Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL Establishing the European Border Surveillance System (EUROSUR)
Date: 2011-12-12
Institutions: European Commission
Subjects: EU migration policy, Frontex, Schengen Agreement, border control, external border of the EU, fight against crime, illegal migration, intergovernmental cooperation (EU)

EUROPEAN COMMISSION 

Brussels, 12.12.2011 
COM(2011) 873 final 

2011/0427 (COD) 

Proposal for a 

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

Establishing the European Border Surveillance System (EUROSUR) 

{SEC(2011) 1536 final} 
{SEC(2011) 1537 final} 
{SEC(2011) 1538 final} 

 
 
  
 
EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

1.1. 

Introduction 

This proposal shall provide for the necessary legal framework to respond to the request of the European 
Council of 23-24 June 2011 to further develop the European Border Surveillance System (EUROSUR) 
as  a  matter  of  priority  in  order  to  become  operational  by  2013,  allowing  Member  States'  authorities 
carrying  out  border  surveillance  activities  and  the  European  Agency  for  the  Management  of 
Operational  Cooperation  at  the  External  Borders  of  the  Member  States  of  the  European  Union1 
(Frontex),  hereinafter  referred  to  as  'the  Agency',  to  share  operational  information  and  improve 
cooperation. 

The  aim  of  EUROSUR  is  to  reinforce  the  control  of  the Schengen external borders. EUROSUR will 
establish  a  mechanism  for  Member  States'  authorities  carrying  out  border  surveillance  activities  to 
share operational information and to cooperate with each other and with the Agency in order to reduce 
the  loss  of  lives  at  sea  and  the  number  of  irregular  immigrants  entering  the  EU  undetected,  and  to 
increase internal security by preventing cross-border crimes, such as trafficking in human beings and 
the smuggling of drugs. 

The works currently carried out for the testing and the gradual establishment of EUROSUR are based 
on a roadmap presented in a Commission Communication in 2008.2  

1.2. 

Legal basis 

This legislative proposal is based on Article 77(2)(d) of the Treaty on the Functioning of the European 
Union (TFEU), according to which the European Parliament and the Council, acting in accordance with 
the  ordinary  legislative  procedure,  shall  adopt  measures  concerning  any  measure  necessary  for  the 
gradual establishment of an integrated management system for external borders.3  

The  establishment  of  EUROSUR  forms  part  of  a  policy  aimed  at  reinforcing  the  management  of  the 
external  borders  of  the  Member  States.  Hence  EUROSUR  will  constitute  a  new  policy  instrument 
which will streamline cooperation and enable systematic information exchange between Member States 
as  well  as  with  the  Agency  on  border  surveillance,  something  which  currently  does  not  exist  at  EU 
level.  

Once adopted, the legislative act on EUROSUR would constitute a development of the provisions of 
the  Schengen  acquis,  in  which  the  United  Kingdom  and  Ireland  are  not  participating,  but  which  is 
applicable  to  four  associated  countries  (Norway,  Iceland,  Switzerland  and  Liechtenstein).  Schengen 
states are committed to maintaining common standards for external border control. 

1 
2 

3 

EN 

OJ L349, 25.11.2004, p. 1. 
COM(2008)  68 
SEC(2009)1265final of 24.9.2009 and SEC(2011)145final of 28.1.2011. 
Compare also Article 77(1)(c) TFEU. 

final  of  13.2.2008 

(EUROSUR 

roadmap).  On  progress  made 

1 

in  2008-2010,  see 

   EN 

 
                                                 
1.3. 

Objective and content of the legislative proposal 

The purpose of the legislative proposal is to improve the situational awareness and reaction capability 
of Member States and the Agency when preventing irregular migration and cross-border crime at the 
external land and maritime borders (Article 1).  

This  shall  be  done  by  establishing  a  common  framework  (Article  4),  with  clear  responsibilities  and 
competencies  for  the  national  coordination  centres  for  border  surveillance  in  the  Member  States 
(Article 5) and the Agency (Article 6), which form the backbone of EUROSUR. These centres, which 
shall ensure an effective and efficient management of resources and personnel at national level, and the 
Agency shall communicate with each other via the communication network (Article 7), which would 
allow to exchange both non-classified sensitive as well as classified information.  

The cooperation and information exchange between the national coordination centres and the Agency 
is  done  via  'situational  pictures'  (Article  8),  which  shall  be  established  at  national  (Article  9)  and 
European  level  (Article  10)  as  well  as  for  the  pre-frontier  area  (Article  11).  These  three  pictures,  of 
which the two latter shall be managed by the Agency, are structured in a similar way to facilitate the 
flow of information among them.  

The  situational  pictures  will  as  a  general  rule  not  involve  personal  data  but  rather  the  exchange  of 
information on incidents and depersonalised objects, such as the detection and tracking of vessels. In 
exceptional cases personal data may form part of the data shared by Member States with the Agency 
provided  that  the  conditions  of  Regulation  (EC)  No  2007/2004  of  26  October  2004  are  met.4  To  the 
extent  personal  data  forms  part  of  the  national  situational  picture  of  neighbouring  external  border 
sections, it may be exchanged between neighbouring Member States only, under the conditions set by 
the horizontal EU legal framework on data protection. 

Furthermore,  the  Agency  shall  provide  a  service  for  the  common  application  of  surveillance  tools 
(Article 12), taking into account that such a service can be provided more cost-efficiently at European 
level. Such a service could be implemented with the support of relevant European space programmes, 
including the operational Global Monitoring for Environment and Security (GMES).  

The  approach  chosen  in  EUROSUR  is  to  make  best  use  of  existing  information,  capabilities  and 
systems available in other EU agencies to the extent possible (Article 17). For this reason, the Agency 
would closely cooperate with the EU Satellite Centre, the European Fisheries Control Agency and the 
European Maritime Safety Agency in providing the service for the common application of surveillance 
tools as well as with EUROPOL in order to exchange information on cross-border crime. 

With  regard  to  maritime  traffic  data  to  be  provided  by  the  SafeSeaNet  system  under  Directive 
2002/59/EC, the Commission intends to make an appropriate proposal modifying the Directive in 2013. 
It  is  envisaged  that  the  relevant  information  in  SafeSeaNet  will  also  be  made  available  for  purposes 
other than those related to maritime safety, maritime security and marine environment protection and 
thereby be part of the surveillance tools used in the EUROSUR framework. 

Better  awareness  of  what  is  going  on  at  the  external  borders  is  only  of  limited  value  if  it  is  not 
complemented  by  an  improved  capability  of  EU  Member  States  to  react  to  challenges  faced  at  their 
external  borders.  For  this  reason,  Member  States  shall  divide  their  external  borders  into  borders 

4 

Cf Article 11c of Regulation (EC) No 2007/2004, inserted by Regulation (EU) No 1168/2011. 

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sections (Article 13), to which – based on risk analysis and the number of incidents occuring – impact 
levels  shall  be  attributed  (Article  14).  Depending  on  which  impact  levels  have  been  attributed,  the 
national coordination centres and the Agency shall take counter-measures in order to lower the impact 
on the border section in question (Article 15). 

The cooperation with neighbouring third countries is crucial for the success of EUROSUR. Therefore 
exisiting  and  planned  regional  networks  set  up  between  Member  States  and  neighbouring  third 
countries shall be linked to EUROSUR via the national coordination centres (compare Article 9(2)(h) 
and Article 18). Taking into account that Member States and the Agency are already in the process of 
setting up the different components of EUROSUR at national and European level, EUROSUR should 
become operational in the second half of 2013 (Article 21). The Joint Research Centre of the European 
Commission should provide the Agency with technical support on the further technical development of 
EUROSUR. 

As EUROSUR is not intended as a system to regulate the collection, storage or cross-border exchange 
of  personal  data,  it  was  not  covered  by  the  Commission's  Communication  on  an  overview  of 
information  management  in  the  area  of  freedom,  security  and  justice  of  20105.  The  development  of 
EUROSUR  has  nevertheless  been  analysed  on  the  basis  of  the  principles  set  out  in  that 
Communication, as further elaborated in the accompanying impact assessment. This concerns notably 
the principle of necessity where the possibility to use EUROSUR for the exchange of personal data has 
been kept to the absolute minimum, the principle of cost-effectiveness where a step-by-step approach 
has been chosen using the least complex technical solutions, and a bottom-up policy design, with the 
Commission working since 2008 in close cooperation with Member States' experts to assess different 
technical solutions and to jointly validate findings and recommendations of the studies carried out.  

This  proposal  was  subjected  to  scrutiny  to  ensure  that  its  provisions  are  fully  compatible  with 
fundamental  rights  and  notably  human  dignity,  prohibition  of  torture  and  inhuman  or  degrading 
treatment  or  punishment,  right  to  liberty  and  security,  right  to  the  protection  of  personal  data,  non-
refoulement, non-discrimination and rights of the child. Particular attention was paid to Articles 4 and 
19(2)  of  the  EU  Charter  of  Fundamental  Rights,  which  prohibit  removal  of  persons  to  a  State  where 
there is a serious risk of death penalty, torture or other inhuman or degrading treatment or punishment. 
Article 18(2) of this Regulation explicitly prohibits any exchange of information with a third country 
that could use this information to identify persons or groups of persons who are under a serious risk of 
being  subjected to  torture,  inhuman and degrading treatment or punishment or any  other violation of 
fundamental rights.  

In  addition,  Article  24  of  the  Charter  was  of  importance,  as  many  irregular  migrants  and  victims  of 
trafficking are children. Article 1(3) explicitly provides that Member States and the Agency shall give 
priority  to  the  special  needs  of  children,  victims  of  trafficking,  persons  in  need  of  urgent  medical 
assistance, persons in need of international protection, persons in distress at sea and other persons in a 
particularly vulnerable situation. Article 8 of the Charter on the protection of personal data is also of 
particular importance as data sharing may include personal data, in which situation the data protection 
rules apply and must be fully respected. 

5 

COM(2010) 385 final, 20.7.2010. 

EN 

3 

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2. 

RESULTS  OF  CONSULTATIONS  WITH  THE  INTERESTED  PARTIES  AND 
IMPACT ASSESSMENTS 

The Commission Staff Working Document accompanying this proposal, which is assessing the impact 
of  this  proposal,  gives  a  detailed  overview  on  the  consultations  carried  out  in  2008-2011  and  also 
provides  for  a  detailed  explanation  of  the  framework  of  EUROSUR  and  the  different  policy  options 
and costs for its establishment. 

3. 

LEGAL ELEMENTS OF THE PROPOSAL 

Article  77  (2)  (d)  of  the  Treaty  on  the  Functioning  of  the  European  Union  is  the  legal  basis  for  the 
proposal. 

4. 

BUDGETARY IMPLICATION 

The different components of EUROSUR will be mainly implemented by the Agency and by Member 
States (shared management) on the basis of the 2008 EUROSUR roadmap (COM(2008)68final). 

With  regard  to  setting  up  the  national  coordination  centres,  Member  States  will  be  supported  by  the 
External Borders Fund in 2012-2013 and the instrument for financial support for external borders and 
visa as part of the planned Internal Security Fund in 2014-2020.  

On the other hand, the Agency will use its own budget to set up the communication network and other 
horizontal components of EUROSUR, such as the European situational picture and the common pre-
frontier  intelligence  picture,  and  when  necessary  this  is  completed  by  support  under  the  Internal 
Security Fund (direct or indirect centralised financial management). 

Funding provided under the 7th Framework Programme for Research and Development will support the 
setting up of the envisaged service for the common application of surveillance tools in 2012-2013. 

Measures in neighbouring third countries will be supported in 2012-2013 by the Thematic Programme 
for Asylum and Migration, as part of the Development Cooperation Instrument. 

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4 

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2011/0427 (COD) 

Proposal for a 

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

Establishing the European Border Surveillance System (EUROSUR) 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular  Article 
77(2)(d) thereof, 

Having regard to the proposal from the European Commission, 

After transmission of the draft legislative act to the national Parliaments, 

Acting in accordance with the ordinary legislative procedure, 

Whereas: 

(1) 

The  establishment  of  a  European  Border  Surveillance  System  (hereinafter  referred  to  as 
'EUROSUR')  is  necessary  in  order  to  strengthen  the  information  exchange  and  operational 
cooperation  between  national  authorities  of  Member  States  as  well  as  with  the  European 
Agency for the Management of Operational Cooperation at the External Borders of the Member 
States  of  the  European  Union  established  by  Council  Regulation  (EC)  No  2007/2004  of  26 
October  20046  (Frontex),  hereinafter  referred  to  as  ‘the  Agency’.  EUROSUR  should  provide 
these  authorities  and  the  Agency  with  the  infrastructure  and  tools  needed  to  improve  their 
situational awareness and reaction capability when detecting and preventing irregular migration 
and cross-border crime as well as protecting and saving lives of migrants at the external borders 
of the Member States of the Union. 

(2)  Member States should establish national coordination centres for border surveillance to improve 
the cooperation and information exchange between them and with the Agency. It is essential for 
the  proper  functioning  of  EUROSUR  that  all  national  authorities  with  a  responsibility  for 
external  border  surveillance  under  national  law  are  cooperating  via  national  coordination 
centres. 

(3) 

This  Regulation  should  not  hinder  Member  States  from  making  their  national  coordination 
centres also responsible for coordinating the information exchange and cooperation with regard 
to the surveillance of air borders and for checks at border crossing points. 

6 

OJ L 349, 25.11.2004, p. 1. 

EN 

5 

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(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

This  Regulation  forms  part  of  the  European  model  of  integrated  border  management  of  the 
external borders and of the Internal Security Strategy of the European Union. EUROSUR also 
contributes  to  the  development  of  the  Common  Information  Sharing  Environment  for  the 
surveillance  of  the  EU  maritime  domain  (CISE),  providing  a  wider  framework  for  maritime 
situational awareness through information exchange amongst public authorities across sectors in 
the Union.  

According  to  point  (i)  of  Article  2  of  Regulation  2007/2004,  the  Agency  should  provide  the 
necessary  assistance  to  the  development  and  operation  of  EUROSUR,  and,  as  appropriate,  to 
the development of CISE, including interoperability of systems. 

This Regulation respects the fundamental rights and observes the principles recognised by the 
Charter  of Fundamental Rights of  the  European Union, notably human dignity, prohibition of 
torture and inhuman or degrading treatment or punishment, right to liberty and security, right to 
the  protection  of  personal  data,  non-refoulement,  non-discrimination  and  rights  of  the  child. 
This  Regulation  should  be  applied  by  Member  States  in  accordance  with  these  rights  and 
principles. 

Any  exchange  of  personal  data  using  the  communication  network  for  EUROSUR  should  be 
conducted on the basis of existing national and Union legal provisions and should respect their 
specific data protection requirements. The Directive 95/46/EC of the European Parliament and 
of the Council of 24 October 1995 on the protection of individuals with regard to the processing 
of personal data and on the free movement of such data7, Regulation (EC) No 45/2001 of the 
European Parliament and of the Council of 18 December 2000 on the protection of individuals 
with regard to the processing of personal data by the Community institutions and bodies and on 
the free movement of such data8 and, in the framework of police and judicial cooperation, the 
Council Framework Decision 2008/977/JHA 27 November 2008 on the protection of personal 
data  processed  in  the  framework  of  police  and  judicial  cooperation  in  criminal  matters9  are 
applicable in cases in which more specific instruments, such as Regulation (EC) No 2007/2004, 
do not provide a full data protection regime. 

Since the establishment of EUROSUR cannot be sufficiently achieved by Member States alone 
and can therefore, by virtue of the scale and impact of the action, be better achieved at Union 
level, the Union may adopt measures, in accordance with the principle of subsidiarity as set out 
in  Article  5  of  the  Treaty  of  the  European  Union.  In  accordance  with  the  principle  of 
proportionality  this  Regulation  does  not  go  beyond  what  is  necessary  in  order  to  achieve  its 
objective. 

In order to implement a gradual geographical roll-out of EUROSUR, the obligation to designate 
and  operate  national  coordination  centres  should  apply  in  three  successive  stages,  first  to  the 
Member  States  located  at  the  southern  sea  external  borders  and  at  the  eastern  land  external 
borders, at a second stage to the remaining Member States with land or sea external borders and 
at a third stage to the remaining Member States. 

7 
8 
9 

OJ L 281, 23.11.1995, p. 31. 
OJ L 8, 12.1.2001, p. 1. 
OJ L 350, 30.12.2008, p. 60. 

EN 

6 

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(10) 

In accordance with Articles 1 and 2 of the Protocol on the position of Denmark, as annexed to 
the  Treaty  on  European  Union  and  to  the  Treaty  on  the  Functioning  of  the  European  Union, 
Denmark is not taking part in the adoption of this Regulation and is therefore not bound by it or 
subject  to  application  thereof.  Given  that  this  Regulation  builds  upon  the  Schengen  acquis, 
under Title V of Part Three of the Treaty on the Functioning of the European Union, Denmark 
shall, in accordance with Article 4 of that Protocol, decide within six months after adoption of 
this Regulation whether it will implement it in its national law. 

(11)  This Regulation constitutes a development of provisions of the Schengen acquis, in which the 
United  Kingdom  is  not  participating,  in  accordance  with  Council  Decision  2000/365/EC  of 
29 May  2000  concerning  the  request  of  the  United  Kingdom  of  Great  Britain  and  Northern 
Ireland to take part in some of the provisions of the Schengen acquis10. The United Kingdom is 
therefore  not  taking  part  in  adoption  of  this  Regulation  and  is  not  bound  by  it  or  subject  to 
application thereof.  

(12)  This  Regulation  constitutes  a  development  of  provisions  of  the  Schengen  acquis,  in  which 
Ireland is not participating, in accordance with Council Decision 2002/192/EC of 28 February 
2002  concerning  Ireland’s  request  to  take  part  in  some  of  the  provisions  of  the  Schengen 
acquis11. Ireland is therefore not taking part in adoption of this Regulation and is not bound by 
it or subject to application thereof.  

(13)  As regards Iceland and Norway, this Regulation constitutes a development of provisions of the 
Schengen acquis, as provided for by the Agreement concluded by the Council of the European 
Union and the Republic of Iceland and the Kingdom of Norway concerning the association of 
those  two  States  with  the  implementation,  application  and  development  of  the  Schengen 
acquis12.  

(14)  As  regards  Switzerland,  this  Regulation  constitutes  a  development  of  provisions  of  the 
Schengen acquis, as provided for by the Agreement between the European Union, the European 
Community and the Swiss Confederation concerning the association of the Swiss Confederation 
with the implementation, application and development of the Schengen acquis13.  

(15)  As  regards  Liechtenstein,  this  Regulation  constitutes  a  development  of  provisions  of  the 
Schengen acquis, as provided for by the Protocol between the European Union, the European 
Community, the Swiss Confederation and the Principality of Liechtenstein on the accession of 
the Principality of Liechtenstein to the Agreement between the European Union, the European 
Community  and  the  Swiss  Confederation  on  the  Swiss  Confederation’s  association  with  the 
implementation, application and development of the Schengen acquis14. 

(16) 

Implementation of this Regulation does not prejudice the division of competence between the 
Union  and  the  Member  States,  and  does  not  affect  obligations  of  Member  States  under  the 
United Nations Convention on the Law of the Sea, the International Convention for the Safety 
of Life at Sea, the International Convention on Maritime Search and Rescue, the United Nations 

10 
11 
12 
13 
14 

OJ L 131, 1.6.2000, p. 43. 
OJ L 64, 7.3.2002, p. 20. 
OJ L 176, 10.7.1999, p. 36. 
OJ L 53, 27.2.2008, p. 52. 
OJ L 160, 18.6.2011, p. 19. 

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Convention  against  Transnational  Organised  Crime  and  its  Protocol  against  the  Smuggling  of 
Migrants  by  Land,  Sea  and  Air,  the  Convention  relating  to  the  Status  of  Refugees,  the 
Convention for the Protection of Human Rights and Fundamental Freedoms and other relevant 
international instruments. 

(17) 

Implementation of this Regulation does not affect the rules for the surveillance of sea external 
borders  in  the  context  of  operational  cooperation  coordinated  by  the  Agency,  as  laid  down  in 
Council Decision 2010/252/EU of 26 April 201015. 

HAVE ADOPTED THIS REGULATION: 

TITLE I 

GENERAL PROVISIONS 

Article 1 

Subject matter 

This  Regulation  establishes  a  common  framework  for  the  exchange  of  information  and  cooperation 
between  Member  States  and  the  Agency  in  order  to  improve  the  situational  awareness  and  reaction 
capability at the external borders of the Member States and of the European Union, hereinafter referred 
to as the European Border Surveillance System (EUROSUR).  

Article 2 

Scope 

1. 

2. 

3. 

This Regulation shall apply to the surveillance of land and sea external borders of the Member 
States,  including  measures  for  monitoring,  detection,  identification,  tracking,  prevention  and 
interception of illegal border crossings.  

This  Regulation  shall  not  apply  to  operational,  procedural  and  legal  measures  taken  after 
interception. 

Member  States  and  the  Agency  shall  comply  with  fundamental  rights,  including  data 
protection requirements, when applying this Regulation. They shall give priority to the special 
needs of children, victims of trafficking, persons in need of urgent medical assistance, persons 
in need of international protection, persons in distress at sea and other persons in a particularly 
vulnerable situation. 

15 

OJ L 111, 4.5.2010, page 20. 

EN 

Article 3 

Definitions 

8 

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For the purposes of this Regulation, the following definitions shall apply: 

(a) 

(b) 

(c) 

(d) 

(e) 

(f) 

1. 

(a) 

(b) 

(c) 

'situational  awareness'  means  the  ability  to  monitor,  detect,  identify,  track  and  understand 
cross-border activities in order to find reasoned grounds for control measures on the basis of 
combining new information with existing knowledge; 

'reaction  capability'  means  the  ability  to  perform  actions  aimed  at  countering  illegal  cross-
border  movements,  including  the  means  and  timelines  to  react  adequately  to  unusual 
circumstances; 

'situational  picture'  means  a  graphical  interface  to  present  real-time  data,  information  and 
intelligence received from different authorities, sensors, platforms and other sources, which is 
shared  across  communication  and  information  channels  with  other  authorities  in  order  to 
achieve  situational  awareness  and  support  the  reaction  capability  along  the  external  borders 
and the pre-frontier area; 

'cross-border crime' means any serious or organised crime committed at the external borders of 
Member  States,  such  as  trafficking  in  human  beings,  smuggling  of  drugs  and  other  illicit 
activities; 

'external  border  section'  means  the  whole  or  a  part  of  the  external  land  or  sea  border  of  a 
Member State as defined by national legislation or as determined by the national coordination 
centre or any other responsible national authority; 

'pre-frontier area' means the geographical area beyond the external border of Member States, 
which is not covered by a national border surveillance system. 

TITLE II 

FRAMEWORK 

CHAPTER I 

Components 

Article 4 

EUROSUR framework 

For the exchange of information and cooperation in the field of border surveillance, Member 
States  and  the  Agency  shall  use  the  framework  of  EUROSUR,  consisting  of  the  following 
components: 

national coordination centres for border surveillance; 

national situational pictures; 

communication network; 

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(d) 

(e) 

(f) 

2. 

3. 

4. 

1. 

2. 

3. 

(a) 

(b) 

(c) 

(d) 

(e) 

European situational picture; 

common pre-frontier intelligence picture; 

common application of surveillance tools. 

The  national  coordination  centres  shall  provide  the  Agency  via  the  communication  network 
with  all  the  information  from  their  national  situational  pictures  which  is  required  for  the 
establishment  and  maintenance  of  the  European  situational  picture  and  of  the  common  pre-
frontier intelligence picture. 

The  Agency  shall  give  the  national  coordination  centres  via  the  communication  network 
unlimited  access  to  the  European  situational  picture  and  to  the  common  pre-frontier 
intelligence picture. 

The  components  listed  in  paragraph  1  shall  be  established  and  maintained  in  line  with  the 
principles outlined in the annex. 

Article 5 

National Coordination Centre 

Each Member State with land and sea external borders shall designate, operate and maintain a 
National  Coordination  Centre  for  border  surveillance,  which  shall  coordinate  and  exchange 
information  between  all  authorities  with  a  responsibility  for  external  border  surveillance  at 
national  level  as  well  as  with  the  other  national  coordination  centres  and  the  Agency.  The 
Member  State  shall  notify  the  establishment  of  the  centre  to  the  Commission,  which  shall 
forthwith inform the other Member States and the Agency. 

Without  prejudice  to  Article  16,  the  national  coordination  centre  shall  be  the  single  point  of 
contact  for  the  exchange  of  information  and  cooperation  with  other  national  coordination 
centres and with the Agency. 

The national coordination centre shall: 

ensure the timely information exchange and cooperation between all national authorities with 
a responsibility for external border surveillance and with relevant law enforcement authorities 
at national level as well as with other national coordination centres and the Agency; 

contribute to an effective and efficient management of resources and personnel; 

establish and maintain the National Situational Picture in accordance with Article 9; 

support the planning and implementation of all national border surveillance activities; 

administer  the  national  border  surveillance  system,  where  applicable  in  accordance  with 
national law; 

(f) 

measure regularly the effects of national border surveillance activities;  

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(g) 

coordinate  operational  measures  with  other  Member  States,  without  prejudice  to  the 
competences of the Agency. 

4. 

The national coordination centre shall operate twenty four hours a day and seven days a week. 

Article 6 

The Agency 

1. 

(a) 

(b) 

(c) 

(d) 

2. 

1. 

(a) 

(b) 

(c) 

(d) 

2. 

3. 

The Agency shall  

administer the communication network for EUROSUR in accordance with Article 7; 

establish and maintain the European situational picture in accordance with Article 10; 

establish and maintain the common pre-frontier intelligence picture in accordance with Article 
11; 

facilitate the common application of surveillance tools in accordance with Article 12. 

For the purposes of paragraph 1, the Agency shall operate twenty four hours a day and seven 
days a week.  

Article 7 

Communication network 

The  Agency  shall  establish  and  maintain  a  communication  network  in  order  to  provide 
communications  and  analytical  tools  and  allow  for  the  secure  exchange  of  non-classified 
sensitive  and  classified  information  in  near  real  time  with  and  between  the  national 
coordination centres. The network shall be operational twenty four hours a day and seven days 
a week and allow for: 

bilateral and multilateral information exchange in near real time; 

audio and video conferencing; 

secure handling, storing, processing of non-classified sensitive information; 

secure  handling,  storing,  transmission  and  processing  of  EU  classified  information  up  to  the 
level  of  RESTREINT  UE/EU  RESTRICTED  or  equivalent  national  classification  levels, 
ensuring  that  classified  information  is  handled  in  a  separate  and  duly  accredited  part  of  the 
communication network. 

The  Agency  shall  provide  technical  support  and  ensure  that  the  communication  network  is 
interoperable with any other communication and information system managed by the Agency. 

The  Agency  and  the  national  coordination  centres  shall  exchange,  process  and  store  non-
classified  sensitive  and  classified  information  in  the  communication  network  in  compliance 

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with  rules  and  standards  which  apply  the  basic  principles  and  common  standards  of  or  are 
equivalent  to  the  Commission  Decision  2001/844/EC  amending  its  internal  Rules  of 
Procedure16. 

4. 

Member States' authorities, agencies and other bodies using the communication network shall 
ensure  that  equivalent  security  rules  and  standards  as  those  applied  by  the  Agency  are 
complied with for the handling of classified information. 

CHAPTER II 

Situational Awareness 

Article 8 

Situational pictures 

1. 

2. 

(a) 

(b) 

(c) 

1. 

2. 

The national situational pictures, the European situational picture and the common pre-frontier 
intelligence  picture  shall  be  produced  through  the  collection,  evaluation,  collation,  analysis, 
interpretation, generation, visualisation and dissemination of information. 

The pictures referred to in paragraph 1 shall consist of the following layers: 

an  events  layer,  containing  information  on  incidents  concerning  irregular  migration,  cross-
border crime and crisis situations; 

an operational layer, containing information on the status and position of own assets, areas of 
operation and environmental information; 

an analysis layer, containing strategic information, analytical products, intelligence as well as 
imagery and geo-data. 

Article 9 

National Situational Picture 

The national coordination centre shall establish and maintain a national situational picture, in 
order  to  provide  all  authorities  with  responsibilities  in  border  surveillance  at  national  level 
with  effective,  accurate  and  timely  information  which  is  relevant  for  the  prevention  of 
irregular  migration  and  cross-border  crime  at  the  external  borders  of  the  Member  State 
concerned. 

The national situational picture shall be composed of information collected from the following 
sources: 

(a) 

national border surveillance system, where applicable in accordance with national law; 

16 

OJ L 317, 3.12.2001, p.1. 

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(b) 

(c) 

(d) 

(e) 

(f) 

(g) 

(h) 

(i) 

(j) 

(k) 

3. 

(a) 

(b) 

(c) 

(d) 

stationary  and  mobile  sensors  operated  by  national  authorities  with  a  responsibility  for 
external border surveillance; 

patrols on border surveillance and other monitoring missions; 

local, regional and other coordination centres; 

other relevant national authorities and systems; 

the Agency; 

national coordination centres in other Member States and in third countries; 

regional  networks  with  neighbouring  third  countries,  such  as  the  SEAHORSE  Atlantic 
network,  SEAHORSE  Mediterranean  network,  the  Baltic  Sea  Region  Border  Control 
Cooperation  network  CoastNet,  the  Black  Sea  Border  Coordination  and  Information  Centre 
and other regional networks set up at the external land borders; 

ship  reporting  systems,  such  as  the  Automatic  Identification  System  (AIS)  and  the  Vessel 
Monitoring System (VMS). Data from these systems shall be acquired at national level from 
the national competent authorities and fisheries monitoring centres; 

other relevant European and international organisations; 

other sources. 

The events layer of the national situational picture shall consist of the following sub-layers: 

a  sub-layer  on  irregular  migration,  which  shall  contain  information  on  incidents  concerning 
illegal border crossings of migrants occurring at or nearby the external borders of the Member 
State  concerned,  on  facilitations  of  irregular  border  crossings  and  on  any  other  relevant 
irregular  migration  incident,  such  as  a  search  and  rescue  mission  for  persons  attempting  to 
cross the border illegally.  

a  sub-layer  on  cross-border  crime,  which  shall  contain  information  on  incidents  concerning 
trafficking  in  human  beings,  smuggling  of  drugs  and  other  illicit  goods,  and  on  any  other 
serious  and  organised  or  organised  crime  incident  at  or  nearby  the  external  borders  of  the 
Member State concerned;  

a  sub-layer  on  crisis  situations,  which  shall  contain  information  with  regard  to  natural  and 
man-made disasters, accidents and any other crisis situation occurring at or nearby the external 
borders of the Member State concerned, which may have a significant impact on the control of 
the external borders; 

a  sub-layer  on  other  events,  which  shall  contain  information  on  unidentified  and  suspect 
platforms  and  persons  present  at  or  nearby  the  external  borders  of  the  Member  State 
concerned, as well as any other event which may have a significant impact on the control of 
the external borders; 

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4. 

5. 

(a) 

(b) 

(c) 

6. 

(a) 

(b) 

(c) 

(d) 

7. 

8. 

9. 

Each  incident  in  the  events  layer  of  the  national  situational  picture  shall  be  assigned  with  a 
single  indicative  impact  level,  ranging  from  'low'  and  'medium'  to  'high'  impact.  All  events 
assigned with a 'medium' to 'high' impact level shall be shared with the Agency. 

The  operational  layer  of  the  national  situational  picture  shall  consist  of  the  following  sub-
layers: 

a  sub-layer  on  own  assets,  which  shall  contain  information  on  position,  time,  course,  speed, 
status  and  type  of  own  assets,  and  of  the  deployment  plan,  including  the  geographic 
coordinates of the area of operation, patrol schedules  and communication codes; where own 
assets  are  deployed  on  a  multi-task  mission  which  includes  military  tasks,  the  national 
coordination centre can decide not to share such information with other national coordination 
centres and the Agency except when the own assets are deployed in the neighbouring border 
section of another Member State; 

a  sub-layer  on  areas  of  operation,  which  shall  contain  information  on  the  mission,  location, 
status, duration and the authorities involved in operations; 

a sub-layer on environmental information, which shall contain or give access to information 
on terrain and weather conditions at the external borders of the Member State concerned. 

The analysis layer of the national situational picture shall consist of the following sub-layers: 

an information sub-layer, which shall contain key developments and indicators relevant for the 
analysis of irregular migration and cross-border crime. 

an  analytical  sub-layer,  which  shall  present  analytical  reports,  risk  rating  trends,  regional 
monitors and briefing notes relevant for the concerned Member State; 

an intelligence picture sub-layer, which shall contain migrant profiles, routes, information on 
the  impact  levels  attributed  to  the  external  land  and  sea  border  sections  and  facilitation 
analysis. 

an imagery and geo-data sub-layer, which shall contain reference imagery, background maps, 
intelligence  validation  assessments,  change  analysis  (earth  observation  imagery)  as  well  as 
change detection, geo-referenced data and border permeability maps. 

The  information  contained  in  the  analysis  layer  and  on  environmental  information  in  the 
operational layer of the national situational picture may be based on the information provided 
in the European situational picture and in the common pre-frontier intelligence picture. 

The information on own assets in the operational layer shall be classified as EU Restricted. 

The national coordination centres of neighbouring Member States shall share with each other 
directly and in near real time the situational picture of neighbouring external border sections 
relating to: 

(a) 

all  incidents  concerning  irregular  migration  and  cross-border  crime  and  other  significant 
events contained in the events layer; 

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(b) 

(c) 

the positions of own patrols contained in the operational layer, when the primary mission of 
the patrol is to prevent irregular migration and cross-border crime; 

the  planning  schemes,  schedules  and  communication  codes  for  the  following  day  of  patrols 
operating in the neighbouring external border sections; 

(d) 

tactical risk analysis reports as contained in the analysis layer. 

Article 10 

European Situational Picture 

The Agency shall establish and maintain a European situational picture in order to provide the 
national  coordination  centres  with  information  and  analysis  which  is  relevant  for  the 
prevention  of  irregular  migration  and  cross-border  crime  at  the  external  borders  of  the 
Member States.  

The  European  Situational  Picture  shall  be  composed  of  information  collected  from  the 
following sources: 

national situational pictures, including basic information received under Article 9(8); 

the Agency; 

other relevant European and international organisations; 

other sources. 

The events layer of the European situational picture shall include information relating to: 

incidents regarding irregular migration and cross-border crime as well as crisis situations and 
on other events contained in the events layer of the national situational picture, which has been 
assigned with a medium or high impact level by the national coordination centre; 

incidents regarding irregular migration and cross-border crime as well as crisis situations and 
other  events  contained  in  Common  Pre-Frontier  Intelligence  Picture,  once  it  is  having  a 
moderate or significant impact on the external borders of the Member States; 

incidents  regarding  irregular  migration  and  cross-border  crime  in  the  operational  area  of  a 
joint operation coordinated by the Agency. 

In the European situational picture the Agency shall use the impact level that was assigned to a 
specific incident in the national situational picture by the national coordination centre. 

The operational layer of the European situational picture shall consist of the following sub-
layers: 

a sub-layer on own assets, which shall contain information on the position, time, course, speed 
status and type of assets participating in the Agency joint operations or at the disposal of the 

1. 

2. 

(a) 

(b) 

(c) 

(d) 

3. 

(a) 

(b) 

(c) 

4. 

5. 

(a) 

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Agency,  and  the  deployment  plan,  including  the  area  of  operation,  patrol  schedules  and 
communication codes;  

a sub-layer on operations, which shall contain information on the joint operations coordinated 
by the Agency, including the mission statement, location, status, duration, information on the 
Member States and other actors involved, daily and weekly situational reports, statistical data 
and information packages for the media; 

a  sub-layer  on  environmental  information,  which  shall  include  information  on  terrain  and 
weather conditions at the external borders of the Member States. 

The analysis layer of the European situational picture shall consist of the following sub-layers: 

an information sub-layer, which shall contain key developments and indicators relevant for the 
analysis of irregular migration and cross-border crime; 

an  analytical  sub-layer,  which  shall  present  overall  and  subcategory  risk  ratings  maps;  risk 
rating  trends;  regional  monitors;  briefing  notes  as  well  as  correlation  indicators  for  the  risk 
ratings and Frontex Risk Analysis Network indicators; 

an intelligence picture sub-layer, which shall contain migrant profiles, routes, information on 
the  impact  levels  attributed  to  the  external  land  and  sea  border  sections  and  facilitation 
analysis; 

an imagery and geo-data sub-layer, which shall contain reference imagery, background maps, 
intelligence  validation  assessments,  change  analysis  (earth  observation  imagery)  as  well  as 
change detection, geo-referenced data and border permeability maps. 

The  information  on  own  assets  in  the  operational  layer  of  the  European  situational  picture 
shall be classified as EU Restricted.  

Article 11 

Common Pre-Frontier Intelligence Picture 

The Agency shall establish and maintain a common pre-frontier intelligence picture in order to 
provide  the  national  coordination  centres  with  information  and  analysis  on  the  pre-frontier 
area which is relevant for the prevention of irregular migration and serious or organised crime 
at the external borders of the Member States and in neighbouring third countries. 

The common pre-frontier intelligence picture shall be composed of information collected from 
the following sources: 

national coordination centres; 

information and reports provided by immigration liaison officers; 

the Agency; 

(b) 

(c) 

6. 

(a) 

(b) 

(c) 

(d) 

6. 

1. 

2. 

(a) 

(b) 

(c) 

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(d) 

(e) 

(f) 

3. 

4. 

5. 

6. 

7. 

1. 

2. 

(a) 

(b) 

(c) 

other relevant European and international organisations; 

third countries; 

other sources. 

The  common  pre-frontier  intelligence  picture  may  contain  information  which  is  relevant  for 
air border surveillance operations and checks at border crossing points. 

The events layer of the common pre-frontier intelligence picture shall include information on: 
any incident, crisis situation and on any other event in the pre-frontier area, which could have 
a moderate or significant impact on irregular migration and cross-border crime at the external 
borders of the Member States.  

The Agency shall assign a single indicative impact level to each incident in the events layer of 
the  common  pre-frontier  intelligence  picture.  The  Agency  shall  inform  the  national 
coordination centres on any incident in the pre-frontier area, which has been assigned with a 
medium or high impact level. 

The operational layer of the common pre-frontier intelligence picture shall be structured in the 
same manner as in the European situational picture, containing information on assets operating 
and operations being carried out in the pre-frontier area as well as environmental information.  

The analysis layer of the common pre-frontier intelligence picture shall be structured like the 
one  of  the  European  situational  picture,  containing  strategic  information,  analytical  products 
and services, intelligence as well as imagery and geo-data on the pre-frontier area. 

Article 12 

Common application of surveillance tools 

The Agency shall facilitate the common application of surveillance tools, such as satellites and 
ship reporting systems, by Member States in order to supply the national coordination centres 
and itself with surveillance information on the external borders and on the pre-frontier area on 
a regular, reliable and cost-efficient basis. 

The Agency may provide a national coordination centre upon request with information on the 
external borders of the requesting Member State and on the pre-frontier area which is derived 
from: 

selective monitoring of designated third country ports and coasts which have been identified 
through  risk  analysis  and  intelligence  as  embarkation  or  transit  points  for  vessels  used  for 
irregular migration and cross-border crime;  

tracking of a vessel over high seas which is suspected of or has been identified as being used 
for irregular migration and cross-border crime; 

monitoring  of  designated  areas  in  the  maritime  domain  in  order  to  detect,  identify  and  track 
vessels suspected of or used for irregular migration and cross-border crime; 

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(d) 

(e) 

3. 

(a) 

(b) 

(c) 

4. 

5. 

environmental assessment of designated areas in the maritime domain and at the external land 
border in order to optimise monitoring and patrolling activities; 

selective monitoring of designated pre-frontier areas at the external land border, which have 
been identified through risk analysis and intelligence as potential departure or transit areas for 
irregular migration and cross-border crime.  

The  Agency  may  provide  the  information  referred  to  in  paragraph  1  by  combining  and 
analysing data collected from the following systems, sensors and platforms: 

ship  reporting  systems  within  their  given  legal  limitations,  such  as  the  Automated 
Identification System (AIS) and the Vessel Monitoring System (VMS); 

satellite imagery; 

sensors mounted on any platforms, including manned and unmanned aerial vehicles. 

The Agency may refuse a request from a national coordination centre on the basis of technical 
and financial limitations as well as for other justified reasons. 

The Agency may use on its own initiative the surveillance tools referred to in paragraph 2 for 
collecting information which is relevant for the common pre-frontier intelligence picture. 

CHAPTER III 

Reaction Capability 

Article 13 

Determination of external border sections 

Each Member State shall divide its external land and sea borders into border sections, with a local or 
regional  coordination  centre  ensuring  the  effective  and  efficient  management  of  personnel  and 
resources. 

Article 14 

Attribution of impact levels to external border sections 

1. 

(a) 

(b) 

Based  on  the  Agency's  risk  analysis  and  after  consultation  of  the  Member  States  concerned, 
the  Agency  shall  attribute  the  following  impact  levels  to  each  of  the  external  land  and  sea 
border sections of Member States: 

low  impact  level  in  case  the  incidents  related  to  irregular  migration  and  cross-border  crime 
occurring at the border section in question have an insignificant impact on border security; 

medium  impact  level  in  case  the  incidents  related  to  irregular  migration  and  cross-border 
crime occurring at the border section in question have a moderate impact on border security; 

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(c) 

2. 

high  impact  level  in  case  the  incidents  related  to  irregular  migration  and  cross-border  crime 
occurring at the border section in question have a significant impact on border security. 

The  national  coordination  centre  shall  regularly  assess  whether  there  is  a  need  to  adjust  the 
impact  level  of  any  of  the  border  sections.  The  national  coordination  centre  may  invite  the 
Agency  to  change  the  impact  level  by  providing  substantiated  information  on  the  altered 
conditions at the external border section concerned.  

3. 

The  Agency  shall  visualise  of  the  impact  levels  attributed  to  the  external  borders  in  the 
European situational picture. 

Article 15 

Reaction corresponding to impact levels 

1. 

(a) 

(b) 

(c) 

2. 

3. 

4. 

(a) 

(b) 

The Member States shall ensure that the surveillance and patrolling activities carried out at the 
external border sections correspond to the attributed impact levels in the following manner: 

where  a  low  impact  level  is  attributed  to  an  external  border  section,  the  local  or  regional 
coordination centre shall organize regular surveillance on the basis of risk analysis and ensure 
that sufficient patrols are being kept in the border area in readiness for tracking, identification 
and interception;  

where  a  medium  impact  level  is  attributed  to  an  external  border  section,  the  national 
coordination  centre  shall  support  the  local  or  regional  coordination  centre  by  the  temporary 
allocation of additional personnel and resources;  

where a high impact level is attributed to an external border section, the national coordination 
centre shall ensure that the local or regional coordination centre is given all necessary support 
at  national  level,  including  information,  resources  and  personnel;  the  national  coordination 
centre  may  also  request  the  Agency  for  support  in  accordance  with  the  provisions  of 
Regulation (EC) No 2007/2004. 

The national coordination centre shall inform the Agency about the measures taken at national 
level pursuant to points (b) and (c) of paragraph 1 without any delay. 

Where  a  medium  or  high  impact  level  is  attributed  to  an  external  border  section  which  is 
adjacent  to  the  border  section  of  another  Member  State  or  a  third  country,  the  national 
coordination centre shall coordinate the measures taken with the national coordination centre 
of the neighbouring country.  

Where a national coordination centre submits a request according to point (c) of paragraph 1, 
the Agency may support that centre in particular by 

giving priority treatment for the common application of surveillance tools; 

coordinating the deployment of European Border Guard Teams in accordance with Regulation 
(EC) No 2007/2004; 

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(c) 

(d) 

5. 

1. 

2. 

3. 

1. 

2. 

(a) 

ensuring the deployment of technical equipment at the disposal of the Agency in accordance 
with Regulation (EC) No 2007/2004; 

coordinating any additional support offered by Member States. 

The  Agency  shall  evaluate  the  attribution  of  impact  levels  and  the  corresponding  measures 
taken at national and Union level in its risk analysis reports. 

TITLE IV 

SPECIFIC PROVISIONS 

Article 16 

Allocation of tasks to other centres in the Member States 

Member  States  may  entrust  regional,  local,  functional  or  other  centres,  which  are  in  the 
position  to  take  operational  decisions,  with  ensuring  the  situational  awareness  and  reaction 
capability in the respective area of competence, including the tasks and competences referred 
to in points (b), (d) and (e) of Article 5(3). 

The  decision  of  the  Member  State  referred  to  in  paragraph  1  shall  not  affect  the  national 
coordination  centre  in  its  ability  to  cooperate  and  exchange  information  with  other  national 
coordination centres and the Agency. 

In  pre-defined  cases  the  national  coordination  centre  may  authorise  a  centre  referred  to  in 
paragraph 1 to communicate and exchange information with the regional coordination centre 
or the national coordination centre of another Member State or third country on condition that 
it  regularly  informs  its  own  national  coordination  centre  about  the  communication  and 
information exchange. 

Article 17 

Cooperation of the Agency with third parties 

The Agency shall make use of existing information, capabilities and systems available in other 
EU agencies and entities, within the respective legal frameworks.  

In accordance with paragraph  1, the Agency shall cooperate in particular with the following 
entities: 

European Police Office (Europol), the Maritime Analysis and Operations Centre – Narcotics 
(MAOC-N)  and  the  Centre  de  Coordination  pour  la  lutte  antidrogue  en  Méditerranée 
(CeCLAD-M)  in  order  to  exchange  information  on  cross-border  crime  to  be  included  in  the 
European Situational Picture; 

(b) 

the  EU  Satellite  Centre,  the  European  Maritime  Safety  Agency  and  the  European  Fisheries 
Control Agency when providing the common application of surveillance tools; 

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(c) 

(d) 

3. 

4. 

5. 

1. 

2. 

3. 

4. 

5. 

the European Commission and EU agencies which can provide the Agency with information 
relevant  for  maintaining  the  European  Situational  Picture  and  the  Common  Pre-Frontier 
Intelligence Picture; 

international  organisations  which  can  provide  the  Agency  with  information  relevant  for 
maintaining  the  European  Situational  Picture  and  the  Common  Pre-Frontier  Intelligence 
Picture. 

Information between the Agency and the entities referred to in paragraph 2 shall be exchanged 
via  the  network  referred  to  in  Article  7  or  other  communication  networks  which  fulfil  the 
criteria of availability, confidentiality and integrity. 

The  cooperation  between  the  Agency  and  the  entities  referred  to  in  paragraph  2  shall  be 
regulated in working arrangements in accordance with Regulation (EC) No 2007/2004 and the 
respective legal basis of each entity. As regards the handling of classified information, these 
arrangements  shall  provide  that  the  EU  agencies  and  other  entities  concerned  comply  with 
equivalent security rules and standards as those applied by the Agency. 

The  agencies  and  centres  referred  to  in  paragraph  2  may  use  information  received  in  the 
context  of  EUROSUR  within  the  limits  of  their  legal  framework  and  in  compliance  with 
fundamental rights. 

Article 18 

Cooperation with neighbouring third countries 

The exchange of information and cooperation with neighbouring third countries on preventing 
irregular  migration  and  cross-border  crime  may  take  place  on  the  basis  of  bilateral  or 
multilateral  agreements  between  one  or  several  Member  States  and  one  or  several 
neighbouring  third  countries  concerned.  The  national  coordination  centres  of  the  Member 
States shall be the contact point for the exchange of information between the network referred 
to in Article 7 and the regional networks with neighbouring third countries. 

Any exchange of information under paragraph 1 of this Article and under point (h) of Article 
9(2),  which  a  third  country  that  could  use  this  information  to  identify  persons  or  groups  of 
persons  who  are  under  a  serious  risk  of  being  subjected  to  torture,  inhuman  and  degrading 
treatment or punishment or any other violation of fundamental rights, shall be prohibited. 

Any exchange of information under paragraph 1 of this Article and under point (h) of Article 
9(2)  shall  be  done  in  compliance  with  the  conditions  of  the  bilateral  and  multilateral 
agreements concluded with neighbouring third countries. 

Prior  approval  of  any  other  Member  State,  which  provided  information  in  the  context  of 
EUROSUR and which is not part of any of the agreements referred to in paragraph 1 and of 
the networks referred to in point (h) of Article 9(2), shall be required before that information 
can be shared with any third country under that agreement or network. 

Any exchange of information with third countries of information derived from service for the 
common  application  of  surveillance  tools  is  subject  to  the  legislation  and  rules  governing 

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those  tools  and  systems  as  well  as  to  the  relevant  provisions  of  Directive  95/46/EC  and 
Regulation (EC) No 45/2001. 

Article 19 

Handbook 

The European Commission shall, in close cooperation with the Member States and the Agency, make 
available  a  Practical  Handbook  for  the  implementation  and  management  of  EUROSUR  (hereinafter 
'Handbook'), providing technical and operational guidelines, recommendations and best practices. The 
European Commission shall adopt the Handbook in the form of a recommendation. 

Article 20 

Monitoring and evaluation 

1. 

2. 

3. 

4. 

1. 

2. 

3. 

The Agency shall ensure that procedures are in place to monitor the technical and operational 
functioning  of  EUROSUR  against  the  objectives  of  achieving  an  adequate  situational 
awareness and reaction capability at the external borders.  

The  Agency  shall  submit  a  report  on  the  functioning  of  EUROSUR  on  1 October 2015  and 
every two years thereafter. 

The  Commission  shall  provide  an  overall  evaluation  of  EUROSUR  to  the  European 
Parliament and the Council on 1 October 2016 and every four years thereafter. This evaluation 
shall include an examination of results achieved against objectives and  an  assessment of the 
continuing  validity  of  the  underlying  rationale,  the  application  of  this  Regulation  in  the 
Member  States  and  by  the  Agency,  and  the  compliance  with  fundamental  rights.  That 
evaluation  shall  be  accompanied,  where  necessary,  by  appropriate  proposals  to  amend  this 
Regulation.  

Member  States  shall  provide  the  Agency  with  the  information  necessary  to  draft  the  report 
referred  to  in  paragraph  2.  The  Agency  shall  provide  the  Commission  with  the  information 
necessary to produce the evaluation referred to in paragraph 3. 

Article 21 

Entry into force and applicability 

This Regulation shall enter into force on the twentieth day following that of its publication in 
the Official Journal of the European Union. 

This Regulation shall apply from 1 October 2013. 

Article  5(1)  shall  apply  to  the  Member  States  located  at  the  southern  sea  and  eastern  land 
external borders of the Union (Bulgaria, Cyprus, Estonia, Finland, France, Greece, Hungary, 

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22 

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Italy,  Latvia,  Lithuania,  Malta,  Poland,  Portugal,  Romania,  Slovak  Republic,  Slovenia  and 
Spain) from 1 October 2013. 

4. 

Article  5(1)  shall  apply  to  the  remaining  Member  States  with  land  and  sea  external  borders 
(Belgium, Germany, Netherlands and Sweden) as from 1 October 2014. 

This  Regulation  shall  be  binding  in  its  entirety  and  directly  applicable  in  the  Member  States  in 
accordance with the Treaties. 

Done at Brussels, 

For the European Parliament 
The President 

For the Council 
The President 

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Annex 

The  following  principles  shall  be  taken  into  account  when  setting,  operating  and  maintaining  the 
different components of the EUROSUR framework:  

(a) 

(b) 

(c) 

(d) 

(e) 

Principle of communities of interest: The national coordination centres and the Agency shall 
form  particular  communities  of  interest  for  sharing  information  and  cooperation  in  the 
framework of EUROSUR. Communities of interest shall be used to organise different national 
coordination centres and the Agency to exchange information in pursuit of shared objectives, 
requirements and interests. 

Principles of coherent management and of using existing structures: The Agency shall ensure 
the  coherence  between  the  different  components  of  the  EUROSUR  framework,  including 
providing  guidance  and  support  to  the  national  coordination  centres  and  promoting  the 
interoperability  of  information  and  technology.  To  the  extent  possible,  the  EUROSUR 
framework  shall  make  use  of  existing  systems  and  capabilities.  In  this  context,  EUROSUR 
shall be established in full compatibility with the initiative for a Common Information Sharing 
Environment for the surveillance of the EU maritime domain (CISE), thereby contributing to 
and  benefit  from  a  coordinated  and  cost-efficient  approach  for  cross-sectoral  information 
exchange in the Union. 

Principles of information sharing and of information assurance: Information made available 
in  the  EUROSUR  framework  shall  be  available  to  all  national  coordination  centres  and  the 
Agency,  unless  specific  restrictions  have  been  laid  down  or  agreed  upon.  The  national 
coordination  centres  shall  guarantee  the  availability,  confidentiality  and  integrity  of  the 
information to be exchanged at national and European level. The Agency shall guarantee the 
availability, confidentiality and integrity of the information to be exchanged at European level.  

Principles of service-orientation and of standardisation: The different EUROSUR capabilities 
shall be implemented using a service-oriented approach. The Agency shall ensure that, to the 
extent possible, the EUROSUR framework is based on internationally agreed standards. 

Principle of flexibility: Organisation, information and technology shall be designed to enable 
the  EUROSUR  stakeholders  to  react  to  changing  situations  in  a  flexible  and  structured 
manner. 

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LEGISLATIVE FINANCIAL STATEMENT  

1. 

FRAMEWORK OF THE PROPOSAL/INITIATIVE  

1.1.  Title of the proposal/initiative  

1.2.  Policy area(s) concerned in the ABM/ABB structure 

1.3.  Nature of the proposal/initiative  

1.4.  Objective(s)  

1.5.  Grounds for the proposal/initiative  

1.6.  Duration and financial impact  

1.7.  Management method(s) envisaged  

2. 

MANAGEMENT MEASURES  

2.1.  Monitoring and reporting rules  

2.2.  Management and control system  

2.3.  Measures to prevent fraud and irregularities  

3. 

ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE  

3.1.  Heading(s)  of  the  multiannual  financial  framework  and  expenditure  budget  line(s) 
affected  

3.2.  Estimated impact on expenditure  

3.2.1. Summary of estimated impact on expenditure  

3.2.2. Estimated impact on operational appropriations  

3.2.3. Estimated impact on appropriations of an administrative nature 

3.2.4. Compatibility with the current multiannual financial framework 

3.2.5. Third-party participation in financing  

3.3.  Estimated impact on revenue 

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LEGISLATIVE FINANCIAL STATEMENT 

1. 

FRAMEWORK OF THE PROPOSAL/INITIATIVE  

1.1. 

Title of the proposal/initiative  

Proposal for a Regulation establishing the European Border Surveillance System (EUROSUR) 

1.2. 

Policy area(s) concerned in the ABM/ABB structure17  

Currently Heading 3a, Title 18 – Home Affairs 

Future Multiannual Financial Perspectives: Heading 3 (Security and citizenship) 

Nature of the proposal/initiative  

(cid:59) The proposal/initiative relates to a new action (home affairs funding for the period 2014-2020) 

(cid:133) The proposal/initiative relates to a new action following a pilot project/preparatory action18  

(cid:133) The proposal/initiative relates to the extension of an existing action  

(cid:133) The proposal/initiative relates to an action redirected towards a new action  

1.3. 

Objectives 

1.3.1.  The Commission's multiannual strategic objective(s) targeted by the proposal/initiative  

In  its  conclusions  of  23-24  June  2011  the  European  Council  stated  that  the  "the  European  Border 
Surveillance System (EUROSUR) will be further developed as a matter of priority in order to become 
operational by 2013 and allow Member States' authorities carrying out border surveillance activities to 
share operational information and improve cooperation". 

As  stated  in  the  Commission  Work  Programme  (CWP)  for  201119  "the  aim  of  EUROSUR  is  to 
reinforce the control of the Schengen external border, especially the southern maritime and eastern land 
borders.  EUROSUR  will  establish  a  mechanism  for  Member  States'  authorities  carrying  out  border 
surveillance  activities  (border  guards,  coast  guards,  police,  customs,  and  navies)  to  share  operational 
information and to cooperate with each other and with Frontex in order to reduce the loss of lives at sea 
and the number of irregular migrants entering the EU undetected, and to increase internal security by 
preventing  cross-border  crime  such  as  terrorism,  trafficking  in  human  beings,  smuggling  of  weapons 
and drugs, etc." 

Since 2008, the EU Member States, the EU border agency Frontex and the European Commission have 
been closely cooperating in order to define and develop the EUROSUR framework. The components of 

17 
18 
19 

ABM: Activity-Based Management – ABB: Activity-Based Budgeting. 
As referred to in Article 49(6)(a) or (b) of the Financial Regulation. 
COM(2010) 623 final of 27.10.2010, VOL. II, 43, 14.  

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EUROSUR  are  being  tested  and  gradually  established  on  a  pilot  basis  since  2011,  using  funding 
provided under the Frontex budget. In parallel, since 2008 Member States have been using the External 
Borders  Fund  to  set  up  the  national  components  of  EUROSUR,  such  as  the  national  coordination 
centres and national border surveillance systems.  

Therefore the following ABB activities are currently concerned:  

18.02 – Solidarity, external borders, return, visa policy and free movement of persons – Objective 1: 
Enable persons to cross internal borders without border checks, promote secure borders and prevent 
irregular migration by developing further an integrated external border management system and high 
standards of border checks, including the set up of SIS II and the financial support from the External 
Borders Fund. 

The parallel development and implementation of EUROSUR shortens considerably the time needed for 
its  establishment  and  also  allows  to  test  and  adapt  the  different  components  of  EUROSUR  before 
making it operational at the end of 2013. 

The works carried out for the development, testing and gradual establishment of EUROSUR are based 
on a roadmap presented in a Commission Communication in 2008.20 This roadmap has been endorsed 
by the Justice and Home Affairs Council in its conclusions of June 2008 and February 2010 and by the 
Stockholm Programme and the Action Plan implementing the Stockholm Programme. 

1.3.2. 

Specific objective(s) and ABM/ABB activity(ies) concerned  

EUROSUR has two specific objectives, namely to significantly increase the situational awareness and 
reaction capability of the Member States' border control authorities and Frontex, so that in a best case 
scenario  any  new  route  or  method  for  irregular  migration  and  cross-border  crime  is  identified  and 
disrupted shortly after it has been established. 

1.3.3.  Expected result(s) and impact 

Specify the effects which the proposal/initiative should have on the beneficiaries/groups targeted. 

1. 
Situational  awareness  measures  how  the  authorities  are  capable  of  detecting  cross-border 
movements and finding reasoned grounds for control measures. This can be accomplished by achieving 
the following operational objectives at national and European level: 

Improved  interagency  cooperation  by  streamlining  structures  and  interlinking  systems  in  the 

The  use  of  data  fusion  combined  with  modern  technological  capabilities  for  detecting  and 

a. 
law enforcement domain; 
b. 
tracking cross-border movements, in particular (small) vessels; 
c. 
transport, customs, fisheries control and defence; 
d. 

Improved information exchange with neighbouring third countries. 

Cross-sectoral  information  exchange  with  other  actors  in  the  maritime  domain,  such  as 

2. 
The  reaction  capability  measures  the  lapse  of  time  required  to  reach  any  cross-border 
movement  to  be  controlled  and  also  the  time  and  the  means  to  react  adequately  to  unusual 

20 

COM(2008) 68 final of 13.2.2008 (‘EUROSUR roadmap’). 

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circumstances.  The  following  operational  objectives  should  therefore  be  attained  at  national  and 
European level: 

a. 
Exchange of data, information and intelligence in close-to-real time and - whenever needed - in 
a secure manner, thereby moving from a patrolling driven to a more intelligence driven approach based 
on risk analysis; 
b. 
c. 
new baseline for risk assessment and re-arrangement of priorities. 

Effective management of personnel and resources, including sensors and patrols; 
Effect measurement, evaluating the effect of border surveillance activities, thereby providing a 

Specific objectives 

Actions envisaged 

Table interlinking problems, objectives and actions 

1a - Streamlining structures and interlinking systems at national level. 

2a - Effective management of personnel & resources. 

2c – Effect measurement. 

2a - Exchange of data, information and intelligence in close-to-real time. 

1d - Improved information exchange with neighbouring third countries. 

Establishment of a national coordination 
centre (NCC) and of the Frontex Situation 
Centre (FSC). 

Setting up of the EUROSUR network, 
interlinking NCCs and Frontex. 

Setting up of the Common Pre-Frontier 
Intelligence Picture. 

Interlinking EUROSUR with regional 
networks set up between Member States and 
neighbouring third countries. 

1b - Use of data fusion combined with technological capabilities for 
detecting and tracking cross-border movements. 

Setting up of a service for the common 
application of surveillance tools at EU level. 

1c - Cross-sectoral information exchange with other actors in the maritime 
domain 

1.3.4. 

Indicators of results and impact 

Specify the indicators for monitoring implementation of the proposal/initiative. 

Frontex  shall  ensure  that  methods  are  in  place  to  monitor  the  functioning  of  EUROSUR  against  the 
main policy objectives, taking into account the following indicators:21 
Impact indicators22 
Reduced number of irregular migrants entering the Schengen undetected; 
Reduced death toll of migrants at sea; 
Reduced cross-border crime, in particular of drugs smuggled across the external borders. 
Result and output indicators23 
Increased situational awareness at the external borders and in the pre-frontier area; 
Improved interagency cooperation at national level; 
Improved cooperation between Member States as well as with Frontex; 
Increased cooperation with neighbouring third countries. 

21 
22 

23 

Compare Chapter 8 of the accompanying impact assessment. 
In  comparison  to  the  figures  for  2011  as  provided  in  the  Frontex  risk  analysis  reports  and  relevant  reports  of 
EUROPOL. These indicators will also dependent on factors outside of EUROSUR, such as changes in the political 
and economic situation in neighbouring third countries. 
In  comparison  to  the  current  situation  as  described in  the  impact  assessment  accompanying  the  proposal  for  the 
EUROSUR Regulation. 

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Increased technical and operational capability to detect and track small boats; 
Increased exchange of unclassified and classified information in close-to-real time; 
Increased capability to react to alerts, incidents and other events at the external borders. 

1.4. 

Grounds for the proposal/initiative  

1.4.1.  Requirement(s) to be met in the short or long term 

The  EU  will  continue  to  face  a  number  of  general  and  specific  problems  in  the  field  of  border 
surveillance in the period 2012-2020, which are addressed by EUROSUR.24 

The EU faces considerable pressure from irregular migration at its external borders, which is expected 
to continue over the coming years. The use of small unseaworthy boats has increased dramatically the 
number  of  migrants  drowning  in  the  Mediterranean  Sea,  which  poses  a  major  challenge  to  law 
enforcement authorities because it is extremely difficult to detect and track such small boats on the high 
seas.  Criminal  networks  involved  in  the  smuggling  of  migrants  are  often  using  the  same  routes  and 
methods for cross-border crime activities, such as trafficking in human beings and drugs. An improved 
interagency cooperation between border control and police authorities should contribute significantly to 
fighting such serious crimes at the external borders. 

Criminal networks are often faster and more flexible in changing their routes and methods for 
irregular  migration  and  cross-border  crime  than  Member  States'  authorities  in  reacting  to 
changed situations. One reason for this delayed reaction is that in some Member States, up to 
six different authorities are directly involved in the surveillance of maritime borders, without 
clear rules and workflows for cooperation and information exchange among them. However, 
there  is  not  only  a  lack  of  coordination  inside  some  Member  States,  but  also  in  between 
Member States, due to the absence of proper procedures, networks or communication channels 
to exchange information. The migration pressure presents considerable challenges also for the 
third  countries  located  on  the  southern  shores  of  the  Mediterranean  Sea.  It  is  therefore 
necessary  to  cooperate  more  closely  with  the  countries  of  origin  and  the  countries  of 
embarkation of irregular migrants. 

1.4.2.  Added value of EU involvement 

In  line  with  the  principle  of  subsidiarity,25  EUROSUR  follows  a  decentralised  approach,  with  the 
national  coordination  centres  for  border  surveillance  forming  the  backbone  of  the  EUROSUR 
cooperation. By interlinking existing national and European systems and developing new capabilities, 
EUROSUR  enables  Member  States'  border  control  authorities  and  Frontex  to  communicate  and 
exchange  information  in  order  to  have  better  situational  awareness  at  the  external  borders,  thus 
bringing true added value to border surveillance.  

Better information sharing will help to identify targets such as boats used for irregular migration and 
cross-border crime more accurately and therefore allow a more targeted timely and cost-efficient use of 
available equipment for interception. This is an objective which cannot be sufficiently achieved by the 
Member States alone and which can be better achieved at Union level.  

24 
25 

Compare Chapters 3.2 and 3.3 of the accompanying impact assessment. 
Compare Chapter 3.5 of the accompanying impact assessment. 

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1.4.3.  Lessons learned from similar experiences in the past 

The  EUROSUR  initiative  builds  on  experiences  collected  in  the  past,  such  as  under  the  European 
Patrols  Network  (EPN)  coordinated  by  Frontex.  Furthermore,  the  intention  is  to  make  best  use  of 
existing  national  border  control  infrastructures  in  combination  with  operational  international  and 
European  systems  as  well  as  recent  technological  developments  (e.g.  use  of  satellites).  In  particular 
with  regard  the  use  of  modern  technology,  EUROSUR  is  taking  advantage  of  a  number  of  research 
projects carried out under the 7th Framework Programme for Research and Development (FP7).26 

1.4.4.  Coherence and possible synergy with other relevant instruments 

By making best-use of existing systems, capabilities and funding programmes available at Union level, 
EUROSUR aims at ensuring the best possible coherence and synergies with other relevant instruments.  

26 

See lists of projects in Annex 1.5 of the  

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1.5. 

Duration and financial impact  

(cid:59) Proposal/initiative of limited duration  

–  (cid:133)  Proposal/initiative in effect from [DD/MM]YYYY to [DD/MM]YYYY  

–  (cid:59)  Financial impact from 2014 to 2020 

(cid:133) Proposal/initiative of unlimited duration 

–  Implementation with a start-up period from YYYY to YYYY, 

–  followed by full-scale operation. 

1.6.  Management mode(s) envisaged27  

(cid:59) Centralised direct management by the Commission  

(cid:59) Centralised indirect management with the delegation of implementation tasks to: 

–  (cid:133)  executive agencies  

–  (cid:59)  bodies set up by the Communities28  

–  (cid:133)  national public-sector bodies/bodies with public-service mission  

–  (cid:133)  persons entrusted with the implementation of specific actions pursuant to Title V of the 
Treaty  on  European  Union  and  identified  in  the  relevant  basic  act  within  the  meaning  of 
Article 49 of the Financial Regulation  

(cid:59) Shared management with the Member States  

(cid:133) Decentralised management with third countries  

(cid:133) Joint management with international organisations (to be specified) 

If more than one management mode is indicated, please provide details in the "Comments" section. 

The  different  components  of  EUROSUR  will  be  mainly  implemented  by  Frontex  and  by  Member 
States (shared management) on the basis of the 2008 EUROSUR roadmap (COM(2008)68final).With 
regard to setting up the national coordination centres, Member States will be supported by the External 
Borders  Fund  in  2012-2013  and  the  instrument  for  financial  support  for  external  borders  and  visa  as 
part of the planned Internal Security Fund in 2014-2020. On the other hand, Frontex will use its own 
budget to set up the EUROSUR network and other horizontal components of EUROSUR, such as the 
Common Pre-frontier Intelligence Picture and when necessary, this is completed by support under the 
Internal Security Fund (direct or indirect centralised financial management). 

27 

28 

Details  of  management  modes  and  references  to  the  Financial  Regulation  may  be  found  on  the  BudgWeb  site: 
http://www.cc.cec/budg/man/budgmanag/budgmanag_en.html 
As referred to in Article 185 of the Financial Regulation. 

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Funding provided under the 7th Framework Programme for Research and Development will support the 
setting up of the envisaged service for the common application of surveillance tools in 2012-2013. 

Measures in neighbouring third countries will be supported in 2012-2013 by the Thematic Programme 
for Asylum and Migration , as part of the Development Cooperation Instrument. 

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2. 

MANAGEMENT MEASURES  

2.1.  Monitoring and reporting rules  

Specify frequency and conditions. 

Two years after EUROSUR is fully operational and every year thereafter, Frontex shall submit to the 
Comission a report on the technical and operational functioning of EUROSUR, taking into account the 
above mentioned indicators.29 Moreover three years after the EUROSUR system would have started all 
its operations and every four years thereafter, the Commission shall produce an overall evaluation of 
EUROSUR, including examining results against objectives and assessing the continuing validity of the 
underlying  rationale.  The  fist  evaluation  is  expected  to  take  place  in  2016  under  the  condition  of 
EUROSUR  becoming  operational  as  of  2013.  The  Commission  should  submit  the  reports  on  the 
evaluation to the European Parliament and the Council, accompanied, where necessary, by appropriate 
proposals to amend the Regulation establishing EUROSUR. 

2.2.  Management and control system  

2.2.1.  Risk(s) identified  

–  The  cost  estimates  provided  in  the  accompanying  impact  assessment  have  been  developed  on  the 
basis  of  data  provided  by  Member  States,  EU  agencies  and  the  private  sector  and  verified  by  the 
external  contractor  for  the  technical  study  assessing  the  financial  impact  of  EUROSUR  (GHK). 
They constitute a best estimate of costs of implementing the policy options under consideration on 
the basis of their description in the 2008 EUROSUR roadmap and subsequent technical documents. 
Adjustments to the scope, organisational and governance structures, technical requirements, nature 
of  the  provision  of  services  and  phasing  of  implementation  of  the  EUROSUR  roadmap  would  be 
expected to lead to changes in the costs of providing those services. 

–  Due to the fact that the different components and steps identified in the 2008 EUROSUR roadmap 
(COM(2008)68final)  are  being  developed,  tested  and  implemented  in  parallel.  The  reason  for  this 
approach is that the usual life cycle for developing a system, in which one step builds on the results 
of the previous one and in which the implementation of the system follows its development, would 
be too time consuming. Attention has to be paid when merging the results of the different steps into 
one  common  framework.  This  coherence  can  be  achieved  best  by  legislation,  clearly  defining  the 
different content of the components as well as the roles and responsibilities of the different actors. 

2.2.2.  Control method(s) envisaged  

The  management  and  control  systems  established  under  the  different  financial  programmes  (e.g. 
Internal  Security  Fund)  used  will  be  applied.  Furthermore,  it  is  envisaged  to  use  internal  (e.g.  Joint 
Research Centre) as well as external expertise (e.g. external contractors) to ensure a proper and smooth 
implementation of the different components of EUROSUR. 

2.3.  Measures to prevent fraud and irregularities  

Specify existing or envisaged prevention and protection measures. 

Anti-fraud measures established at national and European level fully apply. 

29 

Compare Chapter 8 of the accompanying impact assessment. 

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3. 

3.1. 

ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE  

Heading(s)  of  the  multiannual  financial  framework  and  expenditure  budget  line(s) 
affected  

•  Existing expenditure budget lines30 

In order of multiannual financial framework headings and budget lines. 

Heading of 
multiannual 
financial 
framework 

Number 

Budget line 

3a  

3a 

18 02 03 02 - Frontex 

18 02 06 – External Borders Fund 

•  New budget lines requested  

Type of  
expenditure

Diff. (31) 

Contribution  

from 
EFTA32 
countries 

from 
candidate 
countries33 

from third 
countries 

within the meaning 
of Article 18(1)(aa) 
of the Financial 
Regulation  

Diff 

Diff 

NO 

NO 

NO 

NO 

NO 

YES 

NO 

NO 

In order of multiannual financial framework headings and budget lines. 

Heading of 
multiannual 
financial 
framework 

Number  

Budget line 

Type of 
expenditure

Contribution  

Diff./non-
diff. 

from 
EFTA 
countries 

from 
candidate 
countries 

from third 
countries 

within the meaning 
of Article 18(1)(aa) 
of the Financial 
Regulation  

3 

3 

30 

31 
32 
33 

18 02 cc - Internal Security Fund – 
Borders & Visas 

Diff 

NO 

NO 

YES 

18 02 05 02 - Frontex 

Diff 

NO 

NO 

NO 

NO 

NO 

These budget lines are being used for the gradual development and testing of the different EUROSUR components 
until-2013.  Taking  into  account  that  the  proposed  EUROSUR  Regulation  should  enter  into  force  at  the  end  of 
2013, the financial legal statement is limited to the time period of 2014-2020. An overview of the costs spent on 
developing EUROSUR in 2008-2010 and on the estimated costs for EUROSUR in 2011-2020 can be found in the 
accompanying impact assessment. 
Diff. = Differentiated appropriations / Non-Diff. = Non-differentiated appropriations 
EFTA: European Free Trade Association.  
Candidate countries and, where applicable, potential candidate countries from the Western Balkans. 

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3.2. 

Estimated impact on expenditure for 2014-202034 

3.2.1. 

Summary of estimated impact on expenditure  

Heading of multiannual financial 
framework:  

Number 3 

Security and Citizenship 

EUR million (to 3 decimal places) 

DG: HOME 

(cid:121) Operational appropriations  

Internal Security Fund35 

18 02 03 0236 

of 

administrative 
Appropriations 
 from the envelope for specific programmes37  
Number of budget line 

an 

Year 
2014 

Year 
2015 

Year 
2016 

Year 
2017 

Year 
2018 

Year 
2019 

Year 
2020 

Commitments 

Payments 

Commitments 
Payments 

(1) 

(2) 

(1a) 

(2a) 

nature 

financed 

14,107 

16,111 

16,111 

16,411 

16,411 

16,411 

16,411 

1,915 

3,997 

7,720  

12,130 

15,751 

16,266 

16,347 

20,601 
10,301 

19,997 
20,299 

18,290 
19,144  

18,290 
18,290 

18,290 
18,290 

18,290 
18,290 

18,290 
18,290 

Sub-
sequent 
years 

TOTAL 

37,848 

  111,973 
1111,97
3 
  132,048 
9,145  132,048 

TOTAL appropriations 

Commitments 

(3) 

=1+1a 
+1b+1c 

0 

0 

0 

0 

0 

0 

0 

0 

34,708 

36,108 

34,401 

34,701 

34,701 

34,701 

34,701 

  244,021 

34 
35 

36 

37 

An overview of the total estimated costs for 2011-2020 can be found in the accompanying impact assessment. 
This budget line covers the following costs: 1) 75% EU co-funding of the operational costs for national coordination centres (NCCs) in the 24 Member States 
with land and maritime external borders, insofar as these costs are programmed by the Member States using the Union budget; 2) Costs of the service for the 
common  application  of  surveillance  tools,  which  should  also  be  co-funded  from  relevant  European  space  programmes,  including  the  operational  Global 
Monitoring for Environment and Security (GMES), to the extent available in 2014-2020. 3) Costs for interlinking EUROSUR with regional networks set up 
between Member States and neighbouring third countries. 4) Any other costs needed to implement EUROSUR. 
For  operational  costs  for  the  Frontex  Situation  Centre  (FSC).  the  network  interlinking  the  NCCs  and  Frontex,  and  the  Common  Pre-Frontier  Intelligence 
Picture. It is envisaged that between MEUR 5-10 per year of these estimates shall be covered by the Frontex budget and between MEUR 10-15 per year by the 
Internal Security Fund. The exact amounts to be financed by Frontex will be defined in the annual budgetary procedure.. 
Technical and/or administrative assistance and expenditure in support of the implementation of EU programmes and/or actions (former "BA" lines), indirect 
research, direct research. 

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for DG HOME 

Payments 

12,215 

24,296 

26,864  

30,420 

34,041 

34,556 

34,637 

46,993  244,021 

(cid:121) TOTAL operational appropriations  

Commitments 

Payments 

(cid:121)  TOTAL  appropriations  of  an  administrative  nature 
financed from the envelope for specific programmes  

(4) 

(5) 

(6) 

34,708 

36,108 

34,401 

34,701 

34,701 

34,701 

34,701 

  244,021 

12,215 

24,296 

26,864  

30,420 

34,041 

34,556 

34,637 

46,993  244,021 

0 

0 

0 

0 

0 

0 

0 

0 

TOTAL appropriations  
under HEADING 3 
of the multiannual financial framework 
(Reference amount) 

Commitments 

=4+ 6 

34,708 

36,108 

34,401 

34,701 

34,701 

34,701 

34,701 

  244,021 

Payments 

=5+ 6 

12,215 

24,296 

26,864  

30,420 

34,041 

34,556 

34,637 

46,993  244,021 

Heading of multiannual financial 
framework:  

5 

" Administrative expenditure " 

Year 
2014 

Year 
2015 

Year 
2016 

Year 
2017 

Year 
2018 

Year 
2019 

Year 
2020 

Sub-
sequent 
years 

TOTAL 

EUR million (to 3 decimal places) 

DG: HOME 

(cid:121) Human resources  
(cid:121) Other administrative expenditure  

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

0 

0 

0 

0 

0 

0 

0 

TOTAL DG HOME 

Appropriations  

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

1,778 

0 

1,778 

EN 

36 

E

 
  
 
 
 
 
 
 
 
 
 
 
 
TOTAL appropriations 
under HEADING 5 
of the multiannual financial framework  

(Total 
= Total payments) 

commitments 

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

1,778 

Year 
2014 

Year 
2015 

Year 
2016 

Year 
2017 

Year 
2018 

Year 
2019 

Year 
2020 

TOTAL 

EUR million (to 3 decimal places) 

TOTAL appropriations  
under HEADINGS 1 to 5 
of the multiannual financial framework  

Commitments 

34,962 

36,362 

34,655 

34,955 

34,955 

34,955 

34,955 

  245,799 

Payments 

12,469 

24,550 

27,118  

30,674 

34,295 

34,810 

34,891 

46,993  245,799 

EN 

37 

E

 
  
 
 
 
 
 
 
3.2.2.  Estimated impact on operational appropriations  

–  (cid:133)  The proposal/initiative does not require the use of operational appropriations  

–  (cid:59)  The proposal/initiative requires the use of operational appropriations, as explained below: 

Indicate 
objectives and 
outputs  

Type of 
output38 

(cid:216) 

Avera
ge 
cost  
of the 
output 

r
e
b
m
u
N

s
t
u
p
t
u
o

f
o

SPECIFIC OBJECTIVES  

N 1a, 2a & 2c39 

2014 

2015 

2016 

2017 

2018 

2019 

2020 

TOTAL 

OUTPUTS 

Cost 

r
e
b
m
u
N

s
t
u
p
t
u
o

f
o

Cost 

r
e
b
m
u
N

s
t
u
p
t
u
o

f
o

Cost 

r
e
b
m
u
N

s
t
u
p
t
u
o

f
o

Cost 

r
e
b
m
u
N

s
t
u
p
t
u
o

f
o

Cost 

r
e
b
m
u
N

s
t
u
p
t
u
o

f
o

Cost 

r
e
b
m
u
N

s
t
u
p
t
u
o

f
o

Cost 

Total 
numbe
r of 
output
s 

Total 
cost 

- Output40 

- Output41 

Centre 

2,179 

24 

7,470 

24 

7,470 

Centre 

75,765 

1 

11,316 

1 

12,164 

Sub-total for specific objectives 
N 1a, 2a & 2c 

SPECIFIC OBJECTIVE No 2a42 

25 

18,786 

25 

19,634 

24 

1 

25 

7,470 

10,457 

17,927 

- Output43 

Network 

33,071 

- Output44 

Picture 

23,212 

1 

1 

5,969 

3,316 

1 

1 

4,517 

3,316 

1 

1 

4,517 

3,316 

24 

1 

25 

1 

1 

7,470 

24 

7,470 

24 

7,470 

24 

7,470 

10,457 

1 

10,457 

1 

10,457 

1 

10,457 

24 

1 

52,29 

75,765 

17,927 

25 

17,927 

25 

17,927 

25 

17,927 

25 

128,055

4,517 

3,316 

1 

1 

4,517 

3,316 

1 

1 

4,517 

3,316 

1 

1 

4,517 

3,316 

1 

1 

33,071 

23,212 

38 
39 
40 
41 
42 
43 
44 

Outputs are products and services to be supplied (e.g.: number of student exchanges financed, number of km of roads built, etc.). 
See Section 1.4.2: 1a - Streamlining structures and interlinking systems at national level; 2a - Effective management of personnel & resources; 2c – Effect measurement. 
75% EU co-funding of the operational costs for national coordination centres (NCCs) in the 24 Member States with land and maritime external borders. 
Operational costs for the Frontex situation centre (FSC). 
2a - Exchange of data, information and intelligence in close-to-real time. 
Operational costs for the network connecting the national coordination centres and Frontex. 
Operational costs for the Common Pre-Frontier Intelligence Picture (CPIP). 

EN 

38 

EN 

 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
Sub-total for specific objective 
N°2a 

SPECIFIC OBJECTIVE No 1d45 

- Output46 

Networks  537,75 

Sub-total for specific objective 
N°1d 

SPECIFIC OBJECTIVES No 1b & 
1c47 

- Output48 

Service 

Sub-total for specific objectives N° 
1b & 1c 

2 

9,285 

2 

7,833 

2 

7,833 

2 

7,833 

2 

7,833 

2 

7,833 

2 

7,833 

2 

56,283 

4 

4 

951 

0,951 

4 

4 

0 

0 

4 

4 

0 

0 

4 

4 

300 

0,300 

4 

4 

300 

0,300 

4 

4 

300 

0,300 

4 

4 

300 

0,300 

4 

4 

2,151 

2,151 

1 

1 

5,686 

5,686 

1 

1 

8,641 

8,641 

1 

1 

8,641 

8,641 

1 

1 

8,641 

8,641 

1 

1 

8,641 

8,641 

1 

1 

8,641 

8,641 

1 

1 

8,641 

8,641 

1 

1 

57,532 

57,532 

TOTAL COST 

32 

37,198 

32 

38,688 

32 

36,891 

32 

37,191 

32 

37,191 

32 

37,191 

32 

37,191 

32 

244,021

45 
46 
47 

48 

EN 

1d - Improved information exchange with neighbouring third countries. 
Interlinking EUROSUR with regional networks set up between Member States and neighbouring third countries. 
1b - Use of data fusion combined with technological capabilities for detecting and tracking cross-border movements; 1c - Cross-sectoral information exchange with other 
actors in the maritime domain. 
Operational costs for the service for the common application of surveillance tools at EU level. 

39 

EN 

 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
3.2.3.  Estimated impact on appropriations of an administrative nature 

3.2.3.1.  Summary  

–  (cid:133)  The  proposal/initiative  does  not 

require 

the  use  of  administrative 

appropriations  

–  (cid:59)  The  proposal/initiative  requires  the  use  of  administrative  appropriations,  as 

explained below: 

EUR million (to 3 decimal places) 

Year 
201449 

Year 
2015 

Year 
2016 

Year 
2017 

Year 
2018 

Year 
2019 

Year 
2020 

TOTAL 

HEADING 5 
of the multiannual 
financial framework 

Human resources  

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

1,778 

Other administrative 
expenditure  

Subtotal HEADING 5 
of the multiannual 
financial framework  

Outside HEADING 550 
of the multiannual 
financial framework  

Human resources  

Other expenditure  
of an administrative 
nature 

Subtotal  
outside HEADING 5 
of the multiannual 
financial framework  

0 

0 

0 

0 

0 

0 

0 

0 

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

1,778 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

TOTAL 

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

0,254 

1,778

49 
50 

Year N is the year in which implementation of the proposal/initiative starts. 
Technical  and/or  administrative  assistance  and  expenditure  in  support  of  the  implementation  of  EU 
programmes and/or actions (former "BA" lines), indirect research, direct research. 

EN 

40 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
3.2.3.2.   Estimated requirements of human resources  

–  (cid:133)  The proposal/initiative does not require the use of human resources  

–  (cid:59)  The  proposal/initiative  requires  the  use  of  human  resources,  as  explained 

below:51 

Estimate to be expressed in full amounts (or at most to one decimal place) 

Year 
2014 

Year 
2015 

Year 
2016 

Year 
2017 

Year 
2018 

Year 
2019 

Year
2020 

(cid:121) Establishment plan posts (officials and temporary agents) 

18 01 01 01 (Headquarters and Commission’s 
Representation Offices) 

2 AD 

2 AD 

2 AD 

2 AD 

2 AD 

2 AD 

2 AD 

XX 01 01 02 (Delegations) 

XX 01 05 01 (Indirect research) 

10 01 05 01 (Direct research) 

(cid:121) External personnel (in Full Time Equivalent unit: FTE)52 

XX 01 02 01 (CA, INT, SNE from the "global 
envelope") 

XX 01 02 02 (CA, INT, JED, LA and SNE in 
the delegations) 

XX 01 04 yy 53 

- at Headquarters54 

- in delegations  

XX 01 05 02 (CA, INT, SNE - Indirect research) 

10 01 05 02 (CA, INT, SNE - Direct research) 

Other budget lines (specify) 

TOTAL 

2 AD 

2 AD 

2 AD 

2 AD 

2 AD 

2 AD 

2 AD 

XX is the policy area or budget title concerned. 

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, together if necessary 
with any additional allocation which may be granted to the managing DG under the annual 
allocation procedure and in the light of budgetary constraints. 

Description of tasks to be carried out: 

Officials and temporary agents 

Monitoring of and support for the daily management of EUROSUR. 

External personnel 

51 

52 

53 
54 

The  2  AD  posts  referred  to  in  the  table  below  are  included  in  the  proposal  for  the  Regulation 
establishing the Internal Security Fund. 
CA= Contract Agent; INT= agency staff ("Intérimaire"); JED= "Jeune Expert en Délégation" (Young 
Experts in Delegations); LA= Local Agent; SNE= Seconded National Expert;  
Under the ceiling for external personnel from operational appropriations (former "BA" lines). 
Essentially  for  Structural  Funds,  European  Agricultural  Fund  for  Rural  Development  (EAFRD)  and 
European Fisheries Fund (EFF). 

EN 

41 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
3.2.4.  Compatibility with the current and the next multiannual financial framework  

–  (cid:59)  Proposal/initiative is compatible the current and the next multiannual financial 

framework. 

–  (cid:133)  Proposal/initiative  will  entail  reprogramming  of  the  relevant  heading  in  the 

multiannual financial framework. 

Explain what reprogramming is required, specifying the budget lines concerned and the corresponding 
amounts. 

–  (cid:133)  Proposal/initiative requires application of the flexibility instrument or revision 

of the multiannual financial framework55. 

Explain what is required, specifying the headings and budget lines concerned and the corresponding 
amounts. 

3.2.5.  Third-party contributions  

–  (cid:59)  The proposal/initiative does not provide for co-financing by third parties  

–  (cid:133)  The proposal/initiative provides for the co-financing estimated below: 

Appropriations in EUR million (to 3 decimal places) 

Year 
N 

Year 
N+1 

Year 
N+2 

Year 
N+3 

… enter as many years as 
necessary to show the duration 
of the impact (see point 1.6) 

Total 

Specify  the  co-financing 
body  

TOTAL appropriations 
cofinanced  

55 

See points 19 and 24 of the Interinstitutional Agreement. 

EN 

42 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                 
Estimated impact on revenue  

–  (cid:59)  Proposal/initiative has no financial impact on revenue. 

–  (cid:133)  Proposal/initiative has the following financial impact: 

(cid:133) 

(cid:133) 

on own resources  

on miscellaneous revenue  

Appropriation
s available for 
the ongoing 
budget year 

Budget revenue line: 

Article …………. 

EUR million (to 3 decimal places) 

Impact of the proposal/initiative56 

Year 
N 

Year 
N+1 

Year 
N+2 

Year 
N+3 

… insert as many columns as necessary 
in order to reflect the duration of the 
impact (see point 1.6) 

For miscellaneous assigned revenue, specify the budget expenditure line(s) affected. 

Specify the method for calculating the impact on revenue. 

56 

As regards traditional own resources (customs duties, sugar levies), the amounts indicated must be net 
amounts, i.e. gross amounts after deduction of 25% for collection costs. 

EN 

43 

   EN