Communication from the Commission to the Council, the European Parliament, the European Economic and Social Committee and the Committee of the Regions Annual Policy Strategy for 2008
Date: 2007-02-21
Institutions: European Commission
Subjects: Community budget, EU policy, report

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 21.2.2007 
COM(2007) 65 final 

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

Annual Policy Strategy for 2008 

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TABLE OF CONTENTS 

1. 

2. 

2.1. 

2.2. 

2.3. 

2.4. 

2.5. 

2.6. 

2.7. 

3. 

A consistent course ...................................................................................................... 3 

Part I: Priority actions in 2008 ..................................................................................... 5 

Cross-cutting Priorities................................................................................................. 5 

Prosperity ..................................................................................................................... 6 

Solidarity ...................................................................................................................... 8 

Security and Freedom ................................................................................................ 11 

Europe as a World Partner ......................................................................................... 13 

Better Regulation – at the heart of the Commission’s daily work ............................. 15 

Improving Communication and Communication Priorities for 2008 ........................ 16 

Part II: General framework for human and financial resources for 2008 .................. 18 

3.1. 

Human Resources....................................................................................................... 18 

3.1.1.  Enlargement-related reinforcement............................................................................ 18 

3.1.2.  Contribution to a Central Pool ................................................................................... 18 

3.1.3.  Additional human resources to be allocated to the four policy priorities .................. 18 

3.2. 

Changes in the allocation of financial resources........................................................ 19 

3.2.1.  Financial implications of the “Prosperity” priority.................................................... 20 

3.2.2.  Financial implications of the “Solidarity” priority..................................................... 20 

3.2.3.  Financial implications of the “Security” priority ....................................................... 21 

3.2.4.  Financial implications of the “External Projection” priority ..................................... 21 

3.2.5.  Summary of changes by financial framework heading.............................................. 23 

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COMMUNICATION FROM THE COMMISSION 

Annual Policy Strategy for 2008 

1. 

A CONSISTENT COURSE 

Europe today enjoys a broad political consensus about the policies it needs to deliver. 
The  strategic  objectives  set  out  at  the  start  of  the  Commission’s  mandate  — 
prosperity,  solidarity,  security  and  freedom,  and  a  stronger  Europe  in  the  world  — 
have  provided  a  clear  framework  for  delivering  policies  to  meet  citizens’ 
expectations of where Europe should act. They have shaped a Union able to respond 
to  the  challenge  of  globalisation  and  equip  Europeans  for  the  future.  The 
Commission  has  relaunched  the  Lisbon  strategy  to  ensure  growth  and  jobs  through 
partnership  with  the  Member  States.  It  has  built  consensus  with  Member  States  on 
common action in key areas such as energy, research and demographic change. It has 
demonstrated its capacity to follow up these commitments through initiatives such as 
an  Energy  Policy  for  Europe,  the  European  Globalisation  Adjustment  Fund,  the 
European Institute of Technology (EIT), and measures to support the Member States 
in  managing  the  external  borders  of  the  EU  and  tackling  migration.  It  has  worked 
together with Member States and the other institutions to bring political support and 
humanitarian aid to countries in distress across the globe. 

The Commission has better integrated internal and external policies so they reinforce 
growth and jobs inside the Union while fostering global development. It has helped 
to complete the fifth round of enlargement for the European Union and to continue 
the process of making a Union of 27 reach its potential. Through negotiations with 
the  European  Parliament  and  the  Council,  the  Commission  has  helped  secure  an 
ambitious Multi-Annual Financial Framework for the period 2007-2013 and prepare 
new financial instruments and programmes to translate the Financial Framework into 
action.  The  Commission  has  launched  an  ambitious  drive  towards  better  regulation 
and simplification of EU legislation. It has reinforced its efforts to engage in a two-
way dialogue with citizens on the policy choices and future of Europe. 

This  record  shows  that  the  European  Union  is  making  a  reality  of  the  twin-track 
strategy set out by the European Commission last May, and backed by the European 
Council and the European Parliament. The EU is pushing forward with a wide range 
of ambitious policies, showing our citizens how the European dimension is essential 
to realising their aspirations in today’s world. At the same time, the Union’s ability 
to  act  effectively  supports  the  parallel  process  of  working  towards  a  constitutional 
and  institutional  settlement  —  a  settlement  that  would  in  turn  bring  about  a  more 
efficient and democratic Europe for the future. 

This Annual Policy Strategy presents the Commission’s proposals for key initiatives 
to  be  taken  forward  in  2008.  It  also  proposes  an  allocation  of  human  resources  to 
reinforce the Commission’s ability to deliver in priority areas. Additional posts will 
be  required  to  take  account  of  the  increased  workload  following  enlargement, 

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whereas other policy priorities will have to be covered exclusively through internal 
redeployment within the Commission. 

2008  will  clearly  be  an  important  year  for  the  debate  on  the  future  of  Europe:  a 
constructive  institutional  settlement  would  send  a  positive  signal  before  the  next 
European elections. 

In other respects, 2008 will be a year of consolidation and continued implementation 
of the existing acquis together with further attention to the proper enforcement of EU 
legislation.  The  Commission  will  pursue  its  reform  agenda  to  provide  a  modern, 
efficient,  accountable  and  transparent  administration  —  able  to  communicate  with 
and build trust among European citizens. 

The  Commission  will  maintain  its  focus  on  delivering  results  within  the  overall 
strategic  objectives.  Growth  and jobs remain  a  major  policy  priority  for  the  Union, 
backed up by further efforts to tackle climate change and to meet the energy needs of 
the  Union  today  and  in  the  future.  Developing  a  knowledge  society  will  remain  a 
cornerstone  in  this  strategy.  The  latest  enlargement  of  the  EU  will  see  further 
consolidation  when  new  Member  States  progressively  join  the  Schengen  Area  and 
adopt the euro. On the occasion of the tenth anniversary of the launch of the euro, the 
Commission  will  present  a  review  of  how  EMU  has  functioned  to  date  and  how  it 
can  be  better  equipped  to  meet  future  challenges.  In  terms  of  governance,  the 
Commission will pursue its commitment to engage in dialogue and consultation, to 
deliver  on  the  better  regulation  agenda,  and  to  give  further  attention  to  the  proper 
enforcement of EU legislation. 

Meanwhile,  as  indicated  below,  some  policy  areas  will  be  ripe  for  new  policy 
initiatives. Since coming into office, this Commission has launched a wide range of 
consultation exercises and policy dialogues, including the Single Market Review and 
the  Social  Reality  Stocktaking.  The  former  will  ensure  that  the  Single  Market 
continues to deliver on its economic promise and to ensure that citizens effectively 
reap  the  benefits.  The  latter  will  take  stock  of  the  social  situation  in  the  EU  by 
reviewing  socio-demographic  trends  and  the  access  of  citizens  to  rights  and 
opportunities and will provide an input to the mid-term review of the Social Agenda. 
These reviews will feed through into a range of concrete initiatives. The exact nature 
of  these  initiatives  cannot  always  be  specified  definitively  at  this  stage  since  the 
proposals  will  need  to  take  into  account  the  results  of  stakeholder  consultation  and 
impact assessments by the Commission. 

The  European  Commission  will  also  be  deepening  its  preparatory  work  on  the 
comprehensive budget review and analysing the results of the consultation launched 
in 2007, with a view to issuing a review document in 2008-2009. 

In  bringing  this  agenda  for  2008  to  fruition,  the  Commission  is  committed  to 
working  in  effective  partnership  with  the  other  European  institutions.  It  looks 
forward  to  a  constructive  dialogue  and  exchange  of  views  with  the  European 
Parliament  and  the  Council  on  where  the  policy  priorities  should  lie  in  2008,  and 
how this should be reflected in the Commission’s Legislative and Work Programme 
to be adopted next October and in the Budget for 2008. 

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2. 

PART I: PRIORITY ACTIONS IN 2008 

2.1. 

Cross-cutting Priorities 

While  remaining  firmly  focused  on  implementing  its  strategic  objectives,  the 
Commission  has  to  be  alert  and  ready  to  provide  a  dynamic  response  to  new 
challenges. Some of the issues that have recently moved up the EU’s political agenda 
by  their  very  nature  cut  across  the  four  strategic  objectives  and  contribute  to 
achieving several or all of them. Major examples are energy and climate change, the 
Lisbon agenda for growth and jobs, and migration. In meeting these challenges, the 
Commission  strives  to  respond  in  a  coherent  and  flexible  manner  by  working 
together across its services, by designing coherent policies that cut across traditional 
boundaries and by making full use of a wide range of financial and regulatory policy 
instruments.  These  issues  are  also  cross-cutting,  in  the  sense  that  they  have  to  be 
addressed  both  through  action  within  the  EU  and  through  a  global  approach  with 
partners around the world. Finally, it is obvious that they go beyond the single year 
of 2008 and that the challenges Europe is facing will only be met through consistent 
and hard work over a number of years. 

Tackling climate change has moved to the forefront and will be an integral part of 
the  Commission’s  priorities  in  2008  to  secure  sustainable  prosperity  for  Europe.  A 
key  factor  in  ensuring  sustainable  growth  is  sustainable,  secure  and  competitive 
energy across the Union, based on an appropriate mix of sustainable energy sources. 
2008  will  be  a  crucial  year  for  taking  forward  the  Energy  and  Climate  Change 
Package  adopted  by  the  Commission  in  early  2007.  Major  actions  should  include 
work  towards  the  creation  of  a  European  gas  network  and  electricity  grid,  further 
steps to promote energy efficiency and sustainable energy, a revision of the EU oil 
stocks system to enhance energy solidarity between the Member States initiatives to 
follow up the European Strategic Energy Technology Plan, and enforcement of the 
competition and internal market rules in the energy sector. The EU should continue 
to play a leading role in adapting to and reducing climate change. The Commission 
will  push  for  new  commitments  by  the  Union  and  key  stakeholders  worldwide  to 
reduce  CO2  emissions  beyond  2012  when  the  current  Kyoto  Protocol  expires.  The 
EU  should  also  use  its  leadership  to  step  up  the  international  pressure  for  global 
change.  Key  to  this  is  the  Global  Climate  Policy  Alliance,  which  aims  to  engage 
developing countries on climate change, with a view to broadening participation in 
the  post-2012  international  climate  change  regime.  To  help  Europe  deliver  on  its 
commitments  to  new  emission  targets,  the  EU  will  take  further  steps  to  promote 
energy efficiency and sustainable energy production. 

The  renewed  Lisbon  strategy  for  growth  and  jobs  remains  the  major  vehicle  for 
promoting  a  more  prosperous,  environmentally  responsible  and  socially  inclusive 
European  Union,  based  on  partnership  with  the  Member  States.  Streamlined  and 
renewed in 2005, it is beginning to yield results and has contributed to the improved 
economic performance in the EU. The challenge now is to capitalise on the current 
upturn  in  order  to  press  ahead  with  further  reforms.  At  the  end  of  2007,  the 
Commission will present a strategic report on the first cycle of the strategy, possibly 
with a revision of the Integrated Guidelines, to take modernisation forward into the 
next  decade.  In  addition,  2008  will  see  the  first  results  of  a  further  effort  to 
implement  the  Lisbon  strategy  at  regional  level  through  new  European  cohesion 

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policy  programmes,  and  new  rural  development  policy  programmes,  for  all  EU 
Member States to be adopted in 2007. 

Managing  migration  flows  to  the  EU  calls  for  a  multi-dimensional  approach. 
Labour migration, if well-managed, is a positive contribution to Europe’s prosperity 
and cultural diversity. In 2008 the Commission will present two legislative proposals 
on  labour  migration  regarding  the  conditions  of  entry  and  residence  of  seasonal 
workers  and  remunerated  trainees.  The  right  to  apply  for  asylum  in  the  EU  is  an 
expression  of  European  values  of  solidarity.  In  2008  the  Commission  will  propose 
further  steps  towards  a  common  policy  on  migration  and  measures  to  achieve  a 
Common European Asylum System by 2010. Finally, the EU needs to prevent illegal 
migration,  counter  human  trafficking  and  protect  its  external  borders.  In  2008  the 
External  Borders  Agency  will  be  further  developed  and  Member  States  will  be 
supported in tackling illegal migration through a European surveillance system. The 
Commission  will  also  work  further  on  the  external  dimension  through  a  combined 
migration and development agenda, especially with Africa. 

2.2. 

Prosperity 

As  indicated  above,  reducing  and  adapting  to  climate  change,  taking  forward  an 
Energy  Policy  for  Europe  and  implementing  the  Lisbon  strategy  will  provide  a 
crucial contribution to prosperity in the EU in 2008. 

Affordable and environmentally sustainable transport services are a prerequisite 
for  making  full  use  of  the  internal  market.  To  reduce  the  negative  impact  of  the 
transport sector on the environment, the Commission will propose an Action Plan on 
Urban  Transport,  a  White  Paper  to  promote  the  competitiveness  and  efficiency  of 
maritime transport due to better inclusion of short sea shipping in the logistic chain, 
and a legislative proposal to limit nitrogen oxide emissions from aviation. 

Lifelong  learning  continues  to  be  a  crucial  element  of  the  Lisbon  strategy.  It  is 
central 
to  competitiveness  and  employability  but  also  promotes  personal 
development, active citizenship and social inclusion. 

Research  and  technological  development  is  key  to  promoting  sustainable 
development  and  innovation  and  ensuring  that  Europe  remains  a  competitive  and 
prosperous  society  in  the  future.  The  7th  European  Framework  Programme  (FP7) 
plays  a  leading  role  in  supporting  European  research  and  stimulating  cooperation 
across the Union. It is one crucial instrument in supporting the further development 
of  a  European  Research  Area  (ERA)  which  the  Commission  will  seek  to  enhance 
further.  A  central  feature  of  FP7  is  the  European  Research  Council  (ERC).  From 
2008  the  ERC  will  be  supported  by  an  executive  agency  to  allow  it  to  play  its  full 
role  as  a  pan-European  funding  agency  for  frontier  research.  The  management  of 
other  parts  of  FP7  will  optimised  through  another  Executive  Agency.  During  the 
year, preparatory work will be undertaken to ensure that the European Institute of 
Technology  (EIT)  becomes  operational  in  2009.  The  EIT  will  help  to  bridge  the 
innovation gap between the EU and its major competitors through strategic research 
and  education.  Throughout  the  year,  several  European  research  initiatives  will  also 
be taken forward in support of key initiatives such as the Lisbon strategy and major 
policy  areas  including  industrial  competitiveness,  energy,  environment,  health, 
maritime policy, security and transport. 

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Based on the results of the Single Market Review, which will be presented in 2007, 
the  Commission  will  bring  forward  legislative  proposals  to  allow  citizens  and 
companies, in particular small and medium-sized enterprises (SMEs), to benefit 
fully from the internal market. Initiatives may for example include proposals in the 
areas of financial services or intellectual property rights. Enforcement activities may 
also need to be stepped up in the area of competition, in particular targeting the most 
harmful anti-competitive practices and forms of State Aid, as well as in the area of 
free movement of capital. Specific proposals will be presented regarding a Common 
Consolidated Corporate Tax Base (CCCTB) for enterprises, and the implementation 
of  the  EU  Patent  Strategy  will  be  closely  monitored.  Strengthening  consumer  trust 
and  promoting  consumer  protection  will  be  a  further  field  for  which  the 
Commission  will  make  new  proposals  in  2008.  Such  initiatives  may  include 
legislation regarding the main contractual rights and remedies for consumers, and the 
possible  extension  of  the  applicability  of  EU  consumer  protection  rules  to  cover 
software and data (e.g. music or films) bought and downloaded over the Internet. 

Subject to the outcome of the Green Paper consultation, and to the 2007 Action Plan, 
the  EU  Maritime  Policy  to  boost  jobs  and  growth  of  Europe’s  coastal  and  sea-
related  economy  in  a  sustainable  manner  will  be  taken  forward  through  a  set  of 
initiatives.  Consideration  will  be  given  to  cross-cutting  issues  related  to  other 
policies, 
research, 
competitiveness  of  maritime  industries,  fisheries  and  aquaculture,  surveillance  and 
data  collection,  common  EU  maritime  space  developed  under  transport  policy, 
security (e.g. maritime border control – see actions under 2.4) and the environment 
as developed in the EU marine strategy. 

international  maritime  governance,  marine 

inter  alia 

Prosperity: key actions envisaged for 2008 

Lisbon Strategy for Growth and Jobs 

Strategic report and follow-up action on the first cycle of the renewed Lisbon 

• 
strategy 

Energy and Transport 

• 

Implementation and follow-up of the Energy and Climate Change Package 

Start implementation of the actions required to create a European gas network 

• 
and electricity grid 

• 
Follow-up  initiatives  for  the  European  Strategic  Energy  Technology  Plan,  in 
particular  regarding  renewable  energy  sources,  sustainable  coal  technology  and 
nuclear waste management 

• 

• 

• 

• 

Revision of the EU oil stocks system 

EU Action Plan on Urban Transport to green the transport sector 

Legislative proposal to limit nitrogen oxide (NOx) emissions from aviation 

Legislative proposal on the reduction of emissions from ships 

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•  White  Paper  on  Common  European  Maritime  Space  to  promote  maritime 
transport 

• 

Reinforcement of transport safety agencies to complete transport safety rules 

Global Approach to Migration 

Directives  concerning  labour  migration,  on  the  conditions  of  entry  and 

• 
residence of seasonal workers and remunerated trainees 

Education, Research and Innovation 

Setting up Executive Agencies to make the European Research Council (ERC) 

• 
fully operational and to optimise the implementation of FP7 activities 

• 
Preparatory actions — appointment of Governing Board and selection of first 
Knowledge and Innovation Communities (KICs) — to make the European Institute 
for Technology (EIT) operational 

Single Market 

Legislative  and  other  proposals  following  up  the  conclusions  of  the  Single 

• 
Market Review 

• 

Follow-up to the new EU Patent Strategy 

Proposal  allowing  enterprises  to  use  a  Common  Consolidated  Corporate  Tax 

• 
Base (CCCTB) for their EU wide activities 

Economic and Monetary Union 

Strategic  review  of  the  EMU  after  10  years  and  proposals  to  improve  its 

• 
functioning 

Strengthening Consumer Trust and Protection 

Legislative  initiatives  to  strengthen  consumer  protection,  e.g.  regarding 

• 
contractual rights and remedies for consumers 

Maritime Policy and Monitoring 

• 

Taking forward initiatives to implement the EU Maritime Policy 

2.3. 

Solidarity 

As mentioned above, tackling climate change will continue to be a major task for the 
EU in 2008 in the spirit of solidarity within Europe, with the external world and with 
future generations. 

The implementation of the Registration, Evaluation and Authorisation of Chemicals 
(REACH)  legislation  is  a  key  test  to  show  Europe’s  capacity  to  enhance  the 

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competitiveness  of  European  industry  while  improving  the  health  and  environment 
for European citizens.  

In  2008,  the  reformed  Common  Agricultural  Policy  (CAP)  will  undergo  a “Health 
Check”, to check whether the 2003 reform can be fine-tuned and to pave the way for 
the  future  design  and  priorities  of  the  CAP.  2008  will  also  be  the  first  year  in 
implementing a single Common Market Organisation, which is a significant step 
towards simplification, as well as the implementation of the reform of the wine, fruits 
and vegetables, and cotton sectors. As regards the Common Fisheries Policy (CFP), 
the  Commission  will  come  forward  with  a  major  recast  of  the  control  framework 
with a view to strengthening enforcement across the Union. 

Based  on  the  Social  Reality  Stocktaking  and  the  mid-term  review  of  the 
implementation of the Social Agenda, both to be presented in 2007, the Commission 
will  propose  initiatives  to  promote  solidarity  and  access  of  citizens  to  rights  and 
opportunities. As a follow-up measure to the European Year of Equal Opportunities 
for  All  (2007),  the  Commission  will  extend  and  reinforce  its  equal  opportunities 
policy.  It  will,  in  particular,  propose  new  initiatives  designed  to  prevent  and 
combat  discrimination  outside  the  labour  market  –  based  on  gender,  religion, 
belief,  disability,  age  or  sexual  orientation  and  to  enhance  a  better  reconciliation 
between  family  and  professional  life.  Proposals  to  promote  social  solidarity  will 
include  possible  interventions  by  the  European  Globalisation  Adjustment  Fund, 
set  up  to  complement  the  efforts  of  the  Member  States  to  support  the  efforts  of 
workers made redundant due to market opening to find and retain new jobs. 

The Commission will present new proposals on how to ensure the adaptability  and 
flexibility  of  the  European  labour  market  while  ensuring  a  high  degree  of  social 
protection  (“flexicurity”).  Following  the  strategic  report  on  the  Lisbon  Agenda, 
these proposals could be reflected in the revised Integrated Guidelines, together with 
a stronger focus on tackling youth unemployment and undeclared work. 

2008  will  be  crucial  for  European  Cohesion  policy  as  the  first  full  year  of 
implementation  of  the  new  operational  programmes  2007-2013.  The  Commission 
will also take stock of the concrete results delivered by the programmes 2000-2006 
for the benefit of the citizens. 

To  promote  and  protect  fundamental  rights  and  European  citizenship,  the 
Commission will propose further measures for the consular protection of EU citizens 
travelling outside the Union. Fundamental rights will be promoted with a particular 
emphasis on the rights of the child, backed up by specific proposals to tackle child 
poverty.  The  Commission  will  also  propose  a  new  programme  to  protect  children 
using the Internet and the new media. 

Building  on  current  experience  across  the  EU  in  tackling  illicit  drugs,  the 
Commission will also present an EU Action Plan on Drugs for the years 2009-2012. 

The  Commission  will  launch  new  initiatives  together  with  the  Member  States  to 
promote  multilingualism,  which  reflects  the  cultural  and  linguistic  diversity  of  the 
EU and contributes to its prosperity. These initiatives aim at raising awareness of the 
benefits  of  language  learning  for  competitiveness,  employability  and  intercultural 
understanding. Finally, the Commission will implement the 2008 European Year of 

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Intercultural Dialogue in support of cultural and linguistic diversity and promoting 
active European citizenship. 

Solidarity: key actions envisaged for 2008 

Climate Change, the Environment and Related Initiatives 

• 
Commitments  beyond  2012  on  reducing  CO2  emissions  in  the  EU  to  a 
sustainable  level  ahead  of  the  2009  Conference  of  the  Parties  to  the  UN  Climate 
Change Convention 

Initiatives  to  promote  adaptation  to  environmental  challenges,  sustainable 

• 
production and consumption 

Implementing the REACH legislation and start-up of the European Chemicals 

• 
Agency in Helsinki 

• 

Communication on Global Monitoring for Environment and Security (GMES) 

Agriculture and Fisheries Policy 

Presenting  the  “Health  Check”  of  the  2003-2004  reforms  of  the  Common 

• 
Agricultural Policy (CAP) 

• 

Implementation of a single Common Market Organisation in agriculture 

Major  recast  of  the  control  and  enforcement  regulatory  framework  of  the 

• 
Common Fisheries Policy (CFP) 

Social Solidarity 

Implementation of the European Social Fund and the European Globalisation 

• 
Adjustment Fund (EGF) 

• 
Proposals  clarifying  the  application  of  Community  law  to  social  services, 
possibly together with EU-wide quality criteria for social services of general interest, 
as a follow-up to the Commission White Paper 

Initiatives designed to modernise European labour law, in particular regarding 

• 
flexicurity 

Equal Opportunities 

• 

• 

Initiatives to combat discrimination outside the labour market 

Initiative aimed at the reconciliation of family and professional life 

Cohesion Policy 

• 

Strategic stocktaking of the results of Cohesion policy programmes 2000-2006 

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Strengthening European Citizenship and Protecting Fundamental Rights 

• 

• 

Proposals on consular protection for EU citizens 

Promoting the rights of the child through the Forum on the Rights of the Child 

Launching a programme to protect children using the Internet and new media 

• 
(2009-2013) 

Justice and Home Affairs 

• 

EU Action Plan on Drugs (2009-2012) 

Asylum Policy Plan to prepare for the second phase of the Common European 

• 
Asylum System 

• 

• 

Legislative proposal in the field of successions and wills 

Communication on the attachment of bank accounts 

Intercultural Dialogue and Multilingualism 

• 

• 

Strategy for promoting multilingualism in cooperation with the Member States 

Actions for the European Year of Intercultural Dialogue 

2.4. 

Security and Freedom 

Ensuring the free movement of persons within an enlarged Union is a key objective 
for  the  EU.  Finalising  the  second  generation  of  the  Schengen  Information  System 
(SIS II) should pave the way for additional EU Member States to join the Schengen 
area from 2008. 

The  Hague  Programme  (2005-2009)  remains  the  framework  for  strengthening 
cooperation to promote freedom, security and justice in the EU. Further actions will 
be  taken  forward  to  fight  organised  crime  and  terrorism,  including  measures  to 
facilitate  the  exchange  of  information  between  law  enforcement  authorities  and 
preventive measures targeting radicalisation. 

The Commission will also propose further measures to promote the safety and health 
of  EU  citizens,  including  measures  to  build  on  current  cooperation  in  civil 
protection  and  efforts  to  ensure  and  enforce  EU  standards  on  food  safety,  animal 
health and welfare, and plant health. Customs control, in particular linked to the 
fight against counterfeited goods, will be strengthened to promote safety and protect 
consumers.  There  will  also  be  a  review  of  the  EU’s  legal  framework  for 
pharmaceutical  products  to  ensure  the  safety  of  medicines,  clear  information  for 
patients  and  access  to  safe,  cost-effective  and  high-quality  health  services  and 
products. 

In  2008  the  Commission  will  target  the  protection  of  critical  communication  and 
information infrastructures and address challenges related to privacy and security of 
new communication networks. 

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Security and freedom: key actions envisaged for 2008 

Freedom of Movement and Managing the EU’s External Borders 

Implementation of the second generation of the Schengen Information System 

• 
(SIS II) allowing additional EU Member States to join the Schengen area 

• 
New  measures  to  manage  the  EU’s  external  borders,  including  further 
development of the External Borders Agency (FRONTEX), improved networking of 
sea  border  controls,  and  a  European  surveillance  system  helping  Member  States  to 
deal with growing flows of illegal immigrants 

Launching  the  Visa  Information  System  (VIS)  in  preparation  for  a  common 

• 
visa policy 

Fighting Organised Crime and Terrorism 

• 

• 

Implementing a centralised database of fingerprints 

Launching a policy to tackle violent radicalisation 

Strengthening the cooperation between Member States through EUROJUST in 

• 
investigating and prosecuting serious cross-border and organised crime 

Civil Protection 

• 
Strengthening  the  EU  Civil  Protection  Mechanism  and  developing  an 
integrated strategy on disaster prevention for disasters occurring within the EU or in 
countries participating in the mechanism 

Health and Safety 

• 

Recommendation on patient safety and the quality of health services 

Ensuring compliance with EU food safety, animal health, animal welfare and 

• 
plant health standards 

Developing  a  legal  framework  for  the  risk  assessment  by  the  European  Food 

• 
Safety Authority (EFSA) of genetically modified food and feed 

• 

Review of the legal framework on pharmaceuticals 

Modernisation  of  the  legislation  for  medical  devices,  to  improve  patient  and 

• 
user safety while ensuring a clear regulatory environment 

Initiative  on  telemedicine  for  chronic  disease  management  (home  health 

• 
monitoring) 

Developing  infrastructure  for  crisis  preparedness  in  the  area  of  health  and 

• 
safety 

Protecting Critical Information Infrastructures and Strengthening Citizens’ Trust 

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• 

• 

Initiative on critical communication and information infrastructures protection 

Initiative on privacy and trust in the information society 

2.5. 

Europe as a World Partner 

Europe must continue its efforts to act with a strong and united voice in the world, 
based  on  our  common  values  and  objectives,  in  full  coherence  with  our  internal 
policies, and making full use of all the assets and policies at its disposal to defend the 
Union’s  interests. These include the Common Foreign and Security Policy (CFSP), 
the  European  Security  and  Defence  Policy  (ESDP),  the  common  trade  policy, 
development policy, humanitarian assistance, and the external dimension of internal 
policies. Meanwhile, the links between internal and external policies are becoming 
stronger.  This  is  clearly  the  case  with  respect  to  competitiveness,  as  coherent  and 
well-designed internal policies and a well-functioning internal market within the EU 
will have an impact on the ability of European companies to compete on the global 
scene.  Core  policies  like  addressing  climate  change  and  biodiversity,  demographic 
change  and  migration,  terrorism  and  organised  crime,  or  energy  needs  can  only  be 
tackled in the global context. 

Accession  negotiations  will  be  pursued  on  the  basis  of  the  renewed  consensus  on 
enlargement  and  the  enhanced  rules  governing  the  accession  process  agreed  at  the 
December  2006  European  Council.  Progress  in  the  Western  Balkans  towards  a 
future  in  the  European  Union  includes  the  implementation  of  the  future  status 
settlement for Kosovo. A positive outcome is also key to a significant improvement 
in Serbia’s progress on its path to the EU. 

Key objectives such as the European Neighbourhood Policy, the strategy for Africa, 
the  European  Consensus  on  Development  and  the  Global  Europe  external 
competitiveness agenda remain the framework for important initiatives.  

The  European  neighbourhood  policy  will  build  on  the  annual  evaluation  of 
progress  due  at  the  end  of  2007.  Particular  attention  will  be  paid  to  the 
implementation  of  sectoral  programmes  in  the  areas  of  migration,  education  and 
energy  as  well  as  to  enhancing  trade  relations  and  economic  integration  and 
facilitating mobility. Closer regional cooperation around the Black Sea region should 
also be promoted. 

Work  to  develop  closer  political  and  economic  ties  with  partners  around  the 
world — including Russia, Ukraine, Japan, Korea, China, India, ASEAN and Latin 
America  —  should  be  intensified.  The  transatlantic  partnership  should  be 
strengthened  and  constantly  adapted  to  the  evolution  of  common  challenges, 
reflecting  the  quality  of  relations  between  our  peoples  and  our  responsibility  for 
contributing to an international environment conducive to peace, security, prosperity 
and sustainable development. 

The Union is working hard to ensure the successful completion and implementation 
of the Doha Development Round of world trade talks. This global framework will 
be  complemented  by  bilateral  negotiations  for  a  new  generation  of  free  trade 
agreements with important emerging economies. In pursuing the Commission’s new 
Global  Europe  agenda, attention will particularly  focus  on  delivering  results:  better 

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market  access,  effective  trade  defence  tools  and  improved  protection  of  intellectual 
property rights. 

The  EU  will  reinforce  its  institutional  relations  with  Africa  at  all  levels  and 
especially  with  the  African  Union  (AU).  The  EU  and  the  AU  will  develop  a  Joint 
EU-Africa Strategy which will define the new priorities in the EU’s relations with 
Africa and be implemented as a follow-up to the EU-Africa Summit. 2008 will see 
the start of the implementation of the 10th European Development Fund (EDF) — a 
major  framework  for  cooperation  and  funding  between  Europe  and  African, 
Caribbean and Pacific (ACP) countries. The EDF will provide EUR 22.7 billion over 
the  period  2008-2013.  It  should  also  strive  for  synergies  with  the  Economic 
Partnership Agreements (EPAs), which will start being implemented in 2008 and 
represent  a  cornerstone  for  the  regional  integration  of  ACP  countries  and  their 
development in general. 

Stabilisation  and  reconstruction  efforts  in  the  Middle  East  and  South  Asia  will 
have to be continued and the Union’s conflict  prevention,  crisis  reaction  and  peace 
building  capacities  should  be  further  reinforced,  through  coordinated  use  of  all 
available  instruments.  The  Commission  will continue  to  strengthen  and  consolidate 
the Union’s response capacity to disasters and crises through coordinated use of all 
available  instruments,  including  emergency  and  humanitarian  assistance.  Electoral 
observation  and 
implementation  of  other  human  rights  and 
democratisation programmes will be important contributions to the promotion of our 
fundamental values outside the European Union. 

the  efficient 

The  EU  should  also  remain  committed  to  improving  the  coherence,  effectiveness 
and  visibility  of  its  external  action.  The  Commission  will  continue  to  develop 
further a political and diplomatic culture in its external services. 

Europe as a world partner: key actions envisaged for 2008 

Enlargement 

Continue  the  accession  negotiations  with  Croatia  and  Turkey  on  the  basis  of 

• 
the Union’s renewed enlargement consensus 

Managing the consequences of the future status settlement for Kosovo and its 

• 
implications for relations with countries in the region 

Implementation  of  the  existing  network  of  Stabilisation  and  Association 

• 
Agreements and progress in the stabilisation and association process with Serbia 

European Neighbourhood and Russia 

• 

Significant progress towards or implement a new agreement with Russia 

Significant  progress  towards  the  conclusion  of  an  enhanced  agreement  with 

• 
Ukraine 

Launch of negotiations for successor Partnership and Cooperation Agreements 

• 
(PCAs) with Armenia, Azerbaijan, Georgia and Moldova 

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Stepping  up  relations  with  Algeria,  Belarus,  Libya  and  Syria,  subject  to  the 

• 
political development 

Pursuing the European Union’s contributions to the Middle East peace process 

• 
and support to the Palestinian Authority 

The Wider World 

• 

• 

Concluding and implementing the Doha Development Round 

Following up the results of the 2007 EU-AU Summit 

Starting implementation of the Economic Partnership Agreements and the 10th 

• 
European Development Fund (EDF) 

• 
Stepping  up  cooperation  with  ACP  and  other  developing  countries,  in 
particular  in  areas  such  as  energy  and  migration,  in  line  with  the  Action  Plan  on 
Climate  Change  and  Development  Cooperation  and  the  Global  Approach  to 
Migration 

Following  up  the  results  of  the  2007  EU-US  Summit  and  strengthening  of 

• 
political, economic and trade relations with the United States 

Progress  in  or  conclusion  of  negotiations  for  agreements  with  the  EU’s 
• 
strategic partners China and India, as well as with other partners in Asia (ASEAN, 
South Korea) and Latin America (Andean Community, Central America) 

Review relations with Brazil bearing in mind the linkage to the negotiation of 
• 
an association agreement, including a Free Trade Agreement, with MERCOSUR and 
concluding/implementing  association  agreements  with  the  Andean  Community  and 
Central American Community 

Reinforcing  cooperation  with  major  producer,  transit  and  consumer  countries 

• 
including on the promotion of sustainable energy and energy efficiency 

Pursuing  the  EU  engagement  in  Afghanistan  and  continuing  to  contribute  to 

• 
stability in the Gulf with an emphasis on Iran and Iraq 

2.6. 

Better Regulation – at the Heart of the Commission’s Daily Work 

Simplifying and improving the regulatory environment for EU business and citizens 
has  been  a  major  priority  for  the  Commission  since  it  took  office.  In  2006  the 
Commission undertook a strategic review of the better regulation agenda. 2007 will 
see  improvements  to  the  system  of  impact  assessment,  the  launch  of  an  Action 
Programme to eliminate unnecessary administrative burdens arising from legislation 
at  EU  and  Member  State  levels,  and  implementation  of  the  updated  simplification 
programme. Realisation of these actions will be the core goal for 2008. 

The results of the external evaluation of the Commission’s impact assessment system 
—  expected  in  March  2007  —  together  with  the  lessons  from  the  operation  of  the 
Impact Assessment Board, will allow the Commission to identify where its internal 
Impact  Assessment  Guidelines  and  support  need  to  be  improved.  In  2008  the 

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European Parliament, the Council and the Commission should also take stock of the 
implementation of the inter-institutional “Common Approach to Impact Assessment” 
concluded in mid-2006. The administrative costs measurement exercise envisaged in 
the  Action  Programme  adopted  in  January  2007  will  be  completed  in  November 
2008.  Working  jointly  with  the  Member  States,  the  Commission  will  continue  to 
push  hard 
the 
administrative burdens faced by EU business. 

to  deliver  significant  and  demonstrable  reductions 

in 

Delivery of the initiatives set out in the multi-annual simplification programme will 
continue  in  2008,  progressively  including  an  increasing  number  of  simplification 
proposals  to  reduce  administrative  burdens.  2008  should  also  mark  the  completion 
of the Commission’s programme to codify the body of existing legislation in all 
the official languages. 

Better  enforcement  of  Community  law,  including  through  improvements  in  the 
dialogue  with  Member  States  to  ensure  timely  implementation  and  effective  and 
equitable application, will remain a priority for the Commission in 2008, following 
on  from  a  Communication  on  the  application  of  Community  law  to  be  adopted  in 
2007. 

2.7. 

Improving Communication and Communication Priorities for 2008 

Communicating  with  citizens  about  European  issues  remains  a  crucial  task  for  the 
European Commission in 2008. Continued efforts will be devoted to this task by the 
Brussels-based  departments  and  by  the  Representations  as  well  as  the  Commission 
Delegations in third countries. 

The main communication priorities for 2008 should reflect the political priorities set 
in  the  Annual  Policy  Strategy  as  well  as  research  findings  reflecting  citizens’ 
interests and the recent experience gained on effective communication. 

Recent  research  shows  that  the  main  concerns  for  EU  citizens  are  the  social 
dimension of the EU in the context of globalisation (in particular jobs and the fear 
of unemployment) as well as migration. Interest in energy and climate change is 
on the increase. Obviously challenges such as globalisation and achieving sustainable 
development in its three dimensions (economic, social and environmental) will have 
to be integrated in any communication priority. 

Past  experience  has  identified  the  following  key  elements  for  the  success  of 
communication strategies: 

•  Select  specific  issues  with  which  the  citizen  can  more  easily  identify.  The 
European institutions should play a clear role in areas where they communicate. 

•  Communication must “go local” and the message should be adapted to different 

audiences, sectors or countries. 

•  Good planning and coordination are essential. 

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On the basis of  the  above,  and  the  political  priorities defined in the  APS  2008,  the 
Commission  should  concentrate  its  efforts  on  the  following  communication 
priorities: 

Communication priorities envisaged for 2008 

• 

• 

• 

• 

• 

• 

• 

The Budget Review 

The Single Market Review 

The Social Reality Stocktaking 

Migration 

The Institutional Settlement 

Energy and Climate Change 

The EU’s Role in the World 

While concentrating its efforts and resources on key priorities, the Commission will 
continue  to  pursue  and  strengthen  its  efforts  to  better  communicating  Europe  in  all 
policy areas. 

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3. 

PART  II:  GENERAL  FRAMEWORK  FOR  HUMAN  AND  FINANCIAL  RESOURCES  FOR 
2008 

3.1. 

Human Resources 

3.1.1.  Enlargement-related Reinforcement  

On the basis of the Commission’s assessment, the Budgetary Authority has endorsed 
3 960 additional human resources needed between 2003 and 2008 in order to enable 
the  Commission  to  extend  its  work  to  the  ten  new  Member  States  and  fulfil  its 
institutional responsibilities. In 2008 the Commission will request the last remaining 
640  additional  staff  in  order  to  reach  cruising  speed.  In  accordance  with  its 
Communication on the human resources consequences of the accession of Bulgaria 
and Romania, assessed at 850 new staff over the period 2006-2009, the Commission 
is asking for 250 new posts in 2008. Again for 2008, the Commission is requesting 
890  additional  human  resources  to  deal  with  the  extension  of  its  tasks  following 
enlargement and to pursue its four policy priorities where they relate to an enlarged 
Union. It will also monitor closely, throughout the year, the recruitment of nationals 
of  the  new  Member  States  in  order  to  ensure  that  recruitment  targets  set  by  the 
Commission  for  EU-12  are  met  by  its  services.  The  final  allocation  to  services  for 
2008 will also be reviewed in the light of the individual performance of services in 
reaching these targets in 2007. 

3.1.2.  Contribution to a Central Pool 

Beyond these new posts, the Commission will actively redeploy staff to implement 
the  priority  initiatives  independently  of  enlargement.  Amongst  these  priorities,  the 
Commission intends to open and to upgrade delegations and to reinforce the existing 
network.  Due  attention  will  also  be  paid  to  audit  and  audit-related  tasks  in  the 
internal 
research  sector.  Identifying  negative  priorities  and 
redeployment  has  been  a  fundamental  element  in  assessing  any  request  by  services 
for  new  resources.  The  Commission  is  also  committed  to  redeployment  between 
services  and  will  achieve  this  target,  as  in  previous  years,  by  setting  up  a  central 
redeployment pool, drawing generally upon all staff and set at 1% of staff. Savings in 
human  resources  resulting  from  externalisation  (executive  agencies)  will  also  be 
redirected  towards  priorities.  These  resources  will  be  channelled  to  the  priorities 
identified  in  this  Communication  and  by  the  budgetary  authority.  As  last  year,  the 
Commission will also allocate posts on a short-term basis for temporary tasks, which 
should contribute to a more flexible and dynamic allocation process in future years. 

the  scope  for 

3.1.3.  Additional Human Resources to be Allocated to the Four Policy Priorities 

The  table  below  summarises  the  human  resources  expected  to  be  needed  for 
launching new initiatives or reinforcing ongoing activities, by priority and according 
to source. 

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Table 1 – Allocation of human resources to APS 2008 priorities 

Redeployment 
between 
departments 

Redeployment 
within 
departments  

Total 
available  for 
priorities 

resources 
the 

46 

20 

27 

109 

85 

53 

79 

12 

27 

107 

222 

224 

139 

213 

657 

APS  priorities 
in 2008 

New 
resources 
to 
related 
enlargement  

1. Prosperity 

123 

2. Solidarity 

125 

100 

77 

465 

3. Security 

External 

4. 
projection 

of 

Extension 
existing 
activities  in  an 
enlarged Union 
(including 
phasing-out  of 
pre-accession 
or 
activities) 
other  variation 
in workload 

TOTAL 

890 

287 

278 

1,455 

The allocation of new enlargement-related resources by policy area will be finalised 
during  the  preparation  of  the  2008  Preliminary  Draft  Budget  (PDB),  including  the 
breakdown  between  establishment  posts  and  external  personnel.  In  addition,  as 
proposed  by  the  European  Parliament,  the  Commission  has  begun  a  medium-term 
review  of  its  human  resources.  Whereas  this  annual  policy  strategy  for  2008  is 
mainly  focused  on  overall  enlargement-related  needs  and  on  redeployments  to 
address  political  changes  from  2007  to  2008,  the  mid-term  review  should  define 
perspectives for the future but could also have an impact on the final allocation for 
2008. Accordingly, some of the posts for 2008 will only be allocated to services in 
the light of the results of this review. 

3.2. 

Changes in the Allocation of Financial Resources 

The APS 2008 is the second under the financial framework for 2007-2013. Most of 
the  legal  acts  for  the  new  programmes  have  recently  been  adopted,  and  where 
necessary the (May 2006) financial programming has been adjusted (January 2007) 
to reflect the adopted legal bases. In some cases, final adoption is still pending, and 
this  may  have  an  effect  on  the  profile  of  expenditure.  Therefore,  for  2008,  it  is 
possible to frontload certain initiatives without affecting the margins available under 
the budget headings by back-loading those programmes whose start-up is adjusted to 
take  account,  in  particular,  of  late  adoption  of  the  corresponding  legal  bases.  The 

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changes  in  the  allocation  of  financial  resources  set  out  below  reflect  the  2008 
priorities. 

Table 2 - Changes in financial resources reflecting 2008 priorities in comparison 
with 2008-2013 financial programming 

Indicative changes in Financial Resources 

Priorities and Policy Area 

Appropriations for commitments 
 (in Million EUR) 

2008 

2009-2013 

Priority 1 

Priority 2 

Priority 3 

Priority 4 

Energy and Transport 

Environment 

9.8 

2.0 

90.1 

10.6 

Freedom, security and justice 

13.4 

16.4 

External relations 

Development 

2.0 

21.1 

10.0 

59.0 

TOTAL 

48.3 

186.1 

3.2.1.  Financial Implications of the “Prosperity” Priority 

Heading  1a,  with  a  total  programmed  amount  for  2008  of  EUR 9 776.4 million, 
incorporates  the  key  programmes  for  the  Lisbon  Strategy:  the  Research,  Lifelong 
Learning  (LLL),  Competitiveness  and  Innovation  (CIP)  and  Trans-European 
Transport  Network  (TEN-T)  programmes.  These  programmes  will  all  contribute  to 
making  the  European  economy  more  dynamic  and  competitive.  With  the  exception 
of TEN-T, all the corresponding legal bases have been adopted. 

In  the  field  of  transport,  it  is  proposed  to  increase  the  financial  resources  for  the 
European  Railway  Agency  (ERA),  European  Maritime  Safety  Agency  (EMSA), 
European  Aviation  Safety  Agency  (EASA)  and  Galileo  Supervisory  Authority 
(GSA) by a total of EUR 9.8 million in 2008. However, this will be partly offset by 
reductions  in  the  TEN-T  programme,  so  there  will  be  no  change  to  the  margin 
available under Heading 1a. The situation of these agencies for the 2009-2013 period 
will be evaluated at a later stage. 

3.2.2.  Financial Implications of the “Solidarity” Priority 

An  additional  EUR 2 million  will  be  programmed  under  Heading  2  to  cover 
additional activities of the European Environmental Agency (EEA), essential for the 
provision of reliable and timely information in support of policy. The focus will be 
on  the  global  challenges  of  monitoring  climate  trends,  biodiversity,  and  ecosystem 
assessment, which Europe must tackle as a priority. Other Heading 2 initiatives will 

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be  financed,  if  necessary  through  redeployments,  within  the  existing  financial 
programming. 

3.2.3.  Financial Implications of the “Security” Priority 

The Heading 3a initiative, “Establishing a single area of justice in criminal and civil 
matters”,  will  be  reinforced  by  an  additional  EUR 2.5 million  for  EUROJUST  in 
each  year  of  the  2008-2013  financial  programming.  EUROJUST  stimulates  and 
improves  the  coordination  of  investigations  and  prosecutions  between  competent 
authorities  in  the  Member  States,  fostering  the  development  of  a  European  area  of 
freedom, security and justice. This will be offset by downward adjustments in other 
programmes under the same heading. 

With  a  view  to  strengthening  the  initiative  “Managing  the  external  borders  in 
common”,  it  is  proposed  to  increase  the  financial  resources  of  the  FRONTEX 
Agency  by  EUR 10.9 million  in  2008.  This  increase  beyond  the  original  financial 
programming  will  be  followed  by  a  further  frontloading  in  2009  and  2010  of 
EUR 6.9 million  and  EUR 7 million,  respectively.  However,  the  2009  and  2010 
increases  will  be  offset  by  no  increase  in  2011.  As  in  the  case  of  EUROJUST,  the 
additional  EUR 10.9  million  in  2008  will  be obtained  by adjusting the amounts for 
those programmes whose start-up has been delayed. 

In  the  area  of  external  border  management,  the  Commission  will  build  upon  the 
results  of  the  2007  evaluation  of  the  FRONTEX  Agency,  including  the  possible 
extension  of  its  tasks  to  cover  goods-related  security  issues,  the  implementation  of 
the  Rapid  Border  Intervention  teams,  and  the  drafting  of  new  proposals  for  the 
further  development  of  the  integrated  border  management  strategy.  Several 
fundamental instruments are due to be adopted in 2007 and implemented in 2008: the 
Visa  Code,  the  Visa  Information  System  and  the  new  legal  framework  for  the 
organisation  of  consular  services  for  processing  visa  applications,  which  will 
necessitate  a  more  active  role  for  the  Commission  in  the  field  of  local  consular 
cooperation. 

3.2.4.  Financial Implications of the “External Projection” Priority 

Under  Heading  4,  External  Projection,  it  is  proposed  to  add  an  additional 
EUR 23.1 million  to  the  financial  programming  for  2008.  Most  of  this  amount, 
EUR 19.5 million, is for two new initiatives related to climate change and renewable 
energy,  with  multi-annual  implications,  which  were  announced  by  the  Commission 
in its January 2007 Energy and Climate Change Package. 

The  first  initiative  is  the  Global  Climate  Policy  Alliance,  which  aims  to  support 
adaptation and mitigation activities in developing countries. The initial commitments 
under the Kyoto Protocol come to an end in 2012 and further commitments will have 
to  be  agreed  by  the  international  community  by  2009  at  the  very  latest.  The 
Commission  has  tabled  an  ambitious  proposal  to  reduce  emissions  and  limit 
temperature  increase  to  2°C.  This  proposal  will  only  succeed  if  its  objectives  are 
shared by the largest possible majority of developing countries. The Global Climate 
Policy Alliance will pursue this endeavour by building a political coalition between 
the  EU  and  developing  countries,  supported  by  resources  for  national  investments 
particularly in the field of adaptation. An envisaged pledge of EUR 50 million over 

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the period 2008-2010 — including EUR 10 million in 2008 — will act as a catalyst 
for  similar  contributions  by  EU  Member  States,  which  are  expected  to  finance  the 
largest share of the initiative. Further contributions and synergies from the European 
Development  Fund  (EDF)  are  also  to  be  considered.  The  Commission  contribution 
will take the form of grants.  

The  second  initiative  is  to  reinforce  the  Global  Energy  Efficiency  and  Renewable 
Energy  Fund  (GEEREF).  GEEREF  is  an  innovative  public-private  financing 
mechanism  designed  to  mobilise  significant  private  funding  in  favour  of  energy 
efficiency and renewable energy projects in developing countries and in economies 
in transition. A significant contribution from the EU budget is essential to kick-start 
the  fund,  and  the  Commission  has  proposed  a  contribution  of  EUR 80 million  to 
GEEREF over the period 2007-2010. To reach this objective, three further tranches 
of  EUR 9.5 million  each  will  be  added  to  the  original  financial  programming  of 
GEEREF for 2008-2010. 

Funds provided under the Global Climate Policy Alliance will complement GEEREF 
private  financing  by  encouraging  public  investment  in  adaptation.  The  additional 
resources for the two initiatives are allocated to the “Development” policy area under 
the  thematic  programme  “Environment  and  sustainable  management  of  natural 
resources, including energy” (ENRTP). 

An  additional  EUR 2 million  is  allocated  to  the  initiative  “The  EU  in  the  World: 
Towards a communication strategy for the European Union’s external policy, 2006-
2009”  -  C(2006)  329.  The  objective  of  raising  the  level  of  awareness  and 
understanding of the EU’s external policies is a high priority for the EU, as set out in 
the strategic document “Europe in the World” presented at the European Council of 
June 2006. This increase will facilitate the extension of the current activities (focused 
mainly on the European Neighbourhood Policy and CFSP/ESDP) to include themes 
such  as  crisis  management  and  the  external  aspects  of  climate  change  and  energy 
policy. 

A  further  EUR 1.6 million  is  granted  to  reinforce  research  and  awareness-raising 
activities that will help inform and shape the development debate and policy making 
at  European  level.  In  line  with  the  European  Consensus  on  Development,  the 
Commission and the Member States will develop a European Research Network with 
a view to develop analytical capacity in support of development policy making and, 
notably, to deliver an analytically well underpinned European Development Report. 
Further,  after  a  successful  pilot  experience  in  2006  to  be  repeated  in  2007,  there  is 
now  a  strong  consensus  to  establish  the  European  Development  Days  as  an  annual 
major  event  of  the  EU's  and  the  international  development  agenda,  involving  all 
major development stakeholders. 

In the policy area “Taxation and Customs Union”, provision will be made to support 
the International Tax Dialogue and to ensure EU membership of the World Customs 
Organisation (WCO). 

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3.2.5. 

Summary of Changes by Financial Framework Heading 

HEADINGS 

2008 

Projection 2009-2013 

Initial* 
programming 

APS 
changes 

Revised 
programming

Initial* 
programming 

APS 
changes 

Revised 
programming 

(in Million EUR) 

1a. Competitiveness for growth and 

employment 

FF ceiling - sub-heading 1a 

Total sub-heading 1a 

1b. Cohesion for growth and 

employment 

FF ceiling - sub-heading 1b 

Total sub-heading 1b 

Margin 

Margin 

2. Preservation and management of 

natural resources 

FF ceiling - heading 2 

Total heading 2 

Margin 

3a. Freedom, security and justice 

FF ceiling - heading 3a 

Total heading 3a 

Margin 

Margin 

Margin 

3b. Citizenship 

FF ceiling - heading 3b 

Total heading 3b 

4. EU as a global partner 

FF ceiling - heading 4 

Total heading 4** 

* January 2007 update. 

9,847.0 

9,776.4 

70.6 

46,888.8 

46,888.8 

0,0 

58,800,0 

58,742,8 

57.2 

747.0 

714.2 

32.8 

615.0 

597.3 

17.7 

0.0 

0.0 

2.0 

0.0 

0.0 

9,847.0

9,776.4

70.6

65,222.0 

64,462.9 

759.1 

46,888.8

46,888.8

0.0

245,301.1 

245,301.1 

0.0 

0.0 

0.0 

65,222.0

64,462.9

759.1

245,301.1

245,301.1

0.0

58,800.0

58,744.8

55.2

300,974.0 

300,639.5 

334.5 

10.6 

300,974.0

300,650.1

323.9

747.0

714.2

32.8

615.0

597.3

17.7

6,170.0 

5,840.6 

329.4 

3,416.0 

3,310.5 

105.5 

0.0 

0.0 

6,170.0

5,840.6

329.4

3,416.0

3,310.5

105.5

7,002.0 

6,644.8 

357.2 

23.1 

7,002.0

6,667.9

334.1

42,355.0 

41,080.4 

1,274.6 

70.0 

42,355.0

41,150.4

1,204.6

** Adjusted to take into account the entry into effect of the new provisioning mechanism for the Guarantee Fund. 

As explained above, the increased financial resource allocation for initiatives under 
Heading  1a  and  Heading  3a  will  not  have  an  effect  on  the  margins  under  these 
headings,  as  the  increases  will  be  offset  by  reductions  for  other  programmes  for 
which implementation is likely to be delayed in the first few years. 

For Heading 2, the margin will decrease by EUR 2 million. There is no change to the 
programming for Heading 3b. 

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Under Heading 4, new priorities require a EUR 23.1 million reinforcement in 2008 to 
be  consolidated  in  subsequent  years  by  a  further  EUR 70 million.  However, 
following  changes  in  the  mode  of  provisioning  of  the  Guarantee  Fund  for  External 
Actions1, no new provisioning will be required from the general budget in 2008. The 
EUR 200 million earmarked to that effect in the programming will therefore become 
available.  The  net  result  of  both  changes  will  leave  a  margin  of  EUR  334  million, 
which  will  allow  an  adequate  response  to  future  needs,  for  example  in  connection 
with the outcome of negotiations on the final status of Kosovo, and the subsequent 
role of the EU, and in regard to the Middle-East Peace Process2. Depending on the 
evolution  of  the  international  situation  in  the  coming  weeks,  further  requests  may 
need to be incorporated in the Preliminary Draft Budget (PDB). 

1 

2 

Council Regulation (EC, Euratom) No 89/2007 of 30 January 2007 amending Council Regulation (EC, 
Euratom) No 2728/94 establishing a Guarantee Fund for external actions (OJ L 22, 31.1.2007). 
The amounts pledged by the Commission at the January 2007 Paris conference on the reconstruction of 
Lebanon are fully covered by the programmed budget. 

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