Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions A Digital Agenda for Europe
Date: 2010-05-19
Institutions: European Commission
Subjects: EU programme, Internet, digital technology, disclosure of information, information processing, information technology, new technology, radio telecommunications, transmission network

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EUROPEAN COMMISSION 

Brussels, 19.5.2010 
COM(2010)245 final 

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

A Digital Agenda for Europe 

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

A Digital Agenda for Europe 

TABLE OF CONTENTS 

1. 

2. 

2.1. 

2.2. 

2.3. 

2.4. 

2.5. 

2.6. 

2.7. 

2.8. 

3. 

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

The action areas of the Digital Agenda........................................................................ 7 

A vibrant digital single market..................................................................................... 7 

Interoperability and standards .................................................................................... 14 

Trust and security....................................................................................................... 16 

Fast and ultra fast internet access............................................................................... 18 

Research and innovation ............................................................................................ 21 

Enhancing digital literacy, skills and inclusion.......................................................... 24 

ICT-enabled benefits for EU society.......................................................................... 27 

International aspects of the Digital Agenda ............................................................... 33 

Implementation and governance ................................................................................ 35 

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1. 

INTRODUCTION 

The overall aim of the Digital Agenda is to deliver sustainable economic and social 
benefits  from  a  digital  single  market  based  on  fast  and  ultra  fast  internet  and 
interoperable applications.  

The  crisis  has  wiped  out  years  of  economic  and  social  progress  and  exposed 
structural weaknesses in Europe's economy. Europe's primary goal today must be to 
get  Europe  back  on  track.  To  achieve  a  sustainable  future,  it  must  already  look 
beyond  the  short  term.  Faced  with  demographic  ageing  and  global  competition  we 
have  three  options:  work  harder,  work  longer  or  work  smarter.  We  will  probably 
have  to  do  all  three,  but  the  third  option  is  the  only  way  to  guarantee  increasing 
standards of life for Europeans. To achieve this, the Digital Agenda makes proposals 
for  actions  that  need  to  be  taken  urgently  to  get  Europe  on  track  for  smart, 
sustainable and inclusive growth. Its proposals will set the scene for the longer-term 
transformations that the increasingly digital economy and society will bring about. 

The  European  Commission  launched  in  March  2010  the  Europe  2020  Strategy1  to 
exit  the  crisis  and  prepare  the  EU  economy  for  the  challenges  of  the  next  decade. 
Europe  2020  sets  out  a  vision  to  achieve  high  levels  of  employment,  a  low  carbon 
economy,  productivity  and  social  cohesion,  to  be  implemented  through  concrete 
actions at EU and national levels. This battle for growth and jobs requires ownership 
at top political level and mobilisation from all actors across Europe. 

The Digital Agenda for Europe is one of the seven flagship initiatives of the Europe 
2020 Strategy, set out to define the key enabling role that the use of Information and 
Communication Technologies (ICT) will have to play if Europe wants to succeed in 
its ambitions for 20202. 

The  objective  of  this  Agenda  is  to  chart  a  course  to  maximise  the  social  and 
economic  potential  of  ICT,  most  notably  the  internet,  a  vital  medium  of  economic 
and  societal  activity:  for  doing  business,  working,  playing,  communicating  and 
expressing ourselves freely. Successful delivery of this Agenda will spur innovation, 
economic  growth  and  improvements  in  daily  life  for  both  citizens  and  businesses. 
Wider  deployment  and  more  effective  use  of  digital  technologies  will  thus  enable 
Europe to address its key challenges and will provide Europeans with a better quality 
of  life  through,  for  example,  better  health  care,  safer  and  more  efficient  transport 
solutions, cleaner environment, new media opportunities and easier access to public 
services and cultural content.  

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EUROPE 2020 - A strategy for smart, sustainable and inclusive growth - COM(2010) 2020. 
The  Digital  Agenda  is  built  upon  wide  consultations,  in  particular  on  inputs  from  the  Digital 
Competitiveness Report 2009 - COM(2009) 390; the Commission's 2009 public consultation on future 
ICT priorities; the Conclusions of the TTE Council of December 2009, the Europe 2020 consultation 
and strategy; and the ICT Industry Partnership Contribution to the Spanish Presidency Digital Europe 
Strategy:, the own-initiative report of the European Parliament on 2015.eu and the Declaration agreed at 
the informal Ministerial meeting in Granada in April 2010. All these are available at: 
http://ec.europa.eu/information_society/eeurope/i2010/index_en.htm. 

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The ICT sector is directly responsible for 5% of European GDP, with a market value 
of € 660 billion annually, but it contributes far more to overall productivity growth 
(20% directly from the ICT sector and 30% from ICT investments). This is because 
of  the  high  levels  of  dynamism  and  innovation  inherent  in  the  sector,  and  the 
enabling role the sector plays in changing how other sectors do business. At the same 
time,  the  social  impact  of  ICT  has  become  significant  –  for  example,  the  fact  that 
there  are  more  than  250  million  daily  internet  users  in  Europe  and  virtually  all 
Europeans own mobile phones has changed life style. 

The  development  of  high-speed  networks  today  is  having  the  same  revolutionary 
impact  as  the  development  of  electricity  and  transportation  networks  had  a  century 
ago.  With  the  on-going  developments  in  consumer  electronics,  the  lines  between 
digital  devices  are  fading  away.  Services  are  converging  and  moving  from  the 
physical  into  the  digital  world,  universally  accessible  on  any  device,  be  it  a 
smartphone, tablet, personal computer, digital radio or high-definition television. It is 
projected  that  by  2020  digital  content  and  applications  will  be  almost  entirely 
delivered online. 

This  great  potential  of  ICT  can  be  mobilised  through  a  well-functioning  virtuous 
cycle  of  activity.  Attractive  content  and  services  need  to  be  made  available  in  an 
interoperable and borderless internet environment. This stimulates demand for higher 
speeds and capacity, which in turn creates the business case for investments in faster 
networks. The deployment and take-up of faster networks in turn opens the way for 
innovative services exploiting higher speeds. This process is illustrated in the outer 
ring of Figure 1 (below). 

Figure 1: Virtuous cycle of the digital economy 

This  flow  of  activity  can  be  largely  self  reinforcing.  It  requires  a  business 
the 
environment 

investments  and  entrepreneurship.  But  while 

that  fosters 

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transformational power of ICT is clear, serious challenges must also be confronted in 
order  to  harness  it.  Although  a  digital  way  of  life  is  emerging  for  many  European 
citizens, on the basis of technology which declares its “worldwide”, borderless reach, 
they cannot accept that a single market designed before the internet is still seriously 
incomplete  online.  People’s  enjoyment  of  digital  technologies,  be  it  as  citizens, 
consumers  or  workers,  is  marred  by  privacy  and  security  concerns,  by  insufficient 
internet  access,  insufficient  usability,  by  lack  of  relevant  skills  or  by  lack  of 
accessibility for all. Europeans are frustrated when ICT do not deliver their promise 
of  better  public  services.  They  are  concerned  that,  as  the  internet  has  accelerated 
competition for investments, jobs and economic influence at a global level, Europe is 
not  equipping  itself  adequately  to  prosper  in  this  growth  sector  of  the  knowledge 
economy. 

Based  on  consultation  with  stakeholders  and  on  the  insights  contained  in  both  the 
Granada  Declaration  and  the  European  Parliament  Resolution,  the  Commission  has 
identified  the  seven  most  significant  obstacles. These are listed in the inner  ring of 
Figure  1,  and  briefly  described  below.  On  their  own  or  in  combination,  these 
obstacles  seriously  undermine  efforts  to  exploit  ICT,  making  clear  the  need  for  a 
comprehensive  and  united  policy  response  at  the  European  level.  They  show  that 
Europe is lagging behind its industrial partners. Today there are four times as many 
music  downloads  in  the  US  as  in  the  EU  because  of  the  lack  of  legal  offers  and 
fragmented markets; 30% of Europeans have still never used the internet; Europe has 
only 1% penetration of fibre-based high-speed networks whereas Japan is at 12% and 
South Korea is at 15%; and EU spending on ICT research and development stands at 
only 40% of US levels. 

•  Fragmented digital markets 

Europe is still a patchwork of national online markets, and Europeans are prevented 
by  solvable  problems  from  enjoying  the  benefits  of  a  digital  single  market. 
Commercial  and  cultural  content  and  services  need  to  flow  across  borders;  this 
should  be  achieved  by  eliminating  regulatory  barriers  and  facilitating  electronic 
payments and invoicing, dispute resolution and customer trust. More can and must be 
done  under  the  current  regulatory  framework  to  weave  a  single  market  in  the 
telecoms sector.  

•  Lack of interoperability 

Europe does not yet reap the maximum benefit from interoperability. Weaknesses in 
standard-setting,  public  procurement  and  coordination  between  public  authorities 
prevent  digital  services  and  devices  used  by  Europeans  from  working  together  as 
well as they should. The Digital Agenda can only take off if its different parts and 
applications are interoperable and based on standards and open platforms. 

•  Rising cybercrime and risk of low trust in networks 

Europeans  will  not  engage  in  ever  more  sophisticated  online  activities,  unless  they 
feel  that  they,  or  their  children,  can  fully  rely  upon  their  networks.  Europe  must 
therefore address the rise of new forms of crime - "cybercrime" - ranging from child 
abuse  to  identity  theft  and  cyber-attacks,  and  develop  responsive  mechanisms.  In 
parallel,  the  multiplication  of  databases  and  new  technologies  allowing  remote 

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control  of  individuals  raise  new  challenges  to  the  protection  of  Europeans' 
fundamental rights to personal data and privacy. The internet has now become such a 
critical  information  infrastructure  for  individuals  as  much  as  for  the  European 
economy  at  large,  that  our  IT  systems  and  networks  must  be  made  resilient  and 
secure to all sort of new threats. 

•  Lack of investment in networks 

More  needs  to  be  done  to  ensure  the  roll-out  and  take-up  of  broadband  for  all,  at 
increasing  speeds,  through  both  fixed  and  wireless  technologies,  and  to  facilitate 
investment in the new very fast open and competitive internet networks that will be 
the  arteries  of  a  future  economy.  Our  action  needs  to  be  focused  on  providing  the 
right incentives to stimulate private investment, complemented by carefully targeted 
public  investments,  without  re-monopolising  our  networks,  as  well  as  improving 
spectrum allocation. 

•  Insufficient research and innovation efforts 

Europe  continues  to  under-invest,  fragment  its  efforts,  under-use  the  creativity  of 
SMEs and fail to convert the intellectual advantage of research into the competitive 
advantage  of  market-based  innovations.  We  need  to  build  on  the  talent  of  our 
researchers  to  deliver  an  innovation  ecosystem  where  European  based  ICT 
companies of all sizes can develop world-class products that will generate demand. 
We  therefore  need  to  address  the  suboptimal  character  of  current  research  and 
innovation  efforts  by  leveraging  more  private  investment,  better  coordinating  and 
pooling  of  resources,  ‘lighter  and  faster’  access  of  digital  SMEs  to  Union  research 
funds, joint research infrastructures and innovation clusters and the development of 
standards and open platforms for new applications and services. 

•  Lack of digital literacy and skills  

Europe  is  suffering  from  a  growing  professional  ICT  skills  shortage  and  a  digital 
literacy  deficit.  These  failings  are  excluding  many  citizens  from  the  digital  society 
and  economy  and  are  holding  back  the  large  multiplier  effect  of  ICT  take-up  to 
productivity  growth.  This  requires  a  coordinated  reaction,  with  Member  States  and 
other stakeholders at its centre. 

•  Missed opportunities in addressing societal challenges 

By harnessing the full potential of ICT, Europe could much better address some of its 
most  acute  societal  challenges:  climate  change  and  other  pressures  on  our 
environment, an ageing population and rising health costs, developing more efficient 
public  services  and  integrating  people  with  disabilities,  digitising  Europe's  cultural 
heritage and making it available to this and future generations, etc. 

The  Digital  Agenda  for  Europe  frames  its  key  actions  around  the  need  to 
systematically tackle these seven problem areas, which as a horizontal initiative 
spans, the three growth dimensions set out in Europe 2020. These problem areas 
are developed in more detail in the individual sections below, demonstrating the 
pressing  need  for  the  actions  identified  as  a  set  of  positive  agendas  to  boost 

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Europe’s  social  and  economic  performance.  The  Commission  will  remain 
vigilant for the emergence of additional obstacles and will react accordingly. 

The Digital Agenda will require a sustained level of commitment at both EU and 
Member  State  levels  (including  at  regional  level).  It  cannot  succeed  without  a 
major  contribution  by  other  stakeholders,  including  young  “digital  natives” 
who have much to teach us. This Agenda is a snapshot of actual and foreseeable 
problems and opportunities, and will evolve in the light of experience and of the 
rapid changes in technology and society. 

2. 

THE ACTION AREAS OF THE DIGITAL AGENDA 

2.1. 

A vibrant digital single market 

It is time for a new single market to deliver the benefits of the digital era. 

The internet is borderless, but online markets, both globally and in the EU, are still 
separated  by  multiple  barriers  affecting  not  only  access  to  pan-European  telecom 
services  but  also  to  what  should  be  global  internet  services  and  content.  This  is 
untenable.  First,  the  creation  of  attractive  online  content  and  services  and  its  free 
circulation  inside  the  EU  and  across  its  borders  are  fundamental  to  stimulate  the 
virtuous  cycle  of  demand.  However,  persistent  fragmentation  is  stifling  Europe's 
competitiveness in the digital economy. It is therefore not surprising that the EU is 
falling  behind  in  markets  such  as  media  services,  both  in  terms  of  what  consumers 
can access, and in terms of business models that can create jobs in Europe. Most of 
the  recent  successful  internet  businesses  (such  as  Google,  eBay,  Amazon  and 
Facebook)  originate  outside  of  Europe3.  Second,  despite  the  body  of  key  single 
market  legislation  on  eCommerce,  eInvoicing  and  eSignatures,  transactions  in  the 
digital  environment  are  still  too  complex,  with  inconsistent  implementation  of  the 
rules  across  Member  States.  Third,  consumers  and  businesses  are  still  faced  with 
considerable uncertainty about their rights and legal protection when doing business 
on line. Fourth, Europe is far from having a single market for telecom services. The 
single market therefore needs a fundamental update to bring it into the internet era. 

Tackling these problems requires extensive actions in the areas described below: 

2.1.1.  Opening up access to content  

Consumers expect, rightly, that they can access content online at least as effectively 
as  in  the  offline  world.  Europe  lacks  a  unified  market  in  the  content  sector.  For 
instance,  to  set-up  a  pan-European  service  an  online  music  store  would  have  to 
negotiate  with  numerous  rights  management  societies  based  in  27  countries. 
Consumers can buy CDs in every shop but are often unable to buy music from online 
platforms  across  the  EU  because  rights  are  licensed  on  a  national  basis.  This 
contrasts  with  the  relatively  simple  business  environment  and  distribution  channels 
in other regions, notably the US, and reflects other fragmented markets such as those 
in Asia (Figure 2).  

3 

Only  one  of  the  nine  ICT  applications  companies  present  in  the  Financial  Times  Global  500  list  is 
European; only four of the top 54 websites visited across Europe are of European origin. 

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to 

To maintain the trust of right-holders and users and facilitate cross-border licensing, 
the  governance  and  transparency  of  collective  rights  management  needs  to 
improve  and  adapt 
technological  progress.  Easier,  more  uniform  and 
technologically neutral solutions for cross-border and  pan-European  licensing in 
the  audiovisual  sector  will  stimulate  creativity  and  help  the  content  producers  and 
broadcasters, to the benefit of European citizens. Such solutions should preserve the 
contractual freedom of  right holders. Right holders would not be obliged to license 
for all European territories, but would remain free to restrict their licenses to certain 
territories and to contractually set the level of licence fees.  

If  need  be,  additional  measures  will  be  examined  which  take  into  account  the 
specificities  of  all  the  different  forms  of  online  content.  In  this  regard,  the 
Commission  does  not  exclude  or  favour  at  this  stage  any  particular  option  or  legal 
instrument. These issues have also been addressed by Professor Monti in his report 
"A new strategy for the Single Market", presented to the President of the European 
Commission  on  9  May  2010,  on  which  the  Commission  will  follow  up  with  a 
Communication before the summer 2010.4 

Digital  distribution  of  cultural,  journalistic  and  creative  content,  being  cheaper  and 
quicker,  enables  authors  and  content  providers  to  reach  new  and  larger  audiences. 
Europe  needs  to  push  ahead  with  the  creation,  production  and  distribution  (on  all 
platforms)  of  digital  content.  For  instance,  Europe  has  strong  publishers  but  more 
competitive online platforms are needed. This requires innovative business models, 
through which content would be accessed and paid for in many different ways, that 
achieve a fair balance between right-holders' revenues and the general public's access 
to  content  and  knowledge.  Legislation  may  not  be  necessary  to  enable  such  new 
business models to prosper if all stakeholders cooperate on a contractual basis. The 
availability of a wide and attractive legal online legal offer would also be an effective 
response to piracy. 

4 

See  http://ec.europa.eu/commission_2010-2014/president/news/press-releases/pdf/20100510_1_en.pdf, 
chapter 2.3 

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Figure 2: Music downloads - US level four times bigger than the EU 

 Music single downloads per quarter (in millions)

350,0

300,0

250,0

200,0

150,0

100,0

50,0

0,0

Q1

Q2

Q3

Q4

Q1

Q2

Q3

Q4

Q1

Q2

Q3

Q4

Q1

Q2

Q3

Q4

Q1

Q2

2005

2006

Europe

2007

2008

2009

USA

Asia

Source: Screen Digest 

Public authorities should play their part in promoting markets for online content. The 
challenges  of  convergence  should  be  addressed  in  all  reviews  of  public  policy, 
including  tax  matters.  For  example,  governments  can  stimulate  content  markets  by 
making  public  sector  information  available  on  transparent,  effective,  non-
discriminatory terms. This is an important  source  of potential  growth of innovative 
online  services.  The  re-use  of  these  information  resources  has  been  partly 
harmonised5,  but  additionally  public  bodies  must  be  obliged  to  open  up  data 
resources for cross-border applications and services6. 

The Commission will: 

ACTIONS 

•  Key  Action  1:  Simplify  copyright  clearance,  management  and  cross-border 

licensing by 

•  Enhancing  the  governance,  transparency  and  pan  European  licensing  for 
(online)  rights  management  by  proposing  a  framework  Directive  on 
collective rights management by 2010; 

•  Create  a  legal  framework  to  facilitate  the  digitisation  and  dissemination  of 
cultural  works  in  Europe  by  proposing  a  Directive  on  orphan  works  by 
2010, to conduct a dialogue with stakeholders with a view to further measures 
on out-of print works, complemented by rights information databases; 

•  By  2012,  review  the  Directive  on  Re-Use  of  Public  Sector  Information, 

notably its scope and principles on charging for access and use; 

•  Other actions: 

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Directive 2003/98/EC on the re-use of public sector information. 
This  revision  will  also  take  into  account  the  recent  OECD  Recommendation  of  the  Council  for 
Enhanced Access and More Effective Use of Public Sector Information. 

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•  After  an  extensive  stakeholder  dialogue,  report  by  2012  on  the  need  for 
additional  measures  beyond  collective  rights  management  allowing  EU 
citizens,  online  content  services  providers  and  right-holders  to  benefit  from 
the full potential of the digital internal market, including measures to promote 
cross-border  and  pan-European  licenses,  without  excluding  or  favouring  at 
this stage any possible legal option; 

•  In  preparation  thereof,  issue  a  Green  Paper  addressing  the  opportunities  and 
challenges  of  online  distribution  of  audiovisual  works  and  other  creative 
content by 2010; 

•  On the basis of the review of the Directive on the enforcement of intellectual 
property rights, and following extensive stakeholder dialogue, report by 2012 
on  the  need  for  additional  measures  to  reinforce  the  protection  against 
persistent violations of intellectual property rights in the online environment, 
consistent  with  the  guarantees  provided  in  the  Telecoms  Framework  and 
fundamental rights on data protection and privacy. 

2.1.2.  Making online and cross border transactions straightforward  

European consumers are still not getting the gains of price and choice that the single 
market should offer because online transactions are too complicated. Fragmentation 
also  limits  demand  for  cross-border  eCommerce  transactions.  Less  than  one  in  ten 
eCommerce  transactions  are  cross-border,  and  Europeans  often  find  it  easier  to 
conduct  a  cross-border  transaction  with  a  US  business  than  with  one  from  another 
European country. As many as 92% of individuals who order goods or services over 
the internet do so from national sellers, rather than cross-border. Technical or legal 
reasons,  such  as  refusal  of  non-domestic  credit  cards,  cause  as  many  as  60%  of 
attempted cross-border  internet shopping  orders to fail. This highlights the urgency 
of  tackling  the  regulatory  barriers  holding  back  European  businesses  from  trading 
cross-border.  The  Commission  identified  these  barriers  in  the  Communication  on 
Cross-Border Business to Consumer e-Commerce in the EU7. 

Europe  has  a  common  currency  but  the  market  for  electronic  payments  and 
eInvoicing is still fragmented along national borders. Only in an integrated payment 
market will it be possible for enterprises and consumers to rely on safe and efficient 
payment methods8. This is why the Single Euro Payment Area (SEPA) should be 
completed without delay. SEPA will also provide a launch platform for value added 
services  linked  to  payments,  such  as  the  development  of  a  European  eInvoicing 
framework. 

The  e-money  Directive9  should  be  swiftly  implemented  so  as  to  open  the  way  for 
new market entrants to offer innovative e-money solutions – such as mobile wallets - 
without a loss of protection of consumer funds. This new market could be as large as 
€ 10 billion by 2012. 

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Cross-Border Business to Consumer e-Commerce in the EU - COM(2009) 557. 
E-payment  and  e-invoicing  are  prerequisites  for  e-Justice  such  as  small  claims  procedures  or  online 
payment of procedural costs. 
Directive 2009/110/EC on the taking up, pursuit and prudential supervision of the business of electronic 
money institution. 

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Electronic  identity  (eID)  technologies  and  authentication  services  are  essential  for 
transactions  on  the  internet  both  in  the  private  and  public  sectors.  Today  the  most 
common way to authenticate is the use of passwords. For many applications this may 
be  sufficient,  but  more  secure  solutions  are  increasingly  needed10.  As  there  will  be 
many  solutions,  industry,  supported  by  policy  actions  –  in  particular  eGovernment 
services  -  should  ensure  interoperability  based  on  standards  and  open  development 
platforms.  

The Commission will: 

ACTIONS 

•  Key  Action  2:  Ensure  the  completion  of  the  Single  Euro  Payment  Area  (SEPA), 
eventually by binding legal measures fixing an end date for migration before 2010 and 
facilitate  the  emergence  of  an  interoperable  European  eInvoicing framework  through  a 
Communication on eInvoicing and by establishing a multistakeholder forum; 

•  Key Action 3: In 2011 propose a revision of the eSignature Directive with a view to 
provide  a  legal  framework  for  cross-border  recognition  and  interoperability  of  secure 
eAuthentication systems; 

•  Other actions: 

•  Evaluate  by  end  2010  the  impact  of  the  e-Commerce  Directive  on  online 

markets and make concrete proposals. 

Member States should: 

•  Implement  swiftly  and  coherently  the  key  Directives  supporting  the  digital  single 
market,  including  the  Services  Directive,  Unfair  Commercial  Practices  Directive  and 
the Telecoms Framework; 

•  Transpose  by  2013  the  VAT  Directive11  ensuring  equal  treatment  for  eInvoicing  with 

paper invoices. 

2.1.3.  Building digital confidence  

Today, under EU law, citizens in the EU enjoy a series of rights that are relevant to 
the digital environment, such as freedom of expression and information, protection of 
personal data and privacy, requirements for transparency and universal telephone and 
functional internet services and a minimum quality of service. 

However,  these  rights  are  scattered  across  various  laws  and  are  not  always  easy  to 
grasp.  Users  must  be  able  to  find  simple,  codified  explanations  of  their  rights  and 
obligations,  set  out  in  a  transparent  and  understandable  way,  e.g.  via  online 
platforms, building on the prototype of the eYou Guide12.  

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Which  is  why  the  Commission  has  proposed  a  European Strategy  on  Identity  Management  under  the 
Stockholm Programme - COM(2010) 171. 
Amending Directive 2006/112/EC, as proposed by the Commission in 2009. 
http://www.ec.europa.eu/eyouguide. 

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A  lack  of  trust  in  the  online  environment  is  meanwhile  seriously  hampering  the 
development of Europe's online economy. Among people who did not order online in 
2009,  the top  reasons were:  payment security concerns, privacy concerns, and  trust 
concerns  (Figure  3,  below).  The  ongoing  general  review  of  the  data  protection 
regulatory  framework  aims  to  modernise  all  relevant  legal  instruments  to  meet  the 
challenges of globalisation and to create technology neutral ways of enhancing trust 
and confidence by strengthening citizens' rights. 

Figure  3:  Reasons  for  not  buying  online  (%  of  individuals  who  have  not  ordered 
online in 2009) 

Reasons for not buying online (% of individuals that have not ordered online during last year), 2009

 I have no need

 I prefer to shop in person, like to see
product, loyalty to shops, force of habit

 Payment security concerns

 Privacy concerns

 Trust concerns

 lack of skills

 Relevant information about goods and
services difficult to find on website

 Don't have a payment card allowing to pay
over the Internet

 delivery of goods ordered over the Internet is
a problem

 Speed of the Internet connection is too slow

 Others

0%

10%

20%

30%

40%

50%

60%

70%

Source: Eurostat Community Survey on ICT Usage by Households and by Individuals 2009 

Consumers  will  not  shop  online  if  they  do  not  feel  their  rights  are  clear  and 
transparency  and 
protected.  Although 
information  requirements  on  information  society  services  providers  and  establishes 
information  requirements  on  commercial  communications13,  close 
minimum 
monitoring is needed to make sure the information requirements are respected.  

the  E-Commerce  Directive 

imposes 

The  Unfair  Commercial  Practices  Directive14  and  the  Distance  Marketing  of 
Financial  Services  Directive15  will  remedy  the  situation  to  a  certain  degree.  The 
proposed  Directive  on  Consumer  Rights16  needs  to  be  adopted  swiftly,  building 
confidence  for  consumers  and  traders  in  cross-border  purchases  online.  But  the 
Commission will also investigate how to improve rights of consumers buying digital 
products. Cross-border transactions online can also be made easier by increasing the 

13 

14 
15 
16 

Directive 2000/31/EC. In addition, it may be necessary to update provisions such as limited liability of 
information society services in line with technological progress. 
Directive 2005/29/EC. 
Directive 2002/65/EC. 
Cf. http://ec.europea.eu/consumers/rights/cons_acquis_en.htm. 

EN 

12 

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coherence of European contract law, based on a high level of consumer protection. 
The  Commission  will  also  launch  an  EU-wide  strategy  to  improve  Alternative 
Dispute  Resolution  systems  and  propose  an  EU-wide  online  redress  tool  for 
eCommerce and improve the access to justice online. In addition, the comparability 
of consumer prices, e.g. through benchmarking, product testing or price comparison 
websites,  could  be  improved  to  drive  competition  and  to  enhance  consumer 
protection. 

There  is  scope  to  build  confidence  by  creating  EU  online  trustmarks  for  retail 
websites.  The  Commission  envisages  pursuing  this  idea,  in  consultation  with  all 
stakeholders. 

The Commission will: 

ACTIONS 

•  Key Action  4 Review the EU  data protection regulatory framework with a view to 
enhancing individuals' confidence and strengthening their rights, by the end of 2010; 

•  Other actions: 

•  Propose  by  2012  an  optional  contract  law  instrument  complementing  the 
Consumer Rights Directive to overcome the fragmentation of contract law, in 
particular as regards the online environment; 

•  Explore  by  2011,  via  a  Green  Paper,  initiatives  on  consumer  Alternative 
Dispute Resolution in the EU with a view to making proposals for an EU-wide 
Online Dispute Resolution system for eCommerce transactions by 2012; 

•  Explore  proposals  in  the  field  of  collective  redress,  based  on  stakeholder 

consultation; 

•  Issue  a  Code  of  EU  Online  Rights  by  2012  that  summarises  existing  digital 
user  rights  in  the  EU  in  a  clear  and  accessible  way,  complemented  by  an 
annual  sweep  of  breaches  of  online  consumer  protection  law  and  appropriate 
enforcement  measures,  in  coordination  with  the  European  Network  of 
Consumer Protection Agencies; 

•  Create a stakeholder platform by 2012 for EU online trustmarks, notably for 

retail websites. 

2.1.4.  Reinforcing the single market for telecommunications services 

Today,  Europe's  telecom  markets  are  partitioned  on  a  Member  State  basis,  with 
purely  national,  rather  than  Europe-wide,  numbering,  licensing  and  spectrum 
assignment schemes. These national structures are increasingly challenged by global 
competition and the internet.  

The Commission's first priority will be the swift and consistent implementation of 
the  amended  regulatory  framework,  together  with  greater  co-ordination  of 
spectrum  use  and,  where  necessary,  harmonisation  of  spectrum  bands,  to  create 
economies  of  scale  in  equipment  and  service  markets.  Since  the  single  market 
demands  that  similar  regulatory  issues  be  given  correspondingly  similar  treatment, 

EN 

13 

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the Commission will prioritise the provision of guidance on key regulatory concepts 
under  the  electronic  communications  rules,  in  particular  costing  methodologies  and 
non-discrimination,  and  will  also  look  for  durable  solutions  for  voice  and  data 
roaming by 2012. 

The  Commission  will  also  leverage  the  expertise  of  the  newly-created  Body  of 
European  Regulators  for  Electronic  Communications  in  tackling  obstacles  that 
prevent  European  businesses  and  citizens  from  making  the  fullest  possible  use 
of  cross-border  electronic  communications  services.  For  example,  improved 
harmonisation of national numbering regimes on the basis of the current framework 
could  help  European  manufacturers  and  retailers  by  enabling  sales,  after-sales  and 
customer  enquiry  services  over  a  single  Europe-wide  number,  while  the  better 
functioning  of  socially  useful  numbers  (e.g.  116  numbers  used  for  hotlines  for 
missing  children)  will  benefit  citizens.  Similarly,  improved  comparability  (e.g. 
through  benchmarking)  of  user  and  consumer  prices  will  drive  competition  and 
enhance consumer protection. 

Finally,  the  Commission  will  assess,  on  the  basis  inter  alia  of  practical  input  from 
stakeholders, the socio-economic cost of non-Europe in telecoms markets, outline 
the  benefits  of  a  better-integrated  market,  and  propose  appropriate  steps  to  reduce 
this cost. 

The Commission will: 

ACTIONS 

•  Propose  measures  for  an  increased  harmonisation  of  numbering  resources  for 

provision of business services across Europe by 2011; 

•  On  the  basis  of  the  European  Radio  Spectrum  Policy  Programme17,  coordinate  the 
technical  and  regulatory  conditions  applying  to  spectrum  use  and,  where  necessary, 
harmonise spectrum bands to create economies of scale in equipment markets and allow 
consumers to use the same equipment and avail themselves of the same services across 
the EU; 

•  Conduct by 2011 an investigation into the cost of  non-Europe in telecommunication 

markets to take further measures to reinforce the benefits of the single market. 

2.2. 

Interoperability and standards  

We need effective interoperability between IT products and services to build a truly 
digital society. 

The internet is the best example of the power of technical interoperability. Its open 
architecture gave interoperable devices and applications to billions around the world. 
But  to  reap  the  full  benefits  of  ICT  deployment  interoperability  between  devices, 
applications, data repositories, services and networks must be further enhanced. 

17 

See Key Action 8. 

EN 

14 

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2.2.1. 

Improving ICT standard-setting 

Europe's  standard-setting  framework  must  catch  up  with  fast-moving  technology 
markets  because  standards  are  vital  for  interoperability.  The  Commission  will 
continue  the  review  of  European  standardisation  policy  by  following  up  on  its 
White  Paper  "Modernising  ICT  standardisation  in  the  EU"18  and  the  related  public 
consultation. Reflecting the rise and growing importance of ICT standards developed 
by  certain  global  fora  and  consortia,  one  important  aim  is  to  allow  their  use  in 
legislation and public procurement.  

Moreover, guidance on transparent ex-ante disclosure rules for essential intellectual 
property  rights  and  licensing  terms  and  conditions  in  the  context  of  standard-
setting, to be provided in particular in the forthcoming reform of EU standardisation 
policy  as  well  as  in  updated  antitrust  rules  on  horizontal  co-operation  agreements, 
could contribute to lower royalty demands for the use of standards and thus to lower 
market entry costs. 

2.2.2.  Promoting better use of standards 

Public authorities should make best use of the full range of relevant standards when 
procuring  hardware,  software  and  IT  services,  for  example  by  selecting  standards 
which can be implemented by all interested suppliers, allowing for more competition 
and reduced risk of lock-in. 

2.2.3.  Enhancing interoperability through coordination 

A key action to promote interoperability between public administrations will be the 
Commission's  adoption  of  an  ambitious  European  Interoperability  Strategy  and 
the  European  Interoperability  Framework  to  be  drawn  up  under  the  ISA 
programme (Interoperability Solutions for European Public Administrations19). 

Since  not  all  pervasive  technologies  are  based  on  standards  the  benefits  of 
interoperability  risk  being  lost  in  such  areas.  The  Commission  will  examine  the 
feasibility  of  measures  that  could  lead  significant  market  players  to  license 
interoperability  information  while  at  the  same  time  promoting  innovation  and 
competition. 

The Commission will: 

ACTIONS  

•  Key  Action  5:  As  part  of  the  review  of  EU  standardisation  policy,  propose  legal 
measures  on  ICT  interoperability  by  2010  to  reform  the  rules  on  implementation  of 
ICT standards in Europe to allow use of certain ICT fora and consortia standards; 

•  Other actions:  

18 
19 

Modernising ICT Standardisation in the EU - The Way Forward - COM(2009) 324. 
Interoperability solutions for European public administrations (ISA) (OJ L 260, 3.10.2009, p. 20). ISA 
replaces  the  IDABC  programme  (Interoperable  delivery  of  pan-European  eGovernment  services  to 
public administrations, businesses and citizens (OJ L 181, 18.5.2004, p. 25). 

EN 

15 

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•  Promote  appropriate  rules  for  essential  intellectual  property  rights  and 
licensing  conditions  in  standard-setting,  including  for  ex-ante  disclosure,  in 
particular through guidelines by 2011; 

•  Issue a Communication in 2011 to provide guidance on the link between ICT 
standardisation  and  public  procurement  to  help  public  authorities  to  use 
standards to promote efficiency and reduce lock-in; 

•  Promote  interoperability  by  adopting  in  2010  a  European  Interoperability 

Strategy and European Interoperability Framework; 

•  Examine the feasibility of measures that could lead significant market players 

to license interoperability information to report by 2012. 

Member States should: 

•  Apply the European Interoperability Framework at national level by 2013; 

•  Implement  commitments  on  interoperability  and  standards  in  the  Malmö  and 

Granada Declarations by 2013. 

2.3. 

Trust and security 

Europeans will not embrace technology they do not trust - the digital age is neither 
"big brother" nor "cyber wild west". 

Users  must  be  safe  and  secure  when  they  connect  online.  Just  like  in  the  physical 
world,  cybercrime  cannot  be  tolerated.  Besides,  some  of  the  most  innovative  and 
advanced online services – such as eBanking or eHealth - would simply not exist if 
new technologies were not fully reliable. So far, the internet has proved remarkably 
secure,  resilient  and  stable,  but  IT  networks  and  end  users’  terminals  remain 
vulnerable  to  a  wide  range  of  evolving  threats:  in  recent  years,  spam  emails  have 
grown  to  the  point  of  heavily  congesting  e-mail  traffic  on  the  internet  -  various 
estimates suggest between 80 % to 98 % of all circulating emails20 - and they spread 
a wide range of virus and malicious software. There is a growing scourge of identity 
theft  and  online  fraud.  Attacks  are  becoming  increasingly  sophisticated  (trojans, 
botnets, etc.) and often motivated by financial purposes. They can also be politically 
motivated as shown by the recent cyber-attacks that targeted Estonia, Lithuania and 
Georgia.  

Addressing those threats and strengthening security in the digital society is a shared 
responsibility – of individuals as much as of private and public bodies, both at home 
and globally. For instance, to tackle sexual exploitation and child pornography, alert 
platforms  can  be  put  in  place  at  national  and  EU  levels,  alongside  measures  to 
remove  and  prevent  viewing  of  harmful  content.  Educational  activities  and 
awareness  raising  campaigns  for  the  wider  public  are  also  essential:  the  EU  and 
Member States can step up their efforts, e.g. through the Safer Internet Programme, 
providing  information  and  education  to  children  and  families  on  online  safety,  as 

20 

See  for  instance  the  European  Network  and  Information  Society  Agency  spam  survey  2009  (January 
2010). 

EN 

16 

   EN 

 
                                                 
well  as  analysing  the  impact  on  children  of  using  digital  technologies.  Industries 
should also be encouraged to further develop and implement self-regulatory schemes, 
in particular as regards protection of minors using their services. 

The right to privacy and to the protection of personal data are fundamental rights in 
the EU which must be – also online - effectively enforced using the widest range of 
means:  from  the  wide  application  of  the  principle  of  "Privacy  by  Design"21  in  the 
relevant  ICT  technologies,  to  dissuasive  sanctions  wherever  necessary.  The  EU’s 
revised  framework  for  electronic  communications  clarifies  the  responsibilities  of 
network operators and service providers, including their obligation to notify breaches 
of personal data security. The recently launched review of the general data protection 
framework will include a possible extension of the obligation to notify data security 
breaches.  The  implementation  of  the  ban  on  spam  will  be  reinforced  using  the 
Consumer Protection Cooperation (CPC) network. 

An  effective  and  rapid  implementation  of  the  EU  action  plan  for  the  protection  of 
critical information infrastructure22 and of the Stockholm Programme23 will trigger a 
wide range of measures in the field of network and information security and the fight 
against cybercrime. For instance, to react in real-time conditions, a well functioning 
and  wider  network  of  Computer  Emergency  Response  Teams  (CERTs)  should  be 
established  in  Europe,  including  for  European  institutions.  Cooperation  between 
CERTs  and  law  enforcement  agencies  is  essential  and  a  system  of  contact  points 
should be promoted to help prevent cybercrime and respond to emergencies, such as 
cyber  attacks.  Europe  also  needs  a  strategy  on  identity  management,  notably  for 
secure and effective eGovernment services24. 

Finally,  cooperation  of  relevant  actors  needs  to  be  organised  at  global  level  to  be 
effectively able to fight and mitigate security threats. This can be channelled as part 
of  discussions  on  Internet  Governance.  At  a  more  operational  level,  internationally 
coordinated information security targeted actions should be pursued, and joint action 
should  be  taken  to  fight  computer  crime,  with  the  support  of  a  renewed  European 
Network and Information Security Agency (ENISA). 

The Commission will: 

ACTIONS 

•  Key  Action  6:  Present  in  2010  measures  aiming  at  a  reinforced  and  high  level 
Network  and  Information  Security  Policy,  including  legislative  initiatives  such  as  a 
modernised  European  Network  and  Information  Security  Agency  (ENISA),  and 
measures allowing faster reactions in the event of cyber attacks, including a CERT for 
the EU institutions; 

•  Key  Action  7:  Present  measures,  including  legislative  initiatives,  to  combat  cyber 
attacks  against  information  systems  by  2010,  and  related  rules  on  jurisdiction  in 

21 

22 
23 
24 

This principle means that privacy and data protection are embedded throughout the entire life cycle of 
technologies, from the early design stage to their deployment, use and ultimate disposal. 
COM(2009) 149. 
COM(2010) 171. 
Such a strategy has been proposed under the Stockholm Programme. 

EN 

17 

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cyberspace at European and international levels by 2013; 

•  Other actions: 

•  Establish a European cybercrime platform by 2012; 

•  Examine the feasibility by 2011 to create a European cybercrime centre; 

•  Work with global stakeholders notably to strengthen global risk management 
in  the  digital  and  in  the  physical  sphere  and  conduct  internationally 
coordinated  targeted  actions  against  computer-based  crime  and  security 
attacks; 

•  Support EU-wide cyber-security preparedness exercises, from 2010; 

•  As  part  of  the  modernisation  of  the  EU  personal  data  protection  regulatory 
framework25  to  make  it  more  coherent  and  legally  certain,  explore  the 
extension of security breach notification provisions; 

•  Give  guidance  by  2011  for  the  implementation  of  new  Telecoms  Framework 
with regard to the protection of individuals' privacy and personal data; 

•  Support reporting points for illegal content online (hotlines) and awareness 
campaigns on online safety for children run at national level and enhance pan-
European cooperation and sharing of best practice in this field; 

•  Foster  multi-stakeholder  dialogue  and  self-regulation  of  European  and  global 
service  providers  (e.g.  social  networking  platforms,  mobile  communications 
providers), especially as regards use of their services by minors. 

Member States should: 

•  Establish by 2012 a well-functioning network of CERTs at national level covering all 

of Europe; 

•  In  cooperation  with  the  Commission  carry  out  large  scale  attack  simulation  and  test 

mitigation strategies as of 2010; 

•  Fully implement hotlines for reporting offensive or harmful online content, organise 
awareness  raising  campaigns  on  online  safety  for  children,  and  offer  teaching  online 
safety  in  schools,  and  encourage  providers  of  online  services  to  implement  self-
regulatory measures regarding online safety for children by 2013; 

•  Set up or adapt national alert platforms to the Europol cybercrime platform, by 2012, 

starting in 2010. 

2.4. 

Fast and ultra fast internet access 

We need very fast Internet for the economy to grow strongly and to create jobs and 
prosperity, and to ensure citizens can access the content and services they want. 

25 

See Key Action 4. 

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18 

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The future economy will be a network-based knowledge economy with the internet 
at  its  centre.  Europe  needs  widely  available  and  competitively-priced  fast  and  ultra 
fast  internet  access.  The  Europe  2020  Strategy  has  underlined  the  importance  of 
broadband deployment to promote social inclusion and competitiveness in the EU. It 
restated the objective to bring basic broadband to all Europeans by 2013 and seeks to 
ensure that, by 2020, (i) all Europeans have access to much higher internet speeds of 
above 30 Mbps and (ii) 50% or more of European households subscribe to internet 
connections above 100 Mbps. 

To reach these ambitious targets it is necessary to develop a comprehensive policy, 
based on a mix of technologies, focusing on two parallel goals: on the one hand, to 
guarantee universal broadband coverage (combining fixed and wireless) with internet 
speeds  gradually  increasing  up  to  30  Mbps  and  above  and  over  time  to  foster  the 
deployment and take-up of next generation access networks (NGA) in a large part of 
the EU territory, allowing ultra fast internet connections above 100 Mbps. 

2.4.1.  Guarantee universal broadband coverage with increasing speeds 

Without strong public intervention there is a risk of a sub-optimal outcome, with fast 
broadband networks concentrated in a few high-density zones with significant entry 
costs  and  high  prices.  The  spill-over  benefits  created  by  such  networks  for  the 
economy  and  society  justify  public  policies  guaranteeing  universal  broadband 
coverage with increasing speeds. 

For  this  purpose,  the  Commission  intends  to  adopt  a  Communication  outlining  a 
common framework within which EU and national policies should be developed to 
meet the Europe 2020 targets. These policies should, in particular, lower the costs of 
broadband  deployment  in  the  entire  EU  territory,  ensuring  proper  planning  and 
coordination  and  reducing  administrative  burdens.  For  instance,  the  competent 
authorities  should  ensure: 
that  public  and  private  civil  engineering  works 
systematically  provide  for  broadband  networks  and  in-building  wiring;  clearing  of 
rights of way; and mapping of available passive infrastructure suitable for cabling. 

Wireless (terrestrial and satellite) broadband can play a key role to ensure coverage 
of  all  areas  including  remote  and  rural  regions.  The  central  problem  to  develop 
wireless broadband networks today is access to radio spectrum. Mobile internet users 
already  experience  congestion  on  networks  because  of  inefficient  use  of  radio 
spectrum. In addition to frustrating users, innovation in markets for new technologies 
is stifled, affecting € 250 billion of activity annually 26. A forward-looking European 
spectrum  policy  should,  while  accommodating  broadcasting,  promote  efficient 
spectrum management, by mandating the use of certain digital dividend frequencies 
for wireless broadband by a fixed future date, by ensuring additional flexibility (also 
allowing spectrum trading) and by supporting competition and innovation. 

Beside  this,  national,  EU  and  EIB  funding  instruments  should  be  used  for  well 
targeted  broadband  investments  in  areas  where  the  business  case  is  currently  weak 
and, therefore, only such focused intervention can render investments sustainable. 

26 

Cf.  Conditions  and  options  in  introducing  secondary  trading  of  radio  spectrum  in  the  European 
Community, European Commission 2004. 

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19 

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2.4.2.  Foster the deployment of NGA networks 

Today in Europe internet access is mainly based on the first generation of broadband, 
meaning  internet  accessed  over  legacy  telephone  copper  and  TV  cable  networks. 
However, citizens and businesses around the world are increasingly demanding much 
faster NGA networks. In this respect, Europe is still lagging behind some of our main 
international  counterparts.  A  significant  indicator  is  the  level  of  fibre  to  the  home 
penetration, which is very low in Europe and far below certain leading G20 nations 
(see Figure 4). 

Figure 4: Fibre to the Home (FTTH) penetration in July 2009 

16,00%

14,00%

12,00%

10,00%

8,00%

6,00%

4,00%

2,00%

0,00%

15%

12%

1%

Europe

2%

USA

Japan

Korea

Source: Point Topic 

To foster the deployment of NGA and to encourage market investment in open and 
competitive networks the Commission will adopt a NGA Recommendation based on 
the  principles  that  (i)  investment  risk  should  be  duly  taken  into  account  when 
establishing cost-oriented access prices, (ii)  National  Regulatory Authorities  should 
be  able  to  impose  the  most  appropriate  access  remedies  in  each  case,  allowing  a 
reasonable  investment  pace  for  alternative  operators  while  taking  into  account  the 
level  of  competition  in  any  given  area  and  (iii)  co-investments  and  risk-sharing 
mechanisms should be promoted. 

2.4.3.  Open and neutral internet 

The Commission will also monitor closely the implementation of the new legislative 
provisions on the open and neutral character of the internet, which safeguard users' 
rights  to  access  and  distribute  information  online  and  ensure  transparency  about 
traffic  management27.  The  Commission  will  launch  a  public  consultation  before 
summer  2010  as  part  of  its  more  general  commitment  to  report  by  the  end  of  the 

27 

Article  8(4)(g)  of  the  Directive  2002/21/EC  on  a  common  regulatory  framework  for  electronic 
communications networks and services; Articles 20(1)(b) and 21(3)(c) and (d) of the Universal Service 
Directive. 

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year,  in  the  light  of  market  and  technological  developments,  on  whether  additional 
guidance is required, in order to secure the basic objectives of freedom of expression, 
transparency,  the  need  for  investment  in  efficient  and  open  networks,  fair 
competition and openness to innovative business models. 

The Commission will: 

ACTIONS 

•  Key  Action  8:  Adopt  in  2010  a  Broadband  Communication  that  lays  out  a  common 
framework  for  actions  at  EU  and  Member  State  to  meet  the  Europe  2020  broadband 
targets, including: 

•  Reinforce  and  rationalise,  in  this  framework,  the  funding  of  high-speed 
broadband through EU instruments (e.g. ERDF, ERDP, EAFRD, TEN, CIP) 
by 2014 and explore how to attract capital for broadband investments through 
credit enhancement (backed by the EIB and EU funds); 

•  Propose  an  ambitious  European  Spectrum  Policy  Programme  in  2010  for 
decision  by  the  European  Parliament  and  the  Council  that  will  create  a  co-
ordinated  and  strategic  spectrum  policy  at  EU  level  in  order  increase  the 
efficiency  of  radio  spectrum  management  and  maximise  the  benefits  for 
consumers and industry; 

•  Issue  a  Recommendation  in  2010  to  encourage  investment  in  competitive 
Next  Generation  Access  networks  through  clear  and  effective  regulatory 
measures. 

Member States should: 

•  Develop  and  make  operational  national  broadband  plans  by  2012  that  meet  the 
coverage  and  speed  and  take-up  targets  defined  in  Europe  2020,  using  public 
financing in line with EU competition and state aid rules28, the Commission will report 
annually on progress as part of the Digital Agenda governance; 

•  Take measures, including legal provisions, to facilitate broadband investment, such as 
making  sure  that  civil  engineering  works  systematically  involve  potential  investors, 
clearing rights of way, mapping available passive infrastructure suitable for cabling and 
upgrading in-building wiring; 

•  Use fully the Structural and Rural Development Funds that are already earmarked for 

investment in ICT infrastructures and services; 

•  Implement  the  European  Spectrum  Policy  Programme,  so  as  to  ensure  the  co-
ordinated  allocation  of  the  spectrum  needed  to  meet  the  target  of  100%  coverage  of 
30mbps internet by 2020, and the NGA Recommendation. 

2.5. 

Research and innovation 

Europe must invest more in R&D and ensure our best ideas reach the market. 

28 

Community  Guidelines  for  the  application  of  State  aid  rules  in  relation  to  rapid  deployment  of 
broadband networks (OJ C 235, 30.9.2009, p. 4). 

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Europe  continues  to  under-invest  in  ICT  related  research  and  development. 
Compared  to  major  trading  partners  such  as  the  US,  R&D  in  ICT  in  Europe  is  not 
only a much smaller proportion of total R&D spend (17% compared to 29%, but in 
absolute  terms  represents  around  40%  of  US  expenditure  (Figure  5  -  € 37  billion, 
versus € 88 billion in 2007). 

Figure 5: Total ICT R&D spending in billion € (2007) 

100

80

60

40

20

0

EU

USA

Source: Eurostat and IPTS-JRC 

Given  that  ICT  represents  a  significant  share  of  total  value-added  in  European 
industrial strengths such as automobile (25%), consumer appliances (41%) or health 
and  medical  (33%),  the  lack  of  investment  in  ICT  R&D  is  a  threat  to  the  entire 
European manufacturing and service sectors. 

The investment gap is related to three main problems: 

•  Weak and dispersed public R&D effort; e.g. the EU public sector spends less than 

5.5 B € per year on ICT R&D, far below the levels of competing economies. 

•  Market  fragmentation  and  dispersion  of  financing  means  for  innovators,  are 
limiting factors for the growth and development of ICT innovative businesses and 
notably SMEs. 

•  Europe is slow in the uptake of ICT-based innovations, notably in areas of public 
interest. While societal challenges are major drivers of innovation, Europe makes 
little  use  of  procurement  of  innovation  and  R&D  to  improve  quality  and 
performance of its public services. 

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2.5.1. 

Step up efforts and efficiency 

The  Commission  will  present  in  2010  a  comprehensive  research  and  innovation 
strategy  which  is  the  "Innovation  Union"  flagship  to  implement  Europe  202029. 
Building  on  the  European  strategy  for  leadership  in  ICT30,  Europe  must  step  up, 
focus and pool its investments to keep its competitive edge in this field and continue 
to invest in high-risk research, including multi-disciplinary fundamental research. 

Europe  should  also  build  its  innovative  advantage  in  key  areas  through  reinforced 
eInfrastructures31 and through the targeted development of innovation clusters in key 
fields.  It  should  develop  an  EU-wide  strategy  on  "cloud  computing"  notably  for 
government and science32.  

2.5.2.  Driving ICT innovation by exploiting the single market 

Europe’s  public  sector  expenditure  should  be  used  to  spur  innovation  while  raising 
the  efficiency  and  quality  of  public  services.  European  public  authorities  must  join 
forces to align regulation, certification, procurement and standardisation in favour of 
innovation. Public and private partnerships and stakeholder fora are needed that lay 
out  joint  technology  roadmaps,  from  research  to  commercialisation,  for  harnessing 
innovation  to  social  need.  Knowledge  transfer  activities  should  be  managed 
effectively33  and  supported  by  suitable  financial  instruments34  and  publicly  funded 
research  should  be  widely  disseminated  through  Open  Access  publication  of 
scientific data and papers35. 

2.5.3. 

Industry-led initiatives for open innovation 

ICT drives value creation and growth across the economy. This means that industry 
is increasingly in need of open and interoperable solutions to exploit ICT across all 
sectors.  Industry-led  initiatives  aiming  at  standards  and  open  platforms  for  new 
products  and  services  will  be  supported  in  EU-funded  programmes.  The 
Commission  will  reinforce  the  activities  bringing  together  stakeholders  around 
common research agendas in areas such as the Future Internet including the Internet 
of Things and in key enabling technologies in ICT. 

ACTIONS 

29 
30 
31 
32 
33 

34 
35 

Cf. The 2009 Report on R&D in ICT in the European Union. 
A strategy for ICT research and innovation in Europe - Raising the game - COM(2009) 116. 
GÉANT high-capacity electronic communication network and the EGI European Grid Infrastructure. 
The strategy should consider economic, legal and institutional aspects. 
See  Commission  Recommendation  on  the  management  of  intellectual  property  in  knowledge  transfer 
activities and Code of practice for universities and other public research organisations - C(2008) 1329. 
E.g. investment guarantees from the European Investment Fund and other EIB instruments. 
To this end the Commission will appropriately extend current Open Access publication requirements as 
stipulated  in  Commission  Decision  C(2008)  4408  (more  information  on  this  pilot  is  available  at 
http://ec.europa.eu/research/science-society/index.cfm?fuseaction=public.topic&id=1680). 

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The Commission will: 

•  Key  action  9:  Leverage  more  private  investment  through  the  strategic  use  of  pre-
commercial  procurement36  and  public-private  partnerships37,  by  using  structural  funds 
for research and innovation and by maintaining a pace of 20% yearly increase of the ICT 
R&D budget at least for the duration of FP7; 

•  Other actions: 

•  Reinforce the coordination and pooling of resources with Member States and 
industry38,  and  put  greater  focus  on  demand-  and  user-driven  partnerships  in 
EU support to ICT research and innovation; 

•  Starting in 2011 propose measures for ‘light and fast’ access to EU research 
funds  in  ICT,  making  them  more  attractive  notably  to  SMEs  and  young 
researchers  in  view  of  a  wider  implementation  within  the  revision  of  the  EU 
RTD Framework;39 

•  Ensure  sufficient  financial  support  to  joint  ICT  research  infrastructures  and 
innovation  clusters,  develop  further  eInfrastructures  and  establish  an  EU 
strategy for cloud computing notably for government and science; 

•  Work  with  stakeholders 

to  develop  a  new  generation  of  web-based 
applications  and  services,  including  for  multilingual  content  and  services,  by 
supporting standards and open platforms through EU-funded programmes. 

Member States should: 

•  By  2020,  double  annual  total  public  spending  on  ICT  research  and  development 
 leverage 

spending from €5.5bn to €11bn (which includes EU programmes), in ways that
an equivalent increase in private spending from € 35 billion to € 70 billion; 

•  Engage in large scale pilots to test and develop innovative and interoperable solutions 

in areas of public interest that are financed by the CIP. 

2.6. 

Enhancing digital literacy, skills and inclusion 

The  digital  era  should  be  about  empowerment  and  emancipation;  background  or 
skills should not be a barrier to accessing this potential. 

As more daily tasks are carried out online, from applying for a job to paying taxes or 
booking tickets, using the internet has become an integral part of daily life for many 
Europeans. Yet, 150 million Europeans – some 30% - have never used the internet. 
Often  they  say  they  have  no  need  or  that  it  is  too  expensive.  This  group  is  largely 

36 

37 

38 

39 

EN 

In 2011-13, the Commission will co-finance five new actions on pre-commercial procurement involving 
Member States. 
E.g. in 2011-13, the Commission will be supporting six public-private partnerships from ICT in FP7 for 
a total funding of €1 billion and leveraging around €2 billion of private spending. 
Building  on  the  experience  in  the  jointly  coordinated  programme  AAL  and  the  ERANET+  calls  in 
Photonics, new actions will be proposed for 2011-12 in areas such as eHealth and smart lighting. 
One 
is 
implementation of the Research Framework Programme", COM(2010) 187. 

the  recent  Commission  Communication  "Simplifying 

important  building  block 

the 

24 

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made up of people aged 65 to 74 years old, people on low incomes, the unemployed 
and the less educated.  

In many cases the take-up gap is due to lack of user skills such as digital and media 
literacy, not only for employability but also for learning, creating, participating and 
being confident and discerning in the use of digital media. Accessibility and usability 
are  also  problems  for  Europeans  with  disabilities.  Bridging  this  digital  divide  can 
help members of disadvantaged social groups to participate on a more equal footing 
in  digital  society  (including  services  of  direct  interest  to  them  such  as  eLearning, 
eGovernment,  eHealth)  and 
increased 
employability.  Digital  competence  is  thus  one  of  the  eight  key  competences  which 
are fundamental for individuals in a knowledge-based society40. It is also key for all 
to understand how to be safe online. 

their  disadvantage 

through 

tackle 

to 

In  addition,  ICT  cannot  function  effectively  as  a  European  growth  sector  and  as  a 
motor  of  competitiveness  and  productivity  gains  across  the  European  economy 
without  skilled  practitioners.  The  EU  economy  is  hampered  by  a  shortage  of  ICT 
practitioner skills: Europe could lack the skills to fill as many as 700,000 IT jobs by 
201541. 

2.6.1.  Digital literacy and skills 

It  is  essential  to  educate  European  citizens  to  use  ICT  and  digital  media  and 
particularly to attract youngsters to ICT education. The supply of ICT practitioner 
and  e-business  skills,  i.e.  the  digital  skills  necessary  for  innovation  and  growth, 
needs to be increased and upgraded. In addition, given there are 30 million women 
between the ages of 15-2442, it is necessary to improve the attractiveness of the ICT 
sector  for  professional  use  and  in  particularly  for  the  production  and  design  of 
technology. All citizens should be made aware of the potential of ICT for all kind of 
professions.  This  calls  for  multi-stakeholder  partnerships,  increased  learning, 
recognition  about  digital  competences  in  formal  education  and  training  systems,  as 
well as awareness raising and effective ICT training and certification outside formal 
education systems, including the use of online tools and digital media for re-skilling 
and continuing professional development43. Based on the experience gained from the 
first "European e-Skills Week" (1-5 March 2010)44, the Commission will support the 
in  2010  and  thereafter,  national  and  European  awareness  raising  activities  with  a 
view to promote ICT education, careers and jobs to young people as well as to foster 
digital literacy among citizen and ICT training for the workforce and the adoption of 
best practices. 

40 

41 

42 
43 

44 

Cf.  Recommendation  of  the  European  Parliament  and  of  the  Council  of  18  December  2006  on  key 
competences for lifelong learning. 
eSkills Monitor study. Monitoring eskills supply and demand in Europe, European Commission 2009, 
see  http://www.eskills-monitor.eu/.  Depending  on  economic  scenarios,  the  e-skills  gap  could  be 
between 384,000 and 700,000 jobs.  
Data Eurostat 2008. 
Further  proposals  in  this  regard  will  be  made  in  the  forthcoming  Europe  2020  flagship  "Innovation 
Union". 
See: http://eskills-week.ec.europa.eu. 

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2.6.2. 

Inclusive digital services 

The  benefits  of  the  digital  society  should  be  available  to  all.  The  Commission  will 
examine, in the light of its recent public consultation,45 how best to meet demand for 
basic  telecom  services  in  today's  competitive  markets,  what  role  universal  service 
could play in achieving the objective of broadband for all, and how universal service 
should be financed. Should it appear necessary to do so, the Commission will bring 
forward proposals in regard to the Universal Service Directive46 by the end of 2010. 

There is also need for concerted actions to make sure that new electronic content is 
also  fully  available  to  persons  with  disabilities.  In  particular,  public  websites  and 
online services in the EU that are important to take a full part in public life should be 
brought  in  line  with  international  web  accessibility  standards47.  Moreover,  the  UN 
Convention on the Rights of persons with disabilities contains obligations concerning 
accessibility48. 

The Commission will: 

ACTIONS 

•  Key  Action  10:  Propose  digital  literacy  and  competences  as  a  priority  for  the 

European Social Fund regulation (2014-2020);  

•  Key Action 11: By 2012, develop tools to identify and recognise the competences of 
ICT practitioners and users, linked to the European Qualifications Framework49 and to 
EUROPASS50 and develop a European Framework for ICT Professionalism to increase 
the competences and the mobility of ICT practitioners across Europe; 

•  Other actions: 

•  Make digital literacy and skills a priority of the "New skills for new jobs" 
Flagship to be launched in 201051, including the launch of a multi-stakeholder 
sectoral  council  for  ICT  skills  and  employment  to  address  demand  and 
supply aspects; 

•  Promote  a  higher  participation  of  young  women  and  women  returners  in 
the  ICT  workforce  through  support  for  web-based  training  resources,  game 
based eLearning and social networking; 

•  Develop  in  2011  an  online  consumer  education  tool  on  new  media 
technologies  (e.g.  consumer  rights  on 
internet,  eCommerce,  data 
protection,  media  literacy,  social  networks  etc.).  This  tool  will  provide 

the 

45 
46 

47 
48 
49 

50 

51 

See http://ec.europa.eu/information_society/policy/ecomm/library/public_consult/index_en.htm. 
Directive  2002/22/EC  on  universal  service  and  users'  rights  relating  to  electronic  communications 
networks and services. 
Notably the Web Content Accessibility Guidelines (WCAG) 2.0. 
Cf. http://www.un.org/disabilities/convention/conventionfull.shtml. 
Cf.  Recommendation  of  the  European  Council  and  the  Parliament  on  the  European  Qualifications 
Framework for lifelong learning. 
Cf. Decision No 2241/2004/EC of the European Parliament and of the Council of 15 December 2004 on 
a single Community framework for the transparency of qualifications and competences (Europass). 
Cf. New Skills for New Jobs - COM(2008) 868 - e-Skills for the 21st Century - COM(2007) 496 - and 
the forthcoming Europe 2020 flagship. 

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customised  information  and  education  materials  for  consumers,  teachers  and 
other multipliers in the 27 Member States; 

•  Propose  by  2013  EU-wide  indicators  of  digital  competences  and  media 

literacy; 

•  Systematically  evaluate  accessibility  in  revisions  of  legislation  undertaken 
under the Digital Agenda, e.g. eCommerce, eIdentity & eSignature, following 
the UN Convention on the Rights of Persons with Disabilities; 

•  Based on a review of options, make proposals by 2011 that will make sure that 
public  sector  websites  (and  websites  providing  basic  services  to  citizens)  are 
fully accessible by 2015; 

•  Facilitate  by  2012,  in  cooperation  with  Member  States  and  relevant 
stakeholders,  a  Memorandum  of  Understanding  on  Digital  Access  for 
persons with disabilities in compliance with the UN Convention. 

Member States should: 

•  Implement  by  2011  long-term  e-skills  and  digital  literacy  policies  and  promote 

relevant incentives for SMEs and disadvantaged groups; 

•  Implement  by  2011  the  provisions  on  disability  in  the  Telecoms  Framework  and  the 

Audiovisual Media Services Directive; 

•  Mainstream  eLearning  in  national  policies  for  the  modernisation  of  education  and 
training,  including  in  curricula,  assessment  of  learning  outcomes  and  the  professional 
development of teachers and trainers. 

2.7. 

ICT-enabled benefits for EU society 

Smart use of technology and exploitation of information will help us to address the 
challenges facing society like climate change and the ageing population. 

The digital society must be envisioned as a society with better outcomes for all. The 
deployment  of  ICT  is  becoming  a  critical  element  for  delivering  policy  objectives 
like  supporting  an  ageing  society,  climate  change,  reducing  energy  consumption, 
improving transportation efficiency and mobility, empowering patients and ensuring 
the inclusion of persons with disabilities. 

2.7.1. 

ICT for environment 

The  EU  has  committed  to  cutting  its  greenhouse  gas  emissions  by  at  least  20%  by 
2020 compared to 1990 levels and to improving energy efficiency by 20 %. The ICT 
sector has a key role to play in this challenge: 

•  ICT  offer  potential  for  a  structural  shift  to  less  resource-intensive  products  and 
services,  for  energy  savings  in  buildings  and  electricity  networks,  as  well  as  for 
more efficient and less energy consuming intelligent transport systems; 

•  The  ICT  sector  should  lead  the  way  by  reporting  its  own  environmental 
performance by adopting a common measurement framework as a basis for setting 

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targets  to  reduce  energy  use  and  greenhouse  gas  emissions  of  all  processes 
involved  in  production,  distribution,  use  and  disposal  of  ICT  products  and 
delivery of ICT services52. 

Cooperation  between  the  ICT  industry,  other  sectors  and  public  authorities  is 
essential  to  accelerate  development  and  wide-scale  roll  out  of  ICT-based  solutions 
for  smart  grids  and  meters,  near-zero  energy  buildings  and  intelligent  transport 
systems.  It  is  essential  to  empower  individuals  and  organisations  with  information 
that  will  help  them  to  reduce  their  own  carbon  footprint53.  The  ICT  sector  should 
deliver modelling, analysis, monitoring and visualisation tools to evaluate the energy 
performance  and  emissions  of  buildings,  vehicles,  companies,  cities  and  regions. 
Smart  grids  are  essential  for  the  move  to  a  low  carbon  economy.  They  will  enable 
active  control  of  transmission  and  distribution  via  advanced  ICT  infrastructure 
communication  and  control  platforms.  For  the  different  grids  to  work  together 
efficiently and safely, open transmission-distribution interfaces will be needed. 

For instance, almost 20% of electricity consumption worldwide is used for lighting. 
About  70%  of  electricity  consumption  can  be  saved  by  combining  an  advanced 
technology  known  as  Solid  State  Lighting  (SSL)  with  intelligent  light  management 
systems.  SSL  lighting  is  based  on  technologies  developed  by  the  semiconductor 
industry, in which Europe has a strong position. To achieve emissions reductions, a 
mix of awareness-raising, training and multi-stakeholder cooperation is required. 

The Commission will: 

ACTIONS 

•  Key Action 12: Assess by 2011 whether the ICT sector has complied with the timeline 
to  adopt  common  measurement  methodologies  for  the  sector's  own  energy 
performance and greenhouse gas emissions and propose legal measures if appropriate; 

•  Other actions: 

•  Support  partnerships  between  the  ICT  sector  and  major  emitting  sectors 
(e.g. buildings and construction, transport and logistics, energy distribution) to 
improve  the  energy  efficiency  and  greenhouse  gas  emissions  of  these  sectors 
by 2013; 

•  Assess  by  2011 

the  potential  contribution  of  smart  grids  to  the 
decarbonisation  of  energy  supply  in  Europe  and  define  a  set  of  minimum 
functionalities to promote the interoperability of Smart Grids at European level 
by the end of 2010; 

52 

53 

Communication  COM(2009)  111  and  Commission  Recommendation  C(2009)  7604  on  mobilising 
Information and Communications Technologies to facilitate the transition to an energy-efficient, low-
carbon economy. 
In  terms  of  societal  challenges,  the  2008  Eurobarometer  opinion  poll  across  the  27  EU  countries 
revealed that for most citizens a healthy environment is as important to their quality of life as the state 
of the economy. A 64% majority considers that environmental protection must be given priority over 
the competitiveness of the economy. However, 42% of the citizens still feel badly informed – especially 
about the health impacts of pollution. At the same time, 63% agree that policies aimed at protecting the 
environment are a motivation to innovate. 

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•  In 2011 publish a Green Paper on Solid State Lighting (SSL) to explore the 
barriers  and  to  put  forward  policy  suggestions;  it  will  in  parallel  support 
demonstration projects using the CIP. 

Member States should: 

•  Agree by the end of 2011 common additional functionalities for smart meters; 

•  By  2012  include  specifications  for  total  lifetime  costs  (rather  than  initial  purchase 

costs) for all public procurement of lighting installations). 

2.7.2. 

Sustainable healthcare and ICT-based support for dignified and independent living54 

The deployment of eHealth technologies in Europe can improve the quality of care, 
reduce  medical  costs  and  foster  independent  living,  including  in  remote  places.  An 
essential  condition  for  success  is  that  these  technologies  incorporate  the  right  of 
individuals to have their personal health information safely stored within a healthcare 
system  accessible  online.  To  exploit  the  full  potential  of  new  eHealth  services,  the 
EU  needs  to  remove  legal  and  organisational  barriers,  particularly  those  to  pan-
European interoperability, and strengthen cooperation among Member States. 

The  eHealth  Lead  Market  Initiative55  will  promote  standardisation,  interoperability 
testing  and  certification  of  electronic  health  records  and  equipment.  New 
telemedicine  services  such  as  online  medical  consultations,  improved  emergency 
care  and  portable  devices  allowing  monitoring  the  health  condition  of  people 
suffering from chronic disease and disabilities have the potential to offer a freedom 
of movement that patients have never previously enjoyed. 

Ambient Assisted Living (AAL) technologies put ICT within the reach of all. The 
EU  AAL-dedicated  Joint  Programme  with  Member  States  and  related  advanced 
research,  as  well  as  applications  such  as  telecare  and  online  support  for  social 
services will be reinforced: to cover the certification of carers (i.e. so that they can 
provide  an  interface  to  information  services  for  people  that  would  otherwise  have 
difficulty to use the internet); and to establish new ways to put ICT at the service of 
the  most  vulnerable  members  of  society.  This  programme  will  make  sure  that  the 
digital society permits a more independent and dignified life for people who are frail 
or  suffer  from  chronic  conditions  and  for  persons  with  disabilities.  The  AAL  will 
promote  innovation  and  the  deployment  of  ICT  solutions  in  key  areas  such  as  fall 
prevention  (which  affects  more  than  one  third  of  people  over  65)  and  support  for 
sufferers of dementia (touches more than 7 million people in the EU), with a target of 
doubling the take-up of independent living arrangements for the elderly by 2015. 

ACTIONS 

The  Commission  will  work  with  Member  States  competent  authorities  and  all  interested 
stakeholders to: 

•  Key Action 13: Undertake pilot actions to equip Europeans with secure online access 

54 
55 

These actions will contribute to a European Innovation Partnership, foreseen in Europe 2020. 
Cf. COM(2007) 860 and SEC(2009) 1198. 

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to their medical health data by 2015 and to achieve by 2020 widespread deployment of 
telemedicine services; 

•  Key  Action  14:  Propose  a  recommendation  defining  a  minimum  common  set  of 
patient  data  for  interoperability  of  patient  records  to  be  accessed  or  exchanged 
electronically across Member States by 201256; 

•  Other actions: 

•  Foster  EU-wide  standards57,  interoperability  testing  and  certification  of 

eHealth systems by 2015 through stakeholder dialogue; 

•  Reinforce  the  AmbientAssisted  Living  (AAL)  Joint  Programme  to  allow 
older people and persons with disabilities to live independently and be active 
in society. 

2.7.3.  Promoting cultural diversity and creative content  

The 2005 UNESCO Convention on cultural diversity (ratified at EU level in 2006), 
provides for the promotion and protection of cultural diversity across the world and 
applies equally to new digital environments. In fact the new digital media can permit 
a  wider  distribution  of  cultural  and  creative  content,  because  the  reproduction  is 
cheaper and quicker and creates more opportunities for authors and content providers 
to  reach  new  and  larger  –  even  global  -  audiences.  The  internet  is  also  a  driver  of 
greater  pluralism  in  the  media,  giving  both  access  to  a  wider  range  of  sources  and 
points of view as well as the means for individuals – who might otherwise be denied 
the opportunity – to express themselves fully and openly. 

In Europe, digital cinema take-up has been slower than foreseen because of technical 
(standards) and economic (business model) issues. Some types of cinemas are even 
threatened  with  closure  because  of  the  high  costs  of  digital  equipment.  Therefore, 
support to digitisation of cinemas is necessary to safeguard cultural diversity.  

Fragmentation  and  complexity  in  the  current  licensing  system  also  hinders  the 
digitisation of a large part of Europe's recent cultural heritage. Rights clearance must 
be improved, and Europeana - the EU public digital library - should be strengthened. 
Increased  public  funding  is  needed  to  finance  large-scale  digitisation,  alongside 
initiatives  with  private  partners  provided  that  they  allow  a  general  accessibility  of 
Europe's common cultural heritage online.58 Europe’s cultural heritage should also be 
made better accessible to all Europeans by advancing and using modern translation 
technologies. 

The  Audiovisual  Media  Services  Directive  governs  the  EU-wide  coordination  of 
national legislation on all audiovisual media; both traditional TV broadcasts and on-
demand services. It includes provisions for the promotion of European works both in 
TV-like and on-demand services.  

56 
57 
58 

In line with data protection requirements. 
Under Mandate 403 (CEN). 
The Commission has asked a "comité des sages" to make recommendations on these issues by the end 
of 2010, see press release IP/10/456. 

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The Commission will: 

ACTIONS 

•  Key  action  15:  By  2012  propose  a  sustainable  model  for  financing  the  EU  public 

digital library Europeana and digitisation of content; 

•  Other actions: 

•  By  2012  propose  measures  following  the  results  of  the  consultation  on  its 
Green  Paper  on  "Unlocking  the  potential  of  cultural  and  creative 
industries"; 

•  Issue  by  2011  a  Recommendation  on  promoting  digitisation  of  European 

cinema; 

•  Ensure  the  implementation  of  the  provisions  of  the  Audiovisual  Media 
Services Directive concerning cultural diversity, where appropriate through 
co-  and  self-regulation  and  request  information  from  Member  States  on  their 
application by the end of 2011. 

2.7.4. 

eGovernment 

eGovernment services offer a cost-effective route to better service for every citizen 
and  business  and  participatory  open  and  transparent  government.  eGovernment 
services  can  reduce  costs  and  save  time  for  public  administrations,  citizens  and 
businesses. They can also help mitigate the risks of climate change, natural and man-
made  hazards  by  including  the  sharing  of  environmental  data  and  environment-
related  information.  Today,  despite  a  high  level  of  availability  of  eGovernment 
services in Europe, differences still exist amongst Member States and the take-up of 
eGovernment services by citizens is low. In 2009, only 38% of EU citizens used the 
internet  for  accessing  eGovernment  services,  compared  to  72%  of  businesses. 
General  internet  take  up  will  be  lifted  if  the  usage  and  quality  and  accessibility  of 
public online services rises.  

European  governments  are  committed  to  making  user-centric,  personalised,  multi-
platform  eGovernment  services  a  widespread  reality  by  201559.  To  that  end 
governments should take steps to avoid any unnecessary technical requirements, for 
example  applications  that  only  work  in  specific  technical  environments  or  with 
specific  devices.  The  Commission  will  lead  by  example  in  implementing  smart 
eGovernment.  These  services  will  support  streamlined  administrative  processes, 
facilitate information sharing and simplify interaction with the Commission, thereby 
empowering  users  and  improving  the  efficiency,  effectiveness  and  transparency  of 
the Commission. 

Most  public  online  services  do  not  work  across  borders  to  the  detriment  of  the 
mobility of businesses and citizens. Public authorities have so far focused on national 
needs  and  have  not  sufficiently  taken  into  account  the  single  market  dimension  of 

59 

The Commission is working with Member States on an Action Plan to implement the commitments in 
the 2009. eGovernment Declaration Malmö. 

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eGovernment. Yet several single market initiatives and legal instruments (such as the 
Services  Directive  or  the  eProcurement  Action  Plan)  rely  on  the  possibility  for 
businesses  to  interact  and  do  business  with  public  administrations  by  electronic 
means and across borders60. 

Therefore  Europe  needs  better  administrative  cooperation  to  develop  and  deploy 
cross-border  public  online  services.  This  includes  the  implementation  of  seamless 
eProcurement  as  well  as  practical  e-identification  and  e-authentication  cross  border 
services (including mutual recognition of security levels for authentication)61. 

eEnvironment  services,  as  a  category  of  eGovernment  services,  are  either  still 
under-developed, or fragmented along national borders. Community law in this area 
should  be  reviewed  and  modernised.  Secondly,  innovative  solutions  such  as 
advanced sensor networks, can help fill gaps in the required data. 

The Commission will: 

ACTIONS 

•  Key Action 16: Propose by 2012 a Council and Parliament Decision to ensure mutual 
recognition  of  e-identification  and  e-authentication  across  the  EU  based  on  online 
'authentication  services'  to  be  offered  in  all  Member  States  (which  may  use  the  most 
appropriate official citizen documents – issued by the public or the private sector); 

•  Other actions: 

•  Support seamless cross-border eGovernment services in the single market 
(CIP)  and 
(ISA) 

for  European  Public  Administrations 

the  Competitiveness  and 

Innovation  Programme 

through 
Interoperability  Solutions 
Programme; 

•  Review by 2011 the Public access to Environmental Information Directive;62 

•  Work  with  Member  States  and  stakeholders  to  implement  cross-border 

eEnvironment services, notably advanced sensor networks; 

•  Define by 2011 concrete steps in a White Paper on how to inter-connect e-

procurement capacity across the single market; 

•  Lead  by  example  on  open  and  transparent  eGovernment  by  creating  in  2010 
and  implementing  an  ambitious  eCommission  2011-2015  action  plan, 
including full electronic procurement. 

Member States should: 

•  Make eGovernment services fully interoperable, overcoming organisational, technical 

60 

61 

62 

The  future  public  online  services  will  rely  on  effective  and  interoperable  identity  management  and 
authentication frameworks and tools as described above. 
The development of a fully electronic customs environment in the EU by 2013 will provide high quality 
eGovernment  services  for  traders,  interoperable  national  IT  systems  and  a  community-wide 
management of customs procedures. 
Directive 2003/4/EC on public access to environmental information. 

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or semantic barriers and supporting IPv6; 

•  Ensure that the Points of Single contact function as fully fledged eGovernment centres 

beyond requirements and areas covered by the Services Directive; 

•  Agree by 2011 on a common list of key cross-border public services that correspond 
to well defined needs – enabling entrepreneurs to set up and run a business anywhere in 
Europe  independently  of  their  original  location,  and  allowing  citizens  to  study,  work, 
reside  and  retire  anywhere  in  the  European  Union.  These  key  services  should  be 
available online by 2015. 

2.7.5 

Intelligent Transport Systems for efficient transport and better mobility 

Intelligent Transports Systems (ITS) make transport more efficient, faster, easier and 
reliable.  The  focus  is  on  smart  solutions  to  integrate  passenger  and  freight  flows 
across transport modes and provide sustainable solutions to infrastructure bottlenecks 
affecting roads, railways, sky, sea and waterways.  

For road transport, and its interfaces with other modes, the ITS Action Plan and its 
associated  Directive  support  the  deployment  of  real-time  traffic  and  travel 
information  and  dynamic  traffic  management  systems  to  relieve  congestion  and 
encourage  greener  mobility,  while  improving  safety  and  security.  The  Air  Traffic 
Management  Solutions  for  the  Single  European  Sky  (SESAR)  will  integrate  air 
navigation services and supporting systems. River Information Services (RIS) and e-
Maritime  services  allow  for  better,  safer  and  more  efficient  river  and  maritime 
transport.  The  European  Rail  Traffic  Management  System  aims  at  a  Europe  wide 
automatic  speed  control  system,  while  telematic  applications  for  rail  freight 
services63  and  passenger  services  will  support  cross-border  services,  providing 
passengers  with  journey  planning  tools  (including  connections  to  other  trains  and 
modes,  support  for  reservation,  payment  and  luggage  tracing)  as  well  as  real  time 
updates. 

The Commission will: 

ACTIONS 

•  Increase the speed of ITS take-up, in particular for road and urban transport by, applying 

the proposed ITS Directive in support of interoperability and rapid standardisation; 

•  By  2010,  adopt  the  Air  Traffic  Management  Solutions  for  the  Single  European  Sky 

(SESAR) deployment strategy; 

•  Propose by 2011 a Directive for the deployment of e-Maritime services; 

•  Propose in 2011 a Directive setting out technical specifications for telematic applications 

for rail passenger services. 

Member States should: 

•  Fulfil their obligations under the European Rail Traffic Management System (ERTMS) 

63 

OJ L 13, 18.1.2006, p.1 

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deployment plan, in particular as regards the lines due to be equipped by 2015. 

2.8. 

International aspects of the Digital Agenda 

The  European  Digital  Agenda  aims  to  make  Europe  a  powerhouse  of  smart, 
sustainable and inclusive growth on the global stage. The seven pillars in the Digital 
Agenda  all  have  international  dimensions.  The  Digital  Single  Market  in  particular 
needs  an  external  face  because  progress  on  many  of  the  policy  issues  can  only  be 
made on an international level. Interoperability and standards recognised at the world 
scale can help promote more rapid innovation by lowering the risks and costs of new 
technologies. Addressing rising cyber security threats also needs to take place in an 
international  context.  Also,  the  European  regulatory  solutions  that  are  based  on 
equity of opportunity, transparent government and governance and markets that are 
open  to  competition  are  providing  inspiration  elsewhere  in  the  world.  Finally,  it  is 
also  important  to  benchmark  European  progress  in  the  Digital  Agenda  against  the 
best international performance.  

Thus  an  international  dimension  of  the  Digital  Agenda  in  order  to  complete  the 
actions above is crucial, in particular given the strategic importance of the internet. 
Europe  must  continue  to  play  a  leading  role,  in  line  with  the  Tunis  Agenda,  in 
promoting a governance of the internet as open and inclusive as possible. Today and 
even more so in the future, the internet will encompass a wide array of devices and 
applications  permeating  all  parts  of  life  -  regardless  of  the  geography.  It  is  a 
formidable instrument for freedom of speech worldwide. 

To  foster  innovation  also  internationally,  the  Commission  will  work  towards 
favourable  external  trade  conditions  for  digital  goods  and  services,  e.g.  develop  a 
stronger  partnership  to  deliver  market  access  and  investment  opportunities,  reduce 
tariff and non-tariff barriers at global level, improve IPR protection and avoid market 
distortions. 

The Information Technology Agreement (ITA) of 1997 has brought tangible results 
in  promoting  the  up-take  of  information  technology  in  Europe  and  worldwide.  But 
the  ITA,  however,  now  needs  be  updated  to  take  account  of  new  developments, 
especially technology and product convergence.  

Also  in  the  area  of  digital  services  and  intellectual  property  the  technological 
progress will need to be further reflected in international trade agreements. 

The Commission will: 

ACTIONS 

•  Promote  the  internationalisation  of  internet  governance  and  global  cooperation  to 

maintain the stability of the internet, on the basis of the multi-stakeholder model; 

•  Support the continuation of the Internet Governance Forum beyond 2010; 

•  Work with third countries to improve international trade conditions for digital goods 

and services, including with regard to intellectual property rights; 

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•  Seek  a  mandate  to  update  international  agreements  in  line  with  technological  progress 

or, where appropriate, propose new instruments. 

3. 

IMPLEMENTATION AND GOVERNANCE 

The  toughest  challenge  is  to  ensure  rapid  adoption  and  implementation  of  these 
measures  necessary  to  meet  our  objectives.  We  need  a  shared  determination  and  a 
common vision to achieve this step change for Europe.  

the  Digital  Agenda  requires  meticulous  execution  of 

The  success  of 
its 
comprehensive  set  of  actions  in  accordance  with  the  Europe  2020  governance 
structure. As depicted in Figure Error! Unknown switch argument., the Commission 
will therefore: 

1. 

Set up an internal coordination mechanism – at its core a Commissioners' Group 
to  ensure  effective  policy  coordination  across  the  different  policy  areas,  with 
particular  reference  to  the  set  of  legislative  initiatives  proposed  under  the  Digital 
Agenda (Annex 1). 

Figure  Error!  Unknown  switch  argument.:  The  European  Digital  Agenda 
Governance Cycle 

Member States
Member States
High Level Group
High Level Group

European Council
European Council

reporting to
reporting to

European Digital Agenda
European Digital Agenda
(Yearly Communication)
(Yearly Communication)

Digital Agenda
Digital Agenda
Assembly
Assembly
(Summer)
(Summer)

Stakeholder Engagement
Stakeholder Engagement

Digital Agenda Scoreboard
Digital Agenda Scoreboard

(Staff Working Paper)
(Staff Working Paper)

European Parliament
European Parliament
Representation
Representation

2. 

Cooperate  closely  with  Member  States,  the  European  Parliament  and  all  interested 
stakeholders, in particular by: 

•  Establishing a 'High Level Group' to work with Member States; 

•  Engaging in regular dialogue with representatives of the European Parliaments; 

•  Setting up action-oriented platforms on the seven action areas with a wide range 

of stakeholders. 

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3. 

Chart  progress  on  the  Digital  Agenda  by  the  annual  publication  in  May  of  a 
scoreboard including64: 

•  Socio-economic  developments  based  on  key  performance  indicators,  selected  on 

the basis of their relevance to the main policy issues (Annex 2)65; 

•  An  update  of  progress  on  the  full  set  of  policy  actions  identified  in  the  Digital 

Agenda.  

4. 

5. 

Organise  a  wide  stakeholder  debate  on  the  progress  as  tracked  in  the  digital 
scoreboards  in  the  form  of  an  annual  Digital  Assembly  in  June,  bringing  together 
Member  States,  EU  institutions,  citizen's  representatives  and  industry  to  assess 
progress and emerging challenges. The first Digital Assembly will be held in the first 
half of 2011. 

The Commission will report on the results of these activities in an Annual Progress 
Report  to  the  European  Council  in  accordance  with  the  Europe  2020  governance 
structure. 

64 
65 

These scoreboards will lay the foundations for the evaluation framework of the Digital Agenda. 
The  indicators  are  mainly  drawn  from  the  Benchmarking  framework  2011-2015  endorsed  by  the  EU 
Member States in November 2009. This is a conceptual framework for collection of information society 
statistics as well as a list of core indicators for benchmarking 

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Annex 1: Table of legislative actions 

Commission legislative action/proposals 

A vibrant digital single market 

Key  Action  1:  Propose  a  framework  Directive  on  collective  rights 
management,  establishing  pan-European 
rights 
management 

licensing 

(online) 

for 

Planned 
delivery 
date 

2010 

Key  Action  1:  Propose  a  Directive  on  orphan  works  to  facilitate  digitisation 
and dissemination of cultural works in Europe 

2010 

Key  Action  4:  Review  the  EU  data  protection  regulatory  framework,  to 
enhance individuals' confidence and strengthening their rights 

2010 

Make proposals updating the e-Commerce Directive for online markets 

Key Action 2: Propose measures to make Single Euro Payment Area (SEPA) 
migration obligatory by a future fixed date  

2010 

2010 

Key  Action  3:  Review  the  eSignature  Directive  to  ensure  cross-border 
recognition and interoperability of secure eAuthentication systems 

2011 

Propose  a  contract  law  instrument  complementing  the  Consumer  Rights 
Directive  

2011 

Propose measures for an increased harmonisation of numbering resources for 
provision of business services across Europe 

2011 

Report  on  the  review  of  the  Directive  on  the  enforcement  of  intellectual 
property rights 

2012 

Report  on  the  need  for  additional  measures  needed  to  promote  cross-border 
and pan-European licences 

2012 

Key Action 1: Review the Directive on Re-Use of Public Sector Information, 
notably its scope and principles on charging for access and use  

2012 

Propose  an  EU-wide  Online  Dispute  Resolution  system  for  eCommerce 
transactions 

2012 

Interoperability and standards 

Key  Action  5:  Make  proposals  to  reform  of  rules  on  implementation  of  ICT 
standards in Europe to allow use of certain ICT fora and consortia standards 

2010 

Issue  guidelines  on  essential  intellectual  property  rights  and  licensing 
conditions in standard-setting, including for ex-ante disclosure 

2011 

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Commission legislative action/proposals 

Planned 
delivery 
date 

Report on the feasibility of measures that could lead significant market players 
to license interoperability information 

2012 

Trust and security 

Key Action 6: Propose a Regulation to modernise the European Network and 
Information Security Agency (ENISA) and make proposals to set up CERT for 
EU institutions  

2010 

Key Action 4: As part of the modernisation of the EU personal data protection 
regulatory  framework,  explore  the  extension  of  security  breach  notification 
provisions  

2010 

Key Action 7: Propose legal measures to combat cyber attacks  

Key  Action  7:  Propose  rules  on  jurisdiction  in  cyberspace  at  European  and 
international levels 

2010 

2013 

Fast and ultra fast internet access 

Key Action 8: Propose a decision by the European Parliament and Council on 
a  European  Spectrum  Policy  Programme  for  more  efficient  management  of 
radio spectrum  

2010 

Key  Action  8:  Issue  a  Recommendation  to  encourage  investment  in 
competitive NGA networks  

2010 

Enhancing digital literacy, skills and inclusion 

Make proposals to ensure public sector websites (and websites providing basic 
services to citizens) are fully accessible by 2015 

2011 

Key Action 10: Propose digital literacy and competences as a priority for the 
European Social Fund regulation (2014-2020) 

2013 

ICT-enabled benefits for EU society 

Propose  a  set  of  minimum  functionalities  to  promote  the  interoperability  of 
Smart Grids at European level 

2010 

Propose,  if  necessary,  common  measurement  methodologies  for  ICT  sector 
energy performance and greenhouse gas emissions 

2011 

Issue a Recommendation on digitisation of European cinema 

Review the Public Access to Environmental Information Directive 

2011 

2011 

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Commission legislative action/proposals 

Propose a Directive for the deployment of e-Maritime services 

Planned 
delivery 
date 

2011 

Propose  a  Directive  setting  out 
applications for rail passenger services 

technical  specifications  for 

telematic 

2011 

Key Action 14: Issue a recommendation defining a minimum common set of 
patient data for interoperability of patient records to be accessed or exchanged 
electronically across Member States  

2012 

Key  Action  16:  Propose  a  Council  and  Parliament  Decision  requesting 
Member  States  to  ensure  mutual  recognition  of  e-identification  and  e-
authentication across the EU based on online 'authentication services'  

2012 

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Annex 2: Key Performance Targets 

These indicators are mainly drawn from the Benchmarking framework 2011-201566 
endorsed by the EU Member States in November 2009. 

1. 

Broadband targets: 

•  Basic  broadband  for  all  by  2013:  basic  broadband  coverage  for  100%  of  EU 
citizens. (Baseline: Total DSL coverage (as % of the total EU population) was at 
93% in December 2008.) 

•  Fast broadband by 2020: broadband coverage at 30 Mbps or more for 100% of EU 
citizens. (Baseline: 23% of broadband subscriptions were with at least 10 Mbps in 
January 2010.) 

•  Ultra-fast  broadband  by  2020:  50%  of  European  households  should  have 

subscriptions above 100Mbps. (No baseline) 

2.  Digital single market: 

•  Promoting eCommerce: 50% of the population should be buying online by 2015. 
(Baseline: In 2009, 37 % of the individuals aged 16-74 ordered goods or services 
for private use in the last 12 months.) 

•  Cross-border eCommerce: 20% of the population should buy cross border online 
by 2015. (Baseline: In 2009, 8 % of the individuals aged 16-74 ordered goods or 
services from sellers from other EU countries in the last 12 months.) 

•  eCommerce for business: 33% of SMEs should conduct online purchases/sales by 
2015.  (Baseline:  During  2008,  24%  and  12%  of  enterprises  was,  respectively, 
purchasing/selling electronically, for an amount equal to or greater than 1% of the 
turnover/total purchases. 

•  Single market for telecoms services: the difference between roaming and national 
tariffs  should  approach  zero  by  2015.  (Baseline:  In  2009,  the  roaming  average 
price per minute was 0.38 cents (call made) and the average price per minute for 
all calls in the EU was 0.13 cents (roaming included). 

66 

For  more  information  see  Benchmarking  framework  2011-2015;  This  is  a  conceptual  framework  for 
collection of statistics on the information society as well as a list of core indicators for benchmarking. 

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3.  Digital inclusion: 

•  Increase regular internet use from 60% to 75% by 2015 and from 41% to 60% for 

disadvantaged people. (Baseline figures are for 2009). 

•  Halve  the  proportion  of  population  that  has  never  used  the  internet  by  2015  (to 
15%).  (Baseline:  In  2009,  30%  of  individuals  aged  16-74  had  never  used  the 
internet.) 

4. 

Public services: 

•  eGovernment by 2015: 50% of citizens using eGovernment, with more than half 
of them returning filled in forms. (Baseline: In 2009, 38% of individuals aged 16-
74 had used eGovernment services in the last 12 months, and 47% of them used 
eGovernment services for sending filled forms.) 

•  Cross-border  public  services:  by  2015  online  availability  of  all  the  key  cross-
border  public  services  contained  in  the  list  to  be  agreed  by  Member  States  by 
2011. (No baseline) 

5.  Research & innovation: 

•  ICT  R&D  increase:  Double  public  investment  to  €11  billion.  (Baseline:  ICT 
government  budget  appropriations  or  outlays  on  R&D  (ICT  GBAORD)  was  5,7 
billion nominal euros in 2007.) 

6. 

Low Carbon Economy: 

•  Promotion  of  low  energy  lighting:  By  2020  at  least 20%  overall  reduction  in 

energy use on lighting. (No baseline.)  

•   

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