COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Strengthening victims' rights in the EU  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Strengthening victims' rights in the EU
Date: 2011-05-18
Institutions: European Commission
Subjects: area of freedom, security and justice, child protection, crime, mutual recognition principle, victim

EUROPEAN COMMISSION 

Brussels, 18.5.2011 
COM(2011) 274 final 

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

Strengthening victims' rights in the EU 

{SEC(2011) 580 final} 
{SEC(2011) 581 final} 

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

Strengthening victims' rights in the EU 

1. 

WHY DO VICTIMS MATTER? 

Crime can affect us all, and every year many millions of people in the European Union do in 
fact  fall  victim  to  crime.  According  to  Eurostat  data,  around  30  million  crimes  against 
persons or property are recorded annually and many crimes are never reported. Crime often 
affects more than one victim and those close to the victims also suffer indirectly. This leads to 
a  qualified  estimate  that  there  is  likely  to  be up  to  75  million  direct  victims  of  crime  every 
year.1 

And  each  year  many  people  become  victims  of  road  accidents.  More  than  1  million  road 
accidents  across  the  European  Union  cost  as  many  as  30 700  lives  in  2010.  Around  31 000 
people  are  killed  each  year  on  the  roads,  including  850  children  under  the  age  of  14,  while 
250 000 get serious injuries and 1.2 million suffer minor injuries2. 

People  in  Europe  are  constantly  travelling  and  moving  across  borders,  and  the  risk  of 
becoming a victim is just as great when abroad. Of an estimated 1.4 billion journeys made by 
Europeans  in  2008,  about  90 %  were  within  the  Union3.  In  addition,  around  11.3  million 
Europeans reside permanently outside their home country, 10% of Europeans have lived and 
worked  abroad  during  a  period  of  their  lives  and  13%  have  gone  abroad  for  education  or 
training4.  

These numbers show the importance of ensuring proper, effective action on the rights of those 
who fall victim to crime or to road accidents, in their own country or while travelling or living 
abroad. This is both a cross-border and a domestic problem that calls for EU action. 

There is also a gender dimension to victims’ rights. Women are particularly exposed to hidden 
and  unreported  forms  of  violence.  The  Council  of  Europe  estimates  that  20-25%  of 
European women experience physical acts of violence at least once during their adult lives, 
12-15% find themselves in a relationship of domestic abuse, and more than 10 % suffer sexual 
violence5. 

1 

2 
3 
4 
5 

Eurostat, Statistics in focus, 36/2009; estimates based on analysis of the EU International Crime Survey 
in  ‘The  Burden  of  Crime  in  the  EU’  (www.europeansafetyobservatory.eu)  and  assuming  the  rate  of 
unreported crime being 60 %, and victims having on average 3 close family members. These statistics 
do not include minor offences. 
European Commission CARE database. 
COM(2010) 352, based on Eurostat, Tourism Statistics 2008. 
Eurostat, Statistics in Focus 94/2009; Eurobarometer 337/2010. 
Council of Europe, Stocktaking study on violence against women, 2006. 

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Seeking  to  consolidate  the  area  of  freedom,  security  and  justice,  the  Commission  has 
identified as a strategic priority6 based on the Stockholm Programme and its Action Plan7 the 
need for action to strengthen the rights of victims of crime and to ensure that their need for 
protection, support and access to justice is met. 

The EU has already acted on the rights of victims in criminal proceedings8 and most of the 
Member States have some level of victim protection and support in place. However, the role 
and needs of victims in criminal proceedings are still generally not sufficiently addressed and 
the level of victims’ rights continues to differ significantly across the EU.  

That  is  why  the  Commission  is  presenting  a  package  of  proposals  to  reinforce  existing 
national  measures,  ensuring  that  victims  of  crime  are  given  non-discriminatory  minimum 
rights  across  the  EU,  irrespective  of  their  nationality  or  country  of  residence.  This  package 
also includes a new mutual recognition mechanism to ensure that victims, or potential victims, 
who  benefit  from  a  protection  measure  in  their Member  State  of  residence,  do  not  lose  this 
protection when crossing borders. With this package, the EU will contribute to making crime 
victims’  needs  a  central  part  of  the  justice  systems,  alongside  catching  and  punishing  the 
offenders. 

Compensation is one of the basic needs of victims. However, people in road traffic accidents 
in another Member State may face administrative and procedural difficulties when they seek 
compensation because of different limitation and prescription periods. The Commission will 
address this problem by proposing to harmonise the rules on limitation periods so that victims 
do not risk losing their right to compensation for procedural reasons. 

Finally, there is a clear link between victims’ rights and crime prevention. The Commission 
has  for  many  years  been  taking  action  aimed  at  prevention  of  crime  and  violence  and 
promotion of road safety9. Prevention work is crucial not only for cutting crime and accidents 
in  the  short  and  medium  term,  but  also  for  changing  attitudes  towards  criminal  or  reckless 
conduct that can give positive, long-term and lasting results.  

2. 

WHY DO WE NEED NEW MEASURES FOR VICTIMS AT EU LEVEL? 

•  We have come a long way in recognising victims, but more needs to be done 

The notion that victims’ rights should be accessible on an equal and non-discriminatory basis 
is nothing new. In 1989, the Court of Justice confirmed that the provision of compensation, a 
key need of victims, could not be limited on grounds of nationality10. Since then, the EU has 
acted to establish general minimum standards for victims, notably through the 2001 Council 
Framework Decision11, as well as targeting specific groups of victims – victims of trafficking, 

6 
7 
8 

9 

10 
11 

COM(2010) 623. 
OJ C 115, 4.5.2010, p. 1; COM(2010) 171. 
Council  Framework  Decision  2001/220/JHA  on  the  standing  of  victims  in  criminal  proceedings; 
Council Directive 2004/80/EC relating to compensation to crime victims. 
E.g. programmes Daphne III; Prevention, Preparedness and Consequence management of Terrorism and 
other  Security-related  risks;  Prevention of and  the  fight  against  Crime;  European  Road  Safety  Action 
Programme 2011–2020. 
Case 186/87 - Ian William Cowan v Trésor public, judgment of 2 February 1989. 
See footnote 8. 

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child  sexual  exploitation  and  abuse,  and  terrorism12.  The  Commission  has  also  financially 
supported  the  work  of  public  agencies  and  NGOs  working  with  and  for  victims,  many  of 
which are run by volunteers13.  

However,  the  implementation  of  the  standards  laid  down  in  the  2001  Council  Framework 
Decision is not satisfactory.14 The Lisbon Treaty now provides a clear legal base for the EU to 
establish minimum rules on the rights of victims of crime to facilitate mutual recognition of 
judgments and judicial decisions. In addition, both the European Parliament and the European 
Council have called for action in this area15. While building on and complementing existing 
instruments,  the  Commission’s  proposals  aim  to  strengthen  the  legal  framework  by 
introducing directly binding and properly enforceable legal instruments. 

•  Enhancing trust in the justice system and improving the quality of justice 

One  of  the  European  Union’s  objectives  is  to  offer  its  citizens  an  area  of  freedom,  security 
and justice in which their freedom of movement is ensured. However, without effective EU-
wide application of a minimum level of rights for victims, mutual trust is not possible. This 
means  that  judicial  systems  should  have  full  faith  in  each  other’s  standards  of  fairness  and 
justice,  and  citizens  should  have  confidence  that  the  same  level  of  minimum  rules  will  be 
applied when they travel or live abroad.  

•  Minimum standards must apply in all Member States 

Today,  most  Member  States  provide  some  level  of  protection  and  support  for  victims  of 
crime.  However,  the  role  and  needs  of  victims  in  criminal  proceedings  are  still  not  fully 
addressed in national judicial systems. Equally, while all Member States have procedures for 
claiming  compensation  following  a  road  traffic  accident,  the  rules  vary  as  to  the  limitation 
periods applicable for making such claims. To address this problem, Member States need to 
raise  standards  on  victims’  rights  and  the  EU  must  ensure  that  victims  benefit  from  a  level 
playing  field.  A  certain  minimum  level  of  safeguards  and  standards  that  are  applied  in  all 
Member States will facilitate judicial cooperation and increase the quality of justice and also 
improve people’s confidence in the very notion of ‘justice’.  

•  Fundamental rights must be respected 

The proper treatment of victims corresponds to a range of fundamental rights as recognised in 
the Charter of Fundamental Rights of the European Union (the EU Charter) and the European 
Convention  on  Human  Rights  (ECHR)16.  The  effective  recognition  of,  and  respect  for, 

12 

13 
14 
15 

16 

Directive 2011/36/EU of the European Parliament and of the Council of 5 April 2011 on preventing and 
combating  trafficking  in  human  beings  and  protecting  its  victims,  and  replacing  Council  Framework 
Decision 2002/629/JHA; proposal for a Directive on combating the sexual abuse, sexual exploitation of 
children  and  child  pornography,  repealing  Framework  Decision  2004/68/JHA;  Framework  Decision 
2002/475/JHA on combating terrorism. 
Over 20 000 volunteers work for victim support organisations in Europe (Victim Support Europe 2010). 
Commission’s implementation report - COM(2009) 166. 
EP  Resolution  of  7  May  2009  on  the  development  of  an  EU  criminal  justice  area  (INI/2009/2012); 
Stockholm Programme (OJ C 115, 4.5.2010, p. 1). 
Key rights are: human dignity, the right to life, integrity of the person, liberty and security, respect for 
private  and  family  life,  protection  of  personal  data,  right  to  property,  freedom  of  movement  and 
residence, equality before the law, the rights of the child and of the elderly, integration of persons with 
disabilities and right to an effective remedy. 

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victims’ rights, in particular their human dignity, private and  family  life and property, must 
thus be safeguarded whilst also assuring the fundamental rights of others, such as the accused. 
The  EU’s  action  will  raise  the  standards  of  fundamental  rights  for  everyone  affected  by 
criminal  proceedings  –  whether  victim,  accused  or  detainee,  whilst  ensuring  that  any 
limitation of these rights occurs only where necessary and proportionate.  

•  Meeting victims' needs contributes to reducing the total cost of crime 

Strengthening the rights of victims has a positive impact on individual victims and on society 
as  a  whole.  Meeting  victims'  needs  before,  during  and  after  criminal  proceedings  can 
considerably reduce the overall cost of crime.17 This includes tangible costs in the economic 
and health sector as well as in the criminal justice system, and intangible costs, such as the 
victim's pain, suffering and reduction of quality of life. Victims who are respected, supported 
and protected will recover sooner, both physically and emotionally, enabling them to get back 
to their normal lives more quickly. This will limit loss of earnings, absenteism from work as 
well as the need for further health care. Well treated victims are also likely to become more 
actively involved in the proceedings, which increases the likelihood of successful prosecution 
and sentencing, which in turn reduces repeat offending and impunity.  

3. 

A SPECIFIC FOCUS ON VICTIMS OF CRIME – WHAT DO THEY NEED? 

Many people fall victim to crime in the EU every year. These victims have a whole range of 
needs that should be addressed to help them recover: the need to be recognised and treated 
with respect and dignity; to be protected and supported; to have access to justice; and to 
get compensation and restoration.  

The core objective of the Commission’s legislative package is to deal with victims’ needs in a 
comprehensive manner. Indeed, the Commission’s proposals address the needs of both direct 
victims of crime and indirect victims, such as the family members who also suffer from the 
consequences of the crime. Immediate family or dependents of direct victims will therefore, 
where appropriate, benefit from the support and protection proposed in this package. 

The example below illustrates the poor treatment a victim can receive, and how it can affect 
his  life,  if  his  individual  needs  are  not  properly  addressed  during  and  after  reporting  of  a 
crime. In the following sections, we will show how this same story would unfold – under each 
category  of  needs  –  if  the  victim  and  his  family  received  proper  treatment,  as  a  result  of 
implementation of the Commission’s proposals.  

Alex was renting a holiday flat abroad with his family when one night there was a break-in. When he tried to 
stop the attackers, they physically assaulted him in front of his family. He reported the crime to the local police 
but since he could not make himself understood, he could not give all the details about the assault. During the 
weeks that followed, he didn’t receive much information about the case, and he felt growing frustration as they 
were  routinely  questioned  several  times  by  different  police  officers.  Even  his  children  were  repeatedly 
questioned, which was very upsetting for them.  

When Alex came back home, he needed several operations for his injuries and could not work for several weeks. 
He did not hear anything from the police until one day he was told to appear and testify at the trial, taking  place 
abroad, of two suspects. The trial was difficult because nobody explained the foreign court proceedings and he 
felt intimidated by having to face the accused outside the court room.  

17  

See Commission Staff Working Paper, SEC(2011)580, p. 14. 

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After the trial was over, Alex didn’t hear anything more about the case or what happened to the accused. But for 
many years after the attack, he and his family lived with the emotional, physical and financial consequences of 
the crime. Despite it happening in another place and in another country, they never felt safe any more, even in 
their own home18.  

3.1. 

Recognition and respectful treatment 

Human dignity of individuals is a fundamental right at the heart of our notion of a just society 
and the foundation for proper treatment of victims. Individuals who have suffered from crime 
therefore expect to be recognised as victims, to have their suffering acknowledged and to be 
treated  in  a  sensitive  and  professional  manner.  It  should  be  understood  that  victims  are 
individuals and their needs should be recognised. However, professionals around Europe who 
are in regular contact with crime victims often lack training on these needs or how to identify 
them through an individual needs assessment.  

Alex  was  attacked  in  front  of  his  family  while  on  holiday  abroad.  When  he  reported  the  crime,  the  police 
arranged  an  interpreter  so he  could  explain  what  had happened  in  detail.  The police  put him  in  touch  with a 
victim  support  organisation  and  informed  him  about  his  rights  and  entitlement  to  compensation.  In  the  weeks 
that followed, a contact person from the police kept him up to date with the investigation.  

3.2. 

Protection 

Victims can suffer during criminal proceedings due to the way the system operates. To avoid 
harm  caused  by  inadequate  proceedings,  such  as  repeated  and  insensitive  interviewing,  it  is 
important  to  ensure  protection  of  victims  throughout  criminal  investigations  and  court 
proceedings. This protection is essential for particularly vulnerable victims, such as children. 

Even after a crime, victims are vulnerable to further harm, intimidation or reprisals from the 
offender. Around 40% of reported crimes are repeat crimes against the same victim within a 
year19.  Ensuring  that  protection  measures  are  available  can  be  crucial  for  preventing  further 
incidents.  In  addition,  due  to  increased  mobility  in  the  EU,  more  victims  are  moving  or 
travelling abroad. However, any protection they enjoy may be lost when they cross borders. 
To protect people who exercise their right to free movement, the Commission is proposing for 
the first time the mutual recognition of protection measures. 

When  Alex  reported  the  assault,  the  police  asked  him  about  any  possible  needs  for  protection  or  assistance 
during  proceedings. During the  criminal  investigation  that  followed,  the  questioning of  Alex  and  his wife  was 
kept to a minimum and was always conducted by the same police officer, and his children were only interviewed 
once by a  specialised officer  to avoid  any risk  of harm. When  the  case  went  to  court,  Alex  was  called  to give 
evidence. He felt reassured when he entered the court as he could wait in a separate room for victims to avoid 
facing the perpetrators outside the court room. 

3.3. 

Support 

Crime can have a devastating and debilitating effect on victims, who may be traumatised or 
unable to cope with practical issues as a consequence of the crime. If the crime is reported, the 
victim  will  need  to  negotiate  their  way  through  the  complexities  of  the  legal  system. 
Appropriate  and  timely  support  is  therefore  essential  to  help  victims  overcome  emotional, 
practical, administrative and legal obstacles and to recover. Despite the work done by existing 
victim support services, such assistance is currently not always easily accessible. 

18 
19 

Fictitious story based on real problems. 
2000 International Crime Victims Survey. 

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The police put Alex in touch with a victim support organisation. They gave him and his family emotional support 
on how to cope with the crime. They also gave him practical help, such as getting medical treatment and sorting 
out paperwork. The victim support organisation told him about the criminal proceedings and his rights and role 
during the process. He was given the contact details of a victim support organisation in his home country, which 
he  contacted  regularly  even  after  the  case  was  closed.  Their  support  allowed  him  and  his  family  to  turn  the 
corner and get on with their lives.  

3.4. 

Access to justice 

Victims  have  a  legitimate  interest  in  seeing  that  justice  is  done.  They  should  be  given 
effective access to justice, which can be an important element in their recovery. Information 
for victims on their rights and on key dates and decisions is an essential aspect of participating 
in the proceedings, and it should be given in a way that victims understand. Victims should 
also  be  able  to  attend  the  trial  and  follow  their  case  through.  As  a  matter  of  fact,  victims 
across the EU do not always get access to these basic elements of justice.  

The police eventually contacted Alex to say that two men had been arrested and charged with the crime. He was 
also informed about the time and place of the trial and was told he would need to give evidence in court. During 
the trial, he was helped by an interpreter to understand the questions and other parts of the proceedings. 

3.5. 

Compensation and restoration 

Persons who have suffered harm because of the acts of others often expect to get some form 
of  financial  compensation,  whether  from  the  State  or  the  offender.  Compensation  aims  at 
repairing  immediate  and  longer-term  financial  damage.  It  may  also  act  as  a  form  of 
acknowledgement through a symbolic payment. 

Restorative  justice,  which  is  a  relatively  new  concept  in  criminal  proceedings,  goes  beyond 
purely financial compensation to focus on the recovery of the victim. As an alternative to, or 
in combination with formal justice, it aims to restore victims to the position they had before 
the crime by giving them, if they so wish, an opportunity to confront their offenders face to 
face and for the offenders to take responsibility for their acts.  

Alex was able to contact a compensation authority in his home country and fill in the necessary documents in his 
own language before sending them to the country where the attack took place. The money helped him pay for the 
extra costs incurred following the attack, including surgery. 

4. 

SPECIFIC CATEGORIES OF VICTIMS 

•  Victims of terrorism 

Victims  of  terrorism,  perhaps  uniquely  amongst  victims,  have  suffered  attacks  that  are 
intended  ultimately  to  harm  society.  They  largely  have  the  same  needs  for  protection  and 
assistance as victims of any other serious violent criminal acts. Such needs must be met and 
those victims, and their families, must be supported in similar ways.20 Due to the nature of the 
attack, however, terrorism victims can be under much greater public scrutiny and often have a 
much  greater  need  for  social  recognition  and  respectful  treatment  by  everyone,  whether 
practitioners,  the  media  or  individuals.  These  victims  will  benefit  from  the  emphasis  on 
recognition and respectful treatment in the Commission’s proposals. 

20 

As recognised in Art. 10 of Framework Decision 2002/475/JHA on combating terrorism. 

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•  Victims of road traffic accidents 

Victims of road traffic accidents often do not feel that their status as a victim is sufficiently 
recognised by society. Road accident investigations by their nature seek initially to determine 
the causes and circumstances of an accident rather than focusing on victims’ needs. However, 
the victims of such events naturally want to see that the incident is properly investigated and, 
where  a  crime  has  been  committed,  see  that  justice  is  done.  Those  involved  in  such  cases 
clearly need to be trained to understand and recognise these needs.  

Victims of road accidents may have the right to claim compensation for damages. In the case 
of cross-border road accidents, one problem that victims often face is that the time limits for 
applying  for  compensation  vary  widely  across  the  EU  and  victims  may  not  know  which 
country's rules should apply. This can result in victims receiving no compensation at all due to 
particularly  short  limitation  or  prescription  periods  in  the  Member  State  where  the  accident 
occurred. Such victims will benefit from a revision of existing EU legislation on conflict of 
laws21, allowing them to rely on the limitation periods of their home country. 

•  Particularly vulnerable victims 

Some  victims  are  more  vulnerable  than  others  to  the  risk  of  suffering  further  harm  during 
criminal proceedings, and their special need for protection and support must be met. In line 
with existing international and national approaches, the Commission is therefore for the first 
time  identifying  both  categories  of  vulnerable  victims  and  mechanisms  to  identify  other 
people at risk, based on individual needs assessments.  

The  categories  of  vulnerable  victims  are  children,  persons  with  disabilities  and  victims  of 
sexual  violence  and  human  trafficking.  In  addition,  victims  can  be  vulnerable  for  other 
reasons related to their personal characteristics (e.g. high level of fear and distress, risk of 
intimidation  or  repeated  violence,  or  being  in  a  personal,  social  or  economic  situation  that 
makes it difficult for the victim to cope with the consequences of the crime or to understand 
the judicial proceedings) and/or the type and nature of the crime (e.g. terrorism, organised 
crime,  bias  crime  or  gender-based  violence).  For  instance,  victims  of  organised  crime  are 
particularly vulnerable to intimidation and repeated violence by the perpetrators and may need 
special measures for protection. 

The  approach  taken  by  the  Commission  corresponds  to  the  provisions  of  the  proposed  new 
directive on sexual abuse and sexual exploitation of children and child pornography and 
the  new  directive  on  trafficking  in  human  beings22.  Both  of  these  measures  address  the 
specific needs of those vulnerable victims.  

Children have the fundamental right, under the EU Charter and the UN Convention on the 
Rights  of  the  Child,  and  as  recognised  in  the  Treaty  on  European  Union,  to  have  their  best 
interests taken into account in all national and international laws and policies, including the 
judicial  process.  Because  of  their  vulnerability,  the  Commission  is  actively  promoting  a 
‘child-friendly  justice’  approach  towards  children  involved  in  criminal  proceedings23.  For 
children,  a  criminal  investigation  is  likely  to  be  a  traumatic  process,  especially  if  they  have 
been victims of abuse, and special measures should be available to protect them.  

21 
22 
23 

Regulation (EC) No 864/2007 on the law applicable to non-contractual obligations (Rome II). 
See footnote 12. 
Commission Communication ‘An EU agenda for children’s rights’ - COM(2011) 60. 

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Victims of sexual violence – the vast majority being women – require protection from further 
violence,  and  specialised  support  and  assistance  to  overcome  the  multiple  consequences  of 
such violence and to rebuild their lives. Due to the shame and guilt involved in suffering such 
crimes,  and  the  victim’s  often  close  relationship  with  the  perpetrator,  these  victims  are 
particularly reluctant to report the crime. Victims of sexual violence particularly need medical 
and psychological assistance, including an immediate forensic examination, so reporting the 
crime should therefore not be a condition for accessing such services. 

Ensuring  the  safety  and  protection  of  individuals  who  are  exposed  to  repeated  violence  by 
the same perpetrator is of utmost importance. To prevent and limit the risk of further harm, 
protection  is  crucial  and  should  include  the  possibility  to  impose  a  barring,  restraining  or 
protection order on the perpetrator to avoid further contact with the victim. Such protection 
should be transferable to another EU Member State if the victim moves or travels there.  

In addition to ensuring that victims will have access to adequate support and protection, it is 
important  to  prevent  violence  from  happening  in  the  first  place.  Women  are  particularly 
exposed to different forms of physical, sexual and psychological violence, especially within 
their  families  and  in  close  relationships.  The  Commission  will  therefore  continue  to  act  to 
prevent and combat violence against women in Europe and to support and protect victims and 
groups at risk24. 

5. 

THE COMMISSION’S RESPONSE – TIME FOR ACTION 

The Commission is proposing the following package of legislative instruments to respond to 
the needs described above and to ensure that victims in Europe receive a minimum level of 
rights, protection, support, access to justice and restoration. The Commission will propose: 

•  A Directive establishing minimum standards on the rights, support and protection 
of victims of crime, replacing the 2001 Framework Decision. The Directive will ensure 
that victims are treated with respect and that the special needs of vulnerable victims are 
properly  addressed.  It  will  also  ensure  that  victims  receive  the  support  they  need,  that 
they can participate in proceedings and receive and understand relevant information, and 
that they are protected throughout criminal investigations and court proceedings. 

•  A Regulation on mutual recognition of protection measures in civil matters, which 
will help preventing harm and violence and ensure that victims (of domestic violence, for 
example) who benefit from a protection measure taken in one Member State are provided 
with  the  same  level  of  protection  in  other  Member  States  should  they  move  or  travel 
there.  Such  protection  should  be  awarded  without  the  victim  having  to  go  through 
additional  procedures.  This  measure  complements  the  proposal  for  a  Directive  of  the 
European Parliament and of the Council on the European Protection Order25 initiated by 
a group of Member States in September 2009, which is currently being discussed in the 
European Parliament and Council.  

24 

25 

See Declaration 19 annexed to the Final Act of the IGC which adopted the Treaty of Lisbon (OJ C 83, 
30.3.2010, p. 345). 
OJ C 69, 18.3.2010, p. 5. 

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This  legislative  package  is  a  first  step  towards  putting  victims  at  the  heart  of  the  criminal 
justice agenda of the EU. Looking to the future, for the next phase of action on victims’ rights 
the  Commission  will  review  Directive  2004/80/EC  on  compensation  of  crime  victims  and 
Regulation "Rome II" (to address the question of the law applicable to limitation periods for 
cross-border traffic accidents). Further studies and action on victims will also be carried out, 
in  particular  in  relation  to  specific  categories  of  victims  such  as  victims  of  terrorism, 
organised crime and gender-based violence, including female genital mutilation, with a view 
to improving the situation of such victims.  

In addition to and in parallel with these actions, the Commission will implement a range of 
flanking  measures  that  will  be  crucial  to  ensuring  that  victims  obtain  effective  rights  in 
practice,  and  not  necessarily  only  when  involved  in  criminal  proceedings.  This  will  include 
training and capacity building, exchange of good practices, prevention of crime and violence 
(such as raising awareness and providing information), data collection and research. We will 
also continue to give financial support under existing financing programmes to promote issues 
relevant to victims’ rights and needs.  

All these efforts will lend further substance to the achievements already made at national and 
EU level. They will allow the EU to make victims’ rights and needs a central part of securing 
justice.  The  EU  should  ensure  that  victims  are  properly  recognised  and  that  their  rights  are 
respected without any form of discrimination throughout the EU.  

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