of  its  role  as 
legislator and of 
the  role  of  the 
institutions.  

the 
Boosting 
legitimacy 
of 
the  democratic 
institutions 

Number  and  quality  of 
consultations carried out 

Target audiences reached 

Ex  ante  and  ex  post 
evaluation 

of 

regions 
Number 
of 
represented/number 
panels/number 
of 
participants/ex ante and ex 
post evaluation 

Openness 
measures 
adopted/amended  rules  of 
procedure 

Improved electronic voting 
systems/turnout 
in 
elections  

   EN 

 
 
4. Operational objective 4: Generating a real dialogue on European policies 

•  Contribution to the ABM objectives of DG PRESS and the general objectives 

of the Commission 

This  objective  will  be  achieved  through  the  following  actions,  which  all  fall 
under the general objectives of DG PRESS and the existing ABB budget lines: 

  Commissioners’  availability  to  national  Parliaments: 

4.1. 
to  be 
implemented  as  part  of  the  Commission’s  Action  Plan  on  improving 
communication. 

4.2.    Specific  Eurobarometer  survey  on  the  Future  of  Europe:  to  be 
implemented by carrying out a new survey. 

4.3.    Internet:  to  be  implemented  in  synergy  with  and  as  part  of  the 
Commission’s Action Plan on improving communication. 

4.4.  Targeted focus groups: to be implemented as part of the Commission’s 
Action Plan on improving communication. 

•  Achievements / expected results / expected impacts / indicators 

Operational sub-objectives / 
actions 

Point in Plan D 

Achievements 

Expected results / 
impacts 

Indicators 

Explanation of EU 
by 
policies 
Commissioners 
before 
Parliaments 

national 

Facilitation  of 
the 
debate  on  the  EU. 
Greater  transparency 
of the EU institutions 

Number 
parliamentary 
sessions/debates  

of 

4.1. 
availability 
Parliaments  

Commissioners’ 
national 

to 

4.2. Specific Eurobarometer 
survey  on  the  Future  of 
Europe 

4.1.2. 

4.3.1. 

Presentation  of  a 
specific 
Eurobarometer 
survey 
Future of Europe 

the 

on 

4.3.  Internet 

4.3.2. 

Development  of  a 
website 
new 
devoted 
the 
to 
debate  

  Targeted 

4.4. 
groups 

focus 

4.3.3. 

of 

Use 
groups 
Member States 

by 

focus 
the 

Analysis  of  citizens’ 
viewpoints 
and 
expectations 
regarding  European 
integration 

Interactive 
communication 
facilitating 
the 
debate,  attractiveness 
of 
website, 
overall  consistency, 
effectiveness  of  the 
search tools 

the 

Enhanced 
consultation 
machinery 

showing 
Indicators 
the  use  made  of 
survey 
findings. 
Profiles of the public 

Trend  in  the  number 
of  visits 
the 
website/capacity  of 
systems  

to 

Number  of 
focus 
groups.  Number  of 
replies. 
Integration 
of the results 

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5.4. Method of implementation 

Centralised management: 

- directly by the Commission. 

6.  MONITORING AND EVALUATION 

6.1.  Monitoring system 

The  internal  operational  reporting  systems  in  place  for  existing  activities  will  be 
extended to the new actions.  

6.2. 

Evaluation 

6.2.1.  Ex ante evaluation 

At  their  seminar  on  20  September  2005  specifically  devoted  to  Plan  D,  the 
Commissioners confirmed the general guidelines for the approach to be taken by the 
Plan,  of  which  this  financial  statement  presents  the  repercussions  in  terms  of  the 
additional resources needed by DG PRESS. 

The  operational  actions  to  be  implemented  under  the  communication  will  benefit 
from the findings of the analyses produced by the evaluation function in DG PRESS. 

6.2.2.  Measures taken following intermediate/ex post evaluation 

An  initial  feedback  process  should  take  place  in  April  2006  so  that  a  first  set  of 
conclusions can be drawn. The Commission will organise a European Conference on 
9 May 2006,  known  as  “Europe  Day”,  on  the  future  of  Europe,  involving  civil 
society,  elected  representatives,  citizens  and  other  EU  institutions  and  bodies.  The 
Conference  will  seek  to  draw  together  the  initial  conclusions  from  the  debate  at 
European level. In May 2006 the Commission will prepare a document providing an 
overall synthesis of the national debates.  

This will allow the Austrian Presidency to steer the preparations for the stocktaking 
exercise  that  is  to  take  place  at  the  June  2006  European  Council  as  set  out  in  the 
declaration by the Heads of State and Government. 

6.2.3.  Terms and frequency of future evaluation 

On  the  basis  of  the  results  of  the  June  2006  European  Council,  a  second  feedback 
process could be launched in early 2007 to provide input for the Commission’s mid-
term review of its strategic and political agenda.  

7. 

ANTI-FRAUD MEASURES 

The provisions of the financial rules relating to implementation of the budget, with 
special reference to monitoring measures, will be applied. 

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8. 

DETAILS OF RESOURCES 

8.1.  Objectives  of  the  proposal  in  terms  of  costs  (Commitment  appropriations  in 
euros) 

The costs set out in the following table represent the requirements for carrying out the actions 
in Plan D. 

Since  there  will  be  synergy  between  a  number  of  the  actions  described  in  Plan  D  and  the 
Commission’s  Action  Plan  to  improve  communicating  Europe,  it  should  also  be  borne  in 
mind that only the costs which are additional to that Action Plan are shown here.  

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In euros 

of 

Titles 
objectives, 
actions 
achievements 
/ outputs 

and 

Assisting 

1. 
national 
debates 

1.1. 
Organisation 
of 
debates 

national 

Assistance in 
the organisation 
of events 
promoting the 
debate 

1.2.  Feedback 
process 

Type of 
achievement 
/output 

Average 
cost 

2006 

TOTAL 

No 
achievements 
outputs 

of 
/ 

Total cost  No 

Total cost 

Assistance 

8.000 

25 

200.000 

25 

200.000 

European 
Conference 

European 
Events 

700.000 

1 

700.000 

1 

700.000 

900.000 

900.000 

Meetings 

96.000 

25  2.400.000 

25 

2.400.000 

2.400.000 

2.400.000 

Subtotal 
Objective 1 

2.  Stimulating 
a  wider  public 
debate 

2.4.  European 
Round  Table 
for Democracy 

European 
Round Table, 
Meetings 

Subtotal 
Objective 2 

3.  Promoting 
citizens' 
participation in 
the democratic 
process 

3.2. 
Support 
for  European 
Citizens’ 
Panels 

Panels 

Panels 

84000 

25  2.100.000 

25 

2.100.000 

Subtotal 
Objective 3 

2.100.000 

2.100.000 

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4.  Generating 
a real dialogue 
on  European 
policies  

4.2. 
Eurobarometer 

 - Specific 
Eurobarometer 
survey on the 
Future of 
Europe 

Eurobarometer 
survey 
– 
procurement  of 
and 
services 
data 

Subtotal 
Objective 4 

TOTAL COST 

600.000 

1 

600.000 

1 

600.000 

600.000 

600.000 

6.000.000 

6.000.000 

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8.2. Administrative expenditure 

8.2.1.  Number and type of human resources 

Types of post 

Staff to be allocated to 
management of the action by 
using existing human resources 
(number of posts/FTE) 

DG PRESS (Headquarters) 

2006 

Subsequent years 

A*/AD 

3 

Officials or 
temporary 
staff6 (16 01 
01) 

B*, 
C*/AST 

4,5 

7,5 

TOTAL 

--- 

--- 

The operation will be carried out with the human resources assigned to the Task Force on the 
Future  of  the  Union  in  2005  using  the  same  staffing  levels  or  through  internal  staff 
redeployments. 

8.2.2.  Sources of human resources (covered by the Staff Regulations) 

Posts  currently  allocated  to  the  management  of  the  programme  to  be  extended.  All 
posts are to be extended. 

6 

The cost of which is NOT covered by the reference amount. 

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8.2.3.  Financial  cost  of  human  resources  and  associated  costs  not  included  in  the 
reference amount 

         EUR million (to 3 decimal places) 

Type of human resources 

2006 

Subsequent 
years 

Officials and temporary staff (16 01 01) 

0,810 

--- 

Total cost of human resources and 
associated costs (NOT included in the 
reference amount) 

0,810 

Calculation – Officials and temporary staff (Article 16 01 01) 

EUR  108 000/year  x 7,5 officials = 810 000 per year 

(see Guidelines on the drafting of the legislative financial statement, Budg Web) 

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