Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions - Final evaluation of the implementation of the multiannual Community Programme on promoting safer use of the Internet and new online technologies
Date: 2009-02-18
Institutions: European Commission
Subjects: EU programme, Internet, child protection, project evaluation

EN 

EN 

   EN 

 
 
COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 18.2.2009 
COM(2009) 64 final 

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

Final evaluation 
of the implementation of the multiannual Community Programme on promoting 
safer use of the Internet and new online technologies 

EN 

   EN 

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

Final evaluation 
of the implementation of the multiannual Community Programme on promoting 
safer use of the Internet and new online technologies 

1. 

INTRODUCTION 

This Communication concerns the final evaluation of the multiannual Safer Internet 
plus programme (2005-2008) referred to in this communication as "the programme". 

The  objective  of  the  programme,  as  specified  in  the  European  Parliament  and 
Council  Decision1,  was  promoting  safer  use  of  the  Internet  and  new  online 
technologies, particularly for children, and to fight against illegal content and content 
unwanted by the end-user.  

The  programme  ran  over  a  four-year  period  from  1  January  2005  to  31  December 
2008 with a reference budget of 45 million euro. 

The programme was implemented through four main action lines: 

– 

– 

– 

– 

fighting against illegal content; 

tackling unwanted and harmful content; 

promoting a safer environment; 

awareness-raising. 

By  comparison  with  the  preceding  Safer  Internet  Action  Plan,  the  coverage  was 
extended  to  include  online  technologies,  including  mobile  and  broadband  content, 
online  games,  peer-to-peer  file  transfer,  and  all  forms  of  real-time  communications 
such  as  chat  rooms  and  instant  messages  primarily  with  the  aim  of  improving  the 
protection  of  children  and  minors.  A  broader  range  of  areas  of  illegal  and  harmful 
content and conduct of concern were covered, including racism and violence. 

The main mechanism for implementing the programme has been the co-financing of 
projects selected on the basis of public calls for proposals. This has resulted in a wide 
range of projects being funded under the various action lines, complemented by non-
funded activities as appropriate.  

1 

Decision No. 854/2005/EC of 11 May 2005 of the European Parliament and of the Council published in 
OJ L149 of 11.6.2005, p. 1 

EN 

2 

   EN 

 
 
                                                 
The programme co-funds the INSAFE network of awareness nodes for carrying out 
awareness  actions  designed  to  reach  children,  families  and  schools,  and  helplines 
where children can raise concerns related to their use of online technologies, and the 
INHOPE network of hotlines allowing internet users to report illegal content2. 

The  programme  further  supports  thematic  networks  bringing  together  different 
stakeholders  such  as  researchers,  non-governmental  organisations  (NGOs)  and  law 
enforcement  agencies  in  order  to  facilitate  dialogue  and  exchange  of  best  practice, 
targeted  projects  aiming  at  enhancing  the  analysis  of  illegal  material  by  law 
enforcement agencies and projects for knowledge enhancement on various aspects of 
children's,  parents  and  offenders'  use  of  the  Internet.  The  EU  Kids  Online  project 
provides new knowledge about children's and parent's experiences of risk and safety, 
and  a  successor  project  will  address  the  lack  of  comparative  data  which  this  has 
identified.  A  second  project  will  enhance  the  knowledge  of  online-related  sexual 
abuse of children by conducting qualitative research into adult offending.3  

Two  Eurobarometer  surveys,  with  the  purpose  of  exploring  the  attitude  of  EU 
citizens towards  illegal and harmful content and their knowledge  of  how to protect 
themselves,  were  conducted  under  the  auspices  of  the  programme  and  a  further 
survey will be carried out during autumn 2008.  

In addition, the Commission has carried out a study into the effectiveness of filtering 
software.  Among  other  results  of  the  Programme,  Safer  Internet  Day  is  celebrated 
world-wide  in  February  and  56  countries  took  part  in  2008.  The  Commission  has 
instituted  a  dialogue  with  industry  and  civil  society  to  foster  self-regulation.  The 
mobile  phone  industry  adopted  a  European  Framework  for  Safer  Mobile  use  by 
younger  teenagers  and  children  in  2007.  The  annual  Safer  Internet  Forum  is  a 
recognised meeting-point for all stakeholders, with discussion of topical issues. 

According to Article 5 of the Programme Decision, the Commission shall submit to 
the  European  Parliament  and  the  Council,  at  the  end  of  the  programme,  a  final 
evaluation report on the results obtained in implementing the programme.  

The  evaluation  was  conducted  by  a  panel  of  three  independent  experts4  during  the 
period  May  to  July  2008,  in  close  collaboration  with  the  Commission  services 
concerned5. 

2. 

EVALUATION OBJECTIVES 

The evaluation assessed the following specific issues: relevance of the programme's 
objectives,  priorities  and  means  of  implementation,  the  effectiveness  of  the 
programme,  its  achievements,  its  impact,  its  sustainability  and  its  complementarity 
with  other  initiatives  within  and  external  to  the  European  Union,  as  well  as  with 
national initiatives. 

2 

3 
4 
5 

By the end of 2008, taking account of projects under negotiation, there will be 27 awareness nodes in 
25 Member States and Iceland and Norway, 21 helplines and 24 hotlines. 
A full list of projects co-funded by the programme can be found at http://ec.euroapa.eu/saferinternet  
The experts were appointed on the basis of a restricted call for tenders launched in spring 2008. 
DG INFSO Units C3 and E6 

EN 

3 

   EN 

 
                                                 
3. 

EVALUATION FINDINGS 

The evaluators found that the programme has been successful in achieving the stated 
objectives  as  set  out  in  the  original  Programme  Decision  and  in  subsequent  annual 
work programmes. It has contributed to achieving a safer Internet through a range of 
interventions  and  produced  a  significant  impact  and  influence.  Feedback  from 
stakeholders shows clear appreciation of the programme, particularly the knowledge 
sharing  opportunities  which  it  provides,  and  in  emphasizing  the  importance  of  the 
work continuing. 

More specifically it was concluded that: 

The  Commission  has  been  able  to  adapt  the  priorities  of  the  programme  to 
respond  to  changing  challenges  and  needs  and  that  the  programme  has  managed 
successfully to ensure that the themes and actions are relevant to the dynamic social 
and technological environment within which it operates.  

The geographical scope of the programme is another area where the programme has 
responded in a timely and effective way. The rapid geographic growth of the EU has 
been mirrored quickly to include new member states in its activities.  

The  programme  has  further  a  high  degree  of  relevance  in  its  recent  focus  on 
consulting  children  and  young  people  and  ensuring  that  both  their  rights  and  their 
opinions are a priority within all aspects of the programme. 

The  management  of  the  programme  has  been  efficient  and  effective.  There  are 
hotlines  and  awareness  nodes  in  almost  all  members  states,  a  number  of  thematic 
networks  have  been  established,  and  work  is  continuing  on  developing  technical 
solutions  in  areas  such  as  image  recognition.  However,  the  detailed  level  of 
effectiveness  within  the  broad  programme  objectives  has  been  more  difficult  to 
quantify, and it is important to collect and analyse more measurable data in follow-
up initiatives in order to ensure the effectiveness and impact of funded activities.  

The  programme  demonstrates  considerable  achievements.  Not  only  has  it 
continued  to  keep  the  issue  of  safer  Internet  high  on  the  agenda  of  policy  makers 
across  Europe  and  beyond,  but  it  has  also  become  a  driver  for  action  outside  the 
European context. The programme's experiences and best practices are seen as very 
helpful  and  stimulating  by  other  countries  which  are  confronted  by  similar 
challenges. The very broad international membership of INHOPE is also a testament 
to the standing of the programme in the wider internet community.  

The  networking  opportunity  provided  by  the  programme  is  highly  valued  by  many 
stakeholders,  who  emphasize  the  fact  that  the  programme  enables  sectors  to  work 
together  who  would  otherwise  not  have  joined  forces,  for  example  major  telecoms 
providers and NGOs. 

The  expansion  of  the  two  networks  to  cover  virtually  the  whole  European  area  as 
well as countries further afield is an undoubted achievement. The INSAFE network 
has  grown  from  a  coverage  of  21  countries  in  2006  to  34  countries  in  2008.  The 
INHOPE  network  has  had  a  similar  growth,  with  13  members  joining  during  the 
period of the programme, bringing the total membership to 33. 

EN 

4 

   EN 

 
Another  achievement  is  the  extent  to  which  the  programme  has  encouraged 
collection and analysis of a huge body of research of safer Internet issues by the EU 
Kids Online network. 

Successful  work  has  been  undertaken  in  the  area  of  fostering  dialogue  within  and 
between different sectors, and in encouraging the mobile phone industry in its efforts 
to adopt effective self-regulatory mechanisms on protecting minors. 

As  regards  the  awareness  activities,  the  Safer  Internet  Day  has  been  an  undoubted 
success – the event has grown in terms of numbers and geographical scope year on 
year, with an increasingly international focus and impressive level press and media 
coverage. 

In terms of the impact of the programme the consistent approach and messages 
across  Europe  are  an  important  factor  for  the  high  level  of  success  of  the 
programme.  

However, the visibility of the programme would be enhanced by greater online and 
offline  presence  and  promotion.  A  greater  consistency  in  branding  would  assist  in 
establishing  the  identity  and  credibility  of  the  programme  within  different  sectors, 
countries and regions. 

The sustainability of the programme itself is robust. It is, however, important to 
monitor  the  function  of  the  networks  to  ensure  that  the  model  is  still  the  most 
appropriate  one.  In  particular,  the  requirement  for  hotlines,  awareness  nodes  and 
helplines  to  form  combined  nodes  at  the  national  level  in  order  to  increase 
effectiveness  and  efficiency  also  raises  the  question  of  whether  the  two  networks 
should  be  required  to  combine  in  a  single  organisation  to  coordinate  all  activities 
across Europe. 

The  programme  offers  complementarity  with  a  range  of  initiatives  within  and 
external  to  the  EU  as  well  as  with  national  initiatives  within  most  member 
states, particularly with regard to fighting illegal content, promoting media literacy 
and affirming children's rights. 

There is a clear emphasis among stakeholders on the importance of the programme 
as a catalyst for international and national involvement. Where there was no previous 
national engagement, it helped to put the issues on the agenda and bring stakeholders 
to  the  table.  In  countries  where  organisations  had  already  started  working  on  these 
issues,  the  programme  helped  to  co-ordinate  the  approach  and  gave  credibility  to 
organisations  that  might  otherwise  have  found  it  difficult  to  get  the  attention  of 
national authorities and industry. 

4. 

EVALUATION RECOMMENDATIONS 

The evaluation report makes a number of recommendations to be taken into account 
for future work: 

(1) 

The rights and privacy of children, young people and other legitimate Internet 
users  should  be  protected  and  promoted  within  all  activities  of  the 

EN 

5 

   EN 

 
(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

Programme.  The  involvement  of  young  people  themselves  in  discussion, 
design and delivery of solutions could be further intensified. 

Continued  efforts  could  be  made  to  achieve  active  support  and  involvement 
for  the  Programme  and  individual  projects  on  a  national  level  from  all 
relevant sectors. This should be reflected in the creation of multi-stakeholder 
networks  at  the  European  level  in  order  to  bring  together  different 
constituencies. 

Co-operation and collaboration with third countries, both within and outside 
Europe,  on  a  policy  and  operational  level  should  be  given  a  high  priority, 
particularly  with  regard  to  identifying,  tracing  and  eradicating  illegal  child 
abuse images. 

Enhanced dialogue and cooperation should be established among the various 
EU  initiatives  with  an  intersection  of  interests  or  the  potential  for 
collaboration with the Safer Internet plus programme in order to identify new 
areas  of  synergy  and  innovation  and  to  improve  the  effectiveness  of  the 
individual programmes. 

Future  solutions  should  continue  to  take  into  account  national,  cultural, 
linguistic and socio-demographic factors, particularly for new, candidate and 
accession countries, to ensure that interventions are relevant and valid. 

The  technical  knowledge  base  of  the  Programme  should  be  further 
strengthened  in  order  to  retain  a  high  level  of  current  knowledge  and 
credibility. 

The Programme would probably benefit from a more consistent ‘brand’ with 
quality control measures in place for internal and partner websites and other 
resources. More proactive use should be made of the press and media across 
Europe. 

Further  knowledge  enhancement  activity  could  be  conducted  in  two  key 
areas:  problematic,  risky  and  criminal  online  behaviours  on  the  part  of 
children and young people themselves; the underlying reasons for the trends 
identified by INHOPE in respect of illegal content. 

The roles of the two networks (INHOPE and INSAFE) should be re-visited to 
ensure they offer the most appropriate mechanism for co-ordinating the work 
of national nodes. Consideration should be given to the question of whether 
the  two  networks  should  be  merged  to  reflect  the  emphasis  on  combined 
hotline,  awareness  and  helpline  activity  and  to  deal  adequately  with  the 
planned  extension  of  the  scope  of  the  programme  to  include  cyber-bullying 
and grooming. 

(10)  A high priority should be given to raising the visibility of hotlines, which still 
suffer  from  low  levels  of  public  awareness.  The  visibility  of  helplines  also 
needs attention in order to provide European citizens with appropriate contact 
points, and to complement the work of the hotlines by dealing with issues of a 
broader nature. 

EN 

6 

   EN 

 
(11)  The Programme could engage more actively with industry. Priority should be 
given  to  establishing  a  common  code  of  practice  among  Internet  Service 
Providers  throughout  Europe,  along  the  lines  of  the  Framework  Agreement 
signed by mobile network operators. 

5. 

COMMISSION COMMENTS AND CONCLUSION 

The  Commission  takes  full  note  of  the  findings  of  the  final  evaluation  of  the 
programme and will take the recommendations into account when implementing the 
follow-up  programme.  Progress  already  made 
the 
recommendations will be reinforced. 

in  areas  mentioned  by 

In  the  light  of  the  Commission's  responses  to  the  evaluators'  report,  it  invites  the 
European  Parliament,  the  Council,  the  European  Economic  and  Social  Committee 
and the Committee of the Regions to: 

(1) 

(2) 

Take note that the programme has been successfully implemented; 

Assist  the  Commission  in  its  work  of  increasing  the  visibility  of  the  Safer 
Internet  programme  and  stimulate  a  continued  dialogue  on  safer  Internet 
issues. 

EN 

7 

   EN