COMMISSION STAFF WORKING PAPER EXECUTIVE SUMMARY OF THE IMPACT ASSESSMENT
Date: 2011-12-14
Institutions: European Commission
Subjects: EU programme, European citizenship, European identity, citizens' Europe, social participation

EUROPEAN COMMISSION 

Brussels, 14.12.2011 
SEC(2011) 1563 final 

COMMISSION STAFF WORKING PAPER 

EXECUTIVE SUMMARY OF THE IMPACT ASSESSMENT 

Accompanying the document 

Proposal for a REGULATION OF THE COUNCIL establishing for the period 2014-
2020 the programme "Europe for Citizens" to promote European citizenship 

{COM(2011) 884 final} 
{SEC(2011) 1562 final} 

 
 
 
 
  
 
1. 

EXECUTIVE SUMMARY 

1.1. 

Problem definition 

Encouraging  and  facilitating citizens'  wider involvement  in  the  European  Union  and  what  it 
stands for is of great significance and importance. This ranges from the need to increase their 
involvement in current affairs right back to the need of ensuring a broader understanding of 
the history of the Union and its origins in the aftermath of two horrific world wars. Previous 
citizens'  programmes  have  tackled  these  challenges  with  success  and  there  is  a  substantial 
need for the continuation of this work at EU-level to address these issues. 

The problem which the programme addresses is the lack of capacity of citizens' organisations 
- general interest organisations, different types of NGOs, stakeholder organisations, different 
groups of intermediaries - to launch and/or influence genuine debates on EU related issues at 
local, regional and national levels, which can be translated into a pan-European perspective. 
As long as this persists, citizens are not encouraged to link and to upscale their commitment 
and 
level.  Increased 
understanding about the EU, acquaintance with the historical foundations and values on which 
the  Union  is  built,  and  knowledge  about  the  impact  of  EU  policies  on  people's  daily  lives 
allows  citizens  to  fully  benefit  from  the  advantages  of  European  citizenship  and  to  connect 
with the mission of the EU. 

their  engagement  for  democratic  principles 

the  European 

to 

The  challenge  is  to  reach  out  through  intermediaries  to  large  groups  of  citizens  who  would 
normally  not  seek  to  influence  or  take  part  in  EU  affairs  and  to  facilitate  the  first  steps 
towards  involvement  in  EU  related  topics  across  national  borders  or  with  a  European 
dimension.  There  is  a  need  for  a  horizontal  approach  that  does  not  aim  to  replace  specific 
dialogues or consultation processes at the EU level, but to mobilise citizens at local level to 
debate concrete issues of European interest. 

The  current  Europe  for  Citizens  programme  2007-2013  is  an  important  instrument  which 
provides a framework for greater citizens' participation in EU affairs. However, it needs to be 
built upon by further intervention so as to provide the incentive for civic participation in EU 
affairs,  and  a  real  catalyst  for  European  citizens'  associations  to  become  more  involved  in 
such matters.  

The ambitious challenge that the new "Europe for Citizens" Programme proposes to tackle is 
three-fold: 

(1) 

(2) 

(3) 

develop civil society capacity to participate in the EU policy making process; 

develop supportive structures to channel the results of such debates to policy-makers 
at the relevant levels; and 

offer  opportunities  for  citizens  to  participate  in  debates  and  discussions  on  EU-
related issues, including from an historical perspective. 

The programme aims to address the need for more genuine debates on EU related issues at the 
local,  regional  and  national  levels,  which  can  be  translated  into  a  broader  European 
perspective. It seeks to reach out to a large number of citizens – those who would normally 
not seek to influence or take part in EU affairs – through a broad set of organisations to take a 

EN 

2 

   EN 

 
first  step  towards  involvement,  whatever  the  (EU  related)  topic  or  format,  as  long  as  it  is 
transnational  or  has  a  European  dimension.  With  its  horizontal  approach,  its  aim  is  not  to 
replace other initiatives, or to duplicate consultations at EU-level, but to mobilise citizens at 
"grass  roots"  level  to  debate  concrete  issues  of  European  interest  and  to  develop  a  deeper 
involvement in EU affairs.  

The programme will build on the analysis of the strengths and the weaknesses of the current 
“Europe  for  Citizens”  programme  (2007-2013),  as  regards  its  future  programme  design, 
targeting,  out-reach  and  visibility  in  societal  and  geographical  terms,  impact  analysis  and 
valorisation/dissemination mechanisms. 

1.1.1.  Financial framework 

The  proposed  financial  frame  was  set  on  29  June  2011,  when  the  European  Commission 
presented  its  multi-annual  financial  framework  (MFF)  for  the  period  2014-2020.  The 
indicative  budget  adopted  for  the  future  Europe  for  Citizens  programme  was  €203  million 
with an estimated distribution of €29 million per year.  

1.2. 

Subsidiarity 

Article  11  of  the  Treaty  on  European  Union  (TEU)  stipulates  the  EU  institutions'  tasks  of 
giving citizens and representative organisations the opportunity to make known and publicly 
exchange their views in all areas of Union action. The same article refers to the institutions' 
duty to have  an  open, transparent and  regular dialogue with  civil society, the Commission's 
obligation of carrying out broad consultations with stakeholders, and introduces the Citizen's 
Initiative.  Moreover,  Article  20  of  the  Treaty  on  the  Functioning  of  the  European  Union 
(TFEU) describes the rights deriving from Union citizenship. In order to empower citizens to 
fully enjoy these rights a better understanding of the EU is an important precondition. 

Appropriate  means  to  ensure  the  achievement  of  these  Treaty  provisions  require  to  be 
provided.  The  "Europe  for  Citizens"  programme  represents  one  of  these  means,  just  as, 
Regulation 211/2011 of the European Parliament and of the Council on the citizens’ initiative, 
represents another. 

The Treaties call upon the EU "to give citizens and representative associations the opportunity 
to make known their views in all areas of Union action" and to "maintain an open, transparent 
and regular dialogue with representative associations and civil society". While a broad range 
of  programmes  and  EU  practice  ensure  dialogues  in  sectoral  policy  areas,  the  Europe  for 
Citizens programme provides  this opportunity  at a horizontal level.  By this,  the  Programme 
respects  the  subsidiarity  principle.  These  tasks  can  only  be  met  by  the  EU,  and  not  at  the 
Member State level. 

The  Programme  also  respects  the  proportionality  principle.  A  programme  (as  opposed  to  a 
recommendation) provides a flexible instrument, is open to all actors on equal terms, delivers 
on capacity building and addresses a changing political situation. 

1.3. 

Objectives of the initiative 

The  general  objective  of  a  future  programme  will  be  to:  "strengthen  remembrance  and 
enhance capacity for civic participation at the EU level". It answers to the need for a genuine 
debate on EU related issues at the local, regional and national levels that can be translated into 
a  pan-European  perspective,  and  the  related  need  for  supportive  structures  to  channel  the 
results of such debates to policy-makers at the relevant levels. In this regard, the programme 

EN 

3 

   EN 

 
would  contribute  by  developing  the  capacity  of  citizens'  organisations  to  engage  their 
members and a broader public in the democratic life of the EU. The specific objectives will 
comprise: 

(1)  Stimulate  debate,  reflection  and  cooperation  on  remembrance,  EU  integration 

and history; 

(2)  Develop  citizens'  understanding  and  capacity  to  participate  in  the  EU  policy 
making  process  and  develop  opportunities  for  solidarity,  societal  engagement 
and volunteering at EU level. 

1.3.1.  Operational objectives 

Following the narrowed down specific objectives proposed for the new Programme (above), a 
new set of operational objectives should be applied. The latter will increase the capacity of the 
Commission to set more firm indicators and subsequently be able to objectively, and more in 
detail, establish progress and impact. 

(1)  Support  organisations  to  promote  debate  and  activities  on  remembrance, 

European values and history; 

(2)  Support organisations of a general European interest, transnational partnerships 

and networks to promote citizens' interactions on EU matters; 

(3)  Horizontal dimension: Analysis, dissemination & valorisation of project results 

through internal and external activities.  

1.4. 

Policy options 

(4) 

Following  the  first  stakeholder  meeting  held  on  22  June  2010  and  in  the  period 
leading up to the Impact Assessment report, a number  of different responses to the 
problem  defined  in  Section  1  have  been  analysed.  Three  basic  policy  options  with 
their  respective  sub-options  have  been  retained,  and  given  rise  to  further 
consideration: 

(1)  Continue the "Europe for Citizens" programme in its current form; 

(2)  Continue  the  "Europe  for  Citizens"  programme  in  a  modified,  "re-vamped", 

form. Four sub-options have been considered: 

–  Mixed approach 

– 

Support for larger grants only 

–  Wider geographical coverage 

– 

Consultation tool 

(3)  Decentralise  of  the  "Europe  for  Citizens"  programme,  where  no  EU-wide 
programme would follow after the current programme comes to an end on 31 
December  2013.  Four  alternative,  decentralised  approaches  have  been 
considered: 

EN 

4 

   EN 

 
–  Member State based approach 

– 

– 

Communication approach only 

Sectoral approach 

–  Merger with other programme  

1.5. 

Comparison of options 

A comparative assessment of the three options including their respective sub-options has been 
carried out. The results are detailed below. 

1.5.1.  Continue the Programme in its current form 

This  option  is  likely  to  be  considered  insufficient  in  the  context  of  the  Commission's 
commitment  to  put  citizens  at  the  centre  of  the  European  process,  the  new  democratic 
principles introduced by the Lisbon Treaty and in light of existing criticism on the too limited 
means of the current programme. To continue the programme – without structural change to 
the  programme  leading  to  increased  efficiency,  effectiveness  and  sustainability  –  would  not 
help to overcome the current situation of unmet demand and of un-realised synergies. 

1.5.2.  Adopt a re-vamped Programme 

Option 2 presents a modified programme. It would be implemented through a more efficient 
programme architecture and strengthened exploitation of results. This new architecture would 
consist  of  two  "strands"–  Remembrance  and  European  citizenship"  and  "Democratic 
engagement and civic participation" – that would provide for a better exploitation of synergies 
among  the broad variety  of  participating organisations, for more flexibility for applicants in 
terms  of  developing  their  proposals  for  a  project  or  an  initiative  (abandoning  the  4-action-
approach  of  the  current  Programme).  A  new  cross-cutting  feature  "Valorisation"  would 
respond  to  the  overarching  concern  for  optimising  results.  Four  sub-options  have  been 
considered: 

Sub-option 1 "Mixed approach" would put overall priority on outputs by: 

(1) 

reducing pure one-off town-twinning projects to a minimum and transforming 
town-twinning projects into multi-partner projects which have a clear thematic 
orientation, some policy impact and a longer-term validity;  

(2)  mainstreaming  innovative  citizens'  projects  and  support  measures  into  the 

general multi-partner project part of the programme; 

(3) 

(4) 

striking an adequate balance of the operating grants provided to think tanks and 
EU civil society organisations as regards the number and level of subventions 
given; 

increasing the strategic focus of civil society projects by selecting  bigger and 
longer-term  projects  which  foresee  a  concrete  contribution  and  ensure  the 
feeding in of concrete ideas to the decision-making process; 

EN 

5 

   EN 

 
(5) 

increasing  available  resources  for  projects  on  remembrance  (and  broadening 
the  scope  of  actions  carried  out  in  this  area)  and  providing  opportunities  for 
projects on EU values and the history of EU integration. 

(6)  developing visibility/valorisation actions as a cross-cutting programme feature. 

Sub-option  2  "Support  for  larger  grants  only"  (300,000  –  500,000  €/proj ect)  would  mean 
economies of scale and chance for more structured work programmes, but has a considerable 
draw-back:  there  are  only  a  limited  number  of  organisations  which  have  the  necessary 
technical and organisational capacity to run big-scale projects. 

Sub-option  3  "Wider  geographical  coverage"  would  extend  the  scope  of  discussion  to 
"universal values/human rights" and also invite  neighbouring  countries. This  sub-option has 
two  draw-backs:  It  would  require  a  substantially  bigger  budget.  Moreover,  "universal 
values/human rights" might lead to such a wide scope that specific objectives could no longer 
be defined. 

Sub-option  4  "Consultation  tool"  would  use  the  programme  as  a  testing  board  for  main  EU 
policies  and/or  challenges,  for  example  setting  up  and  funding  citizens'  panels  that  would 
comment on given issues. Through such an approach, the EU institutions would gain a better 
understanding of the issues at stake, and how to communicate more efficiently its intentions to 
citizens.  It  would  also  provide  a  concrete  link  between  the  programme  and  policy  making. 
Draw-back:  it  would  require  a  substantially  bigger  budget  or  pump  out  resources  of  other 
channels of participation. 

1.5.3.  Option 3: Decentralisation of the Programme 

In comparison with Options 1 and 2, Option 3 "to decentralise the programme" would have 
the  weakest  impact  on  the  needs  identified  under  Section  1.  Several  sub-options  have  been 
analysed but discarded. 

Sub-option  1:  "Member  State  based  approach"  would  leave  it  up  to  the  Member  States  to 
develop political participation and civic engagement around common EU values. This would 
mean  total  decentralisation,  and  simplification  in  terms  of  EU  administration.  It  would  also 
mean an opportunity to fully tailor the EU debate to national concerns and perspectives. But it 
would  also  mean  a  serious  risk  of  limiting  the  scope  to  issues  which  are  of  purely  national 
interest.  There  would  be  no  policy  input  for  the  EU  institutions  from  EU-wide  umbrella 
organisations  and  think  tanks  organised  at  EU  level.  Nor  would  there  be  a  possibility  to 
stimulate EU-wide debates. 

Sub-option 2 "Communication approach only" would mean  to limit the general objective to 
communication  only  -  to  provide  information  on  EU  mission  and  policies,  and  leave  the 
participation dimension to local levels. This approach would have limited implications on the 
EU budget. At the same time, it would risk leading to a “nationalisation” of the policy issues, 
and would not respond to the need for a more participatory approach with bottom-up input to 
better respond to citizens' needs. 

Sub-option  3:  "Sectoral  approach"  would  mean  that  information  and  consultation  objectives 
would continue to be attained exclusively via sectoral dialogues: individual DGs consult their 
respective  stakeholders.  The  debate  would  be  focused  on  the  sectoral  issues  within  each 
policy  field.  In  the  absence  of  a  horizontal  instrument,  this  option  would  limit  policy  input 

EN 

6 

   EN 

 
from EU-wide umbrella organisations and think tanks organised at the EU level. There would 
also  be  limited  scope  for  supporting  capacity  building  for  civic  participation,  and  no 
possibility to support EU-wide debate on reference points in European history. 

It should be noted that the Europe for Citizens programme is a horizontal instrument that does 
not seek to replace existing forms of dialogues or consultation, but to complement them. 

Sub-option 4: "Merger with other programme". A merger with the future programme of DG 
JUST  covering  justice  and  citizenship  has  been  explored  but  was  discarded  after  careful 
examination  by  the  two  DGs  as  there  was  no  evidence  of  possible  synergies  due  to  their 
different objectives and target groups. 

Although a decentralisation of the Programme has not been automatically discarded, it must 
be  underlined  that  it  would  come  at  a  price  –  and  would  be  in  contradiction  to  the 
Commission  decision  on  the  MFF  2014-2020  –  facing  not  only  strong  opposition  from 
different  sectors  but  also  leaving  a  vacuum  in  the  promotion  of  civic  participation  and 
participatory  citizenship  at  a  European  level.  It  would  mean  the  loss  of  an  important 
instrument  for  the  fostering  of  civic  participation,  where  no  similar,  existing  horizontal 
instrument  can  cater  for  these  needs.  Several  other  instruments  aim  at  enabling  dialogue 
between  the  EU  institutions  and  citizens,  but  within  the  limits  of  their  respective  sectoral 
policies. 

In  conclusion,  Option  2  "Re-vamped  programme",  sub-option  1:  "Mixed  approach",  is  the 
preferred option.  

1.6. 

Assessment of impacts 

1.6.1.  Cost implications of the programme 

On 29 June 2011, the European Commission presented its multi-annual financial framework 
(MFF)  for  the  period  2014-20201.  The  indicative  budget  adopted  for  the  future  Europe  for 
Citizens programme was €203 million with an estimated €29 million per year. It represents a 
slight reduction from the current Programme (€215 million). These amounts do not take into 
account future correction by indexation. 

1.6.2.  Expenditure-related outputs 

The programme outputs will cover project grants (approx. 600 per year to an estimated cost of 
€15  million/year),  operational  grants  (approx.  90  per  year  to  an  estimated  cost  of  €10 
million/year)  and  service  contracts  (approx.  5  per  year  to  an  estimated  cost  of  €1 
million/year).  The  main  reason  for  proposing  an  "even"  distribution  of  outputs  over  the 
programme  period  (2014-2020)  is  the  fact  that  the  "Europe  for  Citizens"  programme  is  a 
"mature"  programme  –  no  known  or  expected  "peaks"  to  take  into  account.  The  need  for 
further engaging and involving citizens in EU matters is constant. 

1 

COM(2011)500  I  A  Budget  For  Europe  2020  -  Part  I  -  Communication  from  the  Commission  to  the 
European Parliament, the Council, the European Economic and Social Committee and the Committee of 
the Regions; COM(2011)500 II A Budget For Europe 2020 - Part II - Policy Fiches - Communication 
from  the  Commission  to  the  European  Parliament,  the  Council,  the  European  Economic  and  Social 
Committee and the Committee of the Regions. 

EN 

7 

   EN 

 
                                                 
The estimated amount of €29 million/year will al so cover the administrative costs (approx. €3 
million/year) for an executive agency to manage the programme. 

1.6.3. 

Impact on staff 

Based  on  the  experience  from  running  the  current  Europe  for  Citizens  programme,  it  is 
estimated that the new instrument would require: 

– 

– 

9 officials or temporary staff 

1 Seconded National Expert 

In total 10 persons would be assigned to the management of the actions. 

1.6.4. 

Simplification and reducing the administrative burden 

Simplification  is  already  of  key  importance  in  the  current  programme  and  will  be  further 
developed  in  the  new  one.  The  use  of  an  executive  agency  for  the  running  of  the  full 
programme cycle already saves considerably in terms of administration and human resources. 
In addition, the recourse to lump sums, flat rates and unit costs, e-applications, and efficient 
on-the-spot checks by grouping visits to organisations in the same region, further reduces the 
administrative  burden  as  well  as  saves  in  real  budgetary  terms.  The  ECORYS  midterm 
evaluation  indicates  (p.  39)  that  "there  is  some  evidence  from  beneficiary  and  stakeholder 
interviews  that  the  Executive  Agency  is  efficiently  administering  the  programme,  making 
significant  procedural  improvements  about  finance,  eligibility  criteria,  harmonisation  of 
processes  and  the  development  of  e-forms  for  applications".  It  also  highlights  the  synergy 
effects with other programmes managed by the Executive Agency.  

1.7.  Monitoring and evaluation 

The  general  objective  to  "strengthen  remembrance  and  enhance  capacity  for  civic 
participation at the EU level" will be measured against the number and quality of initiatives 
promoted by citizens' organisations that aim to: 1) have an impact on the EU policy making 
process, 2) strengthen cohesion in society, and 3) enhance the understanding of the role of the 
EU.  The  long  term  target  would  be  an  enhanced  capacity  of  civil  society  to  influence  the 
European  project.  Milestones  would  be  contributions  to  the  European  Years  in  the  form  of 
intellectual  input  or  activities  to  link  the  Years  with  the  local  and  regional  realities,  and 
contributions to political platforms in the run-up to European elections 2014-2019. A baseline 
will have to be established as the general objective is new to the programme.  

There  are  two  specific  objectives:  1)  "Stimulate  debate,  reflection  and  cooperation  on 
remembrance,  EU  integration  and  history"  and  2)  "Develop  citizens'  understanding  and 
capacity  to  participate  in  the  EU  policy  making  process  and  develop  opportunities  for 
solidarity,  societal  engagement  and  volunteering  at  EU  level".  The  first  objective  will  be 
measured against the number of projects and the quality of results, and the percentage of first 
time  beneficiaries.  The  second  objective  will  be  measured  against  the  number  of  directly 
involved  participants,  number  of  participating  organisations  and  number  of  transnational 
partnerships and networks, the geographical coverage of the activities, and the percentage of 
first  time  beneficiaries..  The  new  programme  will  have  to  establish  baselines  for  several  of 
these result indicators. 

EN 

8 

   EN 

 
The first report will be drawn up three years after the start of he programme (31 December 
2016 at the latest). The objective of this report will be to provide an initial assessment of the 
results  obtained  at  the  half-way  stage  so  that  any  changes  or  adjustments  that  are  deemed 
necessary  may  be  made  for  the  second  half  of  the  programme  (31  December  2017  at  the 
latest). 

The ex-post report on the impact of the action in question will be drawn up at the end of the 7-
year-programme (1st July 2023). The objective of this report will be to assess the comparative 
results of the support mechanisms in light of the programme objectives.  

Evaluation measures will be carried out by means of external and internal studies and surveys, 
missions and meetings. The costs relating to these measures are standard expenditure under an 
EU programme and will be covered out of the administrative budget of the future programme. 

EN 

9 

   EN