COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL First Annual Report on the implementation of the EU Internal Security Strategy
Date: 2011-11-25
Institutions: European Commission
Subjects: administrative cooperation, computer crime, delinquency, domestic policy, frontier, international security, terrorism

EUROPEAN COMMISSION 

Brussels, 25.11.2011 
COM(2011) 790 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

First Annual Report on the implementation of the EU Internal Security Strategy 

 
 
 
 
  
 
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

First Annual Report on the implementation of the EU Internal Security Strategy 

I. Introduction 

In July this year, a right-wing extremist in Norway carries out a devastating terrorist attack. In 
August, public authorities in the UK seize 1.2 tonnes of cocaine in a record haul. Across the 
EU, cyber attacks  increasingly wreak havoc on public and private computer systems. These 
are stark reminders of the importance of action to counter threats to internal security. 

‘The EU Internal Security Strategy in Action’,1 adopted in November 2010, outlined priorities 
for the EU to focus on for the coming four years, which are: (1) the disruption of international 
criminal  networks,  (2)  the  prevention  of  terrorism  and  addressing  radicalisation  and 
recruitment,  (3)  raising  the  levels  of  security  for  citizens  and  businesses  in  cyberspace,  (4) 
strengthening security through border management and (5) increasing Europe’s resilience to 
crises and disasters.  

As security threats emerge and evolve, the EU must be ready to respond. Regular threat and 
risk assessments from EU organisations such as Europol, Eurojust, Frontex and the EU Joint 
Situation Centre (SitCen), are necessary.  

The latest Europol report2 identifies three emerging threats of particular concern: 

First,  issues  related  to  the  fast-paced  nature  of internet technology.  The  internet  is  now  an 
integral and indispensible part of the everday lives of EU citizens, but it is also becoming a 
major facilitator for a wide range of criminal activities and a vehicle for terrorist propaganda. 
Increasing reliance on internet technology makes our society more vulnerable to high profile 
hacking attacks, which can target administrations, industrial control systems or banks.  

Second,  the  potential  implications  of  the  ongoing  economic  crisis.  Increasing  financial 
constraint may reduce the resources available to public authorities to combat internal security 
threats. There is no obvious and immediate solution to this – but we all need to be aware of 
the constraints and its consequences. 

Third, the impact on the EU of the external dimension of security. The internal security of 
the  EU  is  closely  linked  to  the  security  situation  in  its  neighbourhood,  as  demonstrated  by 
recent  events  in  the  Arab  world.  These  encouraging  events  which  bring  democracy  and 
prosperity  to  the  region,  have  also  created  considerable  movements  of  people,  putting 
increased  pressure  on  neighbouring  countries'  border  management  capabilities  including  the 
EU's  external  border.  Equally,  continued  displacement  of  people,  and  gaps  in  governance, 
may  create  conditions  for  increased  criminal  and  terrorist  activity  across  the  Sahel  area.  To 
the south east of the EU, the Western Balkan countries continue to be a source of concern due 

1 

2 

Commission Communication: The EU Internal Security Strategy in Action: Five steps towards a more 
secure Europe — COM(2010) 673/3, (hereinafter ‘the ISS in Action’). 
See Europol: Organised Crime Threat Assessment (OCTA) 2011. 

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to the persistent activities of transnational organised crime, such as illicit trafficking in drugs, 
human beings and counterfeit goods. 

The need for EU cooperation to face these challenges has never been greater. Implementation 
of  the  identified  actions  will  be  necessary  within  the  coming  years.  But  this  will  not  be 
enough.  These  strategic  objectives  need  to  be  translated  into  concrete  plans  and  actions.  In 
this respect, the Commission welcomes the  methodology  of  the  EU  Harmony  Policy  Cycle, 
which  will  translate  political  priorities  and  threat  assessments  into  operational  action  plans 
specifically in the areas of serious international and organised crime, cybercrime and border 
management, through the delivery of the eight priorities as agreed by the Council.3  
In taking forward implementation of the Internal Security Strategy in Action, the Commission 
will  continue  to  ensure  full  respect  for  the  rule  of  law  and  the  European  Charter  of 
Fundamental Rights, including the privacy rights of individuals. 

The  following  report  provides  an  assessment  of  the  implementation  of  the  ISS  in  Action  in 
2011.  It  outlines  the  state  of  EU  internal  security  in  the  area  of  each  of  the  ISS's  five 
objectives4 and provides a forward look for actions in 2012. A detailed evaluation of the key 
measures implemented in 2011 can be found in the Annex. 

II. The state of EU internal security 

1. Organised crime/international crime networks 

A new criminal landscape is emerging, which is increasingly characterised by highly mobile 
and  flexible  groups  operating  in  multiple  jurisdictions  and  criminal  sectors,  and  aided,  in 
particular, by widespread illicit use of the internet. The groups with the best resources have 
gathered diverse portfolios of criminal business interests, improving their resilience at a time 
of  economic  austerity,  and  strengthening  their  capability  to  identify  and  exploit  new  illicit 
markets.  Activities  involving  low  levels  of  perceived  risk,  such  as  carbon  credit  fraud, 
payment card fraud and counterfeiting of various goods, are increasingly attracting the interest 
of established criminal groups.  

Although  the  goals  of  terrorist  and  organised  crime  groups  differ,  the  connections  between 
their  activities  appear  to  be  growing.  Crime  is  being  extensively  used  to  finance  terrorist 
activities.5  Terrorist  groups  may  be  involved  directly  in  organised  crime  or  affiliated  to 
individual criminals and criminal groups, in areas such as trafficking in weapons and drugs, in 
human beings, or financial fraud, money laundering and extortion.  

Cross-border  cooperation  between  authorities  is  an  essential  element  in  meeting  the 
challenges  to  EU  internal  security.  However,  the  instruments  available  for  information 
exchange,  in  particular  the  Swedish  Initiative6  and  the  Prüm  Decisions,7  are  still  not  fully 

3 

4 

5 
6 

See Council conclusions on setting the EU’s priorities for the fight against organised crime between 
2011 and 2013; doc. 11050/11, JAI 396 COSI 46 ENFOPOL 184 CRIMORG 81 ENFOCUSTOM 52 
PESC 718 RELEX 603. See also Annex.  
This was prepared by Europol with contributions from Eurojust, Frontex, Commission/DG ECHO, inter 
alia based on the strategic documents — Europol’s Organised Crime Threat Assessment (OCTA) 2011, 
Terrorism Situation and Trend Report (TE-SAT) 2011, Frontex’ Annual Risk Analysis (ARA) 2011 and 
Western Balkans Annual Risk Analysis (WB ARA) 2011 — and on the casework of Eurojust, as 
reflected in its Annual Report 2010. 
See Europol: EU Terrorism Situation and Trend Report (TE-SAT) 2011. 
Council Framework Decision 2006/960/JHA of 18 December 2006. 

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implemented  in  the  Member  States.  More  coherence  and  consolidation  of  cross-border  law 
enforcement information exchange is still needed.  

Europe’s  citizens  must  have  the  assurance  that  effective  disruption  of  criminal  networks  is 
complemented  by  the  coordination  of  efficient  and  fair  prosecutions.  However,  various 
instruments  for  judicial  and  law  enforcement  cooperation  have  yet  to  be  ratified  and 
implemented by all Member States.8 Furthermore, the differing requirements of the Member 
States  in  relation  to  cross-border  search  and  seizure  can  impede  the  coordination  of  urgent 
actions  in  different  jurisdictions.  A  European  Investigation  Order  would  reinforce  the 
principle of mutual recognition and address current difficulties in obtaining information and 
evidence in cross-border cases.  

The overall value of the assets frozen and confiscated in the EU remains low compared to the 
estimated wealth of criminal organisations. More needs to be done in order to trace and seize 
criminal  assets  more  effectively.  Organised  criminals  are  seeking  to  re-invest  in  lawful 
activities,  which  means  that  there  is  a  need  for  stronger  rules  to  combat  money-laundering, 
and greater operational focus on the means by which criminals infiltrate the licit economy. 

In 2011, to bolster the EU's toolbox in the fight against organised crime, the Commission inter 
alia  adopted  a  package  on  anti-corruption  and  proposed  EU  legislation  on  the  collection  of 
Passenger Name Records on flights entering or leaving the territory of the EU. 

Way forward in 2012 

The Commission will: 

• 

• 

• 

• 

• 

• 

• 

• 

• 

adopt a package on confiscation and recovery of criminal assets; 

present  a  proposal  on  the  reform  of  Europol  and  CEPOL  together  with 
the European Training Scheme; 

present a proposal on the reform of Eurojust; 

aim to conclude two new PNR Agreements with the U.S. and Canada; 

work towards the adoption of its proposal for a Directive on the collection 
of Passenger Name Records; 

present a Communication on the European Information Exchange Model; 

elaborate a financial investigation strategy; 

for  a 
present  a  proposal 
Laundering/Countering the Financing of Terrorism; and 

revised  Directive  on  Anti-Money 

issue a five year strategy on trafficking in human beings.  

7 
8 

Council Decisions 2008/615/JHA and 2008/616/JHA (Prüm Decisions). 
Such as the European Convention on the Transfer of Proceedings in Criminal Matters of 1972 and the 
Convention on Mutual Assistance in Criminal Matters between the Member States of the EU of 2000. 

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Member States are encouraged to: 

• 

• 

implement the actions foreseen in the EU Policy Cycle; 

step up efforts to develop the administrative approach, involving all public 
sector  bodies,  not  just  law  enforcement  bodies,  to  protect  the  economy 
against crime and corruption; 

•  make  progress  in  establishing  effective  asset  recovery  offices  and  in 

facilitating exchange of information and best practice; 

• 

implement  existing 

ratify  and 
law 
enforcement cooperation and information exchange, including the Swedish 
Initiative, the Data Retention Directive and the Prüm Decisions, as well as 
the  Conventions  on  transfer  of  proceedings  and  on  mutual  assistance  in 
criminal matters; and  

instruments  for  judicial  and 

• 

transpose the Directive on trafficking in human beings without delay. 

2. Terrorism and radicalisation 

A  decade  after  the  events  of  9/11,  statistics  on  terrorist  suspects  indicate  that  Islamist 
terrorism remains the prevailing threat to the EU. Nevertheless, the tragic events in Norway in 
this July remind us that the threat posed by terrorism is not confined to a single set of political 
or religious ideologies or motivations. The First Response Network, established in the wake 
of the 2005 terrorist attacks in London, was activated for the first time following the attack in 
Norway and proved to be useful.  

Home-grown terrorism and radicalisation of EU citizens is increasingly becoming a source of 
concern.  The  EU  needs  to  stay  ahead  of  developments  both  in  terms  of  the  process  of 
radicalisation and the technology used. The EU Radicalisation Awareness Network, launched 
in September 2011, is designed to facilitate knowledge-sharing, raise awareness and identify 
new and creative solutions to counter violent extremism. The Commission will ensure that a 
coherent approach with the EEAS and the Counter-Terrorism Coordinator is taken to counter 
violent extremism both within the EU and externally.  

The  risk  of  radicalisation  of  individuals  cannot  be  entirely  eliminated.  Therefore,  initiatives 
which prevent terrorist access to funding and materials and which improve transport security 
will be critical in the fight against terrorism. In 2010, the Commission proposed an EU action 
plan to strengthen air cargo security, with new rules and a definition of criteria for identifying 
high  risk  cargo,  and  has  now  progressed  to  the  final  stage  of  the  development  of  an  EU 
aviation security risk assessment. Furthermore, improved information exchange with Europol 
and Eurojust would facilitate both prevention and subsequent prosecution of terrorist activity.  

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Way forward in 2012 

The Commission will: 

• 

• 

• 

• 

• 

• 

• 

organise a high level conference on countering violent extremism, with the 
support of the EU Radicalisation Awareness Network;  

prepare  a  set  of  proposals  addressing  the  use  of  internet  by  terrorists, 
exploring means to counteract radicalisation online;  

propose a legislative instrument on freezing of assets to combat terrorism 
and related activities; 

review 
Infrastructure Protection;  

the  Directive  on 

the  designation  of  European  Critical 

present a mid-term report on the implementation of the EU CBRN Action 
Plan and a review of the EU Explosives Action Plan; and 

propose options for the establishment of an EU terrorist Finance Tracking 
System  based  on  discussions  with  the  Council  and  the  European 
Parliament; and  

propose  options  for  further  strengthening  transport  security,  focusing  in 
particular on land transport issues.  

Member States are encouraged to: 

• 

• 

implement the Action Plan on air cargo security; and 

enhance efforts to counter violent extremism.  

3. Cybercrime and cyber security 

The EU is a key target for cybercrime notably because of its advanced internet infrastructure, 
widespread usage and increasingly internet-mediated economies and payment systems. As a 
consequence  of  the  pace  and  sophistication  of  technological  development,  cybercrime  is 
constantly  evolving.  New  technology  trends,  such  as  the  growth  of  cloud  computing  and 
increased  use  of  mobile  devices,  give  rise  to  additional  threats  to  users  and  compound  the 
challenges faced by law enforcement.9 The widespread usage of internet technology in the EU 
has  also  prompted  an  unprecedented  expansion  in  the  markets  for  child  abuse  material  and 
intellectual property theft.  

The  internet  knows  no  boundaries,  but  jurisdiction  for  prosecuting  cybercrime  still  stops  at 
national borders. Member States need to pool their efforts at EU level in order to put in place 
a common response. This would also entail more extensive use of existing capabilities of EU 
agencies. Cooperation with international partners will also reinforce the EU's ability to tackle 
cyber crime. 

In 2011 achievements have been made to prepare the ground for the European Cyber Crime 
Centre  as  well  as  for  supporting  the  Member  States  in  setting  up  National/Governmental 
Computer  Emergency  Response  Teams.  The  EU/US  working  group  on  cyber  has  been 
successful  in  delivering  results,  from  cooperation  on  combating  child  pornography  to  joint 
exercises on how to prevent cyber attacks.  

9 

See Europol: Threat Assessment on Internet Facilitated Organised Crime (iOCTA) 2011. 

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Way forward in 2012 

The Commission will: 

• 

develop an overarching European strategy for internet security; 

•  make all arrangements for the configuration of the European Cybercrime 

Centre to be set up by 2013; and 

• 

build  on  the  work  done  by  the  EU/US  working  group  on  cyber-security 
international 
and  cybercrime,  and 
partners. 

initiate  cooperation  with  other 

Member States are encouraged to: 

• 

• 

• 

• 

• 

implement the actions in the EU Policy Cycle; 

continue  with  efforts  to  develop  national  cybercrime  awareness  and 
training capabilities and set up centres of excellence; 
ratify the Council of Europe Convention on Cybercrime;10 

establish  National/Governmental  Computer  Emergency  Response  Teams 
(CERTs) and create a well-functioning network;  

And improve reporting systems for cybercrime.  

4. Border management 

Over  the  course  of  2011,  Member  States  and  Frontex  have  had  to  step  up  their  efforts  to 
counter increasing pressure on the EU's external borders. Since the deployment of 'Operation 
Hera'  from  2006,  Frontex  has  succeeded  in  closing  the  irregular  migration  route  from  West 
Africa  to  the  Canary  Islands.  There  continues  to  be  large-scale  smuggling  along  the  EU's 
Eastern border. However, the Commission this year presented a range of actions to be taken to 
tackle this.11 The Mediterranean sea border and the land border with Turkey are currently, and 
are likely to continue to be, key points for irregular border crossings into the EU.  

Following  recent  events  in  North  Africa,  over  50,000  migrants  entered  the  EU  across  the 
Mediterranean  sea  border,  often  facilitated  by  criminal  networks.  The  deployment  of 
Frontex's 'Joint Operation Hermes' in February 2011 was instrumental in patrolling this route. 
Equally,  Frontex's  Rapid  Border  Intervention  Team  (RABIT),  which  for  the  first  time  ever 
provided  border  management  support  at  the  Greece-Turkey  land  border  contributed  to  a 
reduction of 75% in the number of irregular crossings during its deployment.  

In  January  2011,  the  Commission  presented  the  framework  of  the  European  Border 
Surveillance System (EUROSUR). A pilot project has been launched at the external land/sea 
border  by  FRONTEX  in  cooperation  with  six  Member  States.  This  has  informed  the 
Commission's legislative proposal on EUROSUR to be presented in December 2011, with a 
view to it becoming operational in 2013.  

10 

11 

Austria, Belgium, Czech Republic, Greece, Ireland, Luxembourg, Malta, Poland and Sweden have not 
yet ratified the convention. 
http://ec.europa.eu/anti_fraud/documents/Working-paper.pdf 

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Management of external borders must both enhance security and facilitate travel. With these 
objectives  in  mind,  in  2011  the  Commission  has  presented  proposals  for  an  improved 
Schengen evaluation and monitoring system, and an analysis of the potential establishment of 
Entry/Exit and Registered Traveller systems as called for by the European Council.  

Way forward in 2012 

The Commission will: 

• 

present  proposals  based  on  the  outcome  of  the  discussions  on  the  Smart 
Borders  Communication  (Entry/Exit  System  and  Registered  Traveller 
Programme); and 

•  make  suggestions  for  improvements  to  coordination  of  border  checks 
carried  out  by  different  national  authorities  (police,  border  guards,  and 
customs). 

Member States are encouraged to: 

• 

• 

• 

implement the actions foreseen within the EU Policy Cycle; 

continue their efforts with regard to the establishment of EUROSUR; and 

actively participate in migration, mobility and security dialogues with the 
new governments of North Africa and the Middle East. 

5. Crisis and disaster management 

In  recent  years,  European  citizens  have  experienced  various  disasters,  whether  natural  or 
manmade.  The  threat  of  malicious  acts,  like  terrorist  and  cyber  attacks,  and  hostile  or 
accidental releases of disease agents and pathogens, remains. The earthquake in Aquila/Italy, 
the ash cloud crisis deriving from a volcano eruption in Iceland and the July terrorist attack in 
Norway reinforce the need for the EU to enhance its crisis and disaster management capacity. 
Moreover,  the  Fukushima  incident  highlighted  not  only  the  potential  of  a  causal  chain  of 
events  -  from  earthquake  to  tsunami  to  nuclear  crisis  –  but  also  the  global  impact  of  these 
events,  for  example,  on international  transport,  customs and  food  safety,  which  require 
complex risk management solutions. 

The  complexity  and  scope  of  these  challenges  require  a  comprehensive  approach  to  the 
assessment  of  risks,  preparation  of  forecasts,  and  prevention,  preparedness  and  mitigation. 
This requires the joining up of the different policies, instruments and services available to the 
EU and Member States. 

Through  Europol,  Frontex,  the  EU  Joint  Situation  Centre  (SitCen),  and  the  European 
Commission's Monitoring and Information Centre, the EU is able to draw on certain capacity 
and expertise in information gathering, analysis, threat assessment and emergency response in 
the different areas of internal security. However, one of the main challenges for the coming 
years  will  be  to  move  gradually  towards  a  coherent  risk  management  policy,  linking  threat 
and  risk  assessment  to  policy  formulation  and  implementation. Over 2011 initial steps  have 
been made in this direction.  

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Way forward in 2012 

The Commission will: 

• 

• 

• 

contribute to the further development of an EU threat and risk assessment 
policy, and prepare an overview of the major natural and man-made risks 
the EU may face in the future; 

further  develop  its  strategic  assessment  capacity,  notably  by  bringing 
together  the  existing  expertise  of  the  different  actors  (Europol,  Frontex, 
and SitCen) in the area of internal security; and 

present  a  joint  proposal  on  the  implementation  of  the  solidarity  clause 
with the High Representative for Foreign Affairs and Security Policy. 

Member States are encouraged to: 

• 

• 

develop regular threat and risk assessments; and 

support efforts to increase the European response capacity to disasters. 

III. Conclusion 

This report on the Internal Security of the EU highlights some of the issues that need to be 
considered further by the European Parliament, Member States, the Commission and society 
in general. 

The threats highlighted in the ISS in Action of November 2010 are of no less significance in 
2011 and should continue to be the focus of the EU's actions on internal security.  

Considerable progress has been achieved in the fight against organised crime, in particular 
with the proposal for EU legislation on the collection of Passenger Name Records on flights 
entering  or  leaving  the  territory  of  the  EU,  and  the  package  on  anti-corruption.  Further 
progress  needs  to  be  made  on  judicial  and  law  enforcement  cooperation,  and  on  the 
development of the administrative approach in combating serious crime.  

As  regards  terrorism  and  radicalisation,  achievements  include,  in  particular,  the 
establishment  of  the  European  Radicalisation  Awareness  Network.  The  adoption  of  a 
Communication  on  an  EU  Terrorist  Financing  Tracking  System  is  also  an  important  step 
forward. However, increased efforts are needed in relation to a framework for administrative 
measures on the freezing of terrorist assets and the improvement of land transport security.  

Actions  to  combat  cybercrime  are  developing  well.  Progress  has  been  made  towards 
establishing the European Cybercrime Centre and the establishment of Computer Emergency 
Response  Teams.  Several  Member  States  need  to  take  urgent  action  to  ratify  the  Budapest 
Convention.  

In the area of border management, the establishment of EUROSUR is on track, but further 
discussion  on  the  Smart  Borders  proposals  and  further  work  to  improve  interagency 
cooperation at national level is needed.  

Actions related to crisis and disaster management have also been taken forward. Work was 
undertaken in 2011, for example, in the field of risk assessment. However, in the area of crisis 
management,  additional  effort  is  needed  if  we  are  to  reach  our  objective.  Full  commitment 
and cooperation between Member States, the Commission and the EEAS is essential. 

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Advanced  work  has  been  done  to  bridge  the  gap  between  internal  and  external  security. 
Several initiatives to foster cooperation and coordination have been developed: this includes 
practical cooperation on terrorism, trans-national crime and irregular migration in the Western 
Balkans,  the  Horn  of  Africa  and  the  Sahel.  Furthermore,  the  EEAS  and  the  Commission 
developed a Joint Paper on enhancing ties between the Common Security and Defence Policy 
(CSDP)  and  Freedom,  Security  and  Justice  (JHA)  actors;  including  possibilities  for 
cooperation between the CSDP police missions and Europol. 

Finally, the success of any strategy depends on its ability to deliver concrete results. For the 
ISS in Action, 2011 has been a promising start. But three years remain and there is still much 
work to be done to ensure the security of the European citizen. For the next Annual Report, 
progress in all priorities is needed, but in particular in the fight against serious and organised 
crime, as well as countering the growing cyber threat. 

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Annex 

Implementation of the five ISS objectives in 2011 

This  annex  gives  an  update  on  the  implementation  of  the  five  priorities  of  the  Internal 
Security Strategy in Action, with information on the key deliverables from 2011 and a table 
illustrating the state of play for the measures foreseen under each objective.  

Since  the  adoption  of  the  ISS  in  Action  in  2010,  the  EU  ‘Harmony’  Policy  Cycle  on 
Organised  Crime  2011-2013  has  also  been  adopted  by  the  Council.  This  consists  of  eight 
priorities which focus on tackling serious and organised crime, cybercrime and strengthening 
border  management.12  This  methodology  is  an  important  step  in  translating  the  political 
priorities  and  strategy  of  the  ISS  into  operations  that  deliver  collective  concrete  results  for 
internal security.  

Objective 1 — Disrupt international crime networks 

EU Passenger Name Records (PNR)  

In  February  2011  the  Commission  proposed  EU  legislation  on  the  collection  of  Passenger 
Name Records on flights entering or leaving the territory of the EU. Its aim is to enable the 
competent  authorities  in  Member  States  to  analyse  the  data  in  order  to  prevent,  detect  and 
prosecute terrorist offences and serious crimes. This proposal is currently being discussed by 
the  European  Parliament  and  the  Council.  The  proposal  is  part  of  a  wider  PNR  policy  that 
includes the conclusion of PNR agreements with third countries. Such agreements allow the 
use of PNR data originating from the EU by law enforcement authorities of these countries for 
the  same  purpose.  The  agreements  in  place  with  Canada  and  the  US  are  currently  under 
renegotiation, while a new agreement with Australia was signed in September 2011. 

12 
1. Weaken the capacity of organised crime groups active or based in West Africa to traffic cocaine and heroin to 

The EU Harmony Policy Cycle, covers the following eight priorities: 

and within the EU; 

2. Mitigate the role of the Western Balkans, as a key transit and storage zone for illicit commodities destined for 
the EU and logistical centre for organised crime groups, including Albanian-speaking organised crime 
groups; 

3.  Weaken  the  capacity  of  organised  crime  groups  to  facilitate  illegal  immigration  to  the  EU,  particularly  via 
southern, south-eastern and eastern Europe and notably at the Greek-Turkish border and in crisis areas 
of the Mediterranean close to North Africa; 

4. Reduce the production and distribution in the EU of synthetic drugs, including new psychoactive substances; 
5.  Disrupt  the  trafficking  to  the  EU,  particularly  in  container  form,  of  illicit  commodities,  including  cocaine, 

heroin, cannabis, counterfeit goods and cigarettes; 

6.  Combat  against  all  forms  of  trafficking  in  human  beings  and  human  smuggling  by  targeting  the  organised 
crime groups conducting such criminal activities in particular at the southern, south-western and south-
eastern criminal hubs in the EU; 

7. Reduce the general capabilities of mobile (itinerant) organised crime groups to engage in criminal activities; 
8. Step up the fight against cybercrime and the criminal misuse of the internet by organised crime groups. 

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In  the  2012  Annual  Work  Programme13  of  the  Prevention  of  and  Fight  against  Crime 
Programme (ISEC) the Commission has included EUR 25 million in funding opportunities for 
the setting up of PNR units in Member States. 

Joint Investigation Teams 

In order to support the setting up of Joint Investigation Teams (JITs) - in particular at short 
notice  -  and  to  have  a  positive  practical  impact  on  the  fight  against  cross-border  crime,  the 
Commission has provided a second round of funding, worth EUR 2.1 million, to the Eurojust 
JIT project ‘Supporting Greater Usage of Joint Investigation Teams’. The project supports the 
creation  of  new  and  existing  JITs  by  improving  their  access  to  financial  assistance  in  the 
coming years. In the first year, Eurojust’s current project has supported 33 JITs, investigating 
crimes  such  as  drug  trafficking,  human  trafficking,  irregular  immigration,  vehicle  crime, 
cybercrime  and  financial  crime.  Europol  has  also  contributed  to  the  setting  up  and  work  of 
JITs  with  its fast  and secure  communication  and  information  exchange  network,  logistical 
and forensic support and analysis capabilities. 

Example 1: 
Eurojust,  among  others,  supported  a  successful  joint  investigation  team 
established between Germany and Romania, investigating activities of an 
organised  criminal  group  involved  in  human  trafficking.  As  a  result  of  this 
investigation, 50 perpetrators have been accused of trafficking in human beings 
and related crimes, 6 offenders have been so far sentenced, 148 witnesses have 
been interviewed and EUR 860.000 has been seized (cash and property). Under 
the JIT funding project, Eurojust assisted with travel and accommodation costs of 
JIT  members  which  enabled  direct  communication  and  realisation  of  the 
aforementioned  joint  investigative  actions.  Financial  support  was  also 
provided for translation of investigative materials. 

Example 2: 
A  multilateral  JIT  coordinated  at  Eurojust  was  vital  to  the  successful 
investigation  and  prosecution  of  large-scale  cocaine  trafficking  from  South 
America  to  Europe.  The  JIT  agreement  was  signed  for  an  initial  period  of  six 
months,  but  extended  several  times  to  allow  uninterrupted  work  for  more  than 
two  years.  Investigating  and  judicial  authorities  in  the  JIT  met  regularly  to 
decide  on  common  strategies,  and  exchanged  information  and  evidence  without 
the  delay  associated  with 
legal  assistance  requests. 
traditional  mutual 
Prosecutors and law enforcement authorities from country X were present during 
the hearings of suspects in country Y. Appointment of JIT leaders with the power 
to  head  the  entire  JIT  when  operating  in  their  own  countries  facilitated  rapid 
execution  of  law  enforcement  and  judicial  cooperation  measures  in  different 
jurisdictions.  Eurojust  co-ordinated  the  JIT’s  work  at  meetings  in  The  Hague, 
with Europol’s active involvement and analytical contribution. JIT funding from 
Eurojust  was  used  to  assist  with  costs  such  as  interpretation,  translation  of 
documents, travel and accommodation. Eurojust also provided devices to permit 
secure communication between JIT members. The JIT contributed to the arrest of 
some 30 leading suspects around the world, the seizure of more than 1000 kg of 
cocaine and of assets valued in millions of euros. 

13 

C (2011) 6306 final; adopted on 19 September 2011. 

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Since February 2011, the Secretariat of the Network for Joint Investigation Teams has been 
operational  within  Eurojust,14  with  a  view  to  raising  awareness,  solving  problems  and 
exchanging  best  practices  among  practitioners.  Provisions  in  the  revised  Eurojust  Decision 
which  make  Community  funding  of  JITs  conditional  on  inviting  Eurojust  to  participate 
(Article  9f)  and  which  ensure  that  Member  States  notify  Eurojust  when  setting  up  a  JIT 
(Article 13.5) will help provide a more accurate overview of all the existing JITs in the EU. 

Combating corruption 

Corruption  has  long  been  seen  as  a  primarily  national  problem.  Over  time,  however,  it  has 
become  clear  that  it  also  has  cross-border  effects  and  cannot  be  combated  successfully  in 
isolation. Cross border organised crime is frequently reverting to bribery in order to facilitate 
the infiltration of the legal system. The necessary laws and institutions to address corruption 
are largely in place, but the implementation of anti-corruption policies remains uneven across 
the EU. The Stockholm Programme calls on the Commission to develop indicators to measure 
the Member States’ efforts to combat corruption. 

In  June  2011  the  Commission  adopted  an  anti-corruption  package  which  set  up  an  EU 
reporting  mechanism  (‘EU  Anti-Corruption  Report’)  for  the  periodic  assessment  of  the 
Member  States’  efforts  against  corruption.  The  EU  Anti-Corruption  Report  will  assess 
Member  States’  achievements,  failures  and  vulnerabilities,  with  a  view  to  generating 
additional  political  will  to  implement  genuine  zero-tolerance  approaches  to  corruption, 
encourage  peer  learning  and  facilitate  the  exchange  of  best  practices.  The  Commission  will 
publish  the  report  every  two  years,  starting  in  2013.  It  will  focus  on  cross-cutting  issues, 
identify EU trends and provide country specific analyses and recommendations. 

As part of the anti-corruption package, a Commission report on European Union participation 
in the Council of Europe Group of States against Corruption (GRECO) analyses various ways 
to strengthen cooperation between the EU and GRECO, concluding that EU membership in 
GRECO is the appropriate way forward to meet the objectives of the Stockholm Programme. 
Based on these findings, the Commission will request authorisation from the Council to open 
negotiations  for  participation  in  GRECO.  This  would  create  synergies  between  the  GRECO 
evaluation system and the EU Anti-Corruption Report, and would ensure a coherent approach 
against corruption at European level. 

With  the  financial  support  of  the  Programme  ‘Prevention  and  Fight  against  Crime 
(ISEC)’,  Transparency  International  has  carried  out  comparative  research  across  the 
European  Union  to  assess  the  relevance  of  statutes  of  limitations  in  the  fight  against 
corruption (project ended in March 2011). To identify both weaknesses and best practices 
in statutes of limitations, the research examines the situation in 27 EU countries (in-depth 
analyses for 11 Member States and general overview of the state of play for the other 16). 
Based  on  the  results  of  the  research,  Transparency  International  will  call  for  the 
adoption, where necessary, of the best practices identified15. 

14 

15 

Council Decision 2002/187/JHA of 28 February 2002 setting up Eurojust with a view to reinforcing the 
fight against serious crime as amended by Council Decision 2003/659/JHA and by Council Decision 
2009/426/ JHA of 16 December 2008 on the strengthening of Eurojust. 
Countdown  to  Impunity:  Corruption-related  Statutes  of  Limitation  in  the  European  Union  (EU)  — 
JLS/2008/ISEC/100. 

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Confiscation and recovery of criminal assets 

In  order  to  recover  criminal  assets,  the  Commission  will  propose  legislation16  to  strengthen 
the EU legal framework17 on the confiscation and recovery of criminal assets in the European 
Union and on strengthening the mutual recognition of freezing and confiscation in the area of 
serious crime. 

With  the  help  of  ISEC,  the  EU  has  assisted  Member  States  in  setting  up 
and  strengthening  asset  recovery  offices.  For  example,  an  ISEC  project 
resulted in 2010 in the setting up of the Hungarian Asset Recovery Office, 
including  the  development  of  new  working  methods  on  the  basis  of  best 
practice in other Member States18. This and other ongoing projects aimed 
at fostering the exchange of best practices between asset recovery offices 
(e.g.  CEART,  FENIX)  are  regularly  presented  to  practitioners  at  the 
meetings of the EU ARO Platform. 

16 
17 

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Adoption foreseen in 2012. 
Framework Decisions 2001/500/JHA on money laundering and confiscation, 2005/212/JHA on 
extended confiscation, 2003/577/JHA and 2006/783/JHA, respectively on the mutual recognition of 
freezing and confiscation orders. . 
Development  of 
JLS/2008/ISEC/FPA/C1/018.  

investigation  methods  and 

techniques 

the  field  of  asset  recovery  — 

in 

14 

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Progress report overview table of all ISS objectives and actions

OBJECTIVE 1: Disrupt international crime networks

Action 1: Identify and dismantle criminal networks

Action 2: Protect the economy against
criminal infiltration

Action 3: Confiscate criminal 
assets

Proposal on the use of EU 

Passenger Name Records

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

EU strategy on 
financial investigation: 
an integrated approach 
to prevent, detect and 
root out the penetration 
of the licit economy by 
modern criminal threats

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

Color coding:
Green: Action (planned to 
be) completed in 2011
Amber: Action ongoing
Red: Action not started

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Proposal on monitoring and 
assisting Member States anti-
corruption efforts

Establish a network of national 
contact points for governmental 
and regulatory bodies regarding 
the “administrative approach”

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Commission proposal[s] for a 
Directive on confiscation and 
recovery on criminal assets 
and [for a Regulation] on the 
application of the principle of 
mutual recognition to freezing 
and confiscation orders

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

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

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Objective 2 — Prevent terrorism and address radicalisation and recruitment 

EU radicalisation-awareness network 

The Commission has established the European Radicalisation Awareness Network (RAN), in 
partnership with the Committee  of  the  Regions.  The  RAN  was  inaugurated  on  9  September 
2011  by  Commissioner  Cecilia  Malmström.  The  RAN  is  an  EU-wide  umbrella  network  of 
practitioners  involved  in  countering  violent  extremism  and  includes  policy  makers,  law 
enforcement and security officials, local authorities, academics, field experts and civil society 
organisations,  including  victim  groups.  The  main  objectives  of  the  network  are  to  pool 
experience, knowledge and good practices and, in particular, to: 

• 

• 

• 

Enable  communication  and  networking  among  the  RAN  members  in  order  to 
enhance  awareness  of  radicalisation  and  improve  communication  techniques  for 
challenging terrorist narratives; 

Identify, test, assess and compare approaches and lessons learnt in countering violent 
extremism; and  

Inform  policy  makers  both  at  the  EU  and  Member  States’  level  and  act  as  a 
communication channel between the Commission and the front-line practitioners. 

Through  ISEC  the  Commission  supported  the  work  of  civil  society  and 
public  organisations  which  expose,  translate  and  challenge  terrorist 
propaganda including its manifestations on the internet. 

To strengthen operational cooperation to counter terrorist activities on the 
internet,  the  Commission  funded  a  number  of  projects,  such  as  the 
German-led multilateral project entitled ‘Exploring the Islamist extremist 
Web  of  Europe’  which  focuses  on  terrorist  content  aimed  at  young 
Europeans. 

Moreover ISEC funding was also used to fund a public private dialogue to 
develop  a  voluntary  European  Code  of  Conduct  on  good  practices  for 
cooperation between Law Enforcement Authorities and the private sector 
including  internet  service  providers,  as  well  as  network  operators  and 
complaint hotlines. 

The  Commission  also  used  ISEC  funding  to  support  policy-makers  and 
enhance the capabilities of EU law enforcement authorities by a number of 
studies,  including  one  on  methodologies  and  technological  tools  to 
effectively  detect  violent  content  on  the  internet  and  to  trace  its  authors, 
which  is  expected  to  be  delivered  by  end  of  2011  and  will  help  in 
investigating and prosecuting those responsible for illegal material. 

Extraction and analysis of financial messaging data (EU TFTS) 

The EU signed the Terrorist Financing Tracking Programme agreement with the United States 
(US TFTP), which provides the legal framework for the transfer of EU financial messaging 
data  from  the  EU  to  the  US  for  counter-terrorism  purposes.  A  review  in  March  2011 

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demonstrated  its  effectiveness  in  the  fight  against  terrorism.  A  Communication  on  an  EU 
Terrorist Financing Tracking System (TFTS) was also adopted in July 2011, which outlined 
the  main  options  available  for  establishing  such  a  system,  and  pointed  to  the  major  issues 
which  still  need  to  be  resolved  before  a  system  could  be  formally  proposed.  The 
Communication  is  intended  to  stimulate  debate  with  the  European  Parliament  and  the 
Council, and the Commission will await the outcome of these discussions before presenting a 
legislative proposal. 

Transport Security 

The maritime and aviation sectors have already demonstrated the added value that appropriate 
communication and coordination mechanisms, as well as common rules on security can bring 
at  EU  level,  given  the  cross-border  nature  of  the  transport  industry.  The  Commission's 
forthcoming  Communication  on  transport  security  will  focus  largely  on  developing  an 
equivalent EU approach to land transport security. It will also focus on the need for transport 
to  have  appropriate  systems  in  place  –  preventative  measures,  contingency  planning  to  deal 
with security incidents, recovery plans, training, etc. Its emphasis will be on setting security 
outcomes, rather than prescriptive security requirements for transport.  

To facilitate policy development in this area an Advisory Group on Land Transport Security 
will  be  established  in  2012.  Priority  issues  for  their  consideration  will  include  the  need  for 
EU-wide security standards to be set for the high-speed rail network. 

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Progress report - overview table of all ISS objectives and actions

OBJECTIVE 2: Prevent terrorism and address radicalisation and recruitment

Action 1: Empower communities to prevent 
radicalisation and recruitment

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

Action 3: Protect transport

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

Framework for 
freezing terrorist 
assets

Policy for EU 
extraction and 
analysis of 
financial 
messaging data

Ministerial 
conference on the 
prevention of 
radicalisation and 
recruitment

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

Color coding:
Green: Action (planned to 
be) completed in 2011
Amber: Action ongoing
Red: Action not started

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Communication on 
Transport Security 
Policy

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Objective 3 — Raise levels of security for citizens and businesses in cyberspace 

European Cybercrime Center 

The Commission ordered a feasibility study on the questions of where and how to set up the 
European  Cybercrime  Centre  (ECC),  planned  as  the  future  focal  point  in  the  fight  against 
cybercrime  at  a  European  level.  This  study,  launched  in  May  2011,  will  produce  its  initial 
results  by  the  end  of  this  year.  Final  results  with  recommendations  will  be  available  at  the 
beginning  of  2012.  Pending  the  recommendations  that  the  study  will  produce,  Europol 
decided in June 2011 to regroup its cybercrime competence and has redeployed resources to 
deal with this rapidly expanding crime phenomenon. 

ISEC  funds  various  training  projects  for  law  enforcement  bodies  to 
investigate  cybercrime.  For  example,  an  ISEC  project  which  finished  in 
early  2011,  developed  and  delivered  training  courses  relating  to  internet 
and  forensic  investigations.  The  training  was  intended  for  the  staff  of 
various  law  enforcement  services  and  of  European  and  international 
bodies. A particular focus was put on developing closer cooperation with 
the  private  sector.  Partners  from  all  EU  Member  States  and  Europol 
participated in the project.19. 

At  national  level,  the  Commission  supported  financially  the  development 
of  national  cybercrime  awareness  and  training  capabilities,  including 
centres  of  excellence.  The  year  2011  saw  the  start  of  four  such  centres: 
2CENTRE  (France  and  Ireland),  B-CCENTRE  (Belgium)  and  2CENTRE 
EST (Estonia). 

Computer Emergency Response Teams (CERTs) 

In  March  2011,  the  Commission  adopted  a  Communication  on  Critical  Information 
Infrastructure  Protection  (CIIP)20  which  took  stock  of  the  implementation  of  the  2009  CIIP 
Action Plan21 and described the next steps for action at both European and international level. 
In  May  2011,  the  Telecom  Council  adopted  related  conclusions.  A  number  of  areas  where 
greater efforts were needed to strengthen national cyber-security capabilities were identified, 
in particular regarding: the establishment of national/governmental CERTs and the creation of 
a  well-functioning  network  of  national/governmental  CERTs  in  Europe  by  2012;  the 
development of national cyber incident contingency plans and of a European cyber incident 
contingency  plan;  and  the  organisation  of  regular  national  and  pan-European  cyber  incident 
exercises. The EU institutions made progress towards establishing their own CERT by setting 
up  a  CERT  Pre-configuration  team  on  1  June  2011.  It  will  be  assessed  within  12  months, 
leading to decision on the conditions for establishing a CERT for the EU institutions. 

19 

20 

21 

Title  and  Reference:  Cybercrime  Investigation  —  Developing  and  disseminating  an  accredited 
international training programme for the future — JLS/2008/ISEC/FP/C4-077. 
COM(2011) 163, Commission Communication on Critical Information Infrastructure Protection 
‘Achievements and next steps: towards global cyber-security’. 
COM(2009) 149, Commission Communication on Critical Information Infrastructure Protection 
‘Protecting Europe from large scale cyber-attacks and disruptions: enhancing preparedness, security and 
resilience’. 

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EU/US Working Group on cyber security and cybercrime 

In  addition  to  the  specific  steps  outlined  above,  the  Commission  continued  its  close 
collaboration within the strategic partnership in the EU/US Working Group on cyber-security 
and cybercrime, working on protecting crucial internet resources from abuse and preventing 
and prosecuting online child sexual abuse.  

Internet behaviour 

Together with the European External Action Service the Commission is working on shaping a 
European position in relation to recent initiatives on recommended internet behaviour and on 
enabling third countries to develop cybercrime legislation, set up investigation capacities and 
improve  network  resilience  based  on  the  provisions  of  the  Budapest  Convention  against 
cybercrime. 

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Progress report - overview table of all ISS objectives and actions

OBJECTIVE 3: Raise levels of security for citizens and businesses in cyberspace

Action 1: Build capacity in law 
enforcement and the judiciary

Action 2: Work with industry to empower and 
protect citizens

Action 3: Improve capability for 
dealing with cyber attacks

European 
Cybercrime 
Center feasibility 
study

Guidelines on 
cooperation in 
handling illegal 
content online

Establishment of an 
EU cybercrime centre

Develop capacities for 
investigation and 
prosecution of 
cybercrime

Color coding:
Green: Action (planned to 
be) completed in 2011
Amber: Action ongoing
Red: Action not started

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

Development of a 
European Information 
Sharing and Alert 
System (EISAS)

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Objective 4 — Strengthen security through border management 

Establishment of EUROSUR 

During  2011  significant  progress  has  been  made  in  further  developing  and  implementing 
EUROSUR.  In  January  2011  the  Commission  presented  the  technical  and  operational 
framework of EUROSUR and identified the actions to be taken in order to make EUROSUR 
operational by 201322. Accordingly, 16 out of the 18 Member States located at the southern 
maritime  and  eastern  land  borders  of  the  EU  have  established  their  national  coordination 
centres in the course of 2011. In parallel, Frontex is setting up the EUROSUR network, which 
will enable the national coordination centres and Frontex to exchange information with each 
other  in  a  secure  manner.  After  successful  testing  between  Frontex  and  the  Polish  national 
coordination centre during the summer, Frontex will have extended the EUROSUR network 
to another five Member States by November 2011. The Commission is currently finalising its 
work  on  the  legislative  proposal  for  EUROSUR,  which  will  be  presented  to  the  Council  in 
mid-December 2011. 

In the context of EUROSUR and in close cooperation with COSI, several 
southern  Member  States  started  preparing  the  establishment  of  the 
regional  network ‘SEAHORSE Mediterraneo’ with selected neighbouring 
African  countries.  In  parallel,  Frontex,  the  European  Maritime  Safety 
Agency (EMSA) and the EU Satellite Centre (EUSC) jointly elaborated a 
concept  of  operations  for  the  common  application  of  satellites,  ship 
reporting  systems  and  other  surveillance  tools.  Selected  applications  of 
this  envisaged  interagency  cooperation  have  been  tested  during  2011 
between  Frontex,  EMSA,  EUROPOL  and  CeCLAD-M23  in  the  Western 
Mediterranean  as  part  of  the  Frontex  Joint  Operation  Indalo.  Finally, 
progress  has  been  made  in  further  developing  the  common  information 
sharing environment (CISE) for the EU maritime domain. 

Establishment of the Visa Information System (VIS) 

Significant progress was achieved in the finalisation of the VIS development in 2011. The last 
two  testing  phases  of  the  Central  VIS  were  performed  with  the  participation  of  Member 
States.  The  so-called  Operational  System  Tests  and  Provisional  System  Acceptance  Tests 
were successfully completed in the second and third quarter of 2011 respectively. Following 
the completion of these comprehensive tests, and after receiving notifications of readiness by 
all  Member  States  participating  in  VIS,  VIS  began  on  11  October  2011  in  the  first  rollout 
region  (North  Africa).  Subsequent  regions  for  the  gradual  deployment  of  the  system  will 
follow in the course of the coming months and years. The operational management of the VIS 
will be entrusted to C-SIS, the authority responsible for the operational management of SIS 1. 

22 

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Commission staff working paper determining the technical and operational framework of EUROSUR 
and the actions to be taken for its establishment, SEC(2011) 145final of 28.1.2011. See also 
COM(2008) 68final of 13.2.2008 and SEC(2009) 1265final of 24.9.2009. 
Centre de Coordination pour la lutte antidrogue en Méditerranée. 

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Common risk management for movement of goods across borders  

The  EU  wide  implementation  of  the  Security  Amendment  of  the  Customs  Code  and  the 
Common Customs Risk Management Framework (CRMF) was completed on 1 January 2011, 
including  systematic  electronic  submission  of  pre-arrival  and  pre-departure  declarations  by 
trade,  electronic  risk  analysis  by  EU  customs,  exchange  of  messages  through  the  Common 
Customs Risk Management System (CRMS) and the Authorised Economic Operator (AEO) 
programme.  This  full  implementation  lays  the  foundation  for  initiatives  to  improve 
capabilities for risk analysis and targeting.  

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Progress report - overview table of all ISS objectives and actions 

OBJECTIVE 4: Strengthen security through border management

Action 1: Exploit the full 
potential of EUROSUR

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

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

Action 4: Improve interagency 
cooperation at national level

Proposal for the 
establishment 
of EUROSUR

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

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

Initiatives to improve 
capabilities for risk 
analysis and targeting

Color coding:
Green: Action (planned to 
be) completed in 2011
Amber: Action ongoing
Red: Action not started

2
0
1
1

2
0
1
2

2
0
1
3

2
0
1
4

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

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

Development of 
minimum standards 
and best practices for 
interagency 
cooperation

EN 

24 

EN 

 
  
 
 
Objective 5 — Increase Europe’s resilience to crises and disasters 

Implementation of the solidarity clause 

By  implementing  the  solidarity  clause,  the  EU  is  seeking  to  give  tangible  expression  to  the 
principle  of  solidarity  laid  down  in  the  Lisbon  Treaty  (Art.  222).  Work  has  begun  on  the 
solidarity clause. 

Risk assessment and mapping guidelines for disaster management and national approaches to 
risk management 

In view of the planned establishment of a coherent risk management policy, linking threat and 
risk  assessments  to  decision  making,  the  Commission,  together  with  Member  States,  has 
developed EU risk assessment and mapping guidelines for disaster management24, based on a 
multi-hazard  and  multi-risk  approach,  covering  in  principle  all  natural  and  man-made 
disasters,  including  the  consequences  of  terrorist  acts.  By  the  end  of  2011,  Member  States 
should have developed national approaches to risk management, including risk analyses. 

Health threats 

The  European  Commission  is  developing  an  initiative  on  health  security  in  the  European 
Union  in  order  to  better  protect  citizens’  health  against  serious  cross-border  threats.  The 
prevention and control of threats from communicable diseases at EU level are already being 
addressed under the legislation adopted in 1998, which provides a basis for epidemiological 
surveillance and coordination of the response. This system has proved effective for more than 
a decade. However, there is no such legislation in place on health threats from chemical and 
biological agents other than communicable diseases or environmental events. The aim of this 
initiative is, therefore, to consider the possibility and need to ensure that all types of public 
health  threats  are  addressed  in  a  similar  manner  to  communicable  diseases.  As  part  of  the 
impact assessment process, the Commission has launched a stakeholders’ consultation aimed 
at the public health community in the Member States. The outcomes of the consultation will 
support the preparation of a legislative initiative to be submitted by the end of 201125. 

Protection of classified information 

The EU should develop an integrated approach based on common and shared appreciations of 
crisis situations. Certain EU agencies are key actors in this process and the possibility to share 
classified information at the appropriate level is a precondition for better information sharing 
and,  where  required,  for  preparing  joint  EU  threat  and  risk  assessment  reports.  Effective 
coordination between the EU institutions, bodies and EU agencies requires a coherent general 
framework  to  protect  classified  information.  The  Commission  is  working  on  developing  a 
coherent general framework for the exchange of classified information with the EU agencies, 
ensuring  that  Classified  Information  is  granted  equivalent  protection  as  in  the  other  EU 
Institutions and Member States. 

24 

25 

Commission Staff Working Paper on Risk Assessment and Mapping Guidelines for Disaster 
Management, SEC(2010) 1626final of 21.12.2010. 
Adoption foreseen on 07 December 2011. 

EN 

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European Emergency Response Capacity 

The  Commission  has  tabled  a  proposal  establishing  a  European  Emergency  Response 
Capacity26 based on pre-committed Member States’ assets on-call for EU operations and pre-
agreed contingency plans. The EU needs to move from ad hoc coordination towards a system 
that is pre-planned, pre-arranged and predictable. This would make the EU’s disaster response 
more effective, efficient, coherent and visible. This will be achieved by means of a number of 
actions, including regular risk assessments, developing reference scenarios, mapping of assets 
and contingency planning, the establishment of a European Emergency Response Capacity in 
the  form  of  a  voluntary  pool  of  Participating  States’  assets committed  to  the  EU  operations 
which  would  further  contribute  to  both  the  planning  and  the  availability  of  assets  for  a 
European  emergency  response.  An  impact  assessment  exercise  (including  a  stakeholders 
consultation) has been launched in order to support the Commission’s proposal to renew the 
EU civil protection legislation by end of 2011. 

26 

Commission  Communication  ‘Towards  a  stronger  European  disaster  response:  the  role  of  civil 
protection and humanitarian assistance’, 26.10.2010, COM(2010) 600final. 

EN 

26 

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Progress report - overview table of all ISS objectives and actions 

OBJECTIVE 5: Increase Europe's resilience to crises and disasters

Action 1: Make full use 
of the solidarity clause

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

Action 3: Link up the 
different situation awareness 
centres

Action 4: Develop a European 
Response Capacity for tackling 
disasters

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

Proposal  on 
health threats

Proposals for the 
development of a 
European 
Emergency 
Response Capacity 

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

Proposal on the 
implementation of the 
solidarity clause

Risk 
assessment and 
mapping 
guidelines for 
disaster 
management

National 
approaches to 
risk 
management

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

Regular overviews of 
current threats

Color coding:
Green: Action (planned to 
be) completed in 2011
Amber: Action ongoing
Red: Action not started

Establish a coherent 
risk management 
policy

2
0
1
1

2
0
1
2

2
0
1
3

2
0
1
4

EN 

27 

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Cross-cutting issues 

Coherence between the internal and external dimensions of security 

A series of initiatives aimed at fostering cooperation between the internal and external aspects 
of  security  are  currently  being  developed.  To  ensure  closer  cooperation  and  coordination  in 
the field of EU security, regular inter-institutional information meetings will be convened to 
improve  planning  and  information  flow  in  the  area  of  EU  security.  The  first  such  meeting 
between COSI and the Political and Security Committee was held on 1 June 2011 in order to 
exchange views on how to improve the synergy between the internal and external aspects of 
EU security. In addition, the EEAS and the Commission drew up a Joint Paper on enhancing 
ties  between  the  Common  Security  and  Defence  Policy  (CSDP)  and  the  Freedom,  Security 
and  Justice  (JHA)  actors,  which  supports  the  idea  that  closer  cooperation  between  civilian 
CSDP  missions  and  JHA  actors  could  yield  tangible  improvements  in  terms  of  European 
security. The specific recommendations in the Joint Paper single out sharing of information as 
being  important  and  needing  improvement  in  order  to  find  ways  of  anticipating  rather  than 
reacting  to  events.  Secondly,  coordination  in  planning  EU  external  action  needs  to  be 
fostered, as it is essential for cooperating upstream in the planning of the missions. 

Another  area  where  tangible  results  can  be  achieved  is  the  cooperation  between  the  CSDP 
police missions and Europol. The Council has acknowledged on many occasions that CSDP27 
and  many  JHA  external  actions  have  had  shared  or  complementary  objectives.  CSDP 
missions  have  also  made  an  important  contribution  to  the  EU’s  internal  security  in  their 
efforts  to  support  the  fight  against  serious  transnational  crime  in  their  host  countries  and  to 
build  respect  for  the  rule  of  law.  The  European  Council  encouraged  greater  cooperation 
between  JHA  and  CSDP  in  developing  these  shared  objectives.  Also  the  Stockholm 
Programme,  as  adopted  by  the  European  Council,  states  that  Europol  should  work  more 
closely  with  the  CSDP  police  missions  and  help  promote  standards  and  good  practice  for 
European law enforcement cooperation in countries outside the EU. 

It is of particular interest for the JHA area to make sure that it is closely associated from the 
very  start  of  the  process,  especially  in  the  identification  and  assessment  of  the  need  for  EU 
action in a crisis situation. This will enable a proper and timely evaluation of the necessary 
expertise,  taking  the  organised  crime  situation  in  the  respective  third  country  or  region  into 
account. This will also help improve political and operational decisions and the definition of 
tasks  which  will  subsequently  be  implemented  by  the  civilian  police  mission.  Europol’s 
analytical capacities, and its Secure Information Exchange Network Application (SIENA) for 
information exchange which connects all 27 EU Member States’ law enforcement authorities, 
can help CSDP missions to adjust their methods and refine their objectives in the light of the 
pan-European picture of organised crime provided by Europol through threat assessments and 
analyses.  

A  second  factor,  namely  the  exchange  of  information  between  CSDP  police  missions  and 
Europol,  is  an  important  aspect  in  the  mutual  cooperation.  The  mechanism  of  cooperation 
involving  the  exchange  of  non  personal  data  is  broadly  speaking  well  established  via  an 
administrative  arrangement  between  Europol  and  the  Secretariat  General  of  the  Council. 
Therefore, the main issue at stake is how to make possible the direct exchange with Europol 

27 

The reference to ‘ESDP’ (European Security and Defence Policy) now should be read ‘CSDP’ 
(Common Security and Defence Policy), following the entry into force of the Lisbon Treaty. . 

EN 

28 

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of personal data collected by or in relation to CSDP police missions. In the case of EULEX 
Kosovo28, where the mandate also includes executive tasks, specific arrangements have been 
put in place to allow the exchange of personal data with Europol. This mechanism could serve 
as an example of best practice and be applied in other CSDP missions on a case by case basis. 
The need to establish a data protection framework applicable also to CSDP has to be assessed. 

The EU enlargement policy continues to be one of the key elements contributing to the EU 
internal  security.  The  enlargement  process  provides  for  important  incentives  for  relevant 
countries  to  deliver  on  reforms  enhancing  their  law  enforcement  and  judicial  capacities. 
Additionally, the visa liberalisation dialogue and the post-visa liberalisation mechanism have 
substantially contributed to the implementation of reforms in Western Balkan countries. 

The EU also aims to increase the ability of partner countries to play their role in addressing 
today's  key  threats  to  security,  peace  and  stability  around  the  world.  For  this  purpose,  the 
long-term  priorities  identified  in  the  “Instrument  for  Stability  (IfS)”  foresee  innovative 
capacity  building  that  combines  financial  and  technical  assistance  at  national,  regional  and 
trans-regional  levels.  Priority  1  of  this  instrument  is  related  to  the  support  for  international 
efforts to mitigate chemical, biological, radiological and nuclear (CBRN) risks. The measures 
financed through IfS target the mitigation of CBRN risks, including proliferation of weapons 
of mass destruction (WMD), in particular through policies for the effective control of CBRN 
materials  and  agents,  export  controls  on  dual-use  goods,  and  redirecting  former  weapons 
scientists  into  peaceful  research  activities.  For  the  2007-13  period,  EUR  300  million  have 
been  earmarked  for  this  purpose,  and  an  initiative  named  CBRN  Centres  of  Excellence  has 
been  launched  with  an  allocated  budget  of  nearly  EUR  100  million.  This  initiative  aims  at 
developing, at national and regional level, the necessary institutional capacity to fight CBRN 
risk  regardless  of  its  origin:  criminal  (proliferation,  theft,  sabotage  and  illicit  trafficking), 
accidental  (industrial  catastrophes  –  such  as  Bhopal  or  Fukushima  and  transport)  or  natural 
(mainly pandemics). 

Regarding organised crime, terrorism, illicit trafficking in drugs, human beings and arms and 
threats to critical infrastructure Priority 2 of the Instrument for Stability focuses on capacity 
building  in  close  consultation  with  beneficiary  countries.  Typically,  security  capacities  are 
strengthened  at  the  national,  regional  and  ultimately  trans-regional  level.  For  the  2007-13 
period, EUR 118 million was earmarked for these measures.  

Financial support 

The Commission is eager to ensure that security-related activities, including security research, 
industrial  policy  and  projects  under  EU  internal  security-related  funding  programmes,  are 
consistent with the strategic objectives of the ISS. EU funding that might be needed for the 
period  2012-2013  will  be  made  available  within  the  current  financial  programmes 
(‘Prevention  and  Fight  against  Crime  (ISEC)’  and  ‘Prevention,  Preparedness  and 
Consequence  Management  of  Terrorism  and  other  Security  Related  Risks  (CIPS)’.  In  that 
respect,  the  ISEC  Annual  Work  Programme  2011  reflects  the  priority  areas  of  the  ISS  in 

28 

Following the Adoption of draft conclusions of the Council of the European Union on possible 
cooperation mechanisms between civilian ESDP missions and EUROPOL as regards the mutual 
exchange of information on 17 November 2008, the exchange of personal data has been implemented 
between EUROPOL and EULEX Kosovo: The personal data is transferred between EULEX (by the 
EUOCI (European Union Office for Criminal Intelligence) and EUROPOL through EUROPOL 
National Units (ENUs) located in three MS capitals (FI, SE, UK). 

EN 

29 

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Action. Furthermore, the Commission has conducted an evaluation29 on the results obtained 
and  the  qualitative  and  quantitative  aspects  of  the  Framework  Programme  ‘Security  and 
Safeguarding Liberties (2007-2013)’, which consists of the two Programmes ISEC and CIPS. 

For  the  post-2013  period,  internal  security  funding  will  be  examined  in  the  context  of  a 
Commission-wide debate on all proposals to be made for that period. As part of that debate, 
the  Commission  has  proposed  the  setting  up  of  an  Internal  Security  Fund  (ISF)  in  the  next 
multi-annual financial framework, which reflects the strategic objectives and priorities of the 
Internal Security  Strategy, facilitates the best  possible  implementation  of  priority  actions  by 
the  relevant  national  authorities  and  agencies  and  remains  sufficiently  flexible  to  allow  for 
adaptation to new security threats and challenges. The Commission considers that the current 
gap  between 
funding should  be  closed  by 
supporting specific  testing  and  validation  activities  (e.g.  of  system  prototypes)  under  the 
proposed  ISF. This  will  enable  bringing  results  from  high  quality  security  research 
more easily  into  serial  application and  large-scale  operational  use  by  law  enforcement 
authorities.  

funding  and  operational 

research 

Security research and cooperation with the private sector 

Security  research  is  funded  under  a  specific  theme  in  the  Seventh  Research  Framework 
Programme  (2007-13).  The  Commission  ensures  that  the  overall  programming  is  closely 
aligned with EU security policies, which also many of the over 200 research projects funded 
until  now  in  this  programme  show.  The  ISS  objectives  are  well  reflected  in  the  Security 
Research Work Programmes for 2011-12. For the Work Programme 2013, which alone will 
provide around EUR 290 million, an analysis is currently being carried out which will help to 
identify the most important research gaps and needs, taking into account also the priorities set 
out in the ISS in Action. 

Beyond 2013, security research will continue to be funded by the future multiannual research 
and  innovation  instrument  (‘Horizon  2020’).  The  Commission  proposal  for  the  total  budget 
for  research  and  innovation  in  the  next  multi-annual  financial  framework  will  increase  by 
46 %, which should be reflected in the respective share for security research. 

In  order  to  better  align  security-related  funds  with  policies,  the  Commission  has  also  been 
stepping up its dialogue with the private sector, in particular with industry. For this purpose it 
was  proposed  to  establish  a  regular  (annual)  public-private  high-level  roundtable  where  EU 
institutions  and  bodies,  Member  States,  and  the  private  sector  can  exchange  their  ideas  on 
how best to make progress with the implementation of the ISS priorities. The first High Level 
Public–Private  Security  Roundtable  between  the  EU  and  Member  States’  Public  Sector  and 
representatives  of  the  private  sector  was  held  in  February  2011.  Moreover,  to  exploit  the 
untapped  potential  of  a  fully  functioning  security  market,  the  Commission  is  currently 
preparing a Communication on an EU Security Industry Policy. 

29 

Commission Communication on the mid-term evaluation of the Framework Programme ‘Security and 
Safeguarding Liberties’ (2007-2013), COM(2011) 318final. 

EN 

30 

   EN