COMMISSION STAFF WORKING PAPER European Year of Citizens 2013 - Ex-ante evaluation
Date: 2011-08-11
Institutions: European Commission
Subjects: EU action, European citizenship, European cultural event, economic analysis, free movement of persons, public awareness campaign, residential mobility

EUROPEAN COMMISSION 

Brussels, 11.8.2011 
SEC(2011) 996 final 

COMMISSION STAFF WORKING PAPER 

European Year of Citizens 2013 - Ex-ante evaluation 

{COM(2011) 489 final} 

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TABLE OF CONTENTS 

1. 

1.1. 

INTRODUCTION........................................................................................................ 3 

The implications of Union citizenship and the rights attached to it – in particular the 
right to free movement and residence – for Union citizens ......................................... 3 

1.2. 

Policy context............................................................................................................... 4 

2. 

PROBLEM ANALYSIS AND NEEDS ASSESSMENT ............................................ 6 

2.1. 

Problems and challenges .............................................................................................. 6 

2.1.1.  Lack of concrete knowledge about citizens' rights ...................................................... 6 

2.1.2.  Data about intra-EU mobility....................................................................................... 8 

2.1.3.  Challenges .................................................................................................................. 10 

2.2. 

2.3. 

3. 

Target group and its needs ......................................................................................... 10 

Strategic partners and relays ...................................................................................... 11 

Objectives of the European Year 2013 ...................................................................... 12 

3.1. 

Objectives and related indicative indicators .............................................................. 12 

4. 

4.1. 

4.2. 

4.3. 

4.4. 

4.5. 

5. 

5.1. 

5.2. 

Main policy options and alternative delivery mechanisms ........................................ 13 

"Status quo" approach ................................................................................................ 13 

Sectoral approach ....................................................................................................... 14 

European Year approach ............................................................................................ 14 

Member States based approach.................................................................................. 15 

Design for the European Year 2013........................................................................... 16 

Stakeholder consultation and lessons learned ............................................................ 16 

Stakeholder consultation and involvement ................................................................ 16 

Lessons learned from recent studies .......................................................................... 17 

5.2.1.  Eurobarometer surveys............................................................................................... 17 

5.2.2.  EU Citizenship Report 2010 ...................................................................................... 17 

5.2.3.  Analysis of the European elections 2009 ................................................................... 18 

5.2.4.  Studies ........................................................................................................................ 18 

5.3. 

Lessons learned from the evaluation of previous European Years ............................ 19 

6. 

7. 

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Risks and assumptions ............................................................................................... 19 

Proportionality and Added value of EU involvement................................................ 21 

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8. 

Helping to achieve cost effectiveness ........................................................................ 21 

8.1. 

Cost implications of the European Year .................................................................... 21 

8.1.1.  Financial Resources: Summary of commitment appropriations (CA) and payment 

appropriations (PA).................................................................................................... 22 

8.1.2.  Objectives of the proposal in terms of their financial cost......................................... 23 

8.1.3.  Number and type of human resources........................................................................ 24 

8.2. 

Could the same results be achieved at lower costs?................................................... 24 

9. 

Planning of future monitoring and evaluation ........................................................... 25 

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1. 

INTRODUCTION 

The European Union plans to designate 2013 as the European Year of Citizens. With 
this, the EU intends to focus on the rights of Union citizens and to put the informed 
and  effective  exercise  of  those  rights  at  the  centre  of  the  political  agenda.  In 
particular,  this  European  Year  would  aim  at  enhancing  awareness  of  the  rights 
attached to Union citizenship, in particular in relation to the right of Union citizens of 
free movement and residence within the territory of the Member States. 

1.1. 

The  implications  of  Union  citizenship  and  the  rights  attached  to  it  –  in 
particular the right to free movement and residence – for Union citizens 

Union citizenship, conferred automatically upon all Member States' nationals, grants 
all  Union  citizens  an  additional  set  of  rights,  guaranteed  by  the  EU  treaties.  Union 
citizens have, inter alia, the right to move and reside freely within the territory of the 
Member  States,  the  right  to  vote  and  to  stand  as  candidates  in  elections  to  the 
European Parliament and in municipal elections in their Member State of residence, 
the  right  to  enjoy  consular  protection  of  the  diplomatic  and  consular  authorities  of 
another Member State in third countries as well as the right to petition the European 
Parliament, to apply to the European Ombudsman, and to address the EU institutions 
and advisory bodies in any of the Treaty languages.1  

Moreover,  Union  citizenship  is  closely  related  to  the  democratic  principles  of  the 
European  Union2  which  set  the  frame  for  the  participation  of  citizens  in  the 
democratic life in the Union.  

The  right  to  move  and  reside  freely  within  the  territory  of  the  Member  States, 
enshrined in Article 21 of the Treaty on the Functioning of the European Union and 
in  Article  45  of  the  Charter  of  Fundamental  rights  of  the  EU,  is  one  of  the  most 
important and cherished individual rights granted by EU law. Union citizens consider 
freedom of movement as a core right deriving from their status as Union citizens, and 
indeed, as virtually synonymous with Union citizenship3.  

As such, it constitutes the most concrete expression of the benefits related to Union 
citizenship and promotes a better understanding of the value of European integration 
as well as citizens' participation in the European project.  

At the same time, when extending aspects of their lives beyond national borders by 
travelling to other Member States or settling there, citizens become aware and take 
advantage of the broad array of rights granted to them under EU law in cross-border 
situations: for instance, they benefit from the coordination of social security schemes 
and they use  their rights  as  consumers in other Member States, their rights to have 
access  to  education  or  healthcare,  to  obtain  recognition  of  their  professional 
qualifications. The exercise of the right to free movement and residence contributes 
therefore in making Union citizenship a tangible reality in the daily life of citizens. 

1 
2 
3 

Art. 20 (2) TFEU 
Title II TEU, in particular Articles 9, 10 and 11. 
Eurobarometer Qualitative survey "European Citizenship – Cross-border mobility", August 2010. 

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The rights granted to Union citizens to vote and to stand as candidates in elections to 
the  European  Parliament  and  in  municipal  elections  in  their  Member  State  of 
residence  are  of  primary  importance  in  this  context,  since  they  provide  Union 
citizens  with the means  to  participate in the democratic life of the Union, whilst at 
the same time contributing to their integration into the society of the Member States 
of residence. 

1.2. 

Policy context 

The  proposed  European  Year  delivers  on  the  commitment  made  by  President  José 
Manuel  Barroso,  in  his  3  September  2009  political  guidelines  for  the  new 
Commission, to reinforce EU citizenship by revitalising the link between citizens and 
the EU and by giving real effect to their rights. 

It also delivers on the call of the European Parliament's resolution of 15 December 
2010 on the situation of fundamental rights in the European Union (2009) – effective 
implementation after the entry into force of the Treaty of Lisbon. In this resolution 
the  European  Parliament  calls  upon  the  Commission  to  make  2013  the  European 
Year  of  Citizenship  in  order  to  give  momentum  to  the  debate  on  European 
citizenship  and  inform  EU  citizens  of  their  rights,  in  particular  the  new  rights 
resulting from the entry into force of the Treaty of Lisbon.  

The Stockholm Programme4 puts the citizen at the heart of European policies in the 
field  of  freedom,  security  and  justice.  It  focuses  its  actions  on  ‘building  a  citizen’s 
Europe’,  including  by  ensuring  the  full  exercise  of  the  citizens'  right  to  free 
movement.  

The  'Youth  on  the  Move'  flagship  initiative5  of  the  Europe  2020  strategy,  the  2006 
'European Year of Workers' Mobility' and the ensuing 'European Job Mobility Action 
Plan'6  have  highlighted  the  significance  of  facilitating  free  movement  and  workers' 
mobility with a view to addressing the consequences of demographic change on the 
labour market and increasing the employability of people and the competitiveness of 
European  industries.  More  generally,  free  movement  either  enables,  as  an  essential 
condition, or underpins the cross-border exercise by citizens of a broad range of EU 
rights, ranging from their rights as consumers to access goods and services to their 
rights  as  passengers  or  tourists.  Facilitating  free  movement  has  the  potential  to 
enhance citizens' possibilities to fully benefit from the single market, whilst being a 
key driver for growth.  

To this end, the European Year would raise citizens' awareness about the right to free 
movement  and  the  conditions  for  its  exercise  as  well  as  about  other  relevant  rights 
available to them in cross-border situations. 

In  the  EU  Citizenship  Report  2010  "Dismantling  the  obstacles  to  EU  citizens' 
rights"7, the Commission addressed main obstacles which citizens still encounter in 

4 

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6 
7 

Communication  from  the  Commission  to  the  European  Parliament  and  to  the  Council  "An  area  of 
freedom, security and justice serving the citizen", COM 2009 262 final, of 10.6.2009 
COM (2010) 477 final of 15.9.2010 
COM (2007) 773 final of 6.12.2007 
COM (2010) 603 final of 27.10.2010 

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their daily lives when they seek to exercise their rights as Union citizens and outlined 
25  concrete  actions  to  remove  these  obstacles.  This  Report  showed  how  Union 
citizenship  brings  rights  and  benefits  to the  citizens  and  launched  a  process  for  the 
further identification of obstacles and solutions for their elimination, with a view to 
empowering Union citizens to effectively enjoy their rights under EU law.  

The  European  Year  would  build  on  the  EU  Citizenship  Report  2010,  support  the 
process launched by the Commission and provide the framework for the publication 
of an action plan toward completing the removal of persistent obstacles standing in 
the way of citizens' enjoyment of their rights as Union citizens, as announced in this 
report.  By  raising  citizens'  awareness  of  their  right  to  free  movement  and  more 
generally of their rights as Union citizens, this European Year would give visibility 
to Union citizenship and its concrete benefits for individuals.  

Moreover, by promoting a better understanding of the value of European integration 
and  by  demonstrating  the  concrete  impact  of  Union  policies  in  citizens'  lives,  the 
2013 European Year would highlight the importance of citizens' participation in the 
European  project  as  well  as  serve  to  strengthen  tolerance,  mutual  understanding, 
social and societal cohesion and, thus, to promote European democracy. 

In view of the clear link between EU citizens' concerns and expectations, the political 
pre-election debate and voter turnout in European elections, the resulting stimulation 
of  citizens'  participation  in  the  democratic  life  of  the  Union  would  be  particularly 
important  in  the  run  up  to  the  2014  European  elections  and  the  launch  of  the  next 
generation  of  the  'Europe  for  Citizens'  financial  programme.  In  addition,  it  can  be 
assumed  that,  when  the  European  Year  will  take  place,  the  first  attempts  will  have 
been made to launch a Citizens' initiatives based on Article 11 TEU and this will be a 
valuable experience that the Year will be able to draw upon. 

The European Year will be constructed around the "strategic triangle" of (i) securing 
the  necessary  rights  and  providing  information  in  order  to  make  these  rights 
accessible  to  citizens,  (ii)  meeting  the  challenges  and  providing  the  deliverables 
based on the needs of citizens, and (iii) giving citizens the opportunity to take part 
and act in the European political arena and shape the EU political agenda. 

The European Year is closely linked to the Commission's general political objective 
to  put  citizens  at  the  centre  of  the  EU  policy  agenda.  It  will,  consequently,  be 
implemented  in  close  cooperation  with  a  number  of  Commission  services  which 
focus  their  policies  on  citizens  as  individual  holders  of  rights  and  citizens  as 
organised civil society and will benefit from the active contribution and support of all 
Commission services.  

Moreover, the cooperation with the other EU Institutions and the Member States in 
the  context  of  the  European  Year  is  in  line  with  the  joint  political  declaration 
"Communicating Europe in Partnership" of 22 October 2008.8 

8 

OJ C 13, 20.1.2009, p. 3 

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2.  PROBLEM ANALYSIS AND NEEDS ASSESSMENT 

2.1. 

Problems and challenges 

2.1.1.  Lack of concrete knowledge about citizens' rights 

A 2010 Eurobarometer survey9 showed that, although Europeans are broadly aware 
of their status as Union citizens (79% claim some familiarity with the term 'citizen of 
the European Union'), they lack concrete knowledge about the rights attached to this 
status: only 43% know the meaning of the term 'citizen of the European Union' and 
almost half of European citizens (48%) indicate that they are not well informed about 
their rights as Union citizens.  

Regarding  specifically  the  right  to  free  movement  and  residence,  in  2009,  an 
estimated 11.9 million Union citizens were living in another Member State than their 
own,  while  many  more  might  exercise  this  right  at  some  point  in  their  lives:  A 
Eurobarometer survey conducted in 200910 showed that more than one third (35%) of 
European  citizens  would  consider  working  in  another  Member  State.  However,  as 
demonstrated  by  the  same  survey,  close  to  one  in  five  Europeans  see  too  many 
obstacles to working in another Member State. Another 2009 study11 found that the 
lack  of  information  was  (together  with  language  difficulties)  the  most  important 
barrier  to  cross-border  commuting,  which  constitutes,  besides  trans-national 
migration, the main form of geographic labour mobility within the EU.  

These  findings  were  confirmed  by  a  2010  survey  investigating  the  experiences  of 
European  citizens  having  actually  exercised  their  right  to  free  movement12.  One  of 
the  most  popular  ideas  among  respondents  as  possible  means  to  make  intra-EU 
mobility easier was the provision of an information guide by each Member State on 
the  rights  of  other  Member  States’  nationals  who  reside  there.  This  survey  also 
showed  that  the  information  citizens  need  in  order  to  exercise  their  right  to  free 
movement is not strictly limited to the conditions of using this right as such: amongst 
the administrative issues which people had looked at prior to moving, the two items 
mentioned  most  often  were  social  security  and  welfare  and  the  recognition  of 
academic diplomas. 

FLASH EUROBAROMETER 294 (March 2010) 

European Union Citizenship 

How well do you feel that you are informed about your rights 
as a citizen of the European Union? 

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10 

11 

12 

Flash Eurobarometer survey 294 'EU citizenship", March 2010  
Flash  Eurobarometer  survey  263  "The  Internal  Market:  Awareness  –  Perceptions  –  Impacts"  (March 
2010) 
Scientific  Report  on  the  Mobility  of  Cross-Border  Workers  within  the  EU-27/EEA/EFTA  Countries, 
commissioned by the European Commission, January 2009 
Eurobarometer Qualitative survey "European Citizenship – Cross-border mobility" (August 2010) 

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% Very well informed 

% Well informed 

% Not well informed 

% Not informed at all 

% DK/NA 

2.7 

29.3 

47.9 

19.1 

1 

EUROBAROMETER QUALITATIVE SURVEY (August 2010) 

European Citizenship – Cross-border Mobility 

Key findings  

PLANNING 
THE MOVE 

ARRIVING 
AND  LIVING 
IN  ANOTHER 
MEMBER 
STATE 

CITIZENSHIP 

VOTING 

•  Respondents cited a variety of reasons for moving; the 
most  frequent  of  these,  mentioned  by  just  under  half 
of  respondents,  was  work.  About  a  quarter  of 
respondent  moved  in  order  to  study  in  the  new 
Member State. 

•  Those moving with an existing employer or for study 
purposes did the least amount of planning and most of 
the administrative arrangements were taken care of by 
their employer or university. Those who did not move 
by  themselves  or  moved  for  a  longer  period  of  time 
tended  to  do  the  most  planning  either  because  the 
move  did  not  just  involve  their  own  administrative 
requirements or because it was more permanent. 

•  The  amount  of  time  that  people  had  spent  planning 
their  moves  varied  widely.  However,  most  people 
appeared  to  have  spent  between  two  and  six  months 
planning their move. 

•  More than half the respondents reported experiencing 
some  form  of  administrative  problem  or  difficulty 
after moving to the new Member State.  

•  Respondents from about half of the countries covered 
by  the  study  felt  that,  although  they  were  aware  of 
some  of  their  rights  as  EU  citizens,  they  would  not 
consider themselves to be well informed, or could be 
better informed. A smaller, but still significant number 
of  respondents  felt  confident  that  they  knew  and 
understood their rights, while a small minority were of 
the view that they know their rights very well. 

•  When  respondents  were  asked  what  they  believed  to 
be  their  rights  as  EU  citizens,  it  was  clear  that  the 
rights  to  mobility  (freedom  of  movement)  and  to 
working  and  in  some  cases  studying,  in  any  EU 
Member State are foremost in their minds. 

•  The  findings  show  widespread  uncertainty  amongst 
respondents  about  their  voting  rights  after  they  have 

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moved to a different EU Member State. Only just over 
a  third  of  respondents  voted  in  the  last  European 
Parliamentary  elections  and  the  majority  of  these 
voted in their home country. 

•  As with European elections, only a small  minority of 
respondents  had  participated  in  local  elections  in  the 
Member State to which they had moved. 

•  About  twice  the  number  had  voted  in  local  elections 
than had voted in EU elections in their new country of 
residence. 

•  When  asked  if  having  access  to  more  information 
about  the  European  Parliamentary  elections  and  the 
programmes  and  objectives  of  candidates  and  parties 
would have made them more likely to vote in the last 
election, well over half the respondents indicated that 
this would have been the case. 

2.1.2.  Data about intra-EU mobility  

Socio-demographic  analysis  shows  that  women  (87%)  more  often  than  men  (81%) 
indicate that they have neither lived nor worked in another country, nor come from 
another  country  to  live/work.  Of  all  the  age  groups,  those  aged  15  -  24  have  the 
lowest proportion who say that they have lived/worked abroad, but given relatively 
short  time  they  could  have  been  in  employment  this  is  not  surprising.  Those  who 
completed their education aged 20+ have the highest proportion of respondents who 
have lived and worked in another country in the past (20+:17%, 16-19:9%, <16:8%). 
Managers more frequently say they have lived and worked in another country in the 
past (16%), particularly compared to inactive people not in retirement or education 
(7%).13  

Europeans are most likely (60%) to think that people moving within the EU is a good 
thing  for  European  integration,  50%  think  it  is  a  good  thing  for  the  labour  market, 
and  47%  think  it  is  a  good  thing  for  the  economy.  Although  48%  think  moving 
around  is  a  good  thing  for  individuals,  when  it  comes  to  the  impact  on  families 
people  are  less  certain.  Only  36%  say  this  kind  of  mobility  is  a  good  thing  for 
families, and 29% say that it is a bad thing.14  

Encouraging factors for living and working abroad are hope of a better quality of life 
(29%),  closely  followed  by  better  working  conditions  (27%)  and  better  career 
opportunities (23%).15 On the discouraging side: 39% of Europeans are discouraged 
from  working  abroad  because  it  would  mean  leaving  home;  27%  do  not  want  to 
impose large changes on their families, whilst 21% do not want to leave their friends. 
The  problem  of  learning  a  new  language  is  a  disincentive  for  19%  of  Europeans. 
Least  important  factors  are  that  friends  /  family  have  had  a  bad  experience  abroad 
(3%),  and  believing  that  the  economic  climate  abroad  is  worse  than  in  one's  own 
country (4%).16 

13 
14 
15 
16 

Special Eurobarometer 337 Geographical and labour market mobility (December 2009), 53 
Ibid., 72 
Ibid., 105 
Ibid., 111 

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SPECIAL EUROBAROMETER 337 (December 2009) 

Geographical and labour market mobility 

Do  you  envisage  working 
COUNTRY) at some time in the future? 

in  a  country  outside  (OUR 

% Yes 

% No 

% Don't Know 

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73

10

In  general,  how  do  you  currently  rate  the  chances  of  one  finding  a  job 
outside  (OUR  COUNTRY),  compared  to  the  chances  of  finding  a  job  in 
(OUR COUNTRY)? 

% Much better  

% Somewhat better 

% Somewhat worse 

% Much worse 

% No difference, about the same 

% Don't Know 

9 

25

13

8 

29

16

How  long  was  the  duration  of  your  stay  the  last  time  you  lived  and/or 
worked abroad (or how long have you already been here, if you are from 
abroad)? 

% A few weeks or less 

% A few months to less than 1 year 

% 1 year to less than 2 years  

% 2 years to less than 5 years  

% 5 years to less than 10 years  

% 10 years or more  

% Don't Know 

8 

30

13

17

10

19

3 

If  you  were  to  work  abroad  and  had a  choice  between  living  there  or  to 
commute, which of the following would you prefer? 

% Daily commute between place of residence and place of 
work 

%  Weekly  commute  between  place  of  residence  and  place 

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of work 

% Monthly commute between place of residence and place 
of work 

% To live there 

% Do not intend to work abroad 

% Don't Know 

5 

40

35

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2.1.3.  Challenges  

Qualitative data from European citizens having actually exercised their right to free 
movement17  confirm  the  close  relationship  between  the  knowledge  about  Union 
citizens' rights and the use of these rights.  

It is clear that citizens, who wish to study, work, retire, and live in another Member 
State need to be adequately informed about the different rights available to them in 
cross-border  situations  and  to  be  able  to  effectively  enjoy  them  in  practice.  The 
necessary  information  comprises  not  only  abstract  rights,  but  also  practical 
information on administrative, legal, economic, societal and cultural issues. Without 
this knowledge citizens are not able to make informed decisions about making use of 
their free movement rights. 

More  broadly,  citizens'  awareness  of  their  rights  to  free  movement  and  more 
generally of their rights as Union citizens is crucial to enable individuals, businesses 
and society as a whole to benefit from the full range of opportunities available in the 
single market.  

Taking  stock  of  this  situation,  the  Commission  concluded,  in  the  EU  Citizenship 
Report  2010,  that  Union  citizens  are  prevented  from  enjoying  their  rights  because 
they lack awareness of them and announced its intention to step up the dissemination 
of  information  to  Union  citizens  about  their  rights  as  such  and  in  particular  about 
their  free  movement  rights.  A  European  Year  of  Citizens  as  a  broad  awareness-
raising campaign is listed as one of the means to remedy this lack of awareness. 

The  effective  use  of  Union  citizens'  rights  by  people  is  also  a  way  to  enhance  the 
legitimacy  of  the  EU  as  a  guarantor  of  democracy,  social  cohesion  and  economic 
growth. Insofar a European Year is also a means to strengthen the sense of belonging 
of citizens to the EU.  

2.2. 

Target group and its needs 

The European Year is targeted at the general public, but would focus on multipliers 
in order to use the budget in the most efficient way. In this respect, special attention 
shall be addressed to strategic groups (e.g. migrant workers).  

17 

Eurobarometer Qualitative survey "European Citizenship – Cross-border mobility", August 2010 

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The  recent  Eurobarometer  surveys  (cf.  supra)  show  clearly  that  women,  young 
people  and  people  with  a  shorter  general  education  and  initial  vocational  training 
phase are less likely to consider using their right to move and reside freely in another 
Member  State.  The  specific  needs  of  these  subgroups  comprise  easily  accessible 
information in particular about the advantages and practicalities of moving to another 
Member States for reasons of working or training. 

The analysis  of encouraging  and discouraging factors for mobility shows that there 
are  a  number  of  "objective"  hurdles  to  be  tackled  (such  as  linguistic  and 
administrative  problems);  it  demonstrates  however  also  clearly  that  these  obstacles 
can  be  overcome  while  the  biggest  obstacles  are  more  linked  to  attitudes  and 
uncertainties.  These  can  be  addressed  through  the  launch  of  a  debate  which  is  not 
limited  to  the  professional  and  cultural  elites,  but  involves  all  parts  of  society  and 
highlights the opportunities deriving from Union citizenship. 

Regarding the fact that an important part of Europeans who are residing in another 
Member State is staying abroad for 5 years and more (29%) it is important to see that 
the active use of political rights could probably be boosted if more specific and better 
targeted information would be provided in the run up to the next EP elections. In the 
Eurobarometer  qualitative  survey  of  August  2010  well  over  half  the  respondents 
indicated that having access to more information about the European Parliamentary 
elections  and  the  programmes  and  objectives  of  candidates  and  parties  would  have 
made them more likely to vote. 

2.3. 

Strategic partners and relays 

In order to enhance the coverage, effects and impacts of the  activities  put in place, 
the Year will try to engage in close cooperation with the following strategic partners 
and relays: 

•  All EU institutions and bodies;  

• 

• 

Representations of the Commission and the EP in the Member States; 

Civil society organisations / think tanks and their networks, in particular those 
which  are  active  in  the  areas  of  citizens'  rights  and  citizens'  participation  in  the 
democratic life of the Union;  

• 

EU information and documentation centres in the Member States. 

Member States and their governments and public administrations are a key factor for 
success as stated in the political declaration "Communicating Europe in Partnership". 
It is, hence, important to involve them in both the preparation and implementation of 
the  European  Year.  To  this  end  a  steering  committee  including  representatives  of 
Member States and Member States' governments will be set up and will be involved 
in  the  monitoring  of  progress  through  the  relevant  formations  in  Council  (in 
particular the Council Working Party on Information). 

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3.  OBJECTIVES OF THE EUROPEAN YEAR 2013 

The European Year would raise awareness among multipliers and the general public 
about Union citizens' rights and how to concretely benefit from those rights, with a 
view  to  facilitating  the  exercise  of  the  right  to  move  and  reside  freely  within  the 
territory of the Member States. 

General objective of the European Year is a greater sense of belonging of citizens to 
the  EU  through  the  promotion  of  rights  of  Union  citizens,  in  particular  the  right  to 
move and reside freely within the territory of the Member States.  

The European Year would have three specific policy objectives: 

(1)  To raise Union citizens' awareness of their right to move and reside freely within 
the  European  Union  and  more  generally  the  rights  guaranteed  to  Union  citizens  in 
cross-border  situations,  including  their  right  to  participate  in  the  democratic  life  of 
the Union.  

(2)  To  raise  Union  citizens'  awareness  of  how  they  can  tangibly  benefit  from  EU 
rights and policies while living in another Member State, and to stimulate their active 
participation in civic fora on Union policies and issues. 

(3)  To  stimulate  a  debate  about  the  impact  and  potential  of  the  right  to  free 
movement,  as  an  inalienable  aspect  of  Union  citizenship,  in  particular  in  terms  of 
strengthening  societal  cohesion  and  mutual  understanding  between  Union  citizens 
and the bond between citizens and the EU.  

3.1. 

Objectives and related indicative indicators 

The  three  specific  policy  objectives  can  be  broken  down  to  three  operational 
objectives: a media campaign, conferences and events as well as studies/research and 
the dissemination of results.  

The three operational objectives comprise as sub-objectives (expected results) a total 
of 50 actions.  

Specific 
objectives 

Operational 
objectives 
(expected results) 

Indicative indicators 

about 

•  Raising  Union  citizens' 
awareness 
their 
rights  to  free  movement 
in 
and  more  generally 
cross-border situations 

•  Raising  Union  citizens' 
awareness of how they can 
concretely  benefit 
from 
EU  rights  and  policies, 
including  by  stimulating 
their 
to 
the  European 
shaping 

contribution 

• 

Implementation 
a 
media-based  campaign  at 
EU level 

of 

•  Level  of  Union  citizens' 
general  awareness  of  their 
rights 
(Eurobarometer 
surveys) 

–  Development 

of 

and 
implementation 
a 
horizontal  communication 
strategy  and  of  a  number 
of 
target  group-specific 
communication  strategies 
(women, 
young 
people/students,  workers, 
people  with  disabilities, 
voters/candidates, 

•  Level  of  knowledge  of 
specific  subgroups,  broken 
down  by  gender,  about  the 
practical 
rights 
conditions 
for  exercising 
these  rights  (Eurobarometer 
surveys 
specific 
and 
research) 

and 

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•  Number  of  outputs  in  the 
the 
of 
framework 
information 
campaign: 
events,  AV-,  web-based 
level 
and 
products 
of 
the  general 
to 
outreach 
public  and  to  specific  sub-
target groups 

•  Level  of 

involvement  of 
civil  society  stakeholders 
and citizens reached through 
events 
media 
and 
production 

•  Level  of  satisfaction  of 
the  EU 
Eurobarometer 

citizens  with 
(Standard 
surveys) 

•  Number 

initiatives 
of 
launched  by  citizens  and 
civil  society  stakeholders 
under  the  relevant  Union 
(such 
programmes 
as 
"Europe 
for  Citizens", 
"Fundamental  Rights  and 
Citizenship") 

• 

project 

consumer etc.)  

•  Stimulating a debate about 
the impact and potential of 
free 
the 
right 
an 
movement, 
of 
inalienable 
on 
Union 
societal 
and 
mutual  understanding  and 
the  bond  between  citizens 
and the EU 

to 
as 
aspect 
citizenship, 
cohesion 

–  Development 

of 

and 
implementation 
an 
internet strategy based on a 
website 
specific 
(integrated 
"Your 
Europe"  web  portal  and 
"Citizenship 
linked 
to 
Report"  website) 
and 
presence in social media 

into 

–  Production and distribution 
of  web-  and  AV-  material 
the  general 
targeted  at 
public  and  specific  sub-
target 
which 
groups 
address 

-- how citizens can fully enjoy 
the  rights  and 
in  practice 
opportunities 
to 
them in cross-border 

available 

-- how EU actions and policies 
aimed  at  guaranteeing 
the 
effective  exercise  of  citizens' 
rights,  in  particular  through 
the  removal  of  obstacles,  and 
on the impact of such policies 
on citizens' daily lives 

•  Conferences  and  events  at 

EU level  

–  Opening 

closing 
and 
conferences  (ideally  with 
the  Irish  and  Lithuanian 
Presidencies) 
with 
thematic  focus  on  rights 
and participation 

–  Events  targeted  at  local 
authorities 
in  charge  of 
implementing  EU  citizens' 
rights  and  practitioners  or 
other stakeholders active in 
this field  

4.  MAIN POLICY OPTIONS AND ALTERNATIVE DELIVERY MECHANISMS 

The following policy options for the European Year 2013 were considered: 

4.1. 

"Status quo" approach 

This  approach  would  mean  pursuing  current  plans  and  actions  to  give  concrete 
meaning  to  Union  citizenship  and  facilitate  the  effective  exercise  of  the  rights 

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13 

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attached  to  it,  including  the  right  to  free  movement,  without  in  addition  putting  in 
place a European Year of Citizens.  

Benefit  (strength)  of  this  approach  is  that  it  does  not  require  an  additional  specific 
budget.  Costs  (weaknesses)  are  the  persistence  of  the  problems  and  challenges  as 
outlined in section 2.1 as well as high political costs in terms of lost opportunities to 
take advantage of the current momentum created by the EU Citizenship Report 2010 
towards  making  Union  citizenship  a  tangible  reality  in  citizens'  daily  lives  and 
facilitating  the  exercise  of  citizens'  rights  across  national  borders,  as  well  as  to 
demonstrate  the  impacts  of  Union  policies  on  citizens'  lives  so  as  to  stimulate 
citizens' participation in the run up to the 2014 European elections. 

4.2. 

Sectoral approach 

The objective of facilitating free movement through awareness raising about Union 
citizens' rights in particular in cross-border situations could be pursued solely in the 
context of the different sectoral EU policies which focus on citizens in their different 
roles as workers, travellers, consumers, entrepreneurs, volunteers, students, etc.  

In  this  vein,  in  the  run  up  to  the  2014  European  elections  some  -  however 
unconnected  -  initiatives could be  launched by  single Commission  services, the EP 
and/or  other  actors in  order  to encourage  and stimulate the participation  of  citizens 
residing in other Member States than their own in these elections and more generally 
in  the  democratic  life  of  the  Union.  In  this  context,  the  "Europe  for  Citizens" 
programme (2007-2013) would dedicate in its last year of implementation one of its 
priorities to the contribution of active citizenship to the European democracy. 

Benefit (strengths) of this approach is that no additional budget is needed. 

Costs (weaknesses) include a lack of overall planning; lack of high visibility events; 
a  limited  outreach  to  the  general  public.  More  importantly,  the  compartmentalised 
nature  of  the  approach  would  mean  that  citizens  would  get  partial  information  and 
different  perspectives  on  their  rights  and  possibilities  depending  from  which 
perspective  they  are  targeted  (workers,  consumers,  students,  tourists,  entrepreneurs 
etc), which could potentially create confusion. There would be difficulties to link in a 
coherent  way  the  message  at  European  and  national  level.  This  option  4.2  is 
insufficient to reach all objectives listed in section 3 of this ex-ante evaluation. 

4.3. 

European Year approach 

A  European  Year  focused  on  enhancing  awareness  of  Union  citizenship  rights  has 
the potential to contribute to facilitating the exercise of the right to free movement, to 
the  benefit  both  of  the  individuals  concerned  and  of  European  societies  and 
economies.  This  would  also  be  beneficial  for  Union  citizenship  itself,  given  the 
positive association between Union citizenship and free movement as one of its core 
benefits.  

Indeed, this approach would serve to underline that everything the EU does is for the 
benefit of citizens of Europe, as emphasised by President Barroso in his State of the 
Union  address  of  7  September  2010.  It  would  highlight  the  concrete  benefits  of 
Union  citizens'  rights  and  the  EU  policies  aimed  at  removing  the  obstacles  to  their 

EN 

14 

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exercise and it would make Union citizenship a tangible reality in the daily lives of 
citizens,  thus  stimulating  their  active  involvement  in  the  democratic  life  of  the 
Union.  An  important  part  of  the  Year  would  be  dedicated  to  awareness  raising 
activities  on  how  the  EU  works,  which  individual  rights  it  provides  to  citizens  and 
how citizens can fully enjoy them in their daily lives, how citizens can influence the 
future  of  the  EU,  and  which  impact  the  EU's  policies  have  on  the  daily  lives  of 
citizens.  In  addition,  existing  programmes,  such  as  the  "Europe  for  Citizens" 
programme  would  be  used  to  stimulate  the  public  debate  and  encourage  civic 
participation. 

The European Year would combine an awareness raising campaigns directed at the 
general  public  as  well  as  at  specific  target  groups  (with  a  focus  on  multipliers); 
events  targeted  at  public  authorities,  practitioners  and  other  key  stakeholders;  a 
horizontal strategy for the use of internet/social media in this context; events related 
to citizens' rights and citizens' participation (that could serve as a run up to the 2014 
European  elections)  organised  with  the  two  Presidencies  and  in  close  cooperation 
with the EP and possibly the EESC/CoR). Moreover, innovative – e.g. internet/social 
media-based – forms of dialogue with citizens can be organised. 

The  lead  service  in  the  Commission  will  invite  and  stimulate  other  Commission 
services  to  prepare  and  implement  with  their  own  resources  initiatives  in  line  with 
the  objectives  of  the  Year  which  can  be  communicated  under  the  common  label 
"European  Year  of  Citizens  2013".  Thus  the  European  Year  has  the  potential  to 
trigger a much broader campaign. 

The Year would be implemented at the EU level and carried out in close cooperation 
with  the  other  EU  Institutions.  The  Representations  in  the  Member  States  and  the 
involvement  of  Member  States  through  a  Steering  Committee  and  the  relevant 
Council  formations  would  ensure  the  linking  of  the  EU  initiative  with  the  national 
level. Civil society would be involved in preparing and implementing the European 
Year.  

Benefits (strengths) of this approach are that the Year would have a high outreach to 
the  general  public  and  to  specific  target  audiences.  It  would  deliver  clear  and 
coherent  messages  and  mobilise  stakeholders  at  both  the  EU  and  national  level. 
Member States as well as civil society would be empowered to assume ownership of 
the  theme.  This  Year  would  be  a  concrete  expression  of  the  Commission's  strong 
commitment to putting citizens at the heart of the EU political agenda.  

4.4. 

Member States based approach 

In  the  run  up  to  the  2014  European  elections  Member  States  could  be  specifically 
invited  to  organise  awareness  raising  campaigns/events  on  the  electoral  rights  of 
Union citizens, which would highlight - although only within the national context - 
the  impact  of  Union  policies  in  citizens'  daily  lives  and  the  possibilities  for  Union 
citizens to influence such policies. 

Benefits  (strengths)  of  this  approach  are  that  no  additional  budget  is  needed.  This 
approach  would  empower  Member  States  to  assume  ownership  of  the  themes  and 
help to mobilise stakeholders in Member States with an established culture of civic 
participation. Cost (weakness) is a lack of coherence between messages at EU level 

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and  national  level  and  between  messages  disseminated  in  different  Member  States. 
This  approach  is  generally  insufficient  to  reach  all  objectives  listed  in  section  3  of 
this ex-ante evaluation. 

4.5. 

Design for the European Year 2013 

The proposal for the European Year 2013 aims at activating existing structures rather 
than  to  create  new  ones  that  would  exist  just  for  one  year,  thus  increasing  the 
sustainability of the Year's legacy and impact. 

No  additional  funding  is  sought  for  the  European  Year.  The  flexibility  for  annual 
priority-setting  based  on  the  budget  lines  and  programmes  of  the  Directorates 
General  for  Communication  provides  sufficient  financial  margin  for  running  the 
Year on a EUR 1 million scale. There are no overlaps between the European Year of 
Citizens and the Europe for Citizens programme. The initiatives are complementary. 
The Year would consist of the centrally managed communication campaign, putting 
the objectives of this Decision into practice. The "Europe for Citizens" Programme 
and  the  "Fundamental  Rights  and  Citizenship"  Programme  could  have  thematic 
priorities relevant to the European Year in their annual work programme for 2012/13 
and could fund projects related to the European Year. 

5.  STAKEHOLDER CONSULTATION AND LESSONS LEARNED 

5.1. 

Stakeholder consultation and involvement 

In  the  context  of  the  public  consultation  carried  out  by  the  Commission  on  "EU 
citizens  rights  –  the  way  forward"  which  was  concluded  on  15  June  2010  and  the 
conference  on  this  theme  that  took  place  on  1  and  2  July  2010,  civil  society 
organisations strongly supported the idea of EU policies focusing on the meaning of 
Union  citizenship  and  the  rights  attached  to  it  and  on  exploring  ways  for  Union 
citizenship to acquire real significance in peoples' lives. On other occasions, such as 
subsequent conferences organised by key stakeholders such as the European Citizens 
Action Service, civil society expressed support for awareness raising actions aimed 
at  bridging  the  gap  between  legal  rules  guaranteeing  free  movement  of  Union 
citizens and the obstacles citizens are confronted in reality.  

The  Commission  has  further  received  positive  feedback  from  some  of  the  strategic 
partners and relays listed in section 2.2, regarding actions focusing on certain aspects 
of the exercise of rights attached to Union citizenship, and in particular encouraging 
citizens' societal engagement and active involvement in giving effect to participative 
democracy.  

During the preparatory phase of the European Year in 2012 a steering committee will 
be set up which involves the EU Institutions, Member States as well as stakeholder 
organisations.  The  steering  committee  will  meet  3  times  in  2012  and  1-2  times  in 
2013.  It  will  discuss  the  programme  of  the  European  Year  and  act  as  a  liaison 
network with potential actors during the Year. 

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5.2. 

Lessons learned from recent studies  

5.2.1.  Eurobarometer surveys 

The August 2010 Standard Eurobarometer survey shows that not only the satisfaction 
of  citizens  with  the  way  democracy  works  in  the  European  Union  has  dropped 
significantly,  but  also  that  the  trust  in  the  European  institutions  has  been  affected. 
There  are  now  more  Europeans  who  tend  not  to  trust  the  EU  (47%,  +7  points). 
Support  for  EU  membership  has  dropped  to  the  lowest  levels  recorded  in  the  last 
decade. On the other hand, the EB survey shows clearly, that citizens feel that the EU 
is best able to take effective action against the effects of the financial and economic 
crisis, and that people wish more coordination among Member States. This suggests 
that a targeted awareness-raising initiative, such as a European Year, is an effective 
instrument to respond to information needs of citizens. 

Qualitative and Flash Eurobarometer surveys of 2009 and 201018 revealed that apart 
from  the  estimated  11.7  million  Union  citizens  who  are  living  in  another  Member 
State than their own, many more might exercise this right at some point in their lives: 
more than one third (35%) of European citizens polled in 2009 state that they would 
consider  working  in  another  Member  State.  Surveys  carried  out  in  2010  show  that 
almost half of Union citizens (48%) feel that they are ‘not well informed’ about their 
rights.  Indeed,  less  than  one  third  (32%)  consider  themselves  ‘well’  or  ‘very  well’ 
informed  about  their  rights  as  Union  citizens.  Specifically  with  regard  to  free 
movement, one-sixth (17%) of Union citizens state that they do not want to look for 
work  in  another  Member  State  because  they  believe  that  there  are  too  many 
obstacles.  

5.2.2.  EU Citizenship Report 2010 

The  Citizenship  Report  2010  is  based  on  extensive  evidence  of  the  main  problems 
citizens  are  still  confronted  with  when  they  seek  to  exercise  their  rights  as  Union 
citizens  in  particular  in  cross-border  situations.  It  therefore  identifies  not  only  the 
obstacles persisting in relation to free movement itself but also a number of issues of 
direct  interest  for  citizens  who  consider  exercising  their  right  to  free  movement, 
where  the  EU  needs  to  step  up  its  efforts  to  disseminate  information  and  remove 
remaining obstacles. Such issues include property rights of international couples, the 
cross-border  recognition  of  civil  status  documents,  the  protection  of  suspected  and 
accused  persons  in  criminal  proceedings,  taxation  problems  in  cross-border 
situations,  cross-border  health  care  and  eHealth  technology  issues,  passenger  and 
tourist rights, consumer rights, the recognition of academic diplomas, social security 
issues,  the  exercise  of  electoral  rights  and  the  awareness  of  the  meaning  of 
citizenship.  

The European Year of Citizens can therefore draw extensively on the findings of the 
EU Citizenship Report 2010 and the process launched by this report for the further 
removal of obstacles preventing citizens from effectively enjoying their EU rights so 

18 

Special Eurobarometer 337 "Geographical and Labour Market Mobility" (November/December 2009); 
Flash  Eurobarometer  294  "EU  Citizenship"  (March  2010);  Eurobarometer  Qualitative  Survey 
"European Citizenship – Cross-border Mobility" (August 2010) 

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as  to  better  focus  its  aims  and  actions  on  the  most  relevant  issues  with  a  view  to 
facilitating free movement of Union citizens. 

5.2.3.  Analysis of the European elections 2009 

The analysis of the European elections 2009 suggests that, although awareness of the 
campaign  launched  by  the  EU  encouraging  people  to  vote  is  positive  (67%),  its 
impact  seems  to  be  limited  on  turnout.  Nevertheless,  there  are  a  number  of 
conclusions and lessons learned for the future: 

• 

• 

• 

• 

The most powerful centralised activities were those using audio-visual 
media; the most cost-efficient were the activities using the new media and digital 
strategy.  

Regarding country-specific activities, the debates and public events in 
Member States are still very much needed in all Member States to engage people. 
They should be organised in a way that gives space to real, controversial debates 
and generates media attention to achieve a multiplier effect. 

Campaign  activities  built  on  existing  public  events  and  addressed 
targeted established networks, together with debates and public events organised 
by the European Commission's Representations for the general public, proved to 
produce positive benefits in terms of people's perception of the EU. To illustrate, 
15% of respondents (in a specific post-campaign survey of the target group) said 
that  their  opinion  of  the  EU  had  improved  after  seeing  a  campaign  on  MTV 
targeted on young people.  

A  2010 Flash Eurobarometer survey showed that more  than eight out 
of  10  EU  citizens  consider  that  receiving  more  information  from  the  political 
parties  on  their  programmes  and  on  the  impact  of  the  EU  on  their  lives  could 
contribute  to  a  higher  turnout19.  This  was  confirmed  by  the  findings  of  a 
Qualitative  Eurobarometer  survey  carried  out  in  the  same  year  and  investigating 
the  experiences  of  European  citizens  who  have  actually  exercised  their  right  to 
free movement20. 

5.2.4. 

Studies 

An ongoing study on active citizenship which will be concluded in 2011 looks into 
the different concepts and examines good practice in this area which will be the basis 
for recommendations. 

A  study  on  maximising  the  potential  of  mobility  in  building  European  identity  and 
promoting civic participation in the EU will be finalised by July 2011; it examines 
the  relationship  between  the  exposure  of  citizens  (in  particular  representatives  of 
civil society organisations) to the reality of another Member State and their ability to 
develop a European perspective for problem solving. 

19 
20 

Flash Eurobarometer 292 ‘Electoral rights of citizens of the EU’, March 2010 
Qualitative Eurobarometer survey "European Union citizenship – cross-border mobility", August 2010 

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In  2011  a  study  will  be  launched  to  look  into  how  adequate  knowledge  on  EU 
citizens' right to free movement is ensured on the ground, and in particular into the 
practices put in place at Member States' level to train officials on the front-desks of 
the relevant national, regional and local authorities. The findings of this study will be 
used  to  identify  and  promote  good  practices  and,  possibly,  to  develop  a  training 
module. 

5.3. 

Lessons learned from the evaluation of previous European Years 

The experience with previous European Years and their ex post evaluation (e.g. the 
European  Year  of  Education  through  Sport  200521;  the  European  Year  of  Equal 
Opportunities for All 200722) showed that European Years:  

• 

• 

• 

• 

have proven to be an efficient instrument in putting European political issues at 
the  top  of  the  policy  agenda.  The  broad  level  of  participation  within  a  limited 
timeframe  has  helped  to  harness  political  support  and  pave  the  way  for  broader 
political commitments; 

are  designed  to  involve  a  range  of  stakeholders  with  a  view  to  publicising, 
debating, exchanging  views on a  specific theme. They are therefore  an effective 
tool in raising awareness; 

are  efficient  instruments  for  creating  synergies  between  different  areas  of 

intervention at EU, Member States and regional/local levels; 

tend  to  have  more  added  value  as  compared  to  individual  interventions  by 
Member States. This has also been important in creating political momentum and 
contributing to policy change. 

6.  RISKS AND ASSUMPTIONS 

Assumption 

Risk 

Assessment 

visibility 

Increased 
of 
Union  citizens'  rights  and 
of 
impact  of  EU 
policies in their daily lives 

the 

Level  of  visibility  remains  the 
same 

is 

foreseen. 

An  information  and  communication 
The 
campaign 
Commission as well as the other EU 
institutions  have  a  wide  range  of 
instruments  at  their  disposal  in  the 
informing  about  and 
fields  of 
promoting  Union  citizens' 
rights 
(among  them  programmes,  such  as 
and 
"Europe 
"Fundamental 
and 
Citizenship"). They can be applied in 
a  much  more  target-oriented  way  in 
the framework of a European Year.  

Citizens" 
Rights 

for 

Civil  society  will  react  There  is  a  risk  of  too  high  The  contribution  of  civil  society  in 

21 

22 

Commission  Européenne,  Evaluation  externe  (ex-post)  de  l'année  européenne  l'éducation  par  le  sport 
2004 (2005) 
European Commission, On-going Evaluation of the 2007 European Year of Equal Opportunities for All. 
Final Report (2008) 

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positively  to  this  Year  and 
will actively take part in it 

regarding 

expectations 
the 
activities  of  the  Year  and  the 
possibilities  for  participation  of 
civil  society  organisations  and 
citizens 
the  EU  decision-
making process. 

in 

Lack  of  political  support  from 
some Member States.  

EU  Member  States  will 
react  positively  and  will 
participate in the campaign 
events;  good 
and 
cooperation 
between 
Member States 

its 

Interest  and  involvement 
of the media 

Limited  co-operation  from  the 
media 

that  European  Year 

is 
Risk 
considered as a marketing action 
rather  than  an  efficient  tool  to 
facilitate the exercise of citizens' 
rights,  and  in  particular  of  the 
right to free movement. Negative 
degree  of  co-operation  with  the 
media 

Awareness-raising  through 
the  European  Year  will 
enhance  the  identification 
of  citizens  with  the  EU 
which  will  lead  to  more 
civic 
and 
commitment 
participation  (including  a 
higher  voter  turnout  in  the 
2014 European elections) 

European  Year  triggers  a 
much broader mobilisation 
the  Commission 
within 
other  EU 
and  with 
Institutions 
and 
stakeholders 

increase 

No  fundamental  change  in  the 
general  public's  attitude  and  no 
further 
civic 
commitment  and  participation 
(including 
in 
voter  turnout  in  2014  European 
elections) 

further  decline 

in 

Too  limited  budget  prevents  the 
European  Year 
to  have  a 
tangible effect with regard to the 
objectives 

stimulating  citizens'  participation 
will be a key factor for achieving the 
objectives  of  the  European  Year. 
Hence, it should be well accepted by 
the 
of 
overwhelming  majority 
stakeholders.  

A  clear  political  signal  from  the 
Commission 
citizens' 
participation  in  EU  debates  (with 
regard  to  process  and  contents)  will 
clarify ambiguities. 

about 

lack  of  support 

As  the  main  problem  addressed  by 
the  European  Year  has  also  direct 
repercussions  at  the  national  level, 
the  risk  of 
in 
principle  is  weak.  Moreover,  the 
chosen  approach  ensures  adequate 
support for Member States' actions in 
the  context  of  the  Year  as  well  as 
coordination and coherence 

The  risk  is  weak  because  the  Year 
will  focus  on  concrete  topics  and 
benefits in the daily lives of citizens. 
A 
and 
communication 
campaign  will 
stimulate cooperation with the media 
in the context of the European Year. 

information 

broad 

The  media 
campaign  will  be 
embedded in a positive public debate 
which is based on feedback from the 
grassroots level. 

The  European  Year  is  only  one 
element  of  a  new  approach  of  the 
Commission  to  place  citizens  at  the 
centre  of  the  political  agenda.  It  can 
be  expected  that  this  new  approach 
increases  the  satisfaction  of  citizens 
with the EU in general. 

Early  involvement  of  a  number  of 
Commission  services  which  are 
active  in  the  area  of  citizens'  rights; 
set  up  of  a  Task  Force  to  create 
synergies  within  the  Commission; 
set up of a Steering Committee to get 
other EU Institutions, Member States 
and stakeholders on board.  

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7.  PROPORTIONALITY AND ADDED VALUE OF EU INVOLVEMENT 

All options considered respect the proportionality principle, as the means and actions 
they  would  involve  would  not  exceed  what  is  necessary  to  achieve  the  stated 
objectives.  

The suggested European Year would provide appropriate means and methods to raise 
awareness  among  people  for  Union  citizens'  right  to  free  movement  and  the  rights 
available to them under EU law in a cross-border context. These rights are relevant in 
economic,  societal  and  political  terms  and  have  the  potential  to  enhance  citizens' 
sense of belonging to the EU. 

The European Year approach will "translate" the legal definition of rights enshrined 
in  the  Treaties  into  "real  life  stories"  and  thus  provide  much  more  accessible 
information.  By  defining  communication  strategies  for  the  general  public  and 
specific  sub-target  groups  it  will  establish  a  back  channel  that  should  help  the  EU 
and Member States to better understand persistent problems. 

The  central  production  and  distribution  of  print-,  AV-  and  web  based  materials 
across  the  EU  which  is  linked  to  high-visibility  events  (conferences  with  top  level 
decision makers and stakeholders) is an effective and cost-efficient way of promoting 
a number of focused messages.  

The  increased  ability  of  citizens  to  make  informed  decisions  when  they  consider 
studying,  working,  retiring,  living  in  another  Member  State  or  taking  advantage  in 
any other way of their EU rights across national borders is not only for the benefit of 
individual  persons,  but  also  of  the  labour  market,  the  competitiveness  of  European 
industries and of society as a whole.  

Moreover, by promoting a better understanding of the value of European integration 
and  by  demonstrating  the  concrete  impact  of  Union  policies  in  citizens'  lives,  the 
2013 European Year would highlight the importance of citizens' participation in the 
European  project  as  well  as  serve  to  strengthen  tolerance,  mutual  understanding, 
social and societal cohesion and, thus, to promote European democracy. 

8.  HELPING TO ACHIEVE COST EFFECTIVENESS 

8.1. 

Cost implications of the European Year  

No  additional  funding  is  sought  for  the  European  Year.  The  flexibility  for  annual  priority-
setting  based  on  the  budget  lines  and  programmes  of  the  Directorates  General  for 
Communication provides sufficient financial margin for running the Year on a EUR 1 million 
scale. 

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8.1.1.  Financial  Resources:  Summary  of  commitment  appropriations  (CA)  and 

payment appropriations (PA) 

No  additional  funding  is  sought  for  the  European  Year.  The  flexibility  for 
annual  priority-setting  based  on  the  budget  lines  and  programmes  of  the 
Directorates  General  for  Communication  provides  sufficient  financial  margin 
for running the Year on a EUR 1 million scale. The administrative resources can 
also come from existing administrative budgets. Therefore the amounts inserted 
in the tables are for information only. 

EUR million (to 3 decimal places) 

Section 
no. 

Expenditure type 

Year  
2013 

Year 
2014

Year 

n+
2 

Total 

n
+
3 

n 
+ 
4 

n
+ 
5 
an
d 
lat
er 

Operational expenditure 

Commitment 
Appropriations (CA) 

8.1. 

a 1.000 

Payment 
(PA) 

Appropriations 

b 0.500 

0.500 

Administrative expenditure within reference amount 

Technical  &  administrative 
assistance (NDA) 

8.2.4. 

c  

TOTAL REFERENCE AMOUNT 

Commitment 
Appropriations 

Payment Appropriations 

1.000 

0.500 

0.500 

a
+
c

b
+
c

Administrative expenditure not included in reference amount 

Human 
associated 
(NDA) 

resources 

and 
expenditure 

8.2.5. 

d

0.635 

0.127 

1.000 

1.000 

1.000 

1.000 

0.762 

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Administrative  costs,  other 
than  human  resources  and 
not 
associated 
included 
reference 
in 
amount (NDA) 

costs, 

8.2.6. 

e

0.106 

0.019 

0.125 

Total indicative financial cost of intervention23 

TOTAL  CA 
cost of Human Resources 

including 

TOTAL PA including cost 
of Human Resources 

a
+
c
+
d
+
e

b
+
c
+
d
+
e

1.635 

0.127 

1.762 

1.135 

0.627 

1.762 

8.1.2.  Objectives of the proposal in terms of their financial cost 

Commitment appropriations in EUR million (to 3 decimal places) 

(Headings  of  Objectives,  actions  and  outputs 
should be provided) 

Av. 
cost 

Year 2013 

Year 2014 

TOTAL 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

No. 
outputs 

Total 
cost 

SPECIFIC OBJECTIVE No 1 

To raise awareness of the right to move and reside 
freely…. 

Media campaign  

Production  and  distribution  of  AV-  and  web-based 
materialVNRs, video clip, websites etc.)  

0.100 

 2 

 0.200 

Sub-total Objective No 1 

0.100 

2 

0.200 

2 

2 

0.200 

0.200 

23 

The Commission has proposed within the preliminary draft budget for the year 2012 to attribute 
1.000  m  €  for  the  preparatory  actions  of  the  year.  Another  1.000  m  €  will  be  used  from  the 
"Europe for Citizens" programme's Action 3 (budget line 16 05 01 01) for the preparation in 2012 
plus  1.000  m  €  for  the  implementation  in  2013.  Adequate  human  resources  –  in  particular  to 
ensure  the  functioning  of  a  Task  Force  which  will  have  to  run  the  European  Year  and  to 
coordinate  with  other  Commission  services  and  possibly  other  cooperation  partners  –  will  be 
allocated in 2012 for the preparatory actions and in 2013 for the implementation. 

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SPECIFIC OBJECTIVE No 2 

To  raise  awareness  of  how  to  tangibly  benefit  from 
EU rights and policies while living in another Member 
State 

Conferences and events 

Opening and closing conferences (in cooperation with 
the IE, LT Presidencies) 

Sub-total Objective 2 

SPECIFIC OBJECTIVE No 3 

To  stimulate  a  debate  about  the  impact  and  potential 
of the right to free movement 

Workshops 

Sub-total Objective 3 

TOTAL COST 

2 

2 

2 

2 

6 

0.600 

0.600 

0.200 

0.200 

1.000 

8.1.3.  Number and type of human resources 

2 

2 

2 

2 

6 

0.600 

0.600 

0.200 

0.200 

1.000 

Types of post 

Year 2013  Year 2014  Year n+2  Year n+3  Year n+4 

Officials or 
temporary 
staff 

A*/AD 

B*, 
C*/AST 

3 

2 

0.5 

0.5 

Staff  financed  by  art.  16 
01 02 

Other  staff  financed  by 
art. 16 01 04/05 

TOTAL 

5 

1 

The human resources required will be met by staff from the DG who are already assigned 
to management of the action and/or have been redeployed within the DG 

8.2. 

Could the same results be achieved at lower costs? 

The  European  Year  will  be  based  on  existing  structures  and  instruments  and 
enhance their effectiveness by integrating them into a coherent framework. No 

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additional  funding  is  sought  for  the  European  Year.  The  flexibility  for  annual 
priority-setting  based  on  the  budget  lines  and  programmes  of  the  Directorates 
General for Communication provides sufficient financial margin for running the 
Year  on  a  EUR  1  million  scale.  The  administrative  resources  can  also  come 
from existing administrative budgets  

The staff tasked with the preparation and implementation of the European Year 
will  have  to  invest  a  considerable  part  of  their  working  time  to  ensure  the 
coordination with other Commission services and other cooperation partners. An 
important  aspect  of  the  planning  foresees  the  mobilisation  of  a  broad  range  of 
cooperation partners under a common label "European Year 2013". 

Financial leverage effect will be produced through the momentum created. The 
information and communication actions could be used to increase the number of 
actions using the visual identity of the Year. 

9.  PLANNING OF FUTURE MONITORING AND EVALUATION 

The design of the monitoring framework will be mainly the responsibility of the 
Commission.  The  monitoring  system  will  be  coherent  with  the  data  needed  to 
furnish the indicators highlighted in section 3.1. 

An internal evaluation will be carried out in 2014 together with all cooperation 
partners  in  the  framework  of  the  Steering  Committee.  This  arrangement  will 
allow the Commission to report to the EU institutions by the end of 2014 on the 
results  achieved.  The  objective  of  this  report  will  be  to  assess  the  results 
achieved by the European Year of Citizens in the light of its objectives.  

********* 

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