Commission Report to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - Final evaluation of the "Youth" Community action programme (2000-2006) and of the Community action programme to promote bodies active at European level in the field of youth (2004-2006)
Date: 2008-06-26
Institutions: European Commission
Subjects: EU programme, European citizenship, economic support, non-governmental organisation, project evaluation, young person, youth policy

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 26.6.2008 
COM(2008) 398 final 

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

Final evaluation of the "Youth" Community action programme (2000-2006) and of the 
Community action programme to promote bodies active at European level in the field of 
youth (2004-2006)  

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

Final evaluation of the "Youth" Community action programme (2000-2006) and of the 
Community action programme to promote bodies active at European level in the field of 
youth (2004-2006)  

1. 

INTRODUCTION 

From 2000 to 2006, there were two types of Community action for youth: 

•  support  for  projects  covered  by  Decision  No  1031/2000/EC  of  the  European  Parliament 
and  of  the  Council  of  13  April  2000  establishing  the  "Youth"  Community  action 
programme1 

•  contributions  to  the  operating  costs  of  European  youth  NGOs  and  the  European  Youth 
Forum  (EYF).  Between  2004  and  2006,  this  support  was  covered  by  Decision  No 
2006/2004/EC  of  the  European  Parliament  and  of  the  Council  of  21  April  2004 
establishing a Community action programme to promote bodies active at European level in 
the field of youth2. 

Given  the  concomitant  final  evaluation  of  the  two  instruments  and  the  fact  that  they  were 
merged into one programme as of 2007, the Commission has drafted a single report to present 
the  conclusions  drawn  from  the  evaluations  and  the  recommendations  to  be  applied  to  the 
Youth in Action programme (2007-2013). 

The evaluations can be consulted at: 

http://ec.europa.eu/dgs/education_culture/evalreports/index_en.htm#youthHeader 

1 
2 

OJ L 117, 18.5.2000, p. 1. 
OJ L 138, 30.4.2004, p. 24. 

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2. 

REMINDER OF THE PROGRAMME OBJECTIVES 

2.1. 

Youth Programme 

The objectives of the "Youth" programme were to promote the active contribution of young 
people to the building of Europe, strengthen their sense of solidarity, encourage their spirit of 
initiative  and  enterprise  and  their  creativity,  and  reinforce  cooperation  in  the  field  of  youth. 
These objectives have been pursued through various actions: 

•  Youth for Europe, which supported youth exchanges; 

•  European voluntary service (EVS), which allowed young people to participate in voluntary 

work in a country other than their own; 

•  youth initiatives to support innovation and creativity, centred on the social commitment of 

young people; 

•  activities to be undertaken jointly with other Community schemes relating to the Europe of 

knowledge, in particular Socrates and Leonardo; 

•  accompanying measures to finance various support measures, particularly the training and 

cooperation of stakeholders in youth policy. 

As many subsidies were granted and close proximity to the beneficiaries was necessary, the 
programme  was  generally  managed  in  a  "decentralised"  manner  by  national  agencies  (NA). 
Some NAs, in addition to their mission as an NA for their country, provided support for all 
the NAs by developing a special area of competence; this function is called SALTO (Support, 
Advanced  Learning  and  Training  Opportunities).  The  programme  also  supported  centres 
providing information on Europe-wide opportunities for young people (the Eurodesk network, 
with a relay in each country). 

Some  strands  of  the  programme  required  "centralised"  management  at  European  level,  for 
which  the  Commission  used  a  Technical  Assistance  Office  (TAO)  until  2006,  when  the 
Education,  Audiovisual  and  Culture  Executive  Agency  was  created  (EACEA),  with  a 
department which took over the responsibility for managing these actions. 

Available budget for 2000-2006 (commitment appropriations in EUR million) 

EU budget 

Other contributions (EFTA/EEA and candidate countries) 

Total 

Of which: budget used 

624.2 

90.6 

714.8 

701.4 

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Estimated number of participants 2000-2006 (thousands) 

Youth exchanges 

European Voluntary Service 

Youth initiatives 

Accompanying measures 

Total 

465.8 

25.7 

153.4 

206.9 

851.8 

2.2. 

Programme for the promotion of bodies active in the field of youth  

The  general  aim  of  the  programme  was  to  provide  operating  grants  as  support  for  the 
activities of international youth NGOs and the EYF (a platform uniting almost one hundred 
youth  organisations).  These  activities  were  to  contribute  in  particular  to  the  active 
participation of young people in public life and society and to the development of Community 
cooperation actions in the field of youth.  

All programme management was "centralised". 

Available budget for 2004-2006 (commitment appropriations in EUR million) 

EU budget 

Other contributions (EFTA/EEA and candidate countries) 

Total 

Of which: budget used 

Number of subsidies granted, 2004-2006 

To the European Youth Forum 

To European youth NGOs 

3. 

EVALUATION 

3.1. 

Procedures 

12.9 

0.2 

13.1 

12.9 

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234 

The final evaluation of the "Youth" programme is based on: 

•  evaluation reports from the Member States (MS) and other participating countries;  

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•  a  report  drawn  up  by  an  external  evaluation  service  which,  in  addition  to  the 
aforementioned  national  reports,  used  the  results  of  its  own  research,  conducted  in 
particular using questionnaires sent to the main stakeholders. This external evaluation was 
carried out by ECORYS, under a framework contract concluded with the Commission in 
2006 following a call for tenders. 

The final evaluation of the programme for the promotion of bodies active in the field of youth 
is  based  on  a  report  written  by  an  external  evaluation  service  called  "The  Evaluation 
Partnership", selected following a restricted call for tenders launched in 2006. 

3.2.  Methods 

The process chosen for the external evaluation of "Youth" comprised the following activities: 
a  desk-based  study;  the  definition  of  indicators;  interviews;  questionnaire-based  Internet 
surveys;  country  studies.  Approximately  2 500  youth  organisations,  900  youth  participants 
and 450 youth workers responded to the questionnaires, which proved particularly useful. 

The  process  chosen  for  the  other  programme  comprised  a  desk-based  study,  online 
questionnaires,  discussion  groups,  direct  interviews  and  the  submission  of  short  electronic 
questionnaires. 

3.3. 

The evaluators' conclusions 

The evaluations of the two programmes were very positive in a number of aspects. 

The "Youth" programme corresponded well to overall EU youth policy. It met the needs of 
most  of  the  beneficiaries.  For  young  people,  it  was  effective  as  far  as  their  sense  of 
citizenship,  including  European  citizenship,  was  concerned,  and  also  as  regarded  career 
guidance and heightening young people's sense of solidarity; it was less effective in reaching 
out  to  young  people  with  fewer  opportunities.  It  had  significant  positive  results  for  youth 
workers  and  generated  knock-on  positive  effects  for  youth  organisations.  The  evaluators  of 
the  other  programme  note  that  it  has  succeeded  in  familiarising  its  beneficiaries  with  the 
European vision and the European institutions. 

The  funding  available  for  "Youth"  was  sufficient,  although  some  national  reports 
recommended  increasing  it.  Overall,  the  structures  created  for  programme  management  are 
deemed to be appropriate and efficient. The main recommendations for improvement concern 
the  SALTOs  and  Eurodesks,  and  also  the  general  methods  for  monitoring  programme 
implementation. 

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3.3.1.  Complementarity and relevance of "Youth" 

EU  policy  action  in  favour  of  youth  progressed  during  the  "Youth"  implementation  period, 
thanks in particular to the 2001 White Paper, "A new impetus for European youth"3 and the 
European Youth Pact of 20054. The evaluators underline the fact that "Youth" complements 
the objectives of this policy action. 

They observe only partial complementarity with Socrates and Leonardo; cooperation between 
these programmes could have been better developed. 

"Youth"  is  generally  considered  to  be  complementary  to  national  youth  instruments.  The 
programme  successfully  targeted  the  needs  of  most  beneficiaries,  especially  young  people. 
Youth  workers  likewise  found  the  programme  to  be  of  great  value;  however,  greater 
flexibility would make it easier to meet their needs. 

3.3.2.  Efficiency of "Youth" 

The  programme  is  considered  to  have  been  very  successful  in  improving  the  sense  of 
citizenship  of  the  young  participants,  in  particular  in  terms  of  attitude,  communication  and 
social skills. 

90% of the participants in exchanges declare that they have become more tolerant. 

The programme effectively strengthened participants' feeling of belonging to the EU. 

As  regards  active  participation,  many  young  people  stayed  or  became  active  in  local  or 
international organisations once their activities had ended. Although this is not always due to 
the  programme,  around  one  third  of  participants  say  that  they  became  involved  in 
international activities through it. 

Participation in the programme affects the employability of young people, particularly young 
volunteers. It influences education choices. 

62% of volunteers report an influence on their professional career. 

Young  people  say  that  they  have  a  greater  sense  of  solidarity  since  participating  in  the 
programme. 

3 
4 

COM(2001)681 final, 21.11.2001. 
Adopted by the European Council in March 2005. 

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The programme was only moderately successful in reaching out to young people with fewer 
opportunities (21% for the exchanges and 13% for the EVS). The participants generally have 
a high level of education. The programme was effective in terms of gender equality. 

Among  youth  workers,  the  programme  created  greater  awareness  of  the  intercultural 
dimension and contact with new working methods. 

91%  of  youth  workers  who  participated  in  the  programme  report  added  value  over 
other training which they have received. 

The  evaluators  consider  that  accompanying  measures  effectively  support  the  professional 
development  of  youth  workers,  e.g.  greater  involvement  in  European  networks.  However, 
greater  attention  to  the  needs  of  youth  workers  would  increase  the  practical  use  of  the 
knowledge  acquired.  Furthermore,  youth  workers  are  not  sufficiently  informed  of  the 
possibilities offered by the programme. 

Lastly, indirect positive effects are observed, such as a more international perspective in the 
organisations which took on volunteers. 

3.3.3.  Usefulness and durability of "Youth" 

The  programme  encouraged  non-formal  learning.  It  had  a  bigger  impact  on  professional 
practices  among  young  people  than  on  youth  policy:  it  had  no  significant  effect  on  policy 
(although some impact was noted in the new MS) and seems to have had a greater influence 
in terms of innovative approaches. 

79%  of  youth  organisations  which  took  part  in  a  EVS  project  consider  that  the 
project fostered the exchange of good practices. 

According to the organisations asked, the programme contributed to the establishment of new 
international contacts between organisations, even if contacts already existed. The programme 
was able to help strengthen these networks and encourage their continuing existence. 

In general, there is no real influence on the administrative structures within the MS, except in 
a few new MS. The programme does not seem to have helped reduce administrative obstacles 
to mobility. 

3.3.4.  The Efficiency of "Youth" 

While  the  funding  allocated  to  the  decentralised  parts  of  the  programme  is  generally 
considered  to  be  appropriate,  around  half  of  the  national  authorities  and  the  NAs  deem  it 
necessary to increase the budget earmarked for youth exchanges and around one third want to 
see  an  increase  in  the  budget  for  accompanying  measures.  The  external  evaluators  consider 
that more funding should be allocated to the functioning of the NAs to develop activities such 

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as their advisory role, which is important if we are to prevent project submission procedures 
from having a negative effect on the accessibility of the programme. 

In general, the management structures are considered to be effective, although there is room 
for improvement. It is too early to draw conclusions as to the efficiency of the EACEA which 
replaced the old TAO in 2006. It is thought that good use is made of the NAs, although the 
Commission  is  sometimes  late  in  releasing  the  funds  that  they  manage.  The  main  remarks 
concern the SALTOs and the Eurodesks. The SALTOs are seen as be suitable structures and 
the  importance  of  their  work  is  recognised;  however,  there  is  still  room  for  improvement. 
More critical comments were made about the role and added value of the Eurodesks, and the 
evaluators consider that their activities need to be re-examined. 

It would a good idea to improve the visibility of the programme, particularly in order for it to 
target young people with fewer opportunities more successfully. 

Lastly, progress will be necessary in order to ensure better follow-up to the programme, on 
the basis of rationalised procedures, instruments and indicators. 

3.3.5.  Convergence of opinions on the impact of the programme 

The  national  evaluations  show  notable  convergence  with  each  other  and  also  with  the 
evaluation conducted at European level, particularly as regards the impact of the programme. 

According to the national reports, the programme had a clear impact on knowledge, skills and 
attitudes liable to improve the employability of young people and their sense of citizenship; 
the main impact is on a personal level. 

These reports stress the contribution made to non-formal learning among young people: "The 
main  element  in  this  programme  is  non-formal  learning.  (...)  the  projects  supported  by  the 
programme target learning rather than "happenings" devoid of any real interest. Non-formal 
learning shows that learning also takes place outside institutional structures like school." (NO) 
"Participation in the 'Youth' programme (...) is good on a CV and can be of interest to future 
employers." (DK) "Participation in the 'Youth' programme is generally perceived as a boost to 
employability as it develops basic skills." (UK) 

They stress the contribution to the development of citizenship and intercultural dialogue: "All 
the  actions  (...)  have  had  tangible,  lasting  effects:  greater  willingness  to  become  socially 
involved,  learn  foreign  languages  and  work  in  a  foreign  (European)  country,  and  a  better 
understanding  of  foreign  cultures.  At  the  same  time,  it  has  been  possible  to  successfully 
combat xenophobia." (DE) "The personal contact established between participants and young 
people of the same age in another country (...) goes beyond the normal encounters made on 
holiday or visits and creates new intensive opportunities for experience and learning." (LU) 

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They underline that the benefit of participating in the programme is primarily on a personal 
level: "Learning is mainly 'tacit learning', and life skills (...) such as making friends, learning a 
language, or vaguer issues such as learning (...) about new cultures, being more open to other 
"cultures",  (...)  to  others,  being  able  to  see  one's  own  situation  and  that  of  others  more 
impartially,  etc." (BE-NL)  "... for many [of the participants],  the experience  gained  through 
the  programme  brought  about  a  certain  degree  of  change  in  their  lives  (e.g.  greater 
independence, improved self-image, new vision of the world) and also influenced life choices: 
e.g. active citizenship and new school or professional prospects." (BE-FR) 

Mobility  plays  an  important  role  in  this  learning:  "Before  the  exchanges,  many  participants 
had never been outside Ireland." (IE) "For some young people with fewer opportunities, the 
youth exchange was their first trip abroad." (EE) 

Practically all the reports conclude that the programme had an overall positive effect on youth 
workers  and  youth  organisations:  "The  programme  led  to  the  professionalisation  of 
organisations  in  the  European  field,  which  also  benefited  youth  professionals  who  provide 
information,  advice  and  support  for  young  people  in  their  projects."  (FR)  "Youth 
organisations  benefit  in  particular  from  the  deepening  of  contacts  and  international 
partnerships." (AT) "The programme (...) enhanced the European dimension of the activities 
conducted  by  the  responsible  organisations,  encouraging  team  spirit  and  also  a  non-
discriminatory, professional attitude to Community activities." (SI) "The 'Youth' programme 
gives organisations publicity and improves their image... The fact that the 'Youth' programme 
is an EU programme contributes significantly to increasing its prestige." (PL) 

They  point  out  that  the  programme  encouraged  networking:  "70  per  cent  of  respondents 
confirm  that  they  would  never  have  taken  the  initiative  to  engage  in  European  cooperation 
without the 'Youth' programme. (...) 40 per cent of organisations admit that their participation 
in  'Youth'  is  their  only  European  experience."  (BE-NL)  "Youth  workers  (...)  and  their 
organisations and groups have developed functional partnerships in almost all the countries of 
the programme." (CZ) 

The impact on national policy is considerable in the new MS: "The 'Youth' programme (...) 
had an unquestionably positive impact on the attitudes and skills of young people (...) and also 
on the development of national youth policy and legislation." (SK) "The 'Youth' programme 
as a Community activity is a source of information on how youth policies are pursued in other 
EU Member States." (PL) 

The evaluations portrayed the various actions of the programme and their characteristics in a 
positive  light:  "Improvements  in  the  experience  and  self-esteem  of  the  volunteers  and  their 
enlarged  network  of  European  contacts  probably  have  a  more  long-term  impact  than,  for 
example, youth exchanges. But it is very possible that some participants in youth exchanges 
also had positive impressions which could stay with them all their lives." (SE) 

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3.3.6.  Main  conclusions  of  the  evaluation  of  the  programme  for  the  promotion  of  bodies 

active in the field of youth  

The  programme  familiarised  young  people  with  the  European  project  and  the  European 
institutions.  Its  aims  clearly  reflected  the  objectives  and  working  methods  of  NGOs.  Its 
purpose  extended  beyond  the  provision  of  financial  aid  (strengthening  the  image  and 
administrative ability of the beneficiaries). The need to have a broad network has encouraged 
NGOs to extend beyond their countries of origin. 

Over  40%  of  the  beneficiaries  who  responded  think  that  they  would  not  have  been  able  to 
survive without the EU aid, which suggests that the programme is often perceived as the only 
means of financing, although it is possible that the beneficiaries overestimate the impact of an 
absence of aid; the grants provided may be taking the place of financing available elsewhere. 
The programme attracted small NGOs, which are in the greatest need of support. To a certain 
extent, it encouraged the NGOs and the EYF to reach out to young people not yet involved in 
an organisation. 

The evaluators consider that the grants helped to increase the credibility and visibility of the 
NGOs and the EYF in the eyes of their members and potential sponsors, but it is difficult to 
tell  whether  this  has  improved  their  image  vis-à-vis  young  people  in  general.  65%  of  the 
NGOs  asked  confirm  that  they  have  not  needed  to  change  the  purpose  or  structure  of  their 
organisation  in  order  to  take  part  in  the  programme,  and  that  the  programme  did  not 
significantly  affect  the  number  of  their  activities,  but  allowed  them  to  be  conducted  more 
professionally. 

The support given to the EYF does not necessarily affect the ability of its members to involve 
more  young  people  or  be  more  efficient  in  finding  funding.  The  grants  did  not  always  lead 
young  people  to  become  more  personally  involved  in  European  affairs,  but  they  did 
encourage the members of the EYF to stay better informed. 

More  than  50%  of  those  who  responded  to  the  survey  found  the  application  procedure 
complex  but  bearable.  Very  few  applications  were  refused  for  reasons  of  quality,  but  many 
were  refused  for  non-compliance  with  the  administrative  requirements.  The  participants 
would like to be able to receive multi-annual grants.  

The  programme  strengthened  NGOs  and  the  EYF,  thus  corresponding  to  the  Commission 
philosophy,  which  places  NGOs  at  the  heart  of  its  strategy  for  the  involvement  of  civil 
society. 

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4. 

MAIN RECOMMENDATIONS – COMMENTS BY THE COMMISSION 

4.1. 

Ensure the greater inclusion of young people with fewer opportunities  

A strategy should be developed to reach more young people with a lower level of education. 
This  can  also  be  done  through  a  publicity  strategy  targeting  all  potential  programme 
participants as directly as possible. 

The  Commission  has  developed  an  inclusion  strategy  to  increase  the  participation  of  more 
disadvantaged  young  people;  their  involvement  is  identified  as  an  award  criterion  for  the 
actions concerned. It has made it easier to measure the degree of participation of these young 
people. Lastly, it will follow this recommendation in its information strategy. 

4.2. 

Ensure more involvement of young people in the preparation of projects 

Participants  should  be  involved  in  preparing  the  projects  more  often.  Offering  training 
focused on the preparation, organisation and implementation of projects would support this 
objective. 

In  the  advice  it  offers,  the  Programme  Guide  stresses  the  importance  of  involving  young 
people. The financing rules sometimes offer the possibility for the young people who will be 
involved in projects to take part in preparatory visits. 

4.3. 

Provide better support for youth workers 

Improved  evaluation  of  the  needs  of  training  providers  is  recommended,  in  the  aim  of 
developing training courses which are more tailor-made. 

The Commission will take account of this recommendation in its reflections on the SALTOs 
and will examine how to ensure better consultation of youth workers on the format, content, 
methodology, implementation, monitoring and evaluation of the training courses. 

4.4. 

Improve support for promoters 

The  NAs  have  an  important  assistance  role  to  play.  It  would  be  useful  to  identify  the  main 
obstacles encountered when submitting a project. 

The Commission has reasserted the "supportive approach" principle, through which the NAs 
provide assistance to the promoters, so that the programme is accessible to as many people as 
possible and achieves the aim of being open to young people with fewer opportunities. It has 
clarified the criteria and conditions for participation in the programme. It will work together 
with the NAs to examine how to identify the main difficulties still perceived by promoters. 

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4.5. 

Strengthen the efficiency of NGO and EYF action 

Reports  on  the  activities  of  the  NGOs  and  the  EYF  should  focus  on  the  measurement  and 
evaluation  of  practical  details.  The  NGOs  and  the  EYF  could  establish  mechanisms  for 
measuring  participants'  satisfaction.  They  could  encourage  their  members  to  involve  young 
people with no prior experience in policymaking or in the NGOs; the EYF could define best 
practices for the consultation of young people by its member organisations. The Commission 
should continue to assist promoters in their applications, and there should be wider publicity 
for this potential support. 

The Commission agrees to these recommendations. 

4.6. 

Improve project monitoring  

The efforts already made to collect data on the implementation of the programme should be 
built  on.  It  is  suggested  that  the  data  on  the  centralised  and  decentralised  strands  be 
integrated into one single monitoring system. 

The  Commission  will  develop  a  strategy  for  the  continuous  evaluation  of  the  programme, 
identifying  indicators  to  be  monitored.  It  has  undertaken  to  improve  the  IT  tools  which  the 
NAs are required to use. It will take care to integrate information from the NAs and also from 
centralised management into this system. 

4.7. 

Raise the profile of the programme  

The  profile  of  the  programme  should  be  raised  in  order  to  broaden  the  aims  of  its  young 
participants and better inform youth workers of the possibilities on offer. Greater attention to 
the exchange of best practices would also help to achieve a higher profile. 

The Commission is developing an information strategy to make the programme and its results 
more  widely  known.  Preliminary  measures  have  already  been  taken:  improvement  of  the 
website presenting the programme; a requirement for promoters to work at raising its profile; 
the development of a database accessible to everyone using information on project results. 

4.8.  More resources for the NAs 

Some  NAs  lack  the  means  to  offer  sufficient  support  for  promoters.  They  need  to  be  given 
more resources. 

The Commission, while taking care to limit the administrative costs of the programme, will 
examine how to act on this recommendation when preparing the 2009 budget.  

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4.9. 

Accelerate the disbursement of funding to the NAs 

It is recommended that the Commission disburse funds to the NAs without delay. 

The  changes  made  when  Youth  in  Action  entered  into  force  streamline  the  procedures 
governing the disbursement of funds to the NAs. The Commission has undertaken to transfer 
the funds before May, when projects from the first annual selection phase start. 

4.10.  Re-examine the activities of the SALTOs 

The SALTOs are generally considered to be appropriate structures, although certain aspects 
should be reviewed. 

The Commission will think about adjustments which should be made. 

4.11.  Re-examine the activities of the Eurodesks 

Although the Eurodesks are generally considered to be efficient, there are doubts concerning 
the added value which they bring to the programme. A review of their activities would make 
their work more relevant. 

The Commission agrees to this recommendation, although it points out that the usefulness of 
the Eurodesks is not determined solely by the information they provide on the programme. 

5. 

THE COMMISSION'S CONCLUSIONS 

The  Commission  agrees  with  the  positive  assessment  made  by  the  evaluators  of  the 
implementation of the two programmes. It is convinced that the programmes were efficient in 
supporting  young  participants  as  regards  their  personal  development,  their  employability 
(through  the  non-formal  learning  opportunities)  and  the  development  of  their  sense  of 
citizenship and solidarity; it is also aware of the positive impact these programmes have on 
the  main  intermediaries  in  a  successful  youth  policy,  namely  youth  workers  and  youth 
organisations. 

These  results  back  up  the  conclusions  from  other  analyses  which  led  the  Commission  to 
propose  continuing  the  most  promising  actions  from  former  programmes  through  Youth  in 
Action. 

The  recommendations  which  have  been  put  forward,  which  the  Commission  intends  to 
implement,  should  further  reinforce  the  impact  of  the  Youth  in  Action  programme  in  the 
future. 

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