Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions on policy for the accommodation of commission services in Brussels and Luxembourg
Date: 2007-09-05
Institutions: European Commission
Subjects: Belgium, Brussels region, European Commission, Luxembourg, building, real property, seat of institution, town planning, working conditions

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 5.9.2007 
COM(2007) 501 final 

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

ON POLICY FOR THE ACCOMMODATION OF COMMISSION SERVICES IN 
BRUSSELS AND LUXEMBOURG 

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   EN 

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

ON POLICY FOR THE ACCOMMODATION OF COMMISSION SERVICES IN 
BRUSSELS AND LUXEMBOURG 

1. 

INTRODUCTION 

In  1997  in  Amsterdam,  the  Member  States  decided  that  the  Headquarter  of  the 
European Commission would be based in Brussels and confirmed the Decision of 8 
April 1965 defining the specific activities that would be based in Luxembourg. 

Since  then,  the  Commission  has  defined  on  three  occasions  its  policy  objectives  in 
terms of buildings policy. Through its Communications of 1996 on buildings policy 
in Brussels and Luxembourg, of 1999 on property policy in Brussels and of 2003 on 
buildings  policy  and  infrastructures  in  Brussels1,  the  Commission  highlighted  and 
confirmed the three following objectives: 

•  The rational installation of services and better working conditions for staff; 

•  The intensification of acquisition policy; 

•  Reflecting  the  impact  of  the  Commission’s  buildings  policy  on  the  urban 
environment  of  Brussels,  through  the  intensification  of  the  dialogue  with  the 
Belgian authorities. 

Since 2003, the situation in Brussels and Luxembourg has evolved to the extent that 
existing policy in this field needs to be adapted to take account of existing objectives 
and  of  the  evolution  on  the  marketplace.  Also,  the  Commission  wants  to  further 
harmonise  the  policies  implemented  in  Brussels  and  Luxembourg,  while  taking 
account of the specificities of the two sites. 

The most notable changes have taken place in the area of the average market price, 
the total surface occupied on both sites, the increased focus on the environment and 
the need to reduce the Commission's carbon footprint, on security and safety and in 
relations with the host country authorities. 

Against this background the Commission, through the present Communication, sets 
out  its  major  policy  orientations  and  requirements  for  the  future,  focussing  in 
particular on the following elements: 

•  Definition  of  a  long  term  strategic  plan  for  space  requirements.  This  plan  will 
underpin the major options and requirements of the Commission in terms of future 
location and real estate developments. 

1 

SEC(1996) 1095, COM(1999) 713, COM(2003) 755. 

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•  Pursuing  the  rationalisation  efforts  of  the  current  property  portfolio,  notably  by 
concentrating the Commission in a smaller number of larger buildings. This will 
enable space to be used more efficiently in modern, fit for purpose buildings. 

•  In  Brussels,  support  to  the  conception  of  the  redevelopment,  by  the  Belgian 
authorities, of the "Quartier européen"; at this stage, it is proposed that this area 
remain the centre of Commission activity. This presence should be complemented 
by the development of a limited number of significant poles outside the "Quartier 
européen", thereby spreading the Commission presence and exerting a downward 
pressure on the price of property. 

•  In  Luxembourg  confirmation  of  the  "Kirchberg"  as  the  main  pole  of  the 

Commission. 

•  Revision of the buildings procurement methodology – to be implemented as of 1 
January 2008 - to ensure both maximum value for money – notably by using its 
negotiating position to best advantage – and transparency towards the market. 

•  The combination of concentration of the above elements should enable sufficient 
investment  in  implementing  a  series  of  policy  principles  –  notably  to  achieve 
environmentally  sustainable,  high  quality  buildings  and  improvement  of  the 
housing conditions for staff.  

These elements are mutually reinforcing. Together with the current co-operation with 
the local authorities, in particular the Brussels Region in the case of Belgium, which 
is  committed  to  facilitating  the  implementation  of  this  strategic  approach,  the 
Commission  is  in  a  unique  position  to  bring  about  a  significant  and  lasting 
improvement in the area of buildings policy to the benefit of the Institution, its staff 
and the host countries. 

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2. 

THE CURRENT SITUATION 

2.1. 

The existing situation 

2.1.1.  Brussels 

At  the  end  of  June  2007,  the  Commission  in  Brussels  occupied  approximately  865 
000 m² of space in Brussels over 61 buildings2, housing a total of almost 22 000 staff 
(officials and contract staff). The majority of buildings are small or very small (under 
15 000 m², accounting for two third of the total) and only 8 are larger than 20 000 m². 
In  Brussels,  the  Commission's  premises3  are  primarily  clustered  together  in  three 
different areas4: 
•  the "Quartier européen"5 (710 000 m2 with almost 19 000 members of staff); 
•  the Beaulieu area (80 000 m2 with 2 000 members of staff); 
•  the Rue de Genève/Da Vinci area (56 500 m2 with 1 250 members of staff). 

2.1.2.  Luxembourg 

In Luxembourg, at the end of June 2007, the Commission occupied around 125 000 
m²  of  office  space  over  5  office  buildings  housing  a  total  of  just  over  3  740  staff 
(officials  and  contract  staff).  The  Commission's  premises  are  primarily  clustered 
together  in  two  different  areas  within  Luxembourg:  the  Kirchberg  area  and  the 
Gasperich area. 

2.1.3.  General evolution 

Over  the  past  decade,  the  Commission  has  pursued  a  general  policy  of  acquiring 
buildings, principally through emphyteosis, typically over a period of 27 years. The 
current situation is nevertheless characterised by a number of weaknesses, many of 
which  have  been  identified  by  reports  from  the  European  Court  of  Auditors, 
supplemented  by  the  findings  of  the  Internal  Audit  Service  in  2007.  Despite  the 
adoption  of  communications  on  buildings  policy  in  the  past,  the  implementation  of 
the principles upon which they were based – a number of which are reflected in the 
present document – foundered on the practicalities of introducing changes across so 
many buildings, because the vast majority of buildings are too small or incapable of 
being  suitably  adapted.  In  addition,  significant  change  could  only  have  been 
introduced successfully with the active collaboration and partnership of the relevant 
host country authorities, but which was not sufficiently addressed in the past. 

2 

3 
4 

5 

Including others buildings like Conference Centre, Historical Archives, Logistic and Social Buildings. 
The office space occupied by Commission staff is 804 000 m², in 51 office buildings. 
Including offices and other facilities. 
Some buildings – such as the Historical Archives, the IT Rooms - are located in other areas, for a total 
surface of ca. 18 500 m². 
The "Quartier Européen" includes the area between Cour St Michel - Madou Tower, Boulevard Clovis 
– Square de Meeûs. 

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The  existing  approach,  as  defined  by  the  previous  Communications  on  buildings 
policy, must be reinforced and rationalised through: 

•  the definition of a sufficiently long-term planning of space requirements to avoid 
piecemeal acquisition or rental of buildings; this task will be primarily undertaken 
by the offices OIB and OIL through the Multi Annual Policy Framework (MAPF), 
that is validated by the respective Management Committees of the Offices6; 

•  increased  market  prospection,  transparency  and  competition  regarding  the 

procurement of buildings7; 

•  the limitation of buildings in the "Quartier européen" in Brussels, with a view to 

avoiding upward pressure on cost; 

•  taking into account the whole life costs of the buildings acquired, leading to large 
future  renovation  costs,  in  many  cases  before  the  end  of  purchase  or  usufruct 
contracts. A study in this respect will be undertaken and completed before the end 
of 2008; 

•  reinforcing existing efforts to reduce the atomisation of the Commission across a 
very  large  number  of  buildings,  which  has  the  effect  of  increasing  costs  of 
infrastructure  ICT  and  related  services  management,  requiring  unnecessary 
additional  space,  preventing  the  Commission  from  realising  economies  of  scale 
which  should  be  achievable  for  an  organisation  of  the  Commission's  size, 
reducing the Institution's physical symbolic impact in the host country and making 
urban planning difficult for the host countries; 

•  the  need  to  build  and  reinforce  partnerships  in  the  past  with  the  host  country 
authorities,  in  particular  the  Brussels  Capital  Region.  In  this  respect  the  Task 
Force "EU - Belgium"8 has started to play a useful role; 

•  the  need  to  further  strengthen  efforts  undertaken  so  far  to  increase  efficiency  in 
terms of energy consumption, reflecting the growing importance in recent years of 
measures to combat climate change. 

Based  on  this  approach  real  improvements  should  occur.  With  the  development  of 
much larger, more efficient buildings and the ability to gain full advantage from our 
position  in  the  property  market  by  strengthening  the  necessary  elements  of 
competition  at  different  levels  -  including  an  improved  market  prospection  -  there 
will  be  scope  for  making  much  needed  improvements  to  buildings,  so  as  to  ensure 
that they meet the needs of the Commission and its staff, and comply with policies 
advocated more generally by the EU. 

6 

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8 

As foreseen by the Commission Decision C(2003)570/5 of 22.7.2003 defining the administrative rules 
applicable to OIB. Given the budgetary impact of this type of decisions, it is proposed in addition that 
for  both  Offices  the  opinion  of  the  Management  Committees  will  be  delivered  on  the  basis  of  a 
preliminary agreement to be given by DG BUDG on the global envelope of the MAPF. 
See section 4.1. 
See section 7.1.1. 

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2.2. 

Future space requirements in Brussels and Luxembourg 

The  Commission's  space  requirements  for  the  short,  medium  and  long  term  are  the 
subject,  since  2003,  of  a  comprehensive  pluri-annual  plan9  updated  each  year  (the 
MAPF)  consistently  with  the  Commission's  Strategic  Planning  and  Programming 
cycle. This indicates m² required for each year, and indicates the expiry of purchase 
agreements,  rental  contracts  and  other  arrangements10. This  long-term  planning, 
covering a period of 15 years, will increasingly be the basic instrument to allow the 
Commission to take its major decisions in terms of strategy. All future decisions on 
the  localization,  on  new  mid-term  projects  and  the  possible  development  of  new 
pole(s) will have to be based and coherent with this planning. 

Brussels 

Over  and  above  the  2  500  staff  who  joined  or  will  be  joining  the  Commission  in 
Brussels within the period 2004-2008 as a result of the accession of 10 new Member 
States in 2004, a further 850 new staff are expected to join following the accession of 
Bulgaria  and  Romania  as  of  2007.  The  projected  growth  in  staff  numbers  will 
generate  additional  demands  with  respect  to  the  current  situation11  on  office  space 
estimated  at  approx.  35  000  m²  over  the  coming  3  years.  In  this  context,  particular 
attention will be devoted to the development of new conference facilities. 

Luxembourg 

Regarding Luxembourg, over and above the staff who joined or will be joining the 
Commission  within  the  period  2004-2008  as  a  result  of  the  accession  of  10  new 
Member States, notably within the framework of the EUR-2 enlargement 200 people 
should be housed on the site. This, with the recuperation of deficit space, represents a 
need of an increase of 12 000 m² of office space. 

The  consolidation  of  IT-infrastructure  and  the  hosting  of  the  various  Directorates 
general  Information  Systems  at  the  Data  Centre  would  require  to  take  into  account 
the  possibilities  of  a  rather  broad  extension  of  both  the  future  Data  Center  and  its 
new  back-up  centre  at  a  distance  allowing  completely  secure  telecommunications 
with  very  high  flow.  These  would  be  housed  respectively  in  new  Commission 
buildings  and  notably  in  the  Jean  Monnet  2.  A  detailed  study  evaluating  the 
cost/efficiency of this approach will be up-dated in 2007. Nevertheless, to cope with 
security contingencies, the Commission is considering the rental of "IT Rooms". 

9 

10 
11 

For  the  time  being,  this  plan  takes  into  account  only  the  spaces  that  are  needed  by  the  Commission, 
excluding Executive Agencies.  
Including renovations when the economic lifetime of the building has already been exceeded. 
See section 2.1. 

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3. 

INCREASED  EFFICIENCY  AND  COHERENCE  THROUGH  CONCENTRATION  OF 
COMMISSION SERVICES IN FEWER, LARGER BUILDINGS 

The existing property portfolio shall be rationalised significantly by concentration of 
services into a smaller number of large buildings (in principle at least 50–100 000 m² 
for  each  building  or  complex).  At  present,  the  efficiency  of  buildings  (notably  in 
terms  of  the  ratio  of  useable  net  space  to  overall  m²)  varies  widely  and  is  greatly 
limited by their small size in many cases. The dispersion of DGs in several buildings 
should be avoided to concentrate one DG in only one building and when allocating a 
new  building  a  priority  should  be  given  to  DGs  that  are  housed  in  less  efficient 
buildings. This offers considerable potential for increased efficiency (more efficient 
use of space, shared facilities, consolidated and shared ICT infrastructure and related 
services,  costs  of  controlling  access  and  security,  building  management,  water 
consumption,  heating  and  cooling,  lighting,  lifts  and  other  services)  without  any 
negative impact on staff and with the possibility of creating economies.  

4. 

IMPROVING THE COMMISSION'S CAPACITY TO ACT IN THE PROPERTY MARKET 

There  are  two  fundamental  ways  in  which  the  Commission  could  be  able  to  improve  its 
capacity to act in the property market and to gain best advantage from its relative weight in 
terms of negotiating advantageous terms on procurement and financing: 

4.1. 

Increased  competition  on  the  marketplace:  A  revised  methodology  for  buying 
and rental of buildings 

Existing procurement procedures comply fully with the requirements of the Financial 
Regulation (Article 91 of the Financial Regulation12 and Articles 116(1) and 126 (1) 
point h of Modex). However, as confirmed also by the Internal Audit Service, they 
are designed in a way that ensures neither a sufficiently high degree of transparency 
nor  all  the  necessary  elements  of  full  competition  in  order  to  ensure  best  value  for 
money. For this reason, the Commission feels the need to increase both transparency 
and hence competition in the area of procedures for renting and buying buildings. It 
is thus proposed to develop a new methodology with a view to perfecting the existing 
procedures envisaged by the legislator in order to sign a building contract, on the one 
hand  by  adding  the  element  of  systematic  market  prospection  by  means  of 
publication  of  a  buildings'  prospecting  notice,  and  on  the  other  hand  by  further 
structuring and clarifying the procedures within the Commission. 

The  proposed  methodology  set  out  in  this  Communication  aims  at  preserving  the 
necessary  discretionary  power  of  the  Commission  in  the  field  of  real  estate  public 
procurement,  while  aiming  at  the  best  price-quality  ratio.  Whilst  remaining  within 
the  scope  of  the  procedures  foreseen  by  the  Financial  Regulation  and  its 
Implementing  Rules,  the  proposed  methodology  clarifies  and  elaborates  on  the 
prospection and negotiation phases of the procedure. This choice has the advantage 
of respecting the current regulatory framework and enhancing transparency. 

12 

This article define the principles of attribution and the procedures in the area of public procurement. 

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It is also proposed to review the impact of this new methodology after three years of 
operation, with a particular attention to its efficiency. 

The proposed methodology is based on four principles: 

•  better information of the market by means of the annual publication of an estimate 
of the needs of the Commission for the current year and the following four years. 
This information will be published in the Official Journal of the EU (OJEU) and 
on  the  appropriate  Commission  websites  at  the  beginning  of  each  year;  this 
information of the market will be done in addition to a systematic market survey 
by OIB/OIL of real estate availabilities; 

•  increased  competition  among  the  market  players  by  means  of  a  systematic 
publication  in  the  OJEU  and  on  the  appropriate  Commission  websites  of  the 
specific  needs  for  any  new  real  estate  project  and  by  the  introduction  of  the 
concept  of  the  systematic  negotiation  of  the  financial  conditions  with  several 
tenderers in parallel; 

•  increased  transparency  of  the  procedure,  both  internally  and  externally,  in 

particular by the systematic publication of: 

• 
• 
• 

minimum requirements of each concrete project; 
exclusion criteria; 
the result of the procedure. 

•  greater  cooperation  and  interaction  between  the  departments  concerned  of  the 
Commission  with  the  establishment  of  a  multidisciplinary  committee,  the  Real 
Estate  Committee.  This  committee  will  be  invited  to  provide  its  opinion  to  the 
authorizing officer by delegation13 during all the phases of the methodology and 
in particular on : 

• 

• 
• 
• 

the  specifications  and  functionalities  of  each  project  before 
publication; 
the criteria that will be used to evaluate each project; 
the evaluation and the selection of the projects to be negotiated; 
the selection of the finally selected project.  

The Committee will have the possibility of requesting, at any moment and notably at 
the key phases of the procedure, internal and/or external14 expertise on any question 
of technical and/ or financial nature.  

The proposed methodology foresees six phases: 

–  Preliminary  Phase:  identification  of  multi-annual  needs  and  publication  in  the 

OJEU and on the appropriate Commission websites; 

–  Phase 1: based on the preliminary phase, identification of yearly needs; 

–  Phase 2: publication of the specific needs; 

13 
14 

The Director of OIB and the Director of OIL. 
To this end a framework contract will be concluded by OIB and OIL with specialized consultants. 

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–  Phase  3:  analysis  of  all  projects  received;  acceptance/  refusal  of  projects; 
comparative  financial  analysis  of  all  valid  offers  received  and  pre-selection  of 
three projects; 

–  Phase 4: technical analysis and financial negotiation of the three projects selected 

and identification of one project, to launch phase 5; 

–  Phase 5: technical study and analysis of budgets needs, drafting of the contract for 

the project selected under phase 4; 

–  Phase  6:  Inter  Service  Consultation  further  to  the  outcome  of  phase  5  and 

signature of the contract. 

At  the  end  of  phases  1,  3,  4  and  5,  the  Real  Estate  Committee  will  provide  an 
advisory opinion. 

The  Commission  will  retain  the  power  to  decide  at  all  moments,  and  with  due 
justification,  not  to  use  this  new  methodology  –  in  full  or  in  part  -  with  a  view  to 
ensuring the highest possible value for money. 

In  addition,  in  order  to  further  improve  transparency  and  to  fully  inform  market 
operators of the Commission's procedures, the Commission will publish in 2008 an 
Information  Guide  on  the  procedures,  explaining  the  new  methodology  and  the 
conditions applicable for leasing/purchasing buildings. The purpose of this guide will 
be twofold: 

(1) 

(2) 

It  will  bring  together  and  explain  the  internal  procedures  and  the  legal 
framework  in  which  public  contracts  for  the  lease  or  purchase  of  buildings 
have to be conducted and which stem from the Financial Regulations15. 

It will lay down the general conditions under which the Commission can buy 
or lease buildings and describe the procedures to be followed. 

4.2. 

Examining scope for better financing options and mechanisms 

A  fundamental  criterion  used  when  negotiating  buildings  is  the  cost  incurred.  The 
Commission therefore constantly monitors market trends and seeks opportunities to 
keep a good balance between space needs and budget perspectives. 

On  the  basis  of  existing  experience,  as  a  general  principle,  the  Commission  will 
pursue  its  acquisition  policy  as  defined  in  previous  years.  Over  and  above  the 
stability gained through its acquisition policy, the Commission has also put in place a 
new  way  of  funding  acquisitions,  which  is  "Deferred  payment  purchasing"16;  the 
latter is generally both legally and financially simpler to implement than the previous 
legal form of leasehold contracts (emphytéose). In any event, in order to keep certain 
flexibility, the Commission envisages keeping a number of buildings under rental or 
usufruct  status.  A  study  to  evaluate  the  correct  balance  between  acquisition  and 

15 
16 

Council Regulation (EC) No 1605/2002. 
The  deferred  payment  scheme  allows  the  Commission  to  purchase  a  building  and  pay  its  price  over 
several years (generally 27 years). The property rights are transferred to the Commission the day of the 
purchase. 

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rental  or  usufruct  will  be  finalised  by  2008.  Its  results  will  be  used  to  further 
improving the overall Commission approach in this area. 

However, in order to fully reap the potential benefits of the acquisition policy, it is 
important to fully take into account the whole life costs of buildings. The acquisition 
contracts entered into for a period of 27 years, for example, considerably exceed the 
expected  useful  life  of  office  buildings  –  estimated  around  20  years  –  before 
thorough renovation is necessary. This acquisition policy will thus impact on future 
maintenance and refurbishment costs as the Commission will have to integrate, into 
its  global  multi-annual  planning,  future  renovation  works  of  the  buildings  it  owns 
and  subsequent  temporary  housing  solutions  for  the  staff  affected  by  these  works. 
The  need  to  empty  –  even  on  a  temporary  basis  –  the  buildings  that  need  to  be 
renovated will impact on the real estate portfolio, notably as short-term rentals and/or 
sale  of  buildings  may  be  necessary  or  advisable.  To  cope  with  this  particular 
situation,  adequate  mechanisms  will  have  to  be  defined  and  examined  carefully  in 
terms of their operational, legal and fiscal feasibility.  

While acquisition will continue to be the default, the feasibility of new approaches to 
financing will be examined in detail, in parallel with the mechanisms used until now. 
These consist of two possibilities: 

•  Conclusion  of  a  lease  including  a  service  contract,  whereby  the  owner  of  a 
building would guarantee to maintain a given level of service and comfort for the 
period of the contract, or of public private partnerships. 

•  Concluding  financing  arrangements  through  the  European  Investment  Bank,  as 

recommended by the European Court of Auditors. 

5. 

STRATEGIC APPROACH ON LOCATION OF BUILDINGS 

5.1. 

The Commission in Brussels 

Due to capacity requirements and in the light of available financial resources, the Commission 
has, over a number of years, pursued a policy of limited diversification and decentralisation of 
its office space beyond the "Quartier européen", developing additional clusters in other areas 
of Brussels in which urban development is equally important. In the context of a clear long-
term  strategy,  a  revised  approach  is  now  needed.  In  this  context,  there  are  three  principal 
options: 

5.1.1.  Retain  and  redevelop  the  "Quartier  européen"  as  a  single  pole,  concentrating  all 

activity except archives and other ancillary services. 

This has the attraction of creating a strong symbolic presence in Brussels, bringing 
coherence,  identity  and  maximising  economies  of  scale.  It  would  reduce  travelling 
around Brussels, and be popular with staffs who overwhelmingly want to work in the 
European Quarter17. This would require major regrouping of existing buildings and 
construction  of  a  major  new  series  of  buildings.  However,  the  sheer  scale  of 

17 

Staff survey "The Commission's building location policy in Brussels" launched between 17 January and 
2 February 2007. 

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development will prove unfeasible unless the Commission adopts the new approach 
to use of space which would enable overall requirements to be reduced sufficiently. 
Importantly,  concentration  into  a  single  pole  would  reduce  the  Commission's  little 
flexibility  in  meeting  future  needs,  limit  somewhat  possibilities  for  expansion  and 
increase  pressure  on  property  prices.  In  addition,  it  may  make  integration  into  the 
local environment more difficult.  

5.1.2.  A multi-pole approach, based on redeveloping the "Quartier européen" as the main 
site of Commission activity, together with up to three large poles outside it. 

This  approach  would  confirm  the  "Quartier européen"  as  the  main  site  in  Brussels, 
and  will  require  major  regrouping  and  construction  there  as  in  option  5.1.1.  In 
addition, a limited number of up to 3 other poles would be developed progressively 
(in  accordance  with  the  policy  principles  set  out  in  section  6  below).  Each  pole 
should in principle have a sufficient critical mass in order to be viable and offer the 
necessary economies of scale – ranging from 100 000–250 000 m² per pole. 

The  identification  of  suitable  poles  would  need  to  be  undertaken  in  close  co-
operation  with  the  regional  and  local  authorities,  but  preliminary  examination 
indicates that there are a number of viable potential sites which could be developed 
over  the  next  5–10  years.  Whilst  this  approach  has  some  drawbacks  (additional 
travelling  between  sites,  geographical  dispersal  of  staff  and  could  entail  additional 
costs caused by the need to foresee social infrastructure -such as catering facilities- 
on the sites), it would bring significant advantages: it would meet the concerns of the 
Court of Auditors that diversification is needed in order to reduce upward pressure 
on the property market in the "Quartier européen" by introducing a strong element of 
competition;  and  the  host  country  authorities  would  welcome  the  ability  to  better 
ensure mixed land use in the "Quartier européen". 

5.1.3.  Creation  of  a  single,  new  site,  outside  the  "Quartier  européen",  for  Commission 

operations. 

This  approach  is  based  on  the  construction  of  a  new  'European  city'  on  a 
brownfield/greenfield  site  outside  the  "Quartier  européen".  It  would  have  the 
advantages  of  regrouping  all  Departments  and  staff  on  a  bespoke,  modern  site  and 
give both flexibility  and capacity  for expansion  and / or reorganization  of  services. 
Preliminary  investigation  has  shown  that  a  number  of  viable  potential  sites  exist. 
However,  this  has  some  strong  disadvantages:  the  lead  time  for  the  identification, 
planning  and  construction  is  very  long,  and  such  a  site  could  not  be  ready  in  a 
reasonable  future.  Also,  there  could  be  a  considerable  distance  between  the 
Commission and the other Institutions. 

* * * 

At  this  stage,  out  of  these  three  options,  option  5.1.2.  appears  to  be  the  preferable 
one. 

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5.2. 

The Commission in Luxembourg 

During the 1990s, the growth of employees and the need to leave  certain  buildings 
that the Commission occupied on the Plateau du Kirchberg, forced it to settle in the 
southern  area  of  the  city  –  the  so-called  Gasperich  area.  This  second  pole  of  the 
Commission  has  become  final  since  the  acquisition  of  the  EUROFORUM  building 
primarily  intended  for  the  services  of  DG  TREN  and  for  other  Commission 
departments  requiring  a  very  high  protection  level.  In  the  medium  term,  with  the 
construction of the new Jean Monnet building (the so called JMO2) on the Plateau du 
Kirchberg, the Commission envisages to abandon the small buildings it occupies on 
the site of Gasperich. 

The existing JMO1 building has an exploitation permit running to December 2014. 
Its occupation by the Commission for the period 2007-2014 is due to be formalized 
via the signature of a rental agreement with the Kirchberg 'Fonds d'Urbanisation'. 

The  JMO2  building,  with  a  total  surface  area  of  120  000  m²,  should  replace  the 
JMO1  building.  It  should  be  sited  on  the  Kirchberg  plateau  on  a  plot  likely  to  be 
offered  by  the  Luxembourg  state  to  the  Commission  for  a  symbolic  price  of  €1.  A 
Memorandum of Understanding is due to define the working arrangements between 
the Luxembourg state and the Commission. 

The social infrastructure on the Plateau du Kirchberg was built in the 1980s and will 
reach the end of its lifetime after 2010. The Commission will therefore undertake by 
the end of 2007 the preparatory studies relating to the location and to the definition 
of the needs in the next few years. Provisional solutions, such as the extension of the 
current "Centres de la Petite Enfance" are being proposed in the meantime. Also, the 
Commission should consider, with the other Institutions, the possibility to avail of an 
Inter-institutional Centre for Social activities. 

5.3. 

Agencies 

An internal general debate on the Agencies, Executives Agencies and other cases of 
required  spaces  (for  example  for  personnel  linked  to  research  program)  has  begun. 
Based  on  the  results  of  this  analysis,  all  aspects  of  buildings  policy  for  these  cases 
and  the  respective  roles  of  OIB/OIL  and  the  concerned  services  will  have  to  be 
defined.  Given  the  existing  expertise  of  OIB  and  OIL,  it  can  be  expected  that  they 
would  be  responsible  for  the  sourcing  and  management  of  office  space  for  the 
Executive Agencies on the basis of Service Level Agreements defining among others 
the remuneration of the services offered. 

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6. 

ARCHITECTURE AND BUILDINGS POLICY PRINCIPLES 

The benefits of increased efficiency from its property portfolio, coupled with a reduction in 
the number of buildings occupied, make it possible to implement a buildings policy strategy 
which is articulated around a series of interlocking policy and management principles. Taken 
together,  they  represent  a  holistic  and  sustainable  approach  which  should  facilitate  major 
improvements in the quality and nature of buildings and therefore for the working life of the 
staff  who  occupy  them.  These  principles  will  themselves  be  the  benchmarks  for  the 
construction or acquisition of new buildings, and will serve as a basis for competition among 
potential poles of Commission activity. 

First and foremost, the key objective of the Commission is to ensure high value for money for 
its real estate portfolio, both existing and future. By implementing the policy principles set out 
in  this  Communication,  the  Commission  aims  to  ensure  that  in  future  it  will  have  more 
efficient buildings to house its staff in at least the same comfort conditions, independently of 
the  building  location,  while  ultimately  respecting  the  constraints  imposed  by  the  agreement 
reached by the Member states under the financial perspectives. 

The  very  purpose  of  these  measures  is,  in  the  longer  term,  to  allow  the  Commission  to 
improve the quality of its buildings, hence increasing the value of its assets by selecting only 
buildings  of  high  quality  and  high  efficiency,  in  strategic  locations,  through  appropriate 
procedures and negotiations and in full respect of the budgetary constraints. 

6.1. 

The human and functional dimensions  

The  buildings  occupied  by  the  Commission  are  at  the  same  time  a  powerful  symbol  of  the 
Institution's presence, and have a major impact on the urban environment in which they are 
located.  Commission  buildings  should  therefore  not  be  a  blot  on  the  landscape,  but  instead 
make  a  positive  contribution  to  city  life.  As  a  key  actor  in  the  property  market,  the 
Commission will set very high standards for its own development in an effort to improve the 
quality of the neighbourhood, to convey a positive image of Europe in the eyes of citizens and 
to  ensure  a  modern  and  appropriate  working  environment  for  staff  and  visitors.  The  future 
buildings policy of the Commission should therefore be based on the following principles: 

6.1.1.  Quality of buildings 

The design of Commission buildings (and in particular flagship projects) should be 
of  a  very  high  architectural  standard  which  makes  an  appropriate  and  positive 
symbolic  statement  underlining  the  nature  of  the  Institution's  presence;  and  also 
ensures the provision of highly efficient buildings. The Commission considers that it 
will  obtain  high  quality  results  in  this  area  by  launching  and/or  participating  in  the 
selection boards of architectural competitions for all major development. The use of 
this kind of competition should not generate, in the long term, additional costs and 
must  result  in  neutrality  from  the  budgetary  point  of  view.  Costs  will  be  assessed 
against  possible  benefits  brought  in  terms  of  improvement  of  quality,  functionality 
and efficiency. 

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13 

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6.1.2. 

Integration into the urban environment 

Buildings  should  be  fully  integrated  into  the  urban  environment  in  which  they  are 
situated,  facilitating  an  appropriate  urban  mix  between  office,  residential  and 
commercial  property,  offering  public  space  and  enabling  social  integration  of 
Commission staff in the host country. Ensuring as far as possible the mixed usage of 
its  buildings  requires  close  collaboration  with  local  authorities  and  urban  planners, 
and  that the  values  represented  and  defended  by  the  European  Institutions  and  the 
image  of  the  Commission,  as  well  as  security  considerations,  be  taken  fully  into 
account. 

6.1.3.  Comfort of the working environment 

In  full  compatibility  with  the  budgetary  constraints,  appropriate  consideration  must 
be given to the physical environment in which staff work through the introduction of 
more  flexible  arrangements  where  appropriate  and  by  providing  a  pleasant,  healthy 
and modern working environment that is attractive and motivating. By all means, and 
in particular if the scenario presented under 5.1.2. will be implemented as foreseen, 
consideration should be given where appropriate to new methods of space allocation 
and furnishing, in particular to workstation design for the open-plan office. The more 
widespread  practice  of  concepts  such  as  tele-working,  flexitime  and  part-time 
working  are  expected  to  have  an  impact  on  the  office  space  needs  of  the 
Commission.  The  relevant  services  will  therefore  analyse  the  impact  of  these  new 
working  methods  both  in  terms  of  quality  of  life  at  work  and  of  possible  savings. 
They will report on the outcome of this analysis. 

Part  of  the  efficiency  gains  should  be  invested  in  improving  the  quality  of  the 
working environment and the well-being of staff – from the materials and fittings to 
office equipment. 

6.1.4.  Disabled access 

The accessibility of buildings for people with disabilities is of great importance. All 
newly acquired buildings will therefore have to be accessible to disabled people, and 
existing buildings will be progressively adapted wherever possible. 

6.1.5. 

Social Amenities 

The  Commission's  policy  for  "well-being  at  work"18  for  its  staff  has  as  one  of  its 
objectives  to  better  reconcile  private  and  professional  life,  taking  into  account 
changing attitudes to work and ways of working and changes in the respective roles 
of women and men. 

The  provision  of  high  quality  childcare  facilities  is  an  essential  component  of  the 
Commission's well-being policy. In order to keep pace with demand, for places in the 
nurseries, after-school facilities and activities during school holidays, it is clear that 
the  Commission  needs  to  continue  to  maintain  current,  and  develop  new  childcare 
facilities. 

18 

SEC(2006) 500. 

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14 

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While several temporary solutions have been found to alleviate as much as possible 
the  current  shortage  in  nursery  places,  the  Commission  must  develop  new  nursery 
projects  in  the  European  Quarter  and  in  its  immediate  neighbourhood  and/or  in 
coherence  with  the  new  pole  policy.  A  first  estimate  indicates  the  need  to  rapidly 
provide  structure/s  that  could  host  450  children.  A  document  defining  the  situation 
on  the  future  projects  of  the  nurseries  will  be  finalized  before  end  of  2007  and 
communicated to the budget authority19. 

The Commission will continue to ensure the availability of cafeterias and self-service 
restaurants in immediate or close proximity to the workplace offering staff a variety 
of high quality and healthy refreshments and meals. 

6.1.6.  European Schools and After School Facilities 

Of  key  importance  is  that  the  provision  of  European  Schools  in  Brussels  and 
Luxembourg  is  able  to  fully  meet  demand.  This  will  require  a  greater  commitment 
from  the  host  country  authorities  to  ensure  timely  planning  and  opening  of  new 
schools and to ensure that European Schools are located close to principal places of 
activity  and/or  residential  areas  where  there  is  an  existing  concentration  of 
Commission  staff,  consistently  with  this  policy.  This  approach  will  meet  the 
legitimate  needs  of  staff  and  their  children,  and  be  in  the  interests  of  reducing 
environmental pollution linked to transport (see paragraph 6.2.2 below). 

With regard to after-school care, existing facilities have been complemented with a 
provisional  solution  for  the  short  term,  while  a  central  after-school  facility  and/or 
further  facilities  in  the  future  fourth  European  School  are  envisaged  for  the  long 
term. This policy of integration of after-school facilities in the European Schools will 
be pursued. In Luxembourg, the current after school facilities will be extended in the 
next  couple  of  years.  In  addition,  in  the  period  2007-2010,  in  parallel  with  the 
construction  of  the  2nd  European  School,  a  new  integrated  facility,  comprising  day 
care and after school services, will be developed. 

6.1.7. 

Security, Safety and Health 

The health and safety of persons working in the Commission sites shall be given a 
high priority, such that compliance20 with the relevant national norms and standards 
is  achieved  and  in  line  with  the  initiatives  taken  by  the  Commission  in  the  area  of 
public  health  in  particular  in  relation  to  healthy  diets,  physical  activity  and  correct 
ergonomics at work. For  example,  the Commission is opened to analyse options to 
participate  to  a  sports  centre  at  interinstitutional  level.  Particular  attention  will  be 
paid also to air pollution related aspects. 

19 

20 

This document will highlight the specific situation of two major projects (Cornet-Leman, Wagon-Lits) 
facing a substantial delay. 
Verified by DG Admin. 

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With the significant rise in security incidents and attacks at both European and world 
level in recent years, the Commission is aware of the need to ensure that its staff and 
assets are properly protected. To this end, effective, proportionate, security measures, 
reflecting the threat assessments established for buildings and services will continue 
to be an integral part of the planning and operation of existing and new Commission 
sites.  This  will  include  ensuring  that  any  newly  constructed  buildings  will  be 
designed  in  order  to  enable  them  to  comply  with  security  requirements,  notably 
concerning access control. 

6.2. 

Reducing the Commission's carbon footprint 

Considerable  scope  exists  in  three  respects  for  further  reducing  the  Institution's  carbon 
footprint by means of its buildings policy strategy: emissions from buildings, the optimisation 
of  links  with  public  transport  and  greater  synergies  in  terms  of  buildings  management.  As 
agreed in its mid-term review of the Sixth Community Environment Action Programme21, the 
Commission  will  set  out  a  strategy  for  reducing  the  Commission's  carbon  footprint.  In  the 
building sector, this strategy will follow the principles set out in this communication. 

6.2.1.  Emissions reduction 

It is important that the Commission's existing buildings continue to reduce as far as 
possible their carbon footprint, and that new projects meet the highest environmental 
standards with the aim of being carbon neutral. This has the dual benefit of reducing 
greenhouse gas emissions as well as ongoing energy costs. 

• 

through 

For  its  existing  buildings,  the  Commission  has  long  been 
its 
to  sustainable  development  both 
committed 
legislative and political actions and in its daily management, as 
evidenced  through  its  environmental  management  initiatives 
such as the decision22 taken in September 2001 to launch a pilot 
project,  implementing  the  Eco-Management  Audit  System 
(EMAS)  Regulation23.  This  has  resulted  in  seven  buildings  in 
Brussels24  having  been  certified  as  EMAS  compliant  while 
encouraging some 3,500 staff, as well as contractors working for 
the  Commission,  to  adopt  more  environmentally  responsible 
behaviour  in  work  and  in  all  aspects  of  their  lives.  The 
Commission  aims  at  progressively  extending  EMAS  to  cover 
the Commission's main buildings, and all renovations will focus 
on energy efficiency. 

21 
22 

23 

24 

COM(2007) 225. 
Commission Decision C(2001)2591 of 7 September 2001 to engage in a process of applying the EMAS Regulation 
to its activities. 
Regulation  (EC)  761  of  the  European  Parliament  and  of  the  Council  of  Ministers  of  19  March  2001  allowing 
voluntary participation by organisations in a Community eco-management and audit scheme. 
BERL, BRE2, BU-5/9, GUIM, HTWG, MO34 and SC11. 

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• 

For  new  constructions  and  renovations,  the  Commission  will 
follow  an  integrated,  synergistic  approach  that  considers  all 
phases  of  the  building's  life  cycle,  from  use  of  reusable  or 
recyclable  materials  during  construction  to  the  rational  use  of 
natural  resources  such  as  energy  (as  defined  in  Directive 
2002/91/EC). 

6.2.2.  Mobility 

In  terms  of  mobility,  the  location  of  buildings  and  their  integration  into  the  public 
transport network is an important factor in reducing the environmental impact of the 
Commission  and  its  staff.  Main  Commission  buildings  and  poles  of  Commission 
activity  should  therefore  be  located  close  to  public  transport  hubs  including  rail, 
metro  or  light  rail,  or  have  a  high  level  of  access  to  public  transport  links.  This 
should enable the use of public transport both to and from work as well as between 
Commission  buildings  and  the  other  EU  Institutions,  and  to  European  Schools  and 
crèches. In this context, the Commission stresses its view that not only crèches but 
also the European Schools should be located close to the main places of activity or 
the main areas where staff live in order to help reduce the transport impact (and help 
staff reconcile their working and family lives). 

Buildings  should  also  be  accessible  safely  by  bicycle,  ideally  as  part  of  the  local 
network of cycle paths. In this context it is vital that the country authorities take the 
necessary steps to ensure the availability of sufficient public transport links and other 
infrastructure,  as  part  of  the  Commission's  existing  Plan  for  Staff  Mobility  2006-
200925 for Brussels, which supports and complements existing initiatives to promote 
the  use  of  public  and  other  sustainable  means  of  transport.  Further  steps  should  be 
taken  to  build  on  the  Eurobus  initiative  in  Brussels  and  on  the  agreement  with  the 
Luxembourg city authorities concerning the use of public transport by Commission 
staff. 

6.2.3. 

Synergies in buildings management 

Use  should  be  made  where  possible  of  latest  technological  developments,  in 
particular through the use of integrated platforms over internet protocol, in order to 
integrate  the  different  buildings  management  systems  (alarms,  IT  networks,  access 
control,  maintenance  and  operation  etc.)  to  facilitate  the  integrated  management  of 
Commission  buildings.  The  introduction  of  common  systems  has  the  potential  to 
further reduce energy consumption, but also to generate other savings through more 
efficient management and operation of buildings. 

25 

SEC(2006) 344 – 14.3.2006. 

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7. 

IMPLEMENTING THE COMMISSION'S BUILDINGS POLICY 

7.1. 

Cooperation with the stakeholders 

7.1.1.  Co-operation with Belgian Authorities 

The Commission places great importance on improving the quality of life for both its 
staff and local residents in the European district. In order to achieve this ambition the 
Commission  seeks  to  improve  the  physical  appearance  and  urban  integration  of  its 
buildings in Brussels. This can however only be done with the support of the Belgian 
authorities, which is a critical success factor for the implementation of this strategy.  

The  Commission  therefore  invites  the  Belgian  authorities  to  further  reinforce  their 
coordination  at  all  levels  to  ensure  increased  consistency  between  the  different 
components  of  the  policy  of  hosting  of  the  European  institutions  in  Belgium. 
Particular reference is made here to the need to integrate into the concept of presence 
of the European institutions in Belgium both the office (infrastructure and logistics) 
and staff dimensions. The latter includes notably crèches and garderies (for which the 
European  Commission  is  responsible,  but  for  which  the  Belgian  authorities  have  a 
role to play with respect to building availability – notably as they have to grant the 
necessary authorisations) and the European Schools (for which the host country has 
clearly defined obligations under intergovernmental convention). 

Also,  the  Commission  relies  heavily  on  the  Belgian  authorities  to  undertake  the 
necessary  measures  to  improve  overall  transport  mobility  impacting  on  the 
Commission  and  its  staff.  The  absence  of  competencies  of  the  Commission  and  its 
limited  margin  of  manoeuvre  in  this  area  make  it  indispensable  for  the  Belgian 
authorities to further develop new visions and projects. 

The Commission will continue actively to participate in initiatives such as the Task 
Force  EU-Belgium  which  was  set  up  to  facilitate  dialogue  between  the  Institutions 
and the host country authorities, and the "Fonds Quartier européen" (set up under the 
auspices of the King Baudouin Foundation) which  promotes co-operation,  dialogue 
and  exchange,  and  increases  transparency.  In  this  context,  it  will  call  upon  the 
Belgian  authorities  to  designate  the  appropriate  bodies  to  address  a  number  of 
operational issues and to help it monitoring progress in solving them. 

7.1.2.  Co-operation with Luxembourg authorities 

Relations  with  the  Luxembourg  authorities  take  place  via  the  Ministry  for  Foreign 
Affairs,  which  ensure  coordination  with  the  other  national  ministries  or  public 
bodies.  The  Secretary-General  of  the  Ministry  for  Foreign  Affairs  regularly 
participates  in  the  meetings  of  the  Heads  of  Administration  of  the  European 
Institutions  and  bodies  located  in  Luxembourg.  This  allows  coordination  in  the 
building policy area both among the Institutions and with the local authorities. With 
regard to the latter, the Commission invites the Luxembourg authorities to maintain 
the  existing  cooperation  with  a  view  to  find  constructive  solutions  to  all  pending 
issues. 

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7.1.3.  Co-operating with the other European Institutions 

The  Commission  has  long  and  fruitful  experience  of  co-operation  with  the  other 
institutions  and  intends  to  continue  to  do  so.  In  terms  of  inter-institutional  co-
operation  it  is  clear  from  the  Commission's  contacts  that  there  is  broad  satisfaction 
with the services it provides to other EU Institutions. There is, however, a consensus 
that inter-institutional cooperation in the areas managed by the Commission Offices 
for  Infrastructure  and  Logistics  Brussels  and  Luxembourg,  should  proceed  in  a 
demand-driven way, with no obligation on institutions to work together unless they 
elect to do so voluntarily. There is no immediate demand by the other Institutions for 
a  fully-fledged  inter-institutional  office  to  be  established  to  manage  the  activities 
currently  delivered  by  the  Commission  Offices.  Nonetheless,  the  Commission 
remains  open  to  discussions  on  possible  future  avenues  of  co-operation,  based  on 
concrete initiatives aimed at enhancing economies of scale; in this context, it would 
be  important  to  define  –  on  a  case-by-case  basis  -  the  respective  roles  and 
responsibilities,  including  the  workload  and  advantages  for  each  of  the  Institutions 
concerned. 

7.2. 

Revision of building standards and housing conditions 

In order to ensure that the key policy principles presented in this Communication are 
implemented, the architectural requirements of the Commission's building policy will 
be laid down in a new document on "Architectural policy" which will be developed 
by the end of 2008 to complement the Building Standards Manual (MIT)26. The latter 
will also be reviewed, to take account of the latest technological developments and 
orientations in term of health and safety. In addition, the Commission's services will 
adopt  a  Housing  Conditions  Manual  (HCM)  which  harmonises  the  rules  and 
technical  criteria  for  the  allocation  of  space  to  the  Commission's  Directorates-
General or Services in both Brussels and Luxembourg and will also develop a new 
programme to assess and improve where necessary the 'good state' of its buildings. In 
the  proposed  methodology  all  new  projects  will  be  assessed  against  the  reference 
standards and norms set in the MIT and in the HCM. 

26 

This  Manual  which  was  updated  in  June  2004  is  the  reference  document  and  tool  to  assess  the  degree  to  which 
buildings  or  projects  proposed  to  the  Commission  comply  with  quantifiable  criteria,  relating  in  particular  to 
technical requirements, comfort and safety. 

EN 

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