COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL The EU Internal Security Strategy in Action: Five steps towards a more secure Europe
Date: 2010-11-22
Institutions: European Commission
Subjects: administrative cooperation, delinquency, domestic policy, frontier, international security

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EUROPEAN COMMISSION 

Brussels, 22.11.2010 
COM(2010) 673 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

The EU Internal Security Strategy in Action: Five steps towards a more secure Europe 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

The EU Internal Security Strategy in Action: Five steps towards a more secure Europe 

1. 

THE EUROPEAN SECURITY MODEL: WORKING TOGETHER FOR A MORE 
SECURE EUROPE 

Most Europeans are able to go about their daily lives in relative safety. At the same time, our 
societies are facing serious security threats that are growing in scale and sophistication. Many 
of today's security challenges are cross-border and cross-sectoral in nature. No single Member 
State is able to respond to these threats on its own. This is something that worries our citizens 
and  businesses.  Four  out  of  five  Europeans  want  more  action  at  EU  level  against  organised 
crime and terrorism1. 

Much  has  been  achieved  to  respond  to  those  emerging  threats  and  to  increase  Europe’s 
security. With the Lisbon Treaty2 in force, and with the guidance provided by the Stockholm 
Programme and its Action Plan3, the EU now has the opportunity to take further determined 
action. The Internal Security Strategy, adopted in early 2010 under the Spanish Presidency4, 
set out the challenges, principles and guidelines for how to deal with these issues within the 
EU  and  called  on  the  Commission  to  propose  actions  for  implementing  the  strategy.  This 
communication  –  the  EU  Internal  Security  Strategy  in  Action  -  therefore  builds  on  what 
Member States and EU institutions have already agreed, and proposes how we over the next 
four  years  can  work  together  to  be  more  effective  in  fighting  and  preventing  serious  and 
organised  crime,  terrorism  and  cybercrime,  in  strengthening  the  management  of  our 
external borders and in building resilience to natural and man-made disasters.  

A shared agenda for common challenges 

The EU's role in our internal security consists of common policies, legislation and practical 
cooperation  in  the  areas  of  police  and  judicial  cooperation,  border  management,  and  crisis 
management.  In  striving  to  reach  our  security  objectives,  the  contribution  from  both  EU 
internal and external policies is crucial.  

The  EU  Internal  Security  Strategy  in  Action  therefore  puts  forward  a  shared  agenda  for 
Member  States,  the  European  Parliament,  the  Commission,  the  Council  and  agencies  and 
others,  including  civil  society  and  local  authorities.  This  agenda  should  be  supported  by  a 
solid  EU  security  industry  in  which  manufacturers  and  service  providers  work  closely 

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Standard Eurobarometer 71. 
Treaty on the Functioning of the European Union (TFEU). 
The Stockholm Programme: An Open and Secure Europe Serving and Protecting the Citizens (Council 
Document  17024/09);  Delivering  an  area  of  freedom,  security  and  justice:  Action  plan  implementing 
the Stockholm Programme - COM(2010) 171. The Stockholm Programme is the EU's programme for 
justice and home affairs for the period 2010-14. 
Council  Document,  5842/2/2010,  Internal  Security  Strategy  for  the  European  Union:  Towards  a 
European Security Model. 

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together with end-users. Our common efforts to deliver responses to the security challenges of 
our time will also contribute to strengthening and developing the European model of a social 
market economy put forward in the Europe 2020 strategy.  

Security policies based on common values 

The Internal Security Strategy in Action, and the tools and actions for implementing it must 
be based on common values including the rule of law and respect for fundamental rights as 
laid  down  in  the  EU  Charter  of  Fundamental  Rights5.  Solidarity  must  characterise  our 
approach to crisis management. Our counter terrorism policies should be proportionate to the 
scale  of  the  challenges  and  focus  on  preventing  future  attacks.  Where  efficient  law 
enforcement in the EU is facilitated through information exchange, we must also protect the 
privacy of individuals and their fundamental right to protection of personal data.  

Internal security with a global perspective  

Internal security cannot be achieved in isolation from the rest of the world, and it is therefore 
important to ensure coherence and complementarity between the internal and external aspects 
of  EU  security.  The  values  and  priorities  in  the  Internal  Security  Strategy,  including  our 
commitment to promoting human rights, democracy, peace and stability in our neighbourhood 
and beyond, are an integral component of the approach laid down in the European Security 
Strategy6. As that Strategy recognises, relationships with our partners, in particular the United 
States,  are  of  fundamental  importance  in  the  fight  against  serious  and  organised  crime  and 
terrorism.  

Security should be integrated in relevant strategic partnerships, and taken into account in the 
dialogue  with  our  partners  when  programming  EU  funding  in  partnership  agreements.  In 
particular,  internal  security-related  priorities  should  feature  in  political  dialogues  with  third 
countries  and  regional  organisations  where  appropriate  and  relevant  for  combating  multiple 
threats,  such  as  trafficking  in  human  beings,  drugs  trafficking  and  terrorism.  The  EU  will 
moreover  pay  special  attention  to  third  countries  and  regions  which  may  require  EU  and 
Member State support and expertise in the interests of not only the external but also internal 
security.  With  the  European  External  Action  Service  it  will  be  possible  to  integrate  further 
action  and  expertise  using  the  skills  and  knowledge  of  Member  States,  the  Council  and  the 
Commission.  Security  expertise  should  be  deployed  to  EU  Delegations,  particularly  in 
priority  countries,  including  Europol  liaison  officers  and  liaison  magistrates7.  Appropriate 
responsibilities  and  functions  for  these  experts  will  be  defined  by  the  Commission  and  the 
European External Action Service. 

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'Strategy for the effective implementation of the Charter of Fundamental Rights by the European Union' 
- COM(2010) 573. 
'European Security Strategy: A Secure Europe in a Better World' was adopted in 2003 and reviewed in 
2008.  
In accordance with Council Decision on Eurojust 2009/426/JHA, to be transposed by June 2011. 

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2. 

FIVE STRATEGIC OBJECTIVES FOR INTERNAL SECURITY 

This communication identifies the most urgent challenges to EU security in the years to come. 
It  proposes  five  strategic  objectives  and  specific  actions  for  2011-2014  which,  alongside 
ongoing efforts and initiatives, will help make the EU more secure.  

Serious  and  organised  crime  takes  a  variety  of  forms:  trafficking  in  human  beings,  drugs 
and  firearms  trafficking,  money  laundering  and  the  illegal  shipment  and  dumping  of  waste 
inside and outside Europe. Even seemingly petty crimes such as burglary and car theft, sale of 
counterfeit  and  dangerous  goods  and  the  actions  of  itinerant  gangs  are  often  local 
manifestations of global criminal networks. These crimes require concerted European action. 
Likewise with terrorism: our societies remain vulnerable to the sorts of attacks suffered with 
the bombings of public transport in Madrid in 2004 and in London in 2005. We must work 
harder and more closely to prevent new attacks recurring.  

Another growing threat is cybercrime. Europe is a key target for cybercrime because of its 
advanced  Internet  infrastructure,  the  high  number  of  users,  and  its  internet-mediated 
economies and payment systems. Citizens, businesses, governments and critical infrastructure 
must be better protected from criminals who take advantage of modern technologies. Border 
security also requires more coherent action. With common external borders, smuggling and 
other cross-border illegal activity must be targeted at European level. Efficient control of the 
EU's external borders is thus crucial for the area of free movement. 

Furthermore, in recent years we have seen an increase in the frequency and scale of natural 
and  man-made  disasters  in  Europe  and  in  its  immediate  neighbourhood.  This  has 
demonstrated the need for a stronger, more coherent and better integrated European crisis and 
disaster  response  capacity  as  well  as  for  the  implementation  of  existing  disaster  prevention 
policies and legislation.  

OBJECTIVE 1: 

Disrupt international crime networks  

Despite growing cooperation between law enforcement authorities and the judiciary within as 
well as between Member States, international crime networks remain highly active, creating 
vast  criminal  profits.  Alongside  corruption  and  intimidation  of  local  populations  and 
authorities these profits are often used to penetrate the economy and undermine public trust. 

To  prevent  crime  it  is  therefore  essential  to  disrupt  criminal  networks  and  combat  the 
financial  incentive  which  drives  them.  To  that  end,  practical  law  enforcement  cooperation 
should  be  strengthened.  Authorities  across  all  sectors  and  at  different  levels  should  work 
together  to  protect  the  economy,  and  criminal  profits  should  be  effectively  traced  and 
confiscated. We also need to overcome the, obstacles posed by divergent national approaches, 
where necessary through legislation on judicial cooperation to strengthen mutual recognition 
and common definitions of criminal offences and minimum levels of criminal sanctions8.  

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Recent  proposals  for  Directives  on  trafficking  in  human  beings,  sexual  exploitation  of  children  and 
cybercrime  represent  an  important  first  step  in  this  direction.  Article  83(1)  TFEU  lists  the  following 
other  serious  crimes:  terrorism,  illicit  drug  trafficking,  illicit  arms  trafficking,  money  laundering, 
corruption, counterfeiting of means of payment and organised crime.  

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Action 1: Identify and dismantle criminal networks 

To  identify  and  disrupt  criminal  networks,  it  is  essential  to  understand  their  members' 
methods of operating and their financing.  

The Commission will therefore propose in 2011 EU legislation on the collection of Passenger 
Name Records of passengers on flights entering or leaving the territory of the EU. These data 
will  be  analysed  by  the  authorities  in  Member  States  to  prevent  and  prosecute  terrorist 
offences and serious crimes. 

Understanding the criminal source of finances and their movements depends on information 
about  the  owner  of  the  companies,  as  well  as the trusts that those finances pass  through. In 
practice, law enforcement and judicial authorities, administrative investigative bodies such as 
OLAF  and  private  sector  professionals  have  difficulty  obtaining  such  information.  The  EU 
should therefore consider by 2013, in the light of discussions with its international partners in 
the  Financial  Action  Task  Force,  revising  the  EU  Anti-Money  Laundering  legislation  to 
enhance  the  transparency  of  legal  persons  and  legal  arrangements.  To  help  trace  the 
movement  of  criminal  finances,  some  Member  States  have  set  up  a  central  register  of  bank 
accounts.  To  maximise  the  usefulness  of  such  registers  for  law  enforcement  purposes,  the 
Commission  will  in  2012  develop  guidelines.  In  order  to  investigate  effectively  criminal 
financial  transactions,  law  enforcement  and  judicial  authorities  should  be  equipped  and 
trained  to  collect,  analyse  and,  where  appropriate,  share  information  making  full  use  of 
national  centres  of  excellence  for  criminal  financial  investigation  and  the  European  Police 
College (CEPOL) training programmes. The Commission will propose a strategy in this area 
in 2012. 

Additionally,  the  international  nature  of  criminal  networks  calls  for  more  joint  operations 
involving police, customs, border guards and judicial authorities in different Member States 
working  alongside  Eurojust,  Europol  and  OLAF.  Such  operations,  including  Joint 
Investigation  Teams9,  should  be  set  up  -  where  necessary  at  short  notice  -  with  the  full 
support of the Commission in line with the priorities, strategic goals and plans established by 
the Council on the basis of relevant threat analyses10.  

Moreover,  the  Commission  and  Member  States  should  continue  to  ensure  effective 
implementation of and to report on the European Arrest Warrant, including its effects on 
fundamental rights.  

Action 2: Protect the economy against criminal infiltration 

Criminal  networks  rely  on  corruption  to  invest  their  profits  in  the  lawful  economy,  eroding 
trust  in  public  institutions  and  the  economic  system.  Sustaining  political  will  to  combat 
corruption is of key importance. Action at EU level and sharing of best practices is therefore 
necessary,  and  the  Commission  will  table  a  proposal  in  2011  on  how  to  monitor  and  assist 
Member States' anti-corruption efforts. 

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Article 88(2)(b) of the TFEU and Council Decision 2008/615/JHA on the stepping up of cross-border 
cooperation, particularly in combating terrorism and cross-border crime.  
Council Conclusions 15358/10 on the creation and implementation of a EU policy cycle for organised 
and serious international crime. 

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Policies  to  engage  governmental  and  regulatory  bodies  responsible  for  granting  licences, 
authorisations, procurement contracts or subsidies should be developed (the 'administrative 
approach')  to  protect  the  economy  against  infiltration  by  criminal  networks.  The 
Commission will give practical support to Member States by establishing in 2011 a network 
of  national  contact  points  to  develop  best  practices,  and  by  sponsoring  pilot  projects  on 
practical issues.  

Counterfeit goods generate large profits for organised crime groups, distort the single market's 
trade  patterns,  undermine  European  industry  and  put  the  health  and  safety  of  European 
citizens at risk. The Commission will therefore, in the context of its forthcoming action plan 
against  counterfeiting  and  piracy,  take  all  appropriate  initiatives  to  foster  more  effective 
enforcement  of  intellectual  property  rights.  Meanwhile,  to  combat  the  sale  of  counterfeit 
goods  on  the  internet,  Member  States'  customs  administrations  and  the  Commission  should 
adapt  laws  where  necessary,  establish  contact  points  in  national  customs  and  exchange  best 
practices. 

Action 3: Confiscate criminal assets 

To combat the financial incentive of criminal networks Member States must do all they can to 
seize,  freeze,  manage  and  confiscate  criminal  assets,  and  ensure  that  they  do  not  return  to 
criminal hands. 

To  this  end  the  Commission  will  propose  legislation  in  2011  to  strengthen  the  EU  legal 
framework11  on  confiscation,  in  particular  to  allow  more  third-party  confiscation12  and 
extended  confiscation13  and  to  facilitate  mutual  recognition  of  non-conviction-based14 
confiscation orders between Member States. 

Member  States  must15  by  2014  establish  Asset  Recovery  Offices  equipped  with  the 
necessary  resources,  powers  and  training,  and  the  ability  to  exchange  information.  The 
Commission will develop common indicators by 2013, against which Member States should 
evaluate  the  performance  of  these  offices.  Moreover,  Member  States  should  also  by  2014 
make  the  necessary  institutional  arrangements,  for  example  by  creating  asset  management 
offices,  to  ensure  that  frozen  assets  do  not  loose  their  value  before  they  are  eventually 
confiscated. In parallel, the Commission will in 2013 provide best practice guidance on how 
to prevent criminal groups from reacquiring confiscated assets.  

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Framework Decision 2001/500/JHA on money laundering and confiscation.  
Third party confiscation involves the confiscation of assets that have been transferred by an investigated 
or convicted person to third parties.  
Extended confiscation is the ability to confiscate assets which go beyond the direct proceeds of a crime 
so  that  there  is  no  need  to  establish  a  connection  between  suspected  criminal  assets  and  a  specific 
criminal conduct.  
Non-conviction based procedures allow to freeze and confiscate asset irrespective of a prior conviction 
of the owner in a criminal court.  
Council  Decision  2007/845/JHA  requires  each  Member  State  to  set  up  at  least  one  Asset  Recovery 
Office on its territory. 

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OBJECTIVE 2: 

Prevent terrorism and address radicalisation and recruitment 

The  threat  from  terrorism  remains  significant  and  is  constantly  evolving16.  Terrorist 
organisations adapt and innovate, as demonstrated by the 2008 Mumbai attacks, the attempted 
attack  on  a  flight  from  Amsterdam  to  Detroit  on  Christmas  Day  2009  and  plots  uncovered 
recently  affecting  several  Member  States.  Threats  now  come  both  from  organised  terrorists 
and from so-called 'lone wolves', who may have developed their radical beliefs on the basis of 
extremist  propaganda  and  found  training  materials  on  the  internet.  Our  efforts  to  combat 
terrorism  need  to  evolve  to  stay  ahead  of  the  threat  with  a  coherent  European  approach 
including  preventive  action17.  Furthermore,  the  EU  should  continue  to  designate  critical 
infrastructure and put in place plans to protect those assets, including transport services and 
energy generation and transmission, which are essential to the functioning of society and the 
economy.18 

Member States have the primary role in delivering on this objective through coordinated and 
effective  efforts,  with  the  full  support  of  the  Commission,  and  assisted  by  the  EU  Counter-
Terrorism Coordinator.  

Action 1: Empower communities to prevent radicalisation and recruitment 

Radicalisation  which  can  lead  to  acts  of  terrorism  is  best  contained  at  a  level  closest  to  the 
most susceptible individuals in the most affected communities. It requires close cooperation 
with  local  authorities  and  civil  society  and  empowering  key  groups  in  vulnerable 
communities. The core of the action on radicalisation and recruitment is - and should remain - 
at national level. 

Several Member States are developing work streams in this area, and certain cities within the 
EU  have  developed  local  community-based  approaches  and  prevention  policies.  These 
initiatives  have  often  been  successful  and  the  Commission  will  continue  to  assist  in 
facilitating the sharing of such experiences19.  

Firstly, by 2011, and in partnership with the Committee of the Regions, the Commission will 
promote  the  creation  of  an  EU  radicalisation-awareness  network,  supported  by  an  online 
forum  and  EU-wide  conferences,  to  pool  experiences,  knowledge  and  good  practices  to 
enhance  awareness  of  radicalisation  and  communication  techniques  for  challenging  terrorist 
narratives. This network will consist of policy makers, law enforcement and security officials, 
prosecutors,  local  authorities,  academics,  field  experts  and  civil  society  organisations, 
including victims groups. Member States should use ideas generated through the network to 
create physical and virtual community spaces for open debates which encourage credible role 

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For the latest figures, see Europol's 2010 Terrorism Situation and Trend (TESAT) Report. 
EU  Counter-Terrorism  Strategy  Doc.  14469/4/05  of  November  2005  sets  out  a  four-fold  approach 
consisting  of  Prevent,  Protect,  Pursue  and  Respond.  For  a  more  detailed  discussion,  see  'The  EU 
Counter-Terrorism Policy: main achievements and future challenges' - COM(2010) 386. 
Directive on European Critical Infrastructures (2008/114/EC), part of the wider European Programme 
for Critical Infrastructure Protection, whose scope extends beyond protection against terrorist threats. 
As part of the EU strategy for combating radicalisation and recruitment to terrorism (CS/2008/15175) 
the Commission has supported research and the establishment of the European Network of Experts on 
Radicalisation to study the phenomenon of radicalisation and recruitment, Member State-led projects on 
for  example  community  policing,  communication  and  radicalisation  in  prisons,  and  provided  around 
€ 5m for projects on behalf of victims and supports the network of associations of victims of terrorism.  

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models  and  opinion  leaders  to  voice  positive  messages  offering  alternatives  to  terrorist 
narratives.  The  Commission  will  also  support  the  work  of  civil  society  organisations  which 
expose, translate and challenge violent extremist propaganda on the internet.  

Secondly, the Commission will in 2012 organise a ministerial conference on the prevention 
of radicalisation and recruitment at which Member States will have the opportunity to present 
examples of successful action to counter extremist ideology.  

Thirdly,  in  the  light  of  these  initiatives  and  discussions,  the  Commission  will  develop  a 
handbook  of  actions  and  experiences  to  support  Member  States'  efforts,  from  upstream 
prevention of radicalisation to disrupting recruitment and  how to enable disengagement and 
rehabilitation.  

Action 2: Cut off terrorists’ access to funding and materials and follow their transactions 

The  Commission  will  in  2011  consider  devising  a  framework  for  administrative  measures 
under Article 75 of the Treaty as regards freezing of assets to prevent and combat terrorism 
and  related  activities.  The  EU  action  plans  for  preventing  access  to  explosives  (2008)  and 
Chemical,  Biological,  Radiological  and  Nuclear  (CBRN)  substances  (2009)  need  to  be 
implemented as a priority, by way of both legislative and non legislative action. This includes 
the adoption of a regulation, proposed by the Commission in 2010, limiting general access to 
chemical precursors used to make explosives. It also means setting up a European network of 
specialised CBRN law enforcement units, ensuring that Member States take CBRN risks into 
consideration  in  their  national  planning.  Another  measure  is  to  establish  a  law  enforcement 
Early  Warning  System  at  Europol  for  incidents  related  to  CBRN  materials.  These  actions 
require  close  coordination  with  Member  States,  and  should  involve  public  private 
partnerships,  where  appropriate.  To  minimise  the  risk  of  terrorist  organisations  and  state 
actors getting access to those items which could be used to make explosives and weapons of 
mass  destruction  (biological,  chemical  or  nuclear),  the  EU  should  strengthen  the  dual-use 
export control system and its enforcement at EU borders and internationally. 

Following the signature of the Terrorist Financing Tracking Programme agreement with the 
United  States,  the  Commission  will  in  2011  develop  a  policy  for  the  EU  to  extract  and 
analyse financial messaging data held on its own territory.  

Action 3: Protect transport 

The Commission will further develop the EU regime for aviation and maritime security, based 
on  continuous  assessment  of  threats  and  risks.  It  will  take  into  account  progress  in  security 
research techniques and technology, by making use of EU programmes such as Galileo and 
the GMES20 initiative on European earth observation. It will work to ensure public acceptance 
by  seeking  an  ever  better  balance  between  the  highest  possible  level  of  security  and  travel 
comfort,  cost  control,  and  the  protection  of  privacy  and  health;  and  it  will  emphasise 
continued strengthening of the inspections and enforcement regime, including the monitoring 
of cargo operations. International cooperation is essential and can help to promote improved 
security  standards  worldwide,  while  ensuring  efficient  use  of  resources  and  limiting 
unnecessary duplication of security checks. 

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GMES stands for Global Monitoring for Environment and Security.  

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There  is  scope,  and  justification,  for  a  more  active  European  approach  to  the  broad  and 
complex  area  of  land  transport  security,  and  in  particular  to  the  security  of  passenger 
transport21.  The  Commission  intends  to  extend  existing  work  on  urban  transport  security  to 
cover  (a)  local  and  regional  rail  and  (b)  high-speed  rail,  including  related  infrastructure.  To 
date,  EU  level  activity  has  been  limited  to  exchanging  information  and  best  practice, 
reflecting subsidiarity concerns and the absence of an international organisation comparable 
to  the  International  Maritime  Organisation  or  International  Civil  Aviation  Organisation 
requiring  a  co-ordinated  European  approach.  The  Commission  considers  that  as  a  first  step 
towards  further  action,  it  would  be  useful  to  explore  the  establishment  of  a  standing 
committee  on  land  transport  security,  chaired  by  the  Commission  and  involving  experts  in 
transport  and  in  law  enforcement,  and  of  a  forum  for  exchanging  views  with  public  and 
private stakeholders, taking account of previous experience in aviation and maritime transport 
security. Ongoing work to refine and strengthen procedures for monitoring air cargo in transit 
from third countries has been accelerated in the light of recent events. 

Transport  security  issues  will  be  addressed  in  detail  in  a  communication  on  Transport 
Security Policy to be issued in 2011. 

OBJECTIVE 3: 

Raise levels of security for citizens and businesses in cyberspace  

Security of IT networks is one essential factor for a well-functioning information society. This 
is  recognised  in  the  recently  published  Digital  Agenda  for  Europe22  which  addresses  issues 
related  to  cybercrime,  cyber  security,  safer  internet  and  privacy  as  the  main  components  in 
building trust and security for network users. The rapid development and application of new 
information  technologies  has  also  created  new  forms  of  criminal  activity.  Cybercrime  is  a 
global  phenomenon  causing  significant  damage  to  the  EU  internal  market.  While  the  very 
structure  of  the  internet  knows  no  boundaries,  jurisdiction  for  prosecuting  cybercrime  still 
stops at national borders. Member States need to pool their efforts at EU level. The High Tech 
Crime  Centre  at  Europol  already  plays  an  important  coordinating  role  for  law  enforcement, 
but further action is needed.  

Action 1: Build capacity in law enforcement and the judiciary  

By  2013,  the  EU  will  establish,  within  existing  structures,  a  cybercrime  centre,  through 
which  Member  States  and  EU  institutions  will  be  able  to  build  operational  and  analytical 
capacity  for  investigations  and  cooperation  with  international  partners23.  The  centre  will 
improve evaluation and monitoring of existing preventive and investigative measures, support 
the  development  of  training  and  awareness-raising  for  law  enforcement  and  judiciary, 
establish cooperation with the European Network and Information Security Agency (ENISA) 
and  interface  with  a  network  of  national/governmental  Computer  Emergency  Response 
Teams  (CERTs).  The  cybercrime  centre  should  become  the  focal  point  in  Europe's  fight 
against cybercrime.  

At  national  level,  Member  States  should  ensure  common  standards  among  police,  judges, 
prosecutors  and  forensic  investigators  in  investigating  and  prosecuting  cybercrime  offences. 

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European Council, March 2004, Declaration on Combating Terrorism. 
COM(2010) 245. 
The Commission will complete a feasibility study for the centre in 2011. 

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In  liaison  with  Eurojust,  CEPOL  and  Europol,  Member  States  are  encouraged  by  2013  to 
develop  their  national  cybercrime  awareness  and  training  capabilities,  and  set  up  centres  of 
excellence at national level or in partnership with other Member States. These centres should 
work closely with academia and industry.  

Action 2: Work with industry to empower and protect citizens  

All Member States should ensure that people can easily report cybercrime incidents. This 
information,  once  evaluated,  would  feed  into  national  and,  if  appropriate,  the  European 
cybercrime alert platform. Building on the valuable work under the Safer Internet Programme, 
Member States should also ensure that citizens have easy access to guidance on cyber threats 
and the basic precautions that need to be taken. This guidance should include how people can 
protect  their  privacy  online,  detect  and  report  grooming,  equip  their  computers  with  basic 
anti-virus software and firewalls, manage passwords, and detect phishing, pharming, or other 
attacks. The Commission will in 2013 set up a real-time central pool of shared resources and 
best practices among Member States and the industry. 

Cooperation between the public and private sector must also be strengthened on a European 
level through the European Public-Private Partnership for Resilience (EP3R). It should further 
develop  innovative  measures  and  instruments  to  improve  security,  including  that  of  critical 
infrastructure,  and  resilience  of  network  and  information  infrastructure.  EP3R  should  also 
engage with international partners to strengthen the global risk management of IT networks.  

The  handling  of  illegal  internet  content  –  including  incitement  to  terrorism  –  should  be 
tackled  through  guidelines  on  cooperation,  based  on  authorised  notice  and  take-down 
procedures,  which  the  Commission  intends  to  develop  with  internet  service  providers,  law 
enforcement  authorities  and  non-profit  organisations  by  2011.  To  encourage  contact  and 
interaction  between  these  stakeholders,  the  Commission  will  promote  the  use  of  an  internet 
based  platform  called  the  Contact  Initiative  against  Cybercrime  for  Industry  and  Law 
Enforcement. 

Action 3: Improve capability for dealing with cyber attacks 

A  number  of  steps  must  be  taken  to  improve  prevention,  detection  and  fast  reaction  in  the 
event  of  cyber  attacks  or  cyber  disruption.  Firstly,  every  Member  State,  and  the  EU 
institutions themselves should have, by 2012, a well-functioning CERT. It is important that, 
once they are set up, all CERTs and law enforcement authorities cooperate in prevention and 
response.  Secondly,  Member  States  should  network  together  their  national/governmental 
CERTs by 2012 to enhance Europe's preparedness. This activity will also be instrumental in 
developing, with the support of the Commission and ENISA, a European Information Sharing 
and  Alert  System  (EISAS)  to  the  wider  public  by  2013  and  in  establishing  a  network  of 
contact points between relevant bodies and Member States. Thirdly, Member States together 
with  ENISA  should  develop  national  contingency  plans  and  undertake  regular  national  and 
European exercises in incident response and disaster recovery. Overall, ENISA will provide 
support to these actions with the aim of raising standards of CERTs in Europe. 

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OBJECTIVE 4: 

Strengthen security through border management  

With the Lisbon Treaty in force the EU is better placed to exploit synergies between border 
management  policies  on  persons  and  goods,  in  a  spirit  of  solidarity  and  sharing  of 
responsibility24. In relation to movement of persons, the EU can treat migration management 
and the fight against crime as twin objectives of the integrated border management strategy. It 
is based on three strategic strands. 

•  An enhanced use of new technology for border checks (the second generation of 
the  Schengen  Information  System  (SIS  II),  the  Visa  Information  System  (VIS), 
the entry/exit system and the registered traveller programme);  

•  an enhanced use of new technology for border surveillance (the European Border 
Surveillance  System,  EUROSUR)  with  the  support  of  GMES  security  services, 
and  the  gradual  creation  of  a  common  information  sharing  environment  for  the 
EU maritime domain25; and  

•  an enhanced coordination of Member States through Frontex.  

In  relation  to  the  movement  of  goods,  the  2005  'security  amendment'  of  the  Community 
Customs Code26 laid down a basis for the border to become safer and yet more open for trade 
of trusted goods. All cargo entering the EU is subject to risk analysis for security and safety 
purposes based on common risk criteria and standards. Use of resources is more efficient as 
they  focus  more  on  potentially  risky  cargos.  The  system  relies  on  advance  information  of 
trade movements from economic operators, the establishment of a common risk management 
framework, as well as an Authorised Economic Operators scheme to be applied to all goods 
entering or leaving the EU. These instruments are complementary and create a comprehensive 
architecture,  which  is  being  further  developed  to  cope  with  the  increasingly  sophisticated 
criminal organisations that Member States cannot tackle on their own. 

Action 1: Exploit the full potential of EUROSUR 

The  Commission  will  present  a  legislative  proposal  to  set  up  EUROSUR  in  2011  to 
contribute  to  internal  security  and  the  fight  against  crime.  EUROSUR  will  establish  a 
mechanism for Member States' authorities to share operational information related to border 
surveillance and for cooperation with each other and with Frontex at tactical, operational and 
strategic  level27.  EUROSUR  will  make  use  of  new  technologies  developed  through  EU 
funded research projects and activities, such as satellite imagery to detect and track targets at 
the maritime border, e.g. tracing fast vessels transporting drugs to the EU. 

24 
25 

26 

27 

'Towards  the  integration  of  maritime  surveillance:  A  Common 

Article 80 of the TFEU. 
Commission  communication, 
information environment for the EU maritime domain', COM (2009) 538 
Council Regulation (EC) No 648/2005 amending Council Regulation (EC) No 2913/92 establishing the 
Community Customs Code. 
Commission  proposals  for  the  development  of  the  EUROSUR  system  and  for  the  development  of  a 
common  information  sharing  environment  (CISE)  for  the  EU  maritime  domain  are  set  out  in  COM 
(2008) 68 and COM(2009) 538 respectively. A six step road map for establishing the CISE was recently 
adopted - COM(2010) 584. 

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In recent years, two major initiatives on operational cooperation at the maritime borders have 
been  launched  –  one  on  human  trafficking  and  human  smuggling  under  the  umbrella  of 
Frontex and the second on drugs smuggling in the framework of MAOC-N28 and CeCLAD-
M29.  As  part  of  the  development  of  integrated  and  operational  action  at  the  EU’s  maritime 
border,  the  EU  will  launch  in  2011  a  pilot  project  at  its  southern  or  south-western  border, 
involving  those  two  centres,  the  Commission,  Frontex  and  Europol.  This  pilot  project  will 
explore  synergies  on  risk  analysis  and  surveillance  data  in  common  areas  of  interest 
concerning different types of threats, such as drugs and people smuggling30. 

Action 2: Enhancing the contribution of Frontex at the external borders  

During  its  operations,  Frontex  comes  across  key  information  on  criminals  involved  in 
trafficking  networks.  Currently,  however,  this  information  cannot  be  further  used  for  risk 
analyses  or  to  better  target  future  joint  operations.  Moreover,  relevant  data  on  suspected 
criminals do not reach the competent national authorities or Europol for further investigation. 
Likewise,  Europol  cannot  share  information  from  its  analytical  work  files.  Based  on 
experience and in the context of the EU's overall approach to information management31, the 
Commission  considers  that  enabling  Frontex  to  process  and  use  this  information,  with  a 
limited  scope  and  in  accordance  with  clearly  defined  personal  data  management  rules,  will 
make  a  significant  contribution  to  dismantling  criminal  organisations.  However,  this  should 
not create any duplication of tasks between Frontex and Europol. 

From 2011 onwards, the Commission, with joint input from Frontex and Europol, will present 
a report by the end of  each year on specific  cross-border crimes  such  as human trafficking, 
human smuggling and smuggling of illicit goods. This annual report will serve as a basis for 
assessing  the  need  for  Frontex  and  its  joint  operations  and  joint  operations  between  police, 
customs  and  other  specialised  law  enforcement  authorities  to  be  carried  out  from  2012 
onwards. 

Action 3: Common risk management for movement of goods across external borders  

Significant legal and structural developments have taken place in recent years to improve the 
security  and  safety  of  international  supply  chains  and  movement  of  goods  crossing  the  EU 
border.  The  Common  Risk  Management  Framework  (CRMF),  implemented  by  customs 
authorities,  entails  continuous  screening  of  electronic  pre-arrival  (and  pre-departure)  trade 
data to identify the risk of security and safety threats to the EU and its inhabitants, as well as 
dealing  with  these  risks  appropriately.  The  CRMF  also  provides  for  application  of  more 
intensive controls targeting identified priority areas, including trade policy and financial risks. 
It also requires systematic exchange of risk information at EU level. 

A  challenge  in  the  coming  years  is  to  ensure  uniform,  high-quality  performance  of  risk 
management,  associated  risk  analysis,  and  risk-based  controls  in  all  Member  States.  In 

28 
29 
30 

31 

MAOC-N - Maritime Analysis and Operations Centre – Narcotics. 
CeCLAD-M - Centre de Coordination pour la lutte antidrogue en Méditerranée. 
This project will complement the other integrated maritime surveillance projects such as BlueMassMed 
and Marsuno, which aim to optimise the efficiency of maritime surveillance in the Mediterranean Sea, 
Atlantic and the northern European sea basins. 
Overview  in  the  area  of  information  management  in  the  area  of  freedom,  security  and  justice  - 
COM(2010) 385. 

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addition  to  the  annual  report  on  the  smuggling  of  illicit  goods  referred  to  above,  the 
Commission  will  develop  EU  level  customs  assessments  to  address  common  risks.  Pooling 
information  at  EU-level  should  be  used  to  reinforce  border  security.  In  order  to  strengthen 
customs security to the required level at external borders, the Commission will work in 2011 
on  options  to  improve  EU  level  capabilities  for  risk  analysis  and  targeting  and  come 
forward with proposals as appropriate. 

Action 4: Improve interagency cooperation at national level 

Member  States  should  by  the  end  of  2011  start  developing  common  risk  analyses.  This 
should involve all relevant authorities with a security role, including police, border guards and 
customs authorities who identify hot spots and multiple and cross-cutting threats at external 
borders,  for  example  repeated  smuggling  of  people  and  drugs  from  the  same  region  at  the 
same  border  crossing  points.  These  analyses  should  complement  the  yearly  report  by  the 
Commission  on  cross-border  crimes  with  joint  contributions  from  Frontex  and  Europol.  By 
the end of 2010 the Commission will finalise a study to identify best practices on cooperation 
between  border  guards  and  customs  administrations  working  at  EU  external  borders  and 
consider the best way to disseminate them. In 2012, the Commission will make suggestions 
on  how  to  improve  coordination  of  border  checks  carried  out  by  different  national 
authorities (police, border guards, and customs). Further to that, by 2014 the Commission will 
develop, together with Frontex, Europol and the European Asylum Support Office, minimum 
standards and best practices for interagency cooperation. These shall particularly be applied to 
joint risk analysis, joint investigations, joint operations and exchanging intelligence. 

OBJECTIVE 5: 

Increase Europe's resilience to crises and disasters 

The EU is exposed to an array of potential crises and disasters, such as those associated with 
climate  change  and  those  caused  by  terrorist  and  cyber  attacks  on  critical  infrastructure, 
hostile  or  accidental  releases  of  disease  agents  and  pathogens,  sudden  flu  outbreaks  and 
failures in infrastructure. These cross-sectoral threats call for improvements to long-standing 
crisis and disaster management practices in terms of efficiency and coherence. They require 
both  solidarity  in  response,  and  responsibility  in  prevention  and  preparedness  with  an 
emphasis on better risk assessment and risk management at EU level of all potential hazards. 

Action 1: Make full use of the solidarity clause 

The  solidarity  clause  in  the  Lisbon  Treaty32  introduces  a  legal  obligation  on  the  EU  and  its 
Member States to assist each other when a Member State is the object of a terrorist attack or a 
natural or man-made disaster. Through the implementation of this clause the EU aims to be 
better  organised  and  more  efficient  in  managing  crises,  in  terms  of  both  prevention  and 
response.  On  the  basis  of  a  cross  cutting  proposal  by  the  Commission  and  the  High 
Representative  –  to  be  presented  in  2011  –  the  EU's  collective  task  will  be  to  put  the 
solidarity clause into practice.  

32 

Article 222 TFEU. 

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Action 2: An all-hazards approach to threat and risk assessment 

By  the  end  of  2010  the  Commission  will  develop,  together  with  Member  States,  EU  risk 
assessment  and  mapping  guidelines  for  disaster  management,  based  on  a  multi-hazard  and 
multi-risk approach, covering in principle all natural and man-made disasters. By the end of 
2011, Member States should develop national approaches to risk management, including risk 
analyses.  On  this  basis,  the  Commission  will  prepare,  by  the  end  of  2012,  a  cross-sectoral 
overview  of  the  major  natural  and  man-made  risks  that  the  EU  may  face  in  the  future33. 
Furthermore  the  Commission  initiative  on  health  security  planned  for  2011  will  seek  to 
reinforce  the  coordination  of  the  EU  risk  management  and  will  strengthen  the  existing 
structures and mechanisms in the public health area. 

On threat assessment, the Commission will support efforts to improve mutual understanding 
of the various definitions of threat levels and to improve communication when these levels are 
subject to change. In 2012, Member States are invited to produce their own threat assessments 
on terrorism and other malicious threats. From 2013 the Commission will, in liaison with the 
EU Counter-Terrorism Coordinator and Member States prepare regular overviews of current 
threats, based on national assessments.  

The EU should establish by 2014 a coherent risk management policy linking threat and risk 
assessments to decision making.  

Action 3: Link up the different situation awareness centres  

An effective and coordinated response to crises depends on being able to quickly pull together 
a comprehensive and accurate overview of the situation. Information on a situation inside or 
outside the EU must be drawn from all relevant sources, analysed, assessed and shared with 
Member  States  and  the  operational  and  policy  branches  in  EU  institutions.  With  fully 
networked  secure  facilities,  the  right  equipment  and  properly  trained  staff,  the  EU  can 
develop an integrated approach based on a common and shared appreciation in a crisis 
situation.  

Based  on  existing  capabilities  and  expertise,  the  Commission  will,  by  2012,  reinforce  the 
links between sector-specific early warning and crisis cooperation functions34, including those 
for  health,  civil  protection,  nuclear  risk  monitoring  and  terrorism,  and  make  use  of  EU-led 
operational programmes. These arrangements will help improve links with EU agencies and 
the  European  External  Action  Service,  including  the  Situation  Centre,  and  enable  better 
information sharing and, where required, joint EU threat and risk assessment reports.  

Effective  coordination  between  the  EU  institutions,  bodies  and  agencies  requires  a  coherent 
general  framework  to  protect  classified  information.  The  Commission  intends  therefore  to 
come forward with a proposal to address this in 2011. 

33 

34 

Council  Conclusions  on  a  Community  framework  on  disaster  prevention  within  the  EU,  November 
2009. 
The Commission will continue to use and further develop ARGUS - see COM(2005) 662 - and related 
procedures  for  cross-hazard  multi-sectoral  crises  as  well  as  for  coordination  across  all  Commission 
services. 

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Action 4: Develop a European Emergency Response Capacity for tackling disasters  

The EU should be able to respond to disasters both inside and outside the EU. Lessons learnt 
from recent events suggest that there is room for further improvement in terms of rapidity of 
deployment and appropriateness of action, operational and political coordination and visibility 
of the EU's response to disasters internally as well as externally.  

In  line  with  the  recently-adopted  disaster  response  strategy35,  the  EU  should  establish  a 
European  Emergency  Response  Capacity  based  on  pre-committed  Member  States'  assets 
on-call for EU operations and pre-agreed contingency plans. Efficiency and cost-effectiveness 
should  be  improved  through  shared  logistics,  and  simpler  and  stronger  arrangements  for 
pooling  and  co-financing  transport  assets.  Legislative  proposals  will  be  tabled  in  2011  to 
implement the key proposals. 

3. 

IMPLEMENTING THE STRATEGY  

The realisation of the Internal Security Strategy in Action is the shared responsibility of the 
EU  institutions,  Member  States  and  EU  agencies.  This  requires  an  agreed  process  for 
implementing  the  strategy  with  clear  roles  and  responsibilities,  with  the  Council  and  the 
Commission,  in  close  liaison  with  the  European  External  Action  Service,  driving  progress 
towards  meeting  the  strategic  objectives.  In  particular,  the  Commission  will  support  the 
activities of the Standing Committee on Operational Cooperation on Internal Security (COSI) 
to ensure that operational cooperation is promoted and strengthened, and that coordination of 
the action of Member States' competent authorities is facilitated.36 

Implementation 

Priorities shall be reflected both in the operational planning of EU agencies, at national level, 
and  in  Commission  work  programmes.  The  Commission  will  ensure  that  security-related 
activities,  including  security  research,  industrial  policy  and  projects  under  EU  internal 
security-related  funding  programmes,  are  coherent  with  the  strategic  objectives.  Security 
research  will  continue  to  be  funded  under  the  multiannual  research  and  development 
framework programme. To ensure a successful implementation the Commission will establish 
an  internal  working  group.  The  European  External  Action  Service  will  be  invited  to 
participate  to  ensure  consistency  with  the  wider  European  Security  Strategy  and  to  exploit 
synergies  between  internal  and  external  policies,  including  risk  and  threat  assessments.  For 
the same purpose, COSI and the Political and Security Committee should work together and 
meet regularly. 

EU funding that might be necessary for the period 2011-2013 will be made available within 
the current ceilings of the multiannual financial framework. For the period post-2013, internal 
security  funding  will  be  examined  in  the  context  of  a  Commission-wide  debate  on  all 
proposals to be made for that period. As part of that debate, the Commission will consider the 
feasibility of setting up an Internal Security Fund. 

35 

36 

'Towards a stronger European disaster response: the role of civil protection and humanitarian assistance' 
- COM(2010) 600. 
Article  71  TFEU;  see  also  Council  Decision  2010/131/EU  on  setting  up  the  Standing  Committee  on 
operational cooperation on internal security.  

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Monitoring and evaluation  

The Commission will, with the Council, monitor progress on the Internal Security Strategy in 
Action.  The  Commission  will  produce  an  annual  report  to  the  European  Parliament  and  the 
Council  on  the  strategy  on  the  basis  of  contributions  from  Member  States  and  EU  agencies 
and using as far as possible existing reporting mechanisms. The annual report will highlight 
the main developments for each of the strategic objectives, assessing whether actions at EU 
and  Member  State  level  have  been  effective,  and  making  Commission  recommendations  as 
appropriate.  The  annual  report  will  also  include  an  annex  describing  the  state  of  internal 
security. It will be produced by the Commission, supported by contributions from the relevant 
agencies. The report could inform annually the European Parliament and Council debates on 
internal security. 

CONCLUDING REMARKS  

Our world is changing, and so are the threats and challenges around us. The response from the 
European  Union  should  evolve  correspondingly.  By  working  together  to  implement  the 
actions outlined in this strategy, we are on the right path. At the same time, it is inevitable that 
however  strong  and  well-prepared  we  are,  threats  can  never  be  entirely  eliminated.  That  is 
why it is all the more important that we step up our efforts. 

With  the  Lisbon  Treaty  as  a  new  legal  framework,  the  Internal  Security  Strategy  in  Action 
should become the shared agenda for the EU over the next four years. Its success is dependent 
on the combined efforts of all EU actors, but also on cooperation with the outside world. Only 
by  joining  forces  and  working  together  to  implement  this  strategy  can  Member  States,  EU 
Institutions,  bodies  and  agencies  provide  a  truly  coordinated  European  response  to  the 
security threats of our time. 

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Annex: Summary of objectives and actions 

INTERNAL SECURITY STRATEGY 

OBJECTIVES AND ACTIONS 

OBJECTIVES AND ACTIONS 

RESPONSIBLE 

TIMING 

OBJECTIVE 1: 

Disrupt international crime networks 

Action 1: Identify and dismantle criminal networks 

Proposal on the use of EU Passenger Name Records  

Possible revision of EU anti-money laundering legislation to enable identification of owners of 
companies and trusts 

COM37 

COM 

Guidelines on use of bank account registers for tracing movement of criminal finances 

COM 

Strategy on collection, analysis and sharing of information on criminal financial transactions, 
including training 

COM with MS and CEPOL 

2011 

2013 

2012 

2012 

More use of Joint Investigation Teams set up at short notice 

MS with COM, Europol and 
Eurojust 

Ongoing 

37 

EN 

Key  to  abbreviations:  European  Commission  (COM),  Member  States  (MS),  European  Police  College  (CEPOL),  European  Network  and  Information  Security  Agency 
(ENISA),  Maritime  Analysis  and  Operations  Centre  –  Narcotics  (MAOC-N),  Centre  de  coordination  pour  la  lutte  antidrogue  en  Méditérranée  (CECLAD-M),  European 
Asylum Support Office (EASO), High Representative of the Union for Foreign Affairs and Security Policy (HR).  

17 

EN 

 
  
 
 
                                                 
OBJECTIVES AND ACTIONS 

RESPONSIBLE 

TIMING 

Action 2: Protect the economy against criminal infiltration 

Proposal on monitoring and assisting Member States anti-corruption efforts 

COM 

Establish a network of national contact points for governmental and regulatory bodies 

COM with MS 

2011 

2011 

Actions for enforcement of intellectual property rights and to combat sale of counterfeit goods on 
internet 

MS and COM 

Ongoing 

Action 3: Confiscate criminal assets 

Proposal on third-party confiscation, extended confiscation and non-conviction-based confiscation 
orders 

COM 

Establishment of effective Asset Recovery Offices and necessary arrangement for asset management  MS 

Common indicators for evaluating performance of Asset Recovery Offices and guidance on 
preventing criminals reacquiring confiscated assets 

COM 

2011 

2014 

2013 

EN 

18 

EN 

 
  
 
 
 
 
 
 
OBJECTIVES AND ACTIONS 

RESPONSIBLE 

TIMING 

OBJECTIVE 2: 

Prevent terrorism and address radicalisation and recruitment 

Action 1: Empower communities to prevent radicalisation and recruitment 

Create an EU radicalisation-awareness network with an online forum and EU-wide conferences. 
Support civil society to expose, translate and challenge violent extremist propaganda 

COM with Committee of Regions 

2011 

Ministerial conference on the prevention of radicalisation and recruitment 

Handbook on prevention of radicalisation, disrupting recruitment and enabling disengagement and 
rehabilitation 

COM 

COM 

Action 2: Cut off terrorists' access to funding and materials and follow their transactions 

Framework for freezing terrorist assets 

Implement action plans for preventing access to explosives and chemical, biological radiological and 
nuclear substances 

Policy for EU extraction and analysis of financial messaging data 

Action 3: Protect transport 

Communication on Transport Security Policy 

COM 

MS 

COM 

COM 

2012 

2013-14 

2011 

Ongoing 

2011 

2011 

EN 

19 

EN 

 
  
 
 
 
OBJECTIVES AND ACTIONS 

RESPONSIBLE 

TIMING 

OBJECTIVE 3: 

Raise levels of security for citizens and businesses in cyberspace 

Action 1: Build capacity in law enforcement and the judiciary 

Establishment of an EU cybercrime centre 

Develop capacities for investigation and prosecution of cybercrime 

Subject to the COM's feasibility 
study 2011 

MS with CEPOL, Europol and 
Eurojust 

2013 

2013 

Action 2: Work with industry to empower and protect citizens 

Establishment of cybercrime incident reporting arrangements and provide guidance for citizens on 
cyber security and cybercrime 

MS, COM, Europol, ENISA and 
the private sector 

Ongoing 

Guidelines on cooperation in handling illegal content online 

COM with MS and the private 
sector 

2011 

Action 3: Improve capability for dealing with cyber attacks 

Establishment of a network of Computer Emergency Response Teams in every MS and one for EU 
institutions, and regular national contingency plans and response and recovery exercises. 

MS and EU institutions with 
ENISA 

2012 

Establishment of European information sharing and alert system (EISAS) 

MS with COM and ENISA 

2013 

EN 

20 

EN 

 
  
 
 
 
OBJECTIVES AND ACTIONS 

RESPONSIBLE 

TIMING 

OBJECTIVE 4: 

Strengthen security through border management 

Action 1: Exploit the full potential of EUROSUR 

Proposal for the establishment of EUROSUR 

COM 

Pilot operational project at the southern or south-western border of the EU 

COM, Frontex, Europol, MAOC-
N and CeCLAD-M 

2011 

2011 

Action 2: Enhancing the contribution of Frontex at the external borders 

Joint reports on human trafficking, human smuggling and smuggling of illicit goods as basis for joint 
operations 

COM with Frontex and Europol 

2011 

Action 3: Common risk management for movement of goods across external borders 

Initiatives to improve capabilities for risk analysis and targeting 

COM 

Action 4: Improve interagency cooperation at national level 

Development of national common risk analyses involving police, border guards and customs 
authorities to identify hot spots at the external borders 

MS 

Suggestions for improving the coordination of checks at the border carried out by different authorities  COM 

2011 

2011 

2012 

Development of minimum standards and best practices for interagency cooperation 

COM, Europol, Frontex, EASO 

2014 

EN 

21 

EN 

 
  
 
 
OBJECTIVES AND ACTIONS 

RESPONSIBLE 

TIMING 

OBJECTIVE 5: 

Increase Europe's resilience to crises and disasters 

Action 1: Make full use of the solidarity clause 

Proposal on the implementation of the solidarity clause 

COM/HR 

2011 

Risk assessment and mapping guidelines for disaster management 

COM with MS 

Action 2: An all-hazards approach to threat and risk assessment 

National approaches to risk management 

Cross-sectoral overview of possible future natural and man-made risks 

Proposal on health threats 

Regular overviews of current threats 

Establish a coherent risk management policy 

MS 

COM 

COM 

COM with MS and CTC 

COM with MS 

Action 3: Link up the different situation awareness centres 

Reinforce links between sector-specific early warning and crisis cooperation functions 

Proposal for a coherent general framework for the protection of classified information 

COM 

COM 

Proposals for the development of a European Emergency Response Capacity  

COM 

Action 4: Develop a European Response Capacity for tackling disasters 

2010 

2011-12 

2012 

2011 

2013 

2014 

2012 

2011 

2011 

EN 

22 

EN 

 
  
 
EN 

23 

EN