Communication from the Commission to the Council and the European Parliament - Thematic Programme for the promotion of democracy and human rights worldwide under the future Financial Perspectives (2007-2013)
Date: 2006-01-25
Institutions: European Commission
Subjects: EU programme, EU relations, cooperation policy, democracy, human rights, multiannual financial framework, third country

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 25.1.2006 
COM(2006) 23 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND 
THE EUROPEAN PARLIAMENT 

Thematic Programme for the promotion of democracy and human rights worldwide 
under the future Financial Perspectives (2007-2013) 

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TABLE OF CONTENTS 

1. 

2. 

2.1. 

2.2. 

2.3. 

2.4. 

3. 

3.1. 

3.2. 

Introduction .................................................................................................................. 3 

Context ......................................................................................................................... 3 

Analysis of the theme................................................................................................... 3 

Existing policy and cooperation framework ................................................................ 4 

The EIDHR experience ................................................................................................ 5 

Justifications for a thematic programme ...................................................................... 6 

Main features of the thematic programme for the promotion of democracy and 
human rights worldwide............................................................................................... 6 

Scope and objectives .................................................................................................... 6 

Guidelines and priorities .............................................................................................. 7 

3.2.1.  To enhance respect for human rights and fundamental freedoms where they are most 
at risk and provide support and solidarity for victims of repression or abuse ............. 7 

3.2.2.  To strengthen the role of civil society in promoting human rights and democratic 
reform, in supporting conflict prevention and in developing political participation 
and representation ........................................................................................................ 8 

3.2.3.  To strengthen the international framework for the protection of human rights, the rule 
of law and the promotion of democracy .................................................................... 10 

3.2.4.  To build confidence in democratic electoral processes through further development 

of electoral observation .............................................................................................. 10 

3.3. 

Programming principles ............................................................................................. 11

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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND 
THE EUROPEAN PARLIAMENT 

Thematic Programme for the promotion of democracy and human rights worldwide 
under the future Financial Perspectives (2007-2013) 

1. 

INTRODUCTION 

With the aim to rationalise and simplify the current legislative framework governing external 
actions of the Community, the European Commission proposed a new set of six instruments 
under the Financial Perspectives 2007 to 2013. Three instruments (humanitarian aid, stability 
and macro-financial assistance) are of horizontal nature in order to respond to particular needs 
and  circumstances.  Three  instruments  (pre-accession  assistance,  support  to  the  European 
neighbourhood  and  development  cooperation  and  economic  cooperation)  are  designed  to 
implement  particular  policies  and  have  a  defined  geographical  coverage.  In  future,  these 
instruments will provide the basic legislative acts for Community expenditures in support of 
external  cooperation  programmes  including  thematic  programmes  and  will  replace  the 
existing thematic regulations. 

According  to  these  proposals,  thematic  programmes  provide  a  distinctive  value  added  and 
comprise  activities  complementing  geographical  programmes,  which  remain  the  privileged 
framework for Community cooperation with third countries1. 

The Commission has committed itself to enter into discussions with the European Parliament 
and the Council on the scope, objectives and priorities for each thematic programme on the 
basis of formal communications to both Institutions. The result of this process will provide the 
political orientations for the subsequent stages of programming, notably the thematic strategy 
papers to be drawn up in accordance with the provisions of the above instruments. 

The  present  Communication  relates  to  the  thematic  programme  on  the  promotion  of 
democracy  and  human  rights  worldwide.  It  draws  on  comments  received  in  the  course  of  a 
public consultation, which was organised by the Commission2. Consultations will continue for 
subsequent stages of programming. In cooperation with the European Parliament, the Member 
states  and  partner  bodies  working  with  the  thematic  programme,  the  Commission  will  also 
seek to promote wider reflection and debate about the European role in democracy assistance 
and the promotion of human rights3.  

2. 

CONTEXT 

2.1. 

Analysis of the theme 

Democracy  and  protection  of  human  rights  are  universal  values  to  be  pursued  in  their  own 
right; they are also seen as integral to effective work on poverty alleviation and achieving the 
Millennium Development Goals, as vital tools for conflict prevention and resolution, and as 
terrorism4.  Democratic  processes  of 
the 
accountability are also key to ensuring government transparency and combating corruption.  

for  combating 

indispensable 

framework 

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Democracy  and  the  protection  of  human  rights  are  inextricably  linked:  the  fundamental 
freedoms  of  expression  and  association  are  the  preconditions  for  political  pluralism  and 
democratic  process,  whereas  democratic  control  and  separation  of  powers  are  essential  to 
sustain an independent judiciary and the rule of law which in turn are required for effective 
protection  of  human  rights.  Human  rights  may  be  considered  in  the  light  of  universally 
accepted  international  norms,  but  democracy  has  to  be  seen  as  a  process,  developing  from 
within,  involving  all  sections  of  society  and  a  range  of  institutions  that  should  ensure 
participation,  representation,  responsiveness  and  accountability.  The  task  of  building  and 
sustaining  a  culture  of  human  rights  and  making  democracy  work  for  its  citizens,  though 
especially urgent and difficult in emerging democracies, is in fact a never-ending challenge, 
belonging first and foremost to the people of the country concerned. 

Recent years have seen an increase in expectations, commitments and open debate about the 
promotion  of  democracy  and  human  rights  at  all  levels.  Progress  has  been  made,  thanks  in 
particular to local civil society mobilisation and international pressure: many countries have 
moved  towards  more  open  societies  and  fairer  electoral  processes;  there  is  greater 
commitment  and  public  awareness  as  well  as  more  legislation  and  better  enforcement  on  a 
range of human rights issues; development strategies give more voice to local communities, 
helping to empower  the  weak  and  excluded. However,  multiple  challenges  remain:  political 
elites too often remain unaccountable and unresponsive to citizens’ expectations, sometimes 
reverting to repression of dissent and opposition voices. Ethnic, religious or class divisions in 
society may be exacerbated rather than channelled into democratic debate, building seeds of 
conflict and undermining pluralism and respect for human rights. 

Issues of democracy and human rights have become a systematic feature of EU foreign policy 
and  external  action  through  political  dialogues  and  conditionalities,  by  mainstreaming  these 
issues in cooperation programmes, and with specific projects. Comprehensive human rights-
based  approaches  to  development5  are  becoming  more  widespread,  as  is  support  for  state 
building, “good governance” and civil society development. It is a principle of development 
policy  to  ensure  ownership  by  the  partner  country  of  the  development  and  democratisation 
process, engaging governments and all leading local stakeholders, including parliaments.  

Concerns with security and the fight against terrorism have tended to dominate international 
agendas, but they have also begun to highlight root causes of violence and the importance of 
ensuring human rights, rule of law and inclusive democracy to avoid alienating communities 
and creating conditions of insecurity. Conflict prevention has thus added a new dimension to 
development strategies and work with civil society. 

2.2. 

Existing policy and cooperation framework  

EU policy in support of democracy and human rights in third countries has been articulated 
and developed in Commission communications, European Parliament resolutions and Council 
conclusions over the years. As indicated in the Treaty mandates6, the objective of developing 
and  consolidating  democracy  and  the  rule  of  law,  and  respect  for  human  rights  and 
fundamental freedoms is now a feature of all forms of co-operation with third countries.  

Human  rights  have  a  high  profile,  with  an  Annual  EU  Report  on  Human  Rights,  specific 
Commission  communications,  Parliamentary  resolutions  and  reports  and  Council  positions 
relating  to  particular  human  rights  issues7.  The  Council  has  also  emphasized  the 
mainstreaming of human rights and democratisation into external policies and actions and the 
importance  of  dialogue  with  civil  society.  In  the  enlargement  process,  the  Copenhagen 

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political criteria on “stability of institutions guaranteeing democracy, the rule of law, human 
rights  and  respect  for  and  protection  of  minorities”  provide  a  specific  focus  for  the  pre-
accession strategy. These objectives are also supported in different ways in the Stabilisation 
and  Association  process8  and  in  the  European  Neighbourhood  policy9.  The  Cotonou 
Agreement  and  the  EU  policy  on  governance  and  development10  include  the  protection  and 
promotion  of  human  rights  and  democracy  as  issues  to  be  integrated  in  country  strategies, 
dialogues  and  all  relevant  instruments.  This  is  reflected  most  recently  in  the  European 
Consensus  on  Development11, in the EU Strategy for Africa12 and in the latest Commission 
proposal relating to EU relations with Latin America13. 

Tools for implementation of EU policies on democracy and human rights range from political 
dialogue  and  diplomatic  demarches  to  various  instruments  of  financial  and  technical 
cooperation. The European Initiative for Democracy and Human Rights (EIDHR) has had the 
specific mission to assist in meeting human rights and democracy objectives at international 
and  national  level,  complementing  action  within  the  Community’s  various  national  and 
regional cooperation programmes. It is currently based on two regulations14; its main policy 
framework is set by the 2001 Commission communication15 and the related positions by the 
Council and European Parliament16 (see 2.3 below).  

With  a  developing  EC  role  in  crisis  management  in  recent  years,  the  human  rights  and 
democracy dimensions have also been highlighted in conflict prevention, peace building and 
post  conflict  reconstruction.  The  Rapid  Reaction  Mechanism17,  also  working  with  civil 
society and other local actors on human rights and democracy building, complements EIDHR 
by supporting urgent action in response to real or potential conflict situations.  

2.3. 

The EIDHR experience 

The EIDHR has evolved considerably since its creation and has been amply documented and 
evaluated18. Building on its key strength, which is its ability to operate without the need for 
host  government  consent,  the  main  vocation  of  EIDHR  has  been  to  support  civil  society 
activity  in  the  promotion  of  human  rights  and  democracy.  EIDHR  partners  are  primarily 
international  and  local  civil  society  organisations  (CSOs)19,  but  also  include  international 
intergovernmental bodies with special expertise.  

EIDHR  has  attempted  to  encompass  a  multiplicity  of  themes  echoing  EU  Guidelines  on 
Human  Rights  issues20,  as  well  as  other  specific  objectives,  mandates  and  suggestions  from 
Council and Parliament, primarily concerned with human rights21. The emphasis has been on 
“single issue” projects, assessed on their individual merits. Whilst their collective impact or 
synergies at national level have not been so evident, most EIDHR projects, taken individually, 
have been of high quality, achieving positive outcomes often in difficult circumstances.  

Quite  distinct  from  its  work  with  civil  society,  the  EIDHR  has  a  distinguished  record  of 
support  for  international  human  rights  instruments  and  mechanisms  and  the  international 
criminal  justice  system,  including  the  International  Criminal  Court  (ICC)  and  other  ad  hoc 
international criminal tribunals. This is in accordance with EU policy objectives22 and reflects 
the strong EU commitment to multilateralism.  

The EIDHR has also been the instrument through which the Commission has developed the 
EU  role  as  one  of  the  leading  actors  in  election  observation,  based  on  the  principles  and 
procedures outlined in the 2000 Communication on EU Election Assistance and Observation 
and endorsed by Council in 200123.  

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The current 2005-2006 programme of EIDHR groups these distinct types of action within four 
global “campaigns” - promoting justice and rule of law; fostering a culture of human rights; 
promoting the democratic process, and advancing equality tolerance and peace24. It covers 68 
countries,  of  which  54  have  a  micro  project  facility  (favouring  participation  by  local  civil 
society organisations).  

Multiple mandates and high levels of expectation have tended towards an ever broader set of 
objectives,  issues  and  eligible  countries  for  EIDHR,  whereas  high  oversubscription  rates25 
have meant pressures to prioritise more severely and enhance complementarity with national 
programmes. For the new thematic programme, there is an opportunity to review and refine 
objectives and methods of priority setting.  

2.4. 

Justifications for a thematic programme 

The  justification  for  a  separate  thematic  programme  common  to  all  four  new  instruments 
derives  from  the  fact  that  the  promotion  of  democracy  and  human  rights  figures  among  the 
proposed objectives and eligible measures of all three geographic instruments (ENPI, DCECI 
and IPA) as well as the Instrument for Stability. Opportunities for specific interventions will 
arise  in  the  context  of  geographic  programmes.  However,  democracy  and  human  rights  are 
par excellence issues of global concern and relevance. Hence the need for an EC capacity to 
articulate  and  support  specific  objectives  and  measures  at  international  level,  which  are 
neither  geographically  linked  nor  crisis  related26.  Furthermore,  global  campaigns  relating  to 
human  rights  and  democracy  require  a  transnational  approach  and  may  involve  operations 
both within the EU and in a range of partner countries27. For operations such as EU election 
observation,  a  single  thematic  programme  is  required  to  ensure  policy  coherence,  a  unified 
management system and common operating standards.  

In addition, the independence of action offered by a thematic programme is a critical feature 
of cooperation with civil society organisations at national level, most especially on issues of 
democracy  and  human  rights.  A  thematic  programme  should  also  have  flexibility  and  the 
ability  to  respond  to  changing  circumstances  or  to  support  innovation,  contrasting  with  the 
long term programming approach of the geographic programmes. Being common to all four 
instruments  and  thus  intercontinental  in  scope,  it  may  also  offer  benefits  in  terms  of  added 
credibility for partner organisations and extra visibility for the EU.  

3. 

MAIN  FEATURES  OF  THE  THEMATIC  PROGRAMME  FOR  THE  PROMOTION  OF 
DEMOCRACY AND HUMAN RIGHTS WORLDWIDE  

3.1. 

Scope and objectives 

The general aim of the new thematic programme, providing continuity with and drawing on 
the  experience  of  EIDHR,  would  be  to  contribute  to  the  development  and  consolidation  of 
democracy  and  respect  for  human  rights  in  third  countries,  in  accordance  with  EU  policies 
and guidelines. It would be global in scope, relating to a similar range of issues and countries 
as EIDHR, yet more strategic and flexible in its approach. It would continue to complement 
geographical programmes and, in particular, support an approach which integrates democracy 
building  and  the  protection  of  human  rights,  making  also  the  link  with  security  and 
development, especially on conflict prevention. It would place emphasis on supporting civil 
society  in  becoming  an  effective  force  for  dialogue  and  reform,  contributing  to  national 

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ownership of this process. The programme would therefore work primarily with and through 
civil society. This would, as with EIDHR, give the programme its critical profile. 

The two key strategic objectives of the programme would be: 

•  To enhance respect for human rights and fundamental freedoms where they are most 

at risk and provide support and solidarity to victims of repression or abuse  

•  To  strengthen  the  role  of  civil  society  in  promoting  human  rights  and  democratic 
reform,  in  supporting  conflict  prevention  and  in  developing  political  participation 
and representation  

The  programme,  which  would  not  require  the  formal  consent  of  the  governments  of  the 
countries concerned, should provide specific financial and technical assistance for operations 
that  cannot  be  carried  out  through  mainstreaming  in  an  appropriate  or  effective  manner  by 
other  EC  programmes28.  It  should  have  the  capacity  to  support  activities  at  international, 
regional, national and local level. Within the EU, it should also be able to support activities 
directly  related  to  third  country  human  rights  abuses,  for  example  assistance  for  the 
rehabilitation of torture victims from third countries. 

The  programme  would  have  a  conflict  prevention  and  resolution  dimension,  interfacing  as 
appropriate with the crisis response interventions foreseen for the new Stability instrument. It 
would  complement  the  geographical  programmes  and  the  other  thematic  programmes, 
especially those on non-state actors, on human and social development and on migration and 
asylum, which integrate the protection of human rights and underpin democratic processes in 
various ways29. 

The programme would have a complementary objective to reflect the EU’s continuing strong 
commitment to multilateral cooperation in the field of democracy and human rights:  

•  To  strengthen  the  international  framework  for  the  protection  of  human  rights,  the 

rule of law and the promotion of democracy 

Finally,  the  programme  as  it  was  the  case  with  EIDHR  will  cover  the  work  in  the  field  of 
electoral observation, which will continue to be an essential area of EU activity in support of 
democracy  and  human  rights.  The  thematic  programme  offers  the  framework  for  a  single 
unified  policy  and  management  of  EU  electoral  observation  missions  worldwide  with  the 
following objective: 

•  To build confidence in democratic electoral processes through further development of 

electoral observation 

3.2. 

Guidelines and priorities 

3.2.1.  To enhance respect for human rights and fundamental freedoms where they are most 
at risk and provide support and solidarity for victims of repression or abuse  

The general aim under this strategic objective would be to develop the political space within 
which civil society may develop, contribute to pluralism in society and promote human rights 
and democracy. The focus would be on situations where there is a serious lack of fundamental 
freedoms,  where  civil  society  operates  with  difficulty  and  where  there  is  little  room  for 

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political  pluralism.  Some  countries  suffer  from  state  repression,  in  others  fundamental 
freedoms and human rights are endangered as a result of state weakness, collapse or violent 
conflict. These situations may arise in countries with which the EU may not yet have entered 
into a contractual relationship, or partner countries with which general cooperation may have 
been partly or fully suspended, and in other fragile states and difficult partnerships30.  

The  main  emphasis  would  be  on  promoting  fundamental  freedoms  of  expression  and 
association and the protection of human rights defenders, since these are the preconditions for 
normal  civil  society  activity  and  any  advance  towards  democracy31.  Action  should  where 
possible  take  a  holistic  approach,  insisting  on  the  links  between  the  different  freedoms 
underlying  an  open  society  and  the  basic  principle  that  “all  human  rights  are  universal, 
indivisible  and  interdependent  and  interrelated”32.  All  action  should  be  conflict  prevention 
orientated and may, according to the specifics of each country, also refer to particular human 
rights issues33. At national level, civil society activity under this objective might range from 
awareness raising or education and training, to dialogues with key stakeholders in the country 
concerned or to more specific advocacy related to human rights defenders. The specific aim 
may  be  ratification  of  international  conventions  and  changes  in  legislation,  issues  of 
enforcement and judicial process, electoral integrity or much broader issues of law and order. 
Such  issues  may  have  been  the  subject  of  a  concerted  EU  response  to  a  crisis  situation  (as 
foreseen under the proposed Instrument for Stability), where the thematic programme might 
support a more sustained intervention by civil society in the field of conflict prevention and 
resolution.  

Regional  projects  could  be  considered  where  there  is  potential  for  effective  peer  pressure 
with influential stakeholders from neighbouring countries or through regional bodies.  

The  particular  circumstances  of  each  situation  will  determine  what  kinds  of  action  are 
possible and how far it is feasible to involve local civil society organisations, so as not to put 
partners at risk and avoid creating further resistance to democratic reform. Non-governmental 
organisations  at  international  or  regional  level,  or  in  some  cases  intergovernmental  bodies, 
may  sometimes  serve  as  intermediaries  with  local  civil  society  actors  and  human  rights 
defenders.  

The  programme  will  require  the  flexibility  to  respond  to  changing  circumstances  and 
opportunities for action as they arise. 

A separate aim, which comes under this general strategic objective, relates to solidarity with 
victims of repression, in particular support for the rehabilitation of victims of torture and ill 
treatment. The programme would continue with the same kind of support as provided over the 
years,  for  rehabilitation  centres,  both  inside  and  outside  the  EU.  This  demonstrates  EU 
solidarity  in  a  practical  way  and  complements  general  advocacy  and  political  demarches 
against  torture  at  national  and  international  level.  Recent  evaluations  of  March  2005  and 
November  200334  have  proposed  a  number  of  measures  to  enhance  the  effectiveness  of 
rehabilitation processes.  

3.2.2.  To  strengthen  the  role  of  civil  society  in  promoting  human  rights  and  democratic 
reform,  in  supporting  conflict  prevention  and  in  developing  political  participation 
and representation  

The general aim under this strategic objective is to work together with civil society, in those 
countries where there is sufficient freedom and room for manoeuvre, to assist it in developing 

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cohesion  and  in  becoming  an  effective  force  for  democratisation,  conflict  prevention  and 
protection of human rights. This approach is also intended to encourage cooperation among 
civil society organisations (CSOs), moving beyond single issue campaigning (which tends to 
fragment  the  efforts  of  civil  society).  Complementary  support  for  small  scale  initiatives  by 
local CSOs would also be included under this heading.  

There would be three levels of activity under this heading:  

At national level, the emphasis would be to support civil society dialogue and cooperation, 
for example:  

•  cooperation among CSOs to work in mutual support, build broad coalitions across different 
regions, communities and identity groups and engage socio-economic actors in supporting 
common  agendas  for  human  rights  and  democratic  reform.  This  may  include  joint 
campaigning  or  education  activity,  cooperation  on  monitoring  human  rights  and  political 
reforms,  etc.  Themes  need  not  be  predetermined  since  they  would  derive  from  local 
priorities but they should seek to include cross cutting issues such as gender equality, core 
labour standards, rights of indigenous peoples, children and other vulnerable groups; 

•  civil  society  dialogue  in  deeply  divided  societies,  bringing  together  a  wide  range  of 
stakeholders35 to analyse, debate and build consensus on controversial areas of policy (e.g. 
minorities,  amnesty  and  reconciliation,  religion  and  politics).  Conflict  prevention  and 
gender dimensions would be very important in this context; 

•  initiatives by civil society to develop dialogue with political parties, elected representatives 
and institutions, e.g. with the view to enhancing political representation and participation 
(including 
the  empowerment  of  women  and  other  underrepresented  groups), 
responsiveness  and  accountability.  A  multiparty  approach,  including  all  major  parties 
professing a democratic commitment, would need to be the norm. Direct support for party 
development would not be envisaged. 

At regional or transnational level, the emphasis would be on cooperation to add value and 
improve effectiveness to action at national level. This might be focused on issues such as: 

•  cooperation  among  CSOs  from  specific  regions  plagued  by  conflicts  with  transnational 

implications (e.g. Great Lakes, Manu river region, Western Balkans); 

•  cooperation and dialogue on deeply divisive political issues that may be best opened up for 
discussion  at  transnational  level  (e.g.  religious  minorities  and  secularism,  reconciliation 
and justice); 

•  capacity  building  support  which  can  provide  distinct  added  value  and  effectiveness  for 
transnational  CSO  networks  (e.g.  working  together  to  produce  materials  in  common 
regional languages). 

At local level, there would be a grant facility for small scale initiatives by local CSOs, as with 
the current provisions for micro projects, though more accessible to small CSOs36. This could 
contribute  to  strengthening  the  representivity  of  civil  society,  for  example  by  supporting 
activities of new CSOs formed by groups whose interests were hitherto underrepresented, or 
otherwise  contributing  to  the  empowerment  of  such  groups  (whether  from  remote  areas, 
minority  or  disadvantaged  groups  etc).  The  particular  needs  and  priorities  for  civil  society 

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dialogue could be defined more precisely in consultation with civil society representatives on 
the  ground.  This  could  also  facilitate  complementarity  with  geographical  programming  as 
well as enhance local ownership of the democratization process37. 

As regards geographical priorities for this strategic objective, it is clear that the interventions 
foreseen could benefit a large number of countries. The programme also needs the flexibility 
to  respond  to  “windows  of  opportunity”.Rather  than  spread  resources  more  thinly  than  at 
present,  however,  the  intention  for  the  first  phase  of  activity  would  be  to  maintain  some 
continuity, for example by including those countries that already have a successful experience 
of an EIDHR micro-project facility, that have a relatively open society and where EC support 
for civil society can be effective. It should also be feasible to move on from certain countries, 
for example by fixing a 5-7 year time horizon to achieve some targets for sustainability and 
consolidation of local civil society activity. This might be done in discussion and preparation 
with the major stakeholders in the country concerned.  

3.2.3.  To  strengthen  the  international  framework  for  the  protection  of  human  rights,  the 

rule of law and the promotion of democracy  

The general aim under this heading is to continue to contribute, as EIDHR has done, to the 
effectiveness of international instruments in accordance with EU policy priorities. In so far as 
not covered by other financial instruments and programmes, this new programme may assist 
the functioning of: 

•  core  human  rights  instruments,  through  the  appropriate  UN  agencies,  bodies  and 

mechanisms such as OHCHR, CEDAW, ILO etc.; 

•  international criminal justice mechanisms such as the International Criminal Court.38  

•  regional human rights instruments; 

•  regional  networks  for  the  training  of  specialists  from  developing  countries  in  the 

application of international human rights instruments; 

•  specific  international  instruments  designed  to  support  democracy  building  initiatives39. 
This  may  extend  to  joint  initiatives  with  regional  organisations  such  as  the  Council  of 
Europe; 

•  civil society campaigns on specific human rights issues, especially in so far as they relate 
to  UN  initiatives  (e.g.  World  Conference  against  Racism,  Racial  Discrimination, 
Xenophobia and Related Intolerance).  

Priorities under this heading would be decided in the light of EU objectives and in dialogue 
with  relevant  organisations.  Civil  society  organisations  and  networks  may  also  act  as 
implementing partners in this context. 

3.2.4.  To build confidence in democratic electoral processes through further development 

of electoral observation 

Electoral  observation  is  a  highly  sensitive  area,  which  has  given  the  EU  a  high  profile  and 
authority, strengthening its position in political dialogues, and contributing to the promotion 
of human rights and democracy. It has helped to encourage professionalism and transparency 

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in  electoral  management,  discourage  irregularities  and  abuse  and  inspire  confidence  in  the 
electoral  process.  The  coordinating  and  management  role  of  the  European  Commission  has 
ensured  a  high  level  of  consistency  across  various  EU  Election  Observation  Missions  (EU 
EOMs)  thanks  to  unified  methodology  and  programming,  as  well  as  political  independence 
and visibility. The main aim under this heading is to continue, as EIDHR has done, to use the 
thematic programme as the vehicle for support for EU electoral observation capacity. It may 
also contribute to building electoral observation capacity at regional and national level. 

It  is  foreseen  that  EU  EOMs  can  be  further  consolidated  in  terms  of  programming  and 
implementation.  The  Commission  has  endorsed  the  newly  agreed  global  principles  for 
international  election  observation40  and  will  continue  to  cooperate  with  other  bodies 
experienced in electoral observation such as the OSCE. The new programme should continue 
to focus on a limited number of polls, which fulfil the criteria of usefulness, advisability and 
viability,  while  improving  quality  and  gradually  increasing  quantity.  Priorities  for  election 
observation missions will continue to be decided in a flexible way in the light of the calendar 
of elections and political developments, and considerations set out in the Communication on 
EU Election Assistance and Observation and endorsed by Council in 200141. 

Observation of upstream issues (e.g. voter and candidate registration) and monitoring media 
may  be  developed,  reports  made  more  precise  and  assistance  in  follow-up  made  more 
systematic  with  the  aim  to  further  support  democratisation  and  human  rights  related  issues. 
Observation missions adapted to conflict situations and post conflict elections are also due to 
be further developed.  

If not otherwise covered by geographical programmes, this thematic programme would also 
contribute to electoral observation capacity building at regional level, as now through regional 
organisations, such as the African Union (AU), or in future with other regions, e.g. the Arab 
world.  The  programme  would,  similarly,  contribute  to  supporting  local  observer  and 
monitoring  capacity  as  well  as  wider  initiatives  to  enhance  participation  and  trust  in  the 
electoral process42.  

3.3. 

Programming principles 

Four-year  (2007-2010)  and  subsequently  three  year  (2011-2013)  Thematic  Strategy  Papers 
(programming  documents)  will  be  decided  by  the  Commission  following  Comitology 
procedures.  On  the  basis  of  this  multi  annual  programming,  the  Commission  shall  adopt 
annual  action  programmes  which  establish  specific  objectives,  priority  actions  to  be 
supported,  anticipated  results  as  well  as  indicative  amounts,  taking  into  account  relevant 
initiatives  funded  under  other  programmes.  The  programme  will  be  managed  by  the 
Commission,  using  all  available  tools  in  compliance  with  the  Financial  Regulation  and  its 
implementing rules43. 

As  for  the  mid-term  review,  an  external  evaluation  of  the  operations  during  the  first  three 
years  (2007-2009)  will  be  carried  out  to  provide  input  to  the  preparations  for  the  second 
Thematic Strategy Paper (2011-2013). The reports will be transmitted to and discussed with 
Council and the European Parliament. 

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ANNEX: Footnotes 

1 

2 
3 

4 
5 

See Communication from the Commission to the Council and the European Parliament on “External Actions 
through  Thematic  Programmes  under  the  Future  Financial  Perspectives  2007  –  2013”  -  COM(2005)  324, 
3.8.2005. 

For feedback, see http://europa.eu.int/comm/external_relations/consultations/er.htm 

The  Annual  NGO  Forum  on  Human  Rights  may  be  further  developed  in  this  perspective  and  other 
complementary initiatives considered. 

See for instance the most eloquent exposition in “In Larger Freedom” UN 2005. 

See UN Programme for Reform 1997 and the inter-agency “Common Understanding” on a human rights-
based approach to development cooperation of May 2003. 

6  Article 11(1) TEU; Articles 177(2), 181a(1) TEC. 
7  Guidelines to EU policy towards third countries on the death penalty, June 1998; Guidelines to EU policy 
towards  third  countries  on  torture  and  other  cruel,  inhuman  or  degrading  treatment  or  punishment,  April 
2001;  EU  Guidelines  on  children  and  armed  conflict,  December  2003;  EU  Guidelines  on  human  rights 
defenders, June 2004. 

8  Cf. Zagreb summit in November 2000 http://europa.eu.int/comm/enlargement/intro/sap/summit_zagreb.htm 
9  Cf. Strategy paper COM(2004) 373 of 12.5.2004, Council conclusions of 14.7.2004. 
10  Cf.  Commission  Communication  COM(2003)  615  final  of  20  October  2003,  Council  conclusions 

of 17.11.2003. 

11  Cf.  Communication  on 

“The  European  Consensus”, 
COM(2005)  311  final  of  13.7.2005;  Joint  Statement  by  the  Council  and  the  representatives  of  the 
governments  of  the  Member  States  meeting  within  the  Council,  the  European  Parliament  and  the 
Commission ‘The European Consensus on Development adopted on 22 November 2005. 

the  European  Development  Policy 

12 

“The  EU  and  Africa: 
15-16 December 2005. 

towards  a  strategic  partnership”  adopted  by 

the  European  Council, 

13  Commission Communication to the European Parliament and the Council “A stronger partnership between 

the EU and Latin America” - COM(2005) 636 of 8.12.2005). 

14  Council Regulation (EC) No 975/1999, as amended by Regulation (EC) No 1882/2003, and Regulation (EC) 
No 2240/2004; Council Regulation (EC) No 976/1999, as amended by Regulation (EC) No 907/2003, and 
Regulation (EC) No 2242/2004. 

15  The  EU’s  Role  in  Promoting  Human  Rights  and  Democratisation  in  Third  Countries,  COM(2001)  252  of 

8.5.2001; Commission Staff Working Document SEC(2004) 1041 of 30.7.2004. 

16  Cf. Council conclusions on the European Union’s role in promoting Human rights and Democratisation in 
third  countries  of  25  June  2001;  Resolution  of  the  European  Parliament  of  25  April  2002;  Council 
conclusions of 23 February 2004. 

17  Council Regulation (EC) No 381/2001 of 26 February 2001 creating a rapid-reaction mechanism. 
18  Cf.  the  most  recent  thematic  evaluation  relating  to  EIDHR  support  to  racism,  xenophobia  and  minorities 
projects  http://europa.eu.int/comm/europeaid/projects/eidhr/documents_en.htm#eidhr;  cf.  also  the  most 
recent general evaluation of EIDHR “No lasting peace and prosperity without democracy and human rights” 
(July  2005)  commissioned  by  the  European  Parliament’s  AFET  Sub-committee  for  Human  Rights  and 
carried  out  under  the  auspices  of  the  Netherlands  Institute  for  Multiparty  Democracy  (NIMD) 
http://www.nimd.org/upload/publications/2005/epfinal.doc 

19  The  term  “civil  society  organisation”  is  intended  to  include  a  broad  range  of  partners  in  civil  society, 

including trade unions, employers’ associations, faith based groups, think tanks etc. 

20  See footnote 9. 
21  EIDHR has given high priority and visibility over the years to the abolition of the death penalty, the fight 
against torture and campaigns against racism and discrimination of minorities. It has also put a focus on the 
rights  of  women,  children  and  indigenous  peoples.  It  supports  freedom  of  expression  and  association  and 
pluralism  in  the  media,  and  promotes  the  rights  of  human  rights  defenders.  It  has  a  special  mandate  to 
support the protection and rehabilitation of victims of torture, assisting projects both inside and outside the 

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EU. It has also been a prime source of support for the launching of specialised higher education in human 
rights.  In  addition,  EIDHR  has  to  a  certain  extent  also  given  support  for  civil  society  development, 
democratic culture and pluralism and democratic institution building. 

22  Cf. Revised Action plan to follow-up on the common position on the International Criminal Court, Council 
Common  Position  of  16  June  2003  on  the  International  Criminal  Court;  Resolution  of  the  European 
Parliament  on  the  General  Affairs  Council's  position  concerning  the  International  Criminal  Court  of  24 
October 2002. 

23  Commission  communication  EU  Election  Assistance  and  Observation  COM(2000)  191  of  11.4.2000; 

Council conclusions of 31 May 2001; Resolution of the European Parliament of 15 March 2001. 

24  European  Initiative  for  Democracy  and  Human  Rights  Programming  for  2005  and  2006  C(2004)  4475  of 
612.2004.  The  four  campaigns  break  down  into  17  types  of  action,  with  3  further  cross  cutting  themes 
(children and women, indigenous peoples, conflict prevention). 

25  The ratio of project applications to successful projects was 10:1 for the calls for proposals in 2004. 
26  This would, for instance, cover support for UN initiatives, global advocacy and multilateral cooperation on 
democracy  and  human  rights  that  have  a  global  perspective.  Examples  drawn  from  EIDHR’s  current 
experience would also include support for the establishment and functioning of international instruments of 
human rights and criminal justice. 

27  Such is the case for instance for the protection and rehabilitation of victims of ill treatment and torture. Few 

other instruments exist to respond to the continuing need for support in this area. 

28  Subsidiarity in this sense would mean that training and technical assistance for capacity building of national 
public  institutions,  such  as  the  judiciary,  election  management  bodies,  or  parliaments,  which  are  essential 
aspects of cooperation on democracy and human rights, would normally form part of the larger geographical 
programmes  agreed  with  the  governments  concerned.  The  same  would  usually  apply  in  the  case  of 
assistance to regional intergovernmental bodies. 

29  Activities  foreseen  in  these  thematic  programmes  such  as  the  participation  of  non-state  actors  in 
development  strategies,  promotion  of  social  rights,  the  protection  of  migrants  from  exploitation  and 
exclusion  would  thus  be  outside  the  particular  focus  of  the  thematic  programme  on  democracy  and 
human rights. 

30  The  countries  that  may  be  targeted  will  undoubtedly  change  over  time,  as  some  countries  experience  a 
change of regime, moving onward with democratization, and as others - previously more free - may revert to 
greater repression and restrictions on human rights and freedoms or descend into public disorder. 

31  Action  through  civil  society  would  complement  other  EU  tools,  such  as  political  dialogue,  demarches, 
sanctions, etc, that bring pressure on governments to take action to enlarge basic freedoms of expression and 
association and establish or restore the rule of law. 

32  Vienna Declaration and Programme of Action as adopted by the World Conference on Human Rights on 25 
June 1993 (Vienna Consensus) UNGA document A/CONF.157/23 of 12 July 1993, notably paragraph 5 and 
paragraph 8. 

33  Particular issues may include those human rights covered by EU Guidelines such as torture, death penalty, 
children in armed conflict and human rights defenders other vulnerable groups. They may also cover media 
freedom,  trade  union  freedoms,  forced  labour,  women’s’  rights  and  gender  equality,  trafficking  in  human 
beings, stigma and discrimination (on grounds of race, religious, ethnic and caste origin, sexual orientation, 
disease, disability etc). 

34  Cf. europa.eu.int/comm/europeaid/projects/eidhr/documents_en.htm#evaluations 
35  Social dialogue may have a particular role in this context 
36  The  assumption  here  is  that,  in  accordance  with  the  Commission  proposal  to  amend  article  164  of  the 
Regulation  for  the  implementation  of  the  Financial  Regulation,  simplified  procedures  will  be  agreed  for 
grants  under  €25 000,  making  it  feasible  for  small  CSOs  to  participate  in  calls  for  micro  projects, 
SEC(2005) 1240 of 12.10.2005. 

37  Situations vary so consultations of this kind could be piloted and developed gradually in conjunction with 

the new round of programming 2007-2010 and 2011-2013. 

38  This  may  extend  to  international  and  national  tribunals  set  up  under  an  international  mediated  peace 

agreement, if not otherwise supported through the Stability instrument. 

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39  Such as the newly established UN Democracy Fund. 
40  The Declaration of Principles for International Election Observation and a Code of Conduct for International 

Observers endorsed under UN auspices on 27.10.2005. 

41  COM(2000) 191 of  11.4.2000, Council conclusions of 31 May 2001. 
42  Parallel initiatives in election assistance to develop local capacity for sustainable and professional election 
management  and  infrastructure  should  normally  be  supported  in  a  timely  manner  through  geographic 
programmes. 
43  The  amendments 

in 
COM(2005)  181  of  3.5.2005  and  SEC(2005)  1240  of  12.10.2005,  could  enhance  the  efficiency  of  the 
thematic programme. 

the  Financial  Regulation  and 

rules,  as  proposed 

implementing 

the 

to 

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