COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Second Report on the implementation of the EU Internal Security Strategy
Date: 2013-04-10
Institutions: European Commission
Subjects: European security, aid to disaster victims, border control, computer crime, external border of the EU, fight against crime, organised crime, terrorism

EUROPEAN 
COMMISSION 

Brussels, 10.4.2013  
COM(2013) 179 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

Second Report on the implementation of the EU Internal Security Strategy 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

Second Report on the implementation of the EU Internal Security Strategy 

1. 

INTRODUCTION 

1.1. 

Internal security in today’s context 

The  EU’s  Internal  Security  Strategy  is  designed  to  enable  Europe  to  respond  to  existing 
challenges and emerging threats, according to a shared approach that involves both EU actors 
and the national and local levels. 

Underpinning  the  strategy  are  the  common  values  of  respect  for  fundamental  rights  and  the 
rule  of  law,  solidarity  and  mutual  support.  The  Commission  will  continue  to  ensure  full 
respect of these values, in particular of the European Charter of Fundamental Rights. 

One of the major threats to our internal security is organised crime and its detrimental effects 
on the economy of the EU, including distortions in the internal market. 

As  an  example,  the  United  Nations  Office  on  Drugs  and  Crime  (UNODC)  estimates  that 
criminal  proceeds  are  likely  to  have  amounted  to  some  3.6 %  of  global  GDP  or  around 
US$ 2.1  trillion  in  2009.  Corruption,  fraud  and  smuggling  lead  to  huge  losses  for  the 
governments of the EU Member States at a time when the need for a stable revenue and tax 
base is essential to tackle their public deficits.  

To go after the money, and reclaim the proceeds of crime, continues to be a key aim of the 
EU’s strategy for disrupting organised criminal networks. 

The Commission has already introduced initiatives and instruments to achieve this goal, such 
as  the  Directive  on  the  freezing  and  confiscation  of  the  proceeds  of  crime  in  the  European 
Union, the Fourth Anti Money Laundering Directive, and the Directive on the protection of 
the financial interests of the EU. 

The administrative approach, providing opportunities for detecting and responding to criminal 
infiltration  of  the  economy,  also  supports  the  aim  of  redressing  imbalances  caused  among 
other things by organised crime and creating the conditions for the internal market to flourish. 
The recent establishment at Europol of the European Cybercrime Centre (EC3) is designed to 
strengthen  Europe’s  capability  to  protect  citizens,  businesses  and  governments  and  their 
infrastructure from cyber-attacks that can cause staggering economic losses. 

The ISS is based on five strategic objectives, namely disrupting international crime networks, 
preventing  terrorism,  enhancing  cybersecurity,  strengthening  border  security  and  increasing 
resilience  to  crises  and  disasters.  In  the  2011  ISS  implementation  report,  the  fight  against 
organised crime and cybercrime were identified as two main challenges to be addressed in the 
coming year. A lot has since been done, together with actions under the other objectives of the 
strategy. 

2. 

THE INTERNAL SECURITY STRATEGY IN THE PAST YEAR  

2.1. 

Strategic objective 1: Disrupt international crime networks 

The  activities  of  organised  crime  networks  are  thought  to  be  more  complex,  diverse  and 
international in scope than ever before. For example, internet-facilitated organised crime will 
continue to increase in line with the rising use of broadband internet and mobile devices. 

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The  EU  Policy  Cycle  on  serious  and  organised  crime  helps  coordinate  operational 
cooperation on crime phenomena relevant for the whole of the EU. Member States act jointly 
to fight prioritised cross-border crime, with  the support of the EU agencies and institutions. 
The  priority  crime  phenomena  are  identified  through  the  threat  assessments  produced  by 
Europol (notably, the SOCTA), based on contributions from the Member States. Currently a 
short  policy  cycle  covering  the  period  2011-2013  is  being  implemented  as  a  learning  phase 
for a full policy cycle spanning 2013-2017. 

In  early  2013  the  Commission  adopted  proposals  for  a  Fourth  Anti  Money  Laundering 
Directive1 together with a Fund Transfer Regulation2. The latter will be supplemented, later 
in  2013,  by  a  proposal  for  a  Directive  on  the  criminalisation  of  money  laundering.  This 
package  will  address  new  risks  and  threats,  notably  by  enhancing  the  transparency  of  legal 
entities. Actions against money laundering are also developed outside the EU by the External 
Action Service in cooperation with regional platforms in Africa and Latin America.  
A  proposal  for  a  Directive  on  the  counterfeiting  of  currencies3  was  also  adopted  in  early 
2013. The proposal lays down in particular new criminal sanctions. Another important feature 
is  the  obligation  of  the  Member  States  to  make  effective  investigative  tools  available  for 
detecting currency counterfeiting cases, equivalent to those used to combat organised or other 
serious crime.  

The proposals for a Directive on the fight against fraud to the Union’s financial interests 
by means of criminal law4 and a Directive on criminal sanctions for insider dealing and 
market  manipulation5  are  additional  criminal  law  tools  that  address  key  vulnerabilities 
pertaining to trade in the internal market and financial markets, respectively.  

The  Commission  has  continued  to  promote  a  new  EU  anti-corruption  strategic  initiative. 
This follows a two-fold approach: an ‘EU Anti-Corruption Report’ to assess Member States’ 
efforts against corruption on a regular basis, and a stronger focus on corruption across internal 
and  external  EU  policy  fields.  A  group  of  17  experts  on  corruption  and  a  network  of  local 
research  correspondents  in  all  Member  States  were  set  up  to  prepare  the  first  EU  Anti-
Corruption Report to be presented in 2013. 

The  European  National  Integrity  Systems  (ENIS)  project,  co-financed  by  the  Commission, 
was  completed  by  Transparency  International  in  2012,  covering  23  EU  Member  States, 
Norway and Switzerland. A total of 13 institutions and sectors in each country were analysed 
and  scored  for  their  capacity  to  cope  with  corruption.  Transparency  International  published 
individual  country  assessments  and  a  comparative  analytical  report.  The  recommendations 
and  conclusions  of  the  ENIS  assessments  are  among  the  sources  considered  in  the  work  on 
the EU Anti-Corruption Report. 

Confiscation  of  criminal  wealth  can  effectively  combat  crime  as  it  attacks  the  financial 
incentive of criminals, protects the economy against criminal infiltration and corruption, and 
helps restore social justice. A proposal for a Directive on the Freezing and Confiscation of 
Proceeds of Crime in the EU6 was adopted by the Commission to make it easier to freeze 
and  confiscate  the  profits  from  serious  and  organised  crime  in  the  European  Union  through 
common minimum rules, and thus protect the licit economy. 

1 
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3 
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6 

COM(2013) 45/3. 
COM(2013) 44/2. 
COM(2013) 42 final. 
COM(2012) 363 final. 
COM(2011) 654 final. 
COM(2012) 85 final. 

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Efforts  at  the  EU  level  go  hand-in-hand  with  Member  State  initiatives,  such  as  the 
establishment of new asset recovery offices and teams in Austria, Romania and Estonia, and 
Europol’s  support  to  Member  States  through  the  Europol  Criminal  Assets  Bureau.  Some 
Member States have also put in place mechanisms to re-use confiscated assets for public and 
social purposes. 

The  Spanish  Centre  of  Excellence  on  Asset  Recovery  and  Training  (CEART)  project,  co-
financed by  the European Commission, produced  a  White  Book  on  Asset  Recovery  Offices 
which describes in detail the activities of each Office. The CEART project also included an 
international training course on asset recovery and financial investigations which was among 
the first pan-European courses available for asset recovery practitioners. 

The European Union concluded new agreements with the United States and Australia on the 
use and transfer of Passenger Name Records (PNR)7, and is close to concluding negotiations 
with Canada. These agreements enable data to be analysed by our partners to prevent, detect 
and investigate serious cross-border crimes, including terrorist offences. PNR data, not least 
by allowing the identification of persons previously ‘unknown’ to law enforcement authorities 
but posing a security risk, help disrupt criminal networks faster and more effectively.  

The  EU  Strategy  towards  the  Eradication  of  Trafficking  in  Human  Beings  2012-2016, 
adopted in June 2012, concentrates on increased prosecution of traffickers, assistance to and 
protection of victims of trafficking and prevention of trafficking in human beings, expanding 
and complementing the Directive adopted in 20118. The EU Anti-Trafficking Coordinator has 
a  key  responsibility  in  the  implementation  of  the  Strategy  with  a  view  to  improving 
coordination  and  coherence  among  relevant  actors.  The  Operational  Action  Plan  on 
Trafficking of Human Beings, co-led by the United Kingdom and the Netherlands, is one of 
the eight priority areas in the EU Policy Cycle on serious and organised crime. To enhance 
focus  and  coherence  in  the  external  dimension  of  the  EU’s  work  on  trafficking  in  human 
beings,  a  list  of  priority  non-member  countries  was  agreed  by  the  Member  States,  in  close 
cooperation  with  the  Commission,  the  European  External  Action  Service  and  the  EU 
agencies. 

Cross-border  information  exchange  within  the  EU  is  essential  to  the  fight  against  serious 
and cross-border crime. There is, however, scope for improvement. In its Communication on 
the European Information Exchange Model (EIXM), the Commission sets out a blueprint 
for  better  implementation  of  existing  EU  instruments,  more  systematic  use  of  the  Europol 
channel for information exchange, and national Single Points of Contact bringing together the 
main channels for information exchange9. 

The new EU drugs strategy 2013 – 2020 focuses among others on the dynamics in the illicit 
drug markets, including shifting drug trafficking routes, cross-border organised crime and the 
use of new communication technologies as a facilitator for the distribution of illicit drugs and 
new psychoactive substances. It has a number of objectives, among which to contribute to a 
measurable reduction of the demand for drugs, of drug dependence and of drug-related health 
and  social  risks  and  harms;  to  contribute  to  a  disruption  of  the  illicit  drugs  market  and  a 
measurable  reduction  of  the  availability  of  illicit  drugs;  to  encourage  coordination  through 
active discourse and analysis of developments and challenges in the field of drugs at EU and 
international level 

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OJ L 186, 14.7.2012, p. 4 (Australia) and OJ L 215, 11.8.2012, p. 5 (the United States). 
Directive  2011/36/EU  on  preventing  and  combating  trafficking  in  human  beings  and  protecting  its 
victims. 
COM(2012) 735 final. 

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The  ‘EU  Drug  Markets’  report  launched  in  January  2013  was  a  major  step  forward  in 
coordination between agencies in the home affairs area to combat organised crime and illicit 
drug  trafficking.  Produced  jointly  by  the  European  Monitoring  Centre  for  Drugs  and  Drug 
Addiction (EMCDDA) and Europol, the report highlighted a number of new trends, including 
mobile  amphetamine  and  ecstasy  production  and  the  explosive  growth  of  new  psychoactive 
substances  that  are  aggressively  marketed  at  young  people  via  the  internet.  Pan-European 
cooperation  and  clear  understanding  of  drug  market  developments  are  essential  to  effective 
law enforcement in this fast-changing area. 

Europol plays an important role in facilitating cross-border information exchange in the EU 
through the provision of information exchange and storage systems and a range of operational 
support services and analytical products. By the end of the third quarter of 2012, Europol had 
facilitated  the  exchange  of  over  200 000  operational  messages  and  almost  12 000  cases  had 
been  initiated.  Europol  supported  an  increasing  number10  of  high-profile  operations  in  the 
Member States through the provision of operational support services and over 600 operational 
analysis reports. Contributions of information by Member States to the Analysis Work Files 
increased by 40 per cent overall following the implementation of the priorities agreed in the 
EU Policy Cycle context, and increased by as much as 60 per cent in the area of trafficking in 
human beings. 

Cross-border cooperation and information exchange is also supported by the EU-level training 
provided  by  Cepol.  In  2012,  Cepol  provided  training  to  almost  6 000  participants  in  more 
than 100 different training activities on various topics ranging from financial crime and drugs 
trafficking to JITs, trafficking in human beings and cybercrime.  

Eurojust  remains  an  important  actor  in  judicial  cooperation  in  criminal  cases.  The  fight 
against  serious  and  organised  crime  has  been  and  continues  to  be  a  priority  for  Eurojust 
casework.  Organised  crime  groups  appear,  not  only  as  a  stand-alone  feature,  but  also  as  a 
cross-cutting characteristic that adds a more serious component to other crimes. In 2012, 231 
cases related to organised crime were registered at Eurojust compared to 197 cases in 2011.  

Another  effective  tool  in  tracing  criminals  is  the  use  of  Joint  Investigation  Teams  (JITs). 
The financing provided by Eurojust facilitates the establishment of JITs based on operational 
needs  also  at  short  notice.  Until  February  2013,  Eurojust  has  supported,  via  the  second  JIT 
Funding  Project,  87  different  JITs  based  on  252  funding  applications  received.  Most  JITs 
focus  on  drugs  and  human  trafficking,  but  they  also  targeted  money  laundering,  fraud, 
corruption and organised robbery. 

The JIT ‘Tokyo case’ was set up between Belgium, France and the United Kingdom, with the 
participation  of  Eurojust  and  Europol,  to  investigate  a  network  of  couriers  recruited  by  an 
organised crime ring in Belgium and France for international drug trafficking from Brazil and 
some central African countries to Japan via London. A joint operation took place, with several 
arrests in Belgium and the UK. Two individuals were subsequently sentenced to eight years 
imprisonment and a fine of €
 3 780 and six years and six months imprisonment and a fine of 
 30 000, respectively. 

The way forward in 2013 

The Commission will: 

• 

publish the first EU Anti-Corruption Report, including recommendations 
for Member States; 

10 

An increase of 43 per cent compared to 2011. 

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€
                                                 
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• 

• 

• 

propose a Directive on criminal penalties for money laundering; 

propose a reform of Eurojust; 

develop  a  political  initiative  to  combat  illicit  trafficking  in  firearms  to 
safeguard the internal security of the EU; 

propose  two  legislative  acts  amending  Council  Decision  2005/387/JHA  of 
10 May 2005 on the information exchange, risk-assessment and control of 
new  psychoactive 
substances  and  Council  Framework  Decision 
2004/757/JHA of 25 October 2004 laying down minimum provisions on the 
constituent  elements  of  criminal  acts  and  penalties  in  the  field  of  illicit 
drug trafficking; 

present a Regulation on setting up a European Public Prosecutor’s Office 
in  order  to  improve  the  protection  of  the  European  Union's  budget  and 
enhance criminal prosecutions in this area; 

adopt  a  Communication  on  a  comprehensive  strategy  to  fight  cigarette 
smuggling. 

Member States are encouraged to: 

•  make swift progress in negotiating the proposal for the reform of Europol 
and  Cepol,  combined  with  a  stronger  emphasis  on  training  of  law 
enforcement officials, to strengthen cross-border cooperation; 

• 

• 

• 

• 

• 

• 

conclude the discussions with the European Parliament on the Directive on 
the  freezing  and  confiscation  of  proceeds  of  crime  in  the  EU  and  on  the 
Directive on the use of PNR data for law enforcement purposes; 

continue  further  developing  the  resources  and  powers  of  their  Asset 
Recovery Offices; 

follow  up  on  the  recommendations  set  out  in  the  Communication  on  the 
European Information Exchange Model (EIXM); 

take  action,  as  set  out  in  the  EU  Strategies,  to  address  trafficking  in 
human beings and drugs; 

follow up on the recommendations set out in the upcoming first EU Anti-
Corruption Report 2013; 

implement Operational Action Plans within the policy cycle on: trafficking 
in  human  beings,  mobile  organised  crime  groups,  smuggling  of 
commodities  in  container  form,  synthetic  drugs,  drugs  routes  originating 
from West Africa, and crime originating from the Western Balkans. 

2.2. 

Strategic  objective  2:  Prevent  terrorism  and  address  radicalisation  and 
recruitment 

According  to  Europol,  although  the  overall  number  of  terrorist  attacks  in  the  EU  Member 
States  has  been  decreasing  in  recent  years,  the  terrorist  threat  currently  presents  a  highly 
diverse  picture  (Al-Qaeda-inspired,  right-  and  left-wing  or  anarchist,  separatist  and  single-
issue  terrorism),  with  a  possible  increase  in  plots  by  lone  actors  and  small,  autonomous 
groups.  In  addition,  the  geopolitical  developments  in  the  Middle  East,  the  Sahel  region  and 
the Horn of Africa will impact on the security situation in Europe. Especially, radicalised EU 

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citizens  travelling  to  and  participating  in  conflict  zones,  referred  to  as  foreign  fighters, 
returning to Europe with conflict experience, will continue to pose a threat to the EU. 

Combating  terrorism  has  remained  a  priority  for  the  European  Union  in  a  year  when  the 
attacks in Toulouse and Burgas tragically highlighted the reality of the terrorist threat. 

In  the  aftermath  of  the  Burgas  attack,  Europol  provided  highly  appreciated  operational 
support to the Bulgarian authorities. In addition, the EU AirPol network, consisting of police 
authorities responsible for security at airports and surrounding areas, issued guidance on new 
security measures and procedures to prevent similar attacks within 24 hours. 

The AirPol network received its mandate on the basis of a Council Decision in the aftermath 
of the Yemen cargo attacks in 2010 and works to share best practices and undertake capacity-
building on the basis of the Commission’s crime prevention funding programme (ISEC).  
Terrorism remains one of the priorities in the operational work of Eurojust11. Moreover, in 
2012  Eurojust  developed  further  the  concept  and  contents  of  its  Terrorism  Convictions 
Monitor (TCM), which provides an overview of terrorism-related judicial developments in the 
Member States, as well as judicial analysis on selected cases.  

A practitioners’ workshop co-organised by Eurojust and Europol in December 2012 brought 
together  counter-terrorism  specialists  from  India  and  from  the  EU.  Its  objective  was  to 
promote judicial cooperation by defining common interests and reflecting on standards.  

The  European  counter-terrorism  policy  is  based  on  prevention.  The  EU  Radicalisation 
Awareness  Network  (RAN)  was  established  to  connect  actors  involved  on  the  ground  in 
countering  radicalisation  and  violent  extremism  throughout  Europe  (first-line  practitioners, 
field experts, social workers, academics, NGOs, etc.). With eight thematic groups, the RAN 
offers a unique opportunity to share experience and results. The outcomes of the RAN’s work 
so far were also reported back to policy makers and discussed at a High Level Conference at 
the end of January 2013. 

The RAN recommendations, and in particular those provided by the working group on foreign 
fighters, will also contribute to the EU’s efforts to strengthen the synergies between internal 
and external security policies. 

The ISEC programme has been supporting projects which address the issue of radicalisation 
and  violent  extremism  in  particular  through  better  training  and  awareness-raising  for 
practitioners,  disengagement  and  de-radicalisation,  increasing  the  response  capacity  of 
citizens and civil society, disseminating terrorist victims’ testimonies and countering terrorist 
propaganda. Such projects are being carried out by participating organisations from amongst 
others Belgium, Denmark, Germany and the United Kingdom. 

As another example of terrorist prevention efforts, the EU has, via its Regulation on the use 
and  marketing  of  explosives  precursors12,  established  the  most  advanced  system  on  a 
global scale to prevent access to precursors to explosives that may be used by terrorists. 

The  Commission,  in  cooperation  with  the  Member  States,  is  currently  working  on  new 
proposals  on  Chemical,  Biological,  Radiological,  Nuclear  and  Explosives  (CBRN-E) 
security  at  EU  level.  The  focus  is  on  the  most  pertinent  actions  to  be  implemented  in  the 

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All  in  all  32  terrorism-related  cases  were  registered  at  Eurojust  in  2012,  including  cases  concerning 
terrorism financing. 
2010/0246 (COD). 

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coming  years,  and  on  obtaining  synergies  from  the  work  done  in  the  areas  of  CBRN-E, 
including detection, based on two progress reports published in 2012. 
The Commission has started a review of the Critical Infrastructure Protection Directive13, 
with a view to proposing a new approach in the first half of 2013. The aim is to ensure that 
services  vital  to  society  remain  operational.  Loss  or  failure  of  critical  infrastructure  could 
have severe consequences for society. 

Project  Poseidon,  co-funded  by  the  Critical  Infrastructure  Protection  Programme,  identified 
threats and vulnerabilities in both critical infrastructures and decision-making mechanisms to 
improve  security  in  cross-border  passenger  traffic  in  the  Baltic  Sea  Region.  The  results  are 
contained in  the pilot study  (Preventing Terrorism in Maritime regions — Case Analysis of 
Project Poseidon) and they concern for instance counter-terrorism strategies as regards ferry 
traffic. 

Integral  connections  between  different  transport  modes  require  a  robust  counter-terrorism 
strategy  to  protect  the  stability  of  commerce  and  maintain  confidence  in  the  security  and 
safety  of  the  transport  network.  In  2012  the  Commission  issued  a  paper  on  transport 
security14,  highlighting  a  number  of  areas  of  key  significance  to  the  effective  mitigation  of 
terrorist  threats.  Among  other  things,  the  paper  suggests  the  creation  of  a  general  security 
framework for transport operators, such as security programmes, security awareness training 
and exercises, contingency and recovery planning. 

As regards aviation security, the developments are threat-driven and the detection technology 
needs  to  keep  up  with  the  continuous  innovation  demonstrated  by  terrorist  groups.  The 
establishment  of  an  EU  harmonised  certification  system  for  airport  screening  equipment  is 
being  finalised,  and  international  coordination  is  on-going  to  streamline  the  scientific  work. 
The Commission and the Member States are actively supporting innovative technology trials 
to  improve  detection  of  the  different  threats  (for  example  in  cargo,  in  baggage  and  on 
persons). 

In addition to several research activities on testing innovative technologies, the Commission, 
jointly with the Member States, has launched pro-active detection activities with a number of 
operational trials, both during the Euro 2012 Football Championships and in areas of mass 
transit and public buildings security to develop the most effective security models. 

For  example,  the  Commission  is  implementing  the  ITRAP  (Illicit  Trafficking  Radiation 
Assessment  Programme)  with  the  aim  of  providing  an  independent  assessment  of  the 
available radiation detection equipment on the market used for the detection and identification 
of nuclear and radioactive materials.  

Training  is  a  cornerstone  of  effective  implementation  of  security  systems.  An  example  of  a 
concrete  action  supported  by  the  Commission  in  this  field  is  the  establishment  of  the 
European Security Training Centre (EUSECTRA) the aim of which is to develop a security 
training programme applicable to the law enforcement community.  

ATLAS,  an  EU  network  of  anti-terrorist  intervention  forces  established  and  funded  by  the 
Commission via the ISEC programme since 2008, improves the cooperation between special 
intervention  units  in  the  EU  and  support  its  functioning  in  crisis  situations  (for  example  a 
terrorist attack or a hostage taking) when a Member State needs assistance. It also establishes 

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Directive 2008/114/EC on the identification and designation of European critical infrastructures and the 
assessment of the need to improve their protection. 
SWD(2012) 143 final. 

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common  platforms  for  training,  sharing  equipment,  and  close  cooperation  in  the  Member 
States’ border areas. 

The way forward in 2013 

The Commission will: 

• 

• 

• 

• 

update  the  EU  approach  to  counter  violent  extremism  by  developing  a 
European ‘toolbox’ based on best practices in the Member States; 

propose actions on CBRN-E; 

develop  tools  to  enhance  the  detection  of  terrorist  threats  in  all  areas, 
including standards for aviation security; 

propose a new approach on European Critical Infrastructure protection. 

Member States are encouraged to: 

• 

• 

• 

step up efforts to prevent and counter violent extremism; 

implement the Action Plan on air cargo security; 

set  up  the  necessary  administrative  structures  to 
Regulation on explosives precursors. 

implement  the 

2.3. 

Strategic objective 3: Raise levels of security for citizens and businesses online 

A variety of activities relating to internet fraud are becoming more prominent, including illicit 
internet  transactions,  use  of  money  mules  and  fake  websites.  The  past  two  years  have  also 
witnessed an increase in the number of hackings and internet-driven illegal activities. 

The fight against cybercrime is not only about reducing crime in the online environment, but 
also  about  ensuring  a  secure  cyberspace  within  which  economic  and  social  activity  can 
flourish. This remains a priority for the Commission and the Member States and is pursued 
also  through  the  Digital  Agenda  Europe.  It  is  important  to  pool  resources  at  EU  level  for 
better prevention  and a  stronger  response capacity. Significant measures  have  been taken at 
both strategic and operational level. 
The Cybersecurity Strategy for the European Union, adopted in February 201315, sets out 
a comprehensive vision and puts forward the actions required, based on strong protection and 
promotion of citizens’ rights, to make the EU the safest online environment in the world. The 
strategy aims to strengthen resilience and network and information security; drastically reduce 
cybercrime;  develop  an  EU  cyberdefence  policy;  foster  the  industrial  and  technological 
resources for cybersecurity; promote Research and Development (R&D); and enhance the EU 
international cyberspace policy. 

The  strategy  highlights  the  need  for  reinforced  cooperation  and  exchange  of  information 
between the relevant actors to provide early detection and a more coordinated response. The 
objectives  of  the  strategy  are  mutually  reinforcing.  For  example,  the  resilience  and  network 
and  information  security  objective  includes  actions  aimed  at  strengthening  public-private 
partnerships and at setting up National Computer Emergency Response Teams (CERTs). This 
will in turn support the fight against cybercrime. 

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JOIN(2013) 1 final. 

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These objectives were highlighted in a proposal for a Directive on network and information 
security16  accompanying  the  Strategy.  The  main  objective  of  the  proposal  is  to  ensure  the 
smooth functioning of the internal market. The proposal aims to raise national preparedness, 
strengthen  EU-level  cooperation  and  ensure  that  operators  of  essential  services  and 
infrastructure  carry  out  appropriate  risk  management  and  report  serious  incidents  to  the 
national competent authorities. 

An  important  step  in  the  fight  against  cybercrime  was  the  creation  of  the  European 
Cybercrime Centre (EC3) at Europol in early 2013. The Centre, in close cooperation with 
Eurojust, will bolster the EU’s capacity to confront the growing and complex threat posed by 
cybercrime  and  become  a  focal  point  for  cybercrime-related  issues.  It  will  provide  better 
operational support capacity at the EU level for cross-border cybercrime, specialised strategic 
and threat assessments, and more targeted training and R&D that result in the development of 
specialised  tools  to  tackle  cybercrime.  The  Centre  will  also  develop  cooperation  with  all 
stakeholders  including  those  outside  the  law  enforcement  community.  In  view  of  the 
inherently cross-border nature of the phenomenon and the need for international cooperation, 
the  EC3  will  able  to  engage  the  EU’s  law  enforcement  community  with  other  international 
actors such as Interpol and draw upon efforts of other actors such as the ICT industry or the 
Internet Corporation for Assigned Names and Numbers (ICANN).  

The EC3 will be able to voice concerns and make suggestions, through the Commission, on 
questions relating to internet governance. The EC3 will also liaise with the European Network 
and  Information  Security  Agency  (ENISA),  which  gathers  and  generates  network  and 
information  security  analysis,  supports  Member  States  in  developing  harmonised  breach 
reporting  approaches,  in  building  CERT  capacities  and  in  raising  end-users'  awareness.  The 
foreseen renewal of ENISA's mandate will cater for its support to the Member States and the 
Commission also in the coming years. 

Another  example  of  strategic  initiatives  undertaken  in  2012  was  the  EU-US  initiative  to 
launch a Global Alliance against Child Sexual Abuse Online. The Alliance — including 48 
countries  around  the  world  at  its  launch  —  will  help  foster  global  cooperation  in  the  fight 
against  child  pornography  online.  By  uniting  countries  behind  a  shared  set  of  targets  and 
goals,  it  is  expected  to  result  in  more  child  victims  being  identified  and  rescued,  more 
effective  prosecution  of  perpetrators,  better  prevention  of  offences  and  a  reduction  in  the 
availability of child sexual abuse images online. The European strategy  for a  better internet 
for  children17  strengthens  the  preventive  measures  even  further  by  setting  out  child  safety 
actions  built  on  empowerment  and  protection,  thereby  encouraging  children  to  make 
responsible use of the internet. 
The proposal for a Directive on attacks against information systems18, which is now being 
negotiated between the European Parliament and  the Council, aims to  approximate criminal 
legislation in the Member States in the area of cybercrime and introduces definitions of and 
sanctions  for  illegal  access  to  information  systems,  illegal  system  and  data  interference  and 
illegal interception. In addition, the proposal penalises the production, sale, procurement for 
use, import and distribution of tools used for committing these offences. Only six EU Member 
States still have to ratify the Budapest Convention on Cybercrime. 

In  addition,  cybercrime  is  one  of  the  eight  fields  of  operational  cooperation  within  the  EU 
policy  cycle  for  organised  and  serious  international  crime.  Specific  actions  to  be 

16 
17 
18 

COM(2013) 48 final. 
COM (2012) 196. 
COM(2010) 517 final. 

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implemented  by  the  Member  States  under  the  leadership  of  Romania  include  the 
establishment  of  national  reporting  systems  in  each  Member  State  on  data  breaches/cyber 
incidents/cybercrimes  for  legal  entities  and  citizens,  reinforcing  internet  governance  so  that 
users  in  cyberspace  can  be  identified  by  Member  States’  authorities  for  legitimate  law 
enforcement reasons, and mitigation of tools (botnets) that facilitate large-scale cyber-attacks. 

The  ISEC  programme  provides  co-funding  to  assist  the  Member  States  with  building  their 
capacity  to  deal  with  cybercrime  and  promote  cross-border  and  public-private  cooperation. 
Recent  successful  projects  involve  the  setting-up  of  a  network  of  national  centres  of 
excellence  to  promote  cooperation  initiatives  between  research,  academia  and  law 
enforcement practitioners that result in tangible tools for understanding, detecting and fighting 
cybercrime.  There  are  currently  a  total  of  eight  such  centres  receiving  funding  from  the 
 5  million  to  building 
Commission.  To  date,  the  Commission  has  contributed  almost  €
cybercrime training and research capacities in the Member States. 

The way forward in 2013 

The Commission will: 

•  make sure that the European Cybercrime Centre (EC3) at Europol takes 

important steps towards becoming fully operational; 

• 

• 

• 

implement the EU Cybersecurity Strategy for the European Union; 

support  the  adoption  of  the  proposed  Directive  laying  down  measures  to 
ensure  a  high  common  level  of  network  and  information  security  across 
the EU and pursue the new mandate of ENISA; 

continue to support, develop and enlarge the Global Alliance against Child 
Sexual Abuse Online. 

Member States are encouraged to: 

• 

• 

• 

• 

• 

work closely with the European Cybercrime Centre (EC3); 

work closely with Eurojust and ENISA; 

implement  the  Operational  Action  Plan  on  cybercrime  within  the  policy 
cycle; 

pursue  the  shared  policy  targets  of  the  Global  Alliance  against  Child 
Sexual Abuse Online, and take specific actions to achieve them; 

support  the  ratification  and  implementation  of  the  Council  of  Europe 
Budapest Convention on Cybercrime. 

2.4. 

Strategic objective 4: Strengthen security through border management 

In December 2011, the Commission presented a legislative proposal for a European Border 
Surveillance  System  (Eurosur).  Its  adoption  is  foreseen  in  2013  and  it  will  provide  the 
Member States and the EU agencies with a common framework for near real-time information 
sharing and interagency cooperation at national and European level for the purpose of fighting 
irregular  migration  and  cross-border  crime.  Eurosur  will  also  contribute  to  enhancing  the 
protection and saving the lives of migrants. 

National  coordination  centres  for  border  surveillance  involving  a  number  of  national 
authorities, such as border guards, police, coast guards and the navy, were established by the 
18 Schengen countries located at the southern and eastern external borders that are the first to 

EN 

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join Eurosur. These 18 national coordination centres have been connected by Frontex to the 
Eurosur network on a pilot basis. 

Within the framework of Eurosur, the External Borders Fund (EBF) has financed important 
regional surveillance systems, enabling better control of the external borders of the Schengen 
area.  EBF  contributions  were  given  to  the  Spanish  integrated  surveillance  system  SIVE 
(Sistema  Integrado  de  Vigilancia  Exterior),  which  focused  in  particular  on  the  Strait  of 
Gibraltar,  the  Canary  and  Balearic  islands  and  the  southern  Mediterranean  coast.  The  EBF 
also contributed significantly to the French coast surveillance system. 

With the dual objective of enhancing security at borders and facilitating travel and access for 
non-EU  nationals,  the  Commission  adopted  early  2013  two  legislative  proposals  for  an 
Entry/Exit  System  (EES)  and  a  Registered  Traveller  Programme  (RTP),  the  so-called 
Smart Borders Package.  

After  many  years  of  development  and  testing,  the  Schengen  Information  System  II  (SISII) 
will  become  fully  operational  and  provide  additional  means  of  border  management.  In 
parallel,  the  completion  of  worldwide  roll-out  of  the  Visa  Information  System  (VIS)  will 
further strengthen security. 

The Commission is assisting Greece in the implementation of the Action plan on asylum and 
migration  management  which  also  includes  a  border  management  component,  in  order  to 
improve the capacity of Greece to better control its external borders, in particular the external 
border with Turkey. 

In the area of customs border management, the work on the implementation of common risk 
management  continued  and 
the  Commission  presented  a  Communication  on  Risk 
Management  and  supply  chain  security19.  The  aim  of  this  Communication  is  to  foster  the 
debate  with  the  institution  on  the  recommendations  in  order  to  ensure  the  conditions  to 
collectively  improve  the  current  situation.  Furthermore,  and  following  the  High  Level  Air 
Cargo  security  plan  work  continues  with  transport  authorities  and  traders  to  ensure  the 
improvement of the data quality being already received by customs. 

Frontex  has  supported  security  through  various  activities  facilitated  by  its  reinforced 
mandate. In particular, in close cooperation with the border management services of Member 
States, it has further developed the Frontex Risk Analysis Network and provided for regular 
and ad hoc risk analysis in relation to irregular migration at the external borders of the EU. 
Joint operations were carried out at all main hot-spots at the external borders. Frontex pursued 
operational  cooperation  with  other  relevant  EU  agencies,  such  as  Europol,  the  European 
Asylum  Support  Office  and  the  Fundamental  Rights  Agency.  Frontex  has  also  assisted  the 
Member States in organising joint return operations in line with the EU’s return policy. 

Following  successful  cooperation  in  the  Frontex-coordinated  Joint  Operation  INDALO  in 
2011  and  2012,  addressing  irregular  migration  and  smuggling  of  drugs,  the  Commission 
encouraged  Frontex,  Europol,  the  Centre  de  Coordination  pour  la  Lutte  Antidrogue  en 
Méditerranée  (CeCLAD-M)  and  the  Maritime  Analysis  and  Operation  Centre  Narcotics 
(MAOC-N) to formalise their cooperation in line with the proposed Eurosur Regulation. 

Furthermore, following the entry into force of the amended Frontex Regulation at the end of 
2011,  the  Commission  encouraged  Frontex  and  Europol  to  finalise  the  necessary 
arrangements  for  allowing  the  transfer  from  Frontex  to  Europol  of  personal  data  related  to 
cross-border criminal activities facilitating irregular migration or human trafficking. 

19 

COM(2012) 793 final. 

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In  2012,  important  progress  has  been  made  in  implementing  the  new  fundamental  rights 
provisions  of  the  revised  Frontex  Regulation.  The  Fundamental  Rights  Forum  has  been 
established and has stated its work, and a Fundamental Rights Officer has been appointed. 

The efforts to  improve  cooperation  between border  guards  and  customs  remained  important 
fields of activity in 2012. The aim is to facilitate trade and travel and enhance the security of 
the  EU  through,  inter  alia,  synchronised  checks,  information  exchange,  training,  joint  risk 
analysis  and  joint  operations.  Advanced  solutions  already  exist  in  some  Member  States  and 
serve  as  best  practice.  Finland,  for  example,  has  set  up  police-customs-border  guard 
intelligence, investigation and analysis units which make for greater effectiveness in the fight 
against serious crime. 

The European Borders Fund supported Member States in their efforts to fight the use of fake 
and  falsified  identity  and  travel  documents,  in  particular  for  purchasing  specific  equipment 
used  by  border  guards  and  in  consular  offices  to  verify  the  authenticity  of  documents.  The 
EBF also contributed to the development of FADO (False and Authentic Documents Online), 
a  web-based  tool  facilitating  the  exchange  of  information  between  the  Member  States  on 
detected document fraud. 

The way forward in 2013 

The Commission will: 

• 

• 

support the launch of Eurosur as of 1 October 2013; 

ensure  that  Schengen  Information  System  II  (SISII)  becomes  fully 
operational during the spring. 

Member States are encouraged to: 

• 

ensure  that  all  national  authorities  with  responsibility  for  border 
surveillance cooperate via the national coordination centres; 

•  make swift progress in negotiating the proposals on the Entry/Exit System 

(EES) and the Registered Travellers Programme (RTP); 

• 

• 

• 

agree on common recommendations and best practices in border guards-
customs cooperation in order to guarantee the same level of security and 
service at all EU external borders and to reduce the costs of checks; 

discuss and agree on common recommendations to improve Customs Risk 
Management and supply chain security;  

implement  the  Operational  Action  Plan  on  irregular  immigration  within 
the policy cycle. 

The agencies should: 

• 

• 

further  step  up  their  cooperation  to  detect  and  prevent  irregular 
migration  and  cross-border  crime  at  the  external  borders  (Frontex, 
Europol, MAOC-N and CeCLAD-M); 

take the necessary steps to allow the transfer of personal data to Europol 
in  accordance  with  the  amended  Frontex  Regulation  (Frontex  and 
Europol). 

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2.5. 

Strategic objective 5: Increase Europe’s resilience to crises and disasters 

In  the  field  of  both  natural  and  man-made  risks,  the  EU  has  enhanced  its  risk  management 
capacity  in  order  to  allocate  resources  more  efficiently,  reinforce  the  EU’s  prevention  and 
preparedness capacity. 

The  proposal  for  the  implementation  arrangements  for  the  solidarity  clause  (Article  222 
TFEU) will provide an umbrella framework for situations of extraordinary threat or damage 
that overwhelm the response capacities of the affected Member State(s). A joint proposal by 
the Commission and the High Representative of the Union for Foreign Affairs and Security 
Policy for the arrangements for implementing the solidarity clause was adopted in December 
201220. 

A  robust  risk  assessment  methodology  needs  to  be  established  and  applied  to  ensure  that 
security  risks  are  managed  effectively.  The  EU  is  developing  a  shared  methodological 
approach  to  assess  these  security  risks.  Significant  work  has  been  conducted  in  the  field  of 
risks assessment related to intentional malicious threats, not least in the aviation security field 
(air cargo, liquids ban). In December 2012 the Council called upon the Commission to extend 
this methodological approach to the whole of aviation security. 

In relation to building resilience to natural and man-made disasters, a number of actions have 
been carried out to implement the EU disaster risk management policy framework21. Member 
States have achieved varying progress in undertaking national risk assessments in line with 
the  2010  Commission's  Guidelines22.  To  date,  the  Commission  has  received  contributions 
from  12  countries  participating  in  the  EU  Civil  Protection  Mechanism  (Czech  Republic, 
Denmark, Estonia, Germany, Hungary, Italy, Netherlands, Norway, Poland, Slovenia, Sweden 
and UK) with varying degrees of detail of the national risk analysis which highlight the need 
for more robust disaster data and comparative risk management approaches. On this basis, the 
Commission  is  currently  preparing  a  first  cross-sectoral  overview  of  natural  and  man-
made risks which the Union will face in the future, expected in 2013. This could be followed 
in 2014 by more extensive work integrating more in depth security risks.  
The  Commission's  proposal  for  a  new  Union  Civil  Protection  Mechanism23  further  places 
prevention on equal footing with preparedness and response actions and includes provisions 
to further develop risk assessment in civil protection policy.  

The Commission has also consistently promoted the use of peer reviews as an effective way 
of  exchanging  experience  and  improving  governance  and  policy-making  in  the  area  of 
disaster  risk  management.  In  2012,  the  UK  was  the  first  country  which  volunteered  to 
undertake such a 'pilot' peer review that was carried out by three 'peers' (from Italy, Finland 
and  Sweden)  with  the  support  and  facilitation  provided  by  the  Commission  in  cooperation 
with UNISDR and OECD. A report of the findings is expected in spring 2013, including good 
practices,  areas  for  improvement  and  recommendations  on  how  to  achieve  further  progress. 
The results will also feed into the on-going work of the Commission in developing guidance 
for disaster prevention based on good practice. 

20 
21 

22 

23 

JOIN(2012) 39 final. 
Set  out  in  Communication  'A  community  approach  on  the  prevention  of  natural  and  man-made 
disasters, COM(2009) 82 final.  
SEC(2010) 1626 final, available at: 
http://ec.europa.eu/echo/civil_protection/civil/pdfdocs/prevention/COMM_PDF_SEC_2010_1626_F_st
aff_working_document_en.pdf 
COM(2011) 934 final. 

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The Commission will also open in 2013 the Emergency Response Centre, on the basis of the 
existing  Monitoring  and  Information  Centre  (DG  ECHO),  which  will  further  strengthen  the 
EU capacity to respond to disasters. 

Substantial work has been conducted to better rationalise and reinforce synergies between the 
different  EU  crisis  management  capacities.  A  more  integrated  and  effective  approach  is  the 
goal of the revised EU Crisis Coordination Arrangement procedures and the establishment of 
an integrated awareness and analysis capacity. 

In 2012 several important actions were undertaken to reinforce the networking of multi-sector 
and  sector-specific  centres  in  the  Commission  and  relevant  agencies.  These  include  the 
conclusion of agreements on risk and crisis management cooperation and the establishment of 
new  high-performing  and  resilient  means  of  communication.  The  setting-up  in  2012  of  the 
Commission’s  Strategic  Analysis  and  Response  Centre  in  DG  HOME  enabled  new  security 
risk  assessment  and  management  methodologies  and  practices  to  be  established  that  bring 
together  the  expertise  of  relevant  Commission  departments  and  expert  communities,  e.g.  in 
the  areas  of  transport  and  energy,  and  draw  on  threat  assessments  by  the  EU  Intelligence 
Centre, EU agencies and the Members States’ services.  

Enhancing the EU crisis management and risk assessment capability requires the capacity to 
exchange  classified  information.  From  this  point  of  view,  the  establishment  of  a  legal 
framework  allowing  the  EU  agencies  to  exchange  classified  information  represents  an 
important step forward. 

The way forward in 2013 

The Commission will: 

• 

• 

• 

• 

support  efforts  to  improve  risk  assessment  methodologies  and  exchange 
and  transfer  experience  between  EU  Member  States  and  also  with  non-
member countries on risk management related activities; 

produce a first cross-sectoral EU overview of natural and man-made risks;  

produce guidance on disaster prevention based on good practices;  

continue  to  foster  the  EU  capacity  to  conduct  the  assessment  of  security 
risks. 

Member States are encouraged to: 

• 

• 

finalise  and  regularly  update  their  national  risk  assessments  and 
undertake  initiatives  to  improve  the  understanding  of  disaster  and 
security risk, to promote risk management planning, and to disaster-proof 
EU-supported infrastructure investments and volunteer to undertake peer 
reviews of their national risk management policies; 

adopt the proposal for the implementation arrangements for the solidarity 
clause. 

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3. 

STREAMLINING AND RATIONALISING THE IMPLEMENTATION OF SECURITY POLICIES 

The internal security policy is based on a shared agenda involving all actors: EU institutions, 
Member States and EU agencies. In 2012, the European Parliament issued its first opinion on 
the Internal Security Strategy, broadly endorsing the Strategy’s five objectives24. 

In meeting the threats to internal security in the EU, cooperation between Member States will 
be  of  great  value.  Pooling  resources  and  streamlining  actions  at  EU  level  can  be  more 
effective and less costly than acting alone. The EU agencies have a special role to play in this 
regard. 

3.1. 

Streamlining work 

The Commission has tabled in March 2013 a proposal on the reform of Europol and Cepol, 
proposing  the  merging  of  the  two  agencies  into  one,  and  a  Communication  on  a  European 
Law Enforcement Training Scheme (LETS). 

The  overall  goal  in  reforming  Europol  as  well  as  Eurojust  is  to  improve  the  operational 
efficiency and effectiveness of the agencies in addressing the security threat posed by serious 
and organised crime and terrorism. Improving Europol’s capabilities to map criminal threats 
and trends will further strengthen both the EU’s and the Member States’ response to criminal 
networks and their detrimental effects on society and the economy, by improving the support 
Europol  can  provide  to  Member  States,  enhancing  coordination  and  synergies  between 
operations  carried  out  by  Member  States,  and  better  supporting  the  EU  Policy  Cycle  on 
serious and organised crime. 

Cepol and Europol have complementary missions, with Cepol supporting the development of 
an EU law enforcement cooperation culture through training. The proposed merger of Cepol 
and Europol would make training more focused and aligned with actual training needs, as set 
out in the European Law Enforcement Training Scheme (LETS), which the Commission 
adopted at the same time. It would pool scarce financial and human resources, allowing the 
EU to provide more training courses overall. By making Europol’s services more operational, 
and by targeting training towards EU priority needs, resources can be freed at national level 
and redirected as necessary. 

The  European  Cybercrime  Centre  is  another  example  of  streamlining  for  the  purpose  of 
tackling  cybercrime  more  efficiently.  Investigations into online fraud, child abuse and  other 
crimes regularly involve hundreds of victims at a time, and suspects in many different parts of 
the world. Operations of this scale cannot be successfully concluded by national police forces 
alone. No crime is as borderless as cybercrime, requiring law enforcement authorities to adopt 
a  coordinated  and  collaborative  approach  across  borders,  together  with  public  and  private 
stakeholders alike. 

Streamlining  funding  arrangements  is  a  means  to  ensure  more  targeted  use  of  resources.  In 
2012  the  Commission  issued  proposals  for  the  Internal  Security  Fund  for  the  new  financial 
perspectives 2014-2020. One of the innovations proposed is to apply shared management to 
all  the  funds  (previously  the  ISEC  fund  was  not  included),  which  means  that  an  increasing 
part of the available resources will be managed directly by the Member States. 

24 

Borsellino  report,  European  Parliament  resolution  of  22  May  2012  on  the  European  Union’s  Internal 
Security Strategy ((2010)2308 (INI)). 

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3.2. 

Ensuring consistency between the internal and external dimension 

With threats partly stemming from outside the boundaries of the EU, enhanced cooperation 
with  external  security  actors,  non-member  countries  and  organisations  is  crucial  in 
conducting successful security policies.  

As  part  of  a  broader  effort  to  enhance  consistency  between  the  internal  and  external 
dimensions of security, work was taken forward through the Political and Security Committee 
(PSC) and the Standing Committee on Internal Security (COSI) to implement the roadmap on 
strengthening ties between the Common Security and Defence Policy and actors dealing with 
Freedom, Security and Justice, and to further develop synergies in other areas such as cyber 
security, critical infrastructure protection and counter-terrorism. Closer linkages between the 
EEAS and relevant agencies (e.g. Europol and Frontex) have also been established. Two PSC-
COSI  meetings  were  organised  in  2012  in  which  exchanges  on  geographical  dimensions 
(Western Balkans, Sahel and Libya) of EU activities have been addressed, and a PSC-COSI 
meeting concentrating on the security situation in Mali took place in February 2013. 

Internal security issues are now systematically added to the agenda of political dialogues with 
relevant non-member countries and organisations, and are also addressed in relevant strategic 
partnerships and agreements. The launch of the dialogues towards Mobility, Migration and 
Security  Partnerships  with  southern  Mediterranean  countries  represents  other  channels  to 
strengthen  cooperation  on  internal  security  matters  with  external  partners.  Equally,  the  pre-
accession process and in particular on-going work in the context of the post-visa liberalisation 
monitoring  mechanism  with  five  Western  Balkan  countries,  the  implementation  of  the  visa 
liberalisation roadmap with Kosovo and the Positive Agenda with Turkey are powerful tools 
to  assist  non-member  countries  in  aligning  their  legal  framework  and  operational  capacity 
with the EU acquis and standards in the field of security.  

Specific actions countering global threats that enhance the EU's internal security are financed 
equally outside the EU under the EU Instrument for Stability. 

3.3. 

Preparing the future: the FP7 Security Research programme and beyond 

Since  2007  the  Commission  has  funded  the  FP7  Security  Research  programme  up  to  1.4 
billion of euros. More than 250 projects have been funded with a significant involvement of 
stakeholders.  A  majority  of  the  topics  contained  in  the  scope  of  this  report  have  been 
addressed,  such  as  counter  explosive  actions,  CBRN  action,  radicalisation,  and  border 
security.  

The Commission published in July 2012 a Communication for a Security Industrial Policy – 
Action Plan for an innovative and competitive Security Industry25. The Action Plan foresees 
further measures to harmonise the EU security market and close the gap between research and 
market,  notably  through  standardisation  activities  in  the  area  of  CBRN  protection,  border 
security and crisis management/civil protection. 

4. 

CONCLUSION 

Implementation of the Internal Security Strategy is well on its way. As this report has shown, 
a lot has been done under the five objectives. However, we still have a way to go. For 2013 
organised crime is still considered to be one of the major challenges for EU internal security 
to address. Money laundering, corruption, trafficking and mobile organised crime groups are 

25 

COM(2012) 417 final. 

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just some of the threats foreseen. Cybercrime continues to be of particular concern. Another 
important challenge for 2013 is to improve tools to better counter growing violent extremism. 

The  next  and  last  report  on  implementation  of  the  ISS  will  be  presented  in  mid-2014.  The 
report  will  assess  whether  the  objectives  of  the ISS  have  been  met  and  also  consider  future 
challenges within the field of internal security. 

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Annex 1: Graphic overview of all the planned actions for 2011-2014 

OBJECTIVE 1: Disrupt international crime networks

Action 1: Identify and dismantle criminal networks

Action 2: Protect the economy against
criminal infiltration

Action 3: Confiscate criminal assets

Cross-cutting issues

2011

Proposal on the use of 
EU Passenger Name 
Records 

New PNR 
agreements with the 
US and Australia

New PNR 
agreement with 
Canada

2012

Proposal on monitoring and 
assisting Member States anti-
corruption efforts

EU strategy on 
trafficking in 
human beings
2012-2016

Network of national contact 
points for governmental and 
regulatory bodies

Proposal for the Directive on freezing and 
confiscation of proceeds of crime

More 
use of 
Joint 
Investi
gation 
Teams 

Member 
States: 
Implement 
the actions 
in the EU 
Policy 
Cycle

Member States: 
Step up efforts to develop 
the network of Informal 
Contact Points on the 
administrative approach

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

Establish effective Asset 
Recovery Offices and 
necessary arrangement for 
asset management

Publish the first EU Anti-
Corruption Report

Adopt the Directive on 
freezing and confiscation 
of proceeds of crime

Communication on the 
European Information 
Exchange Model

Member 
States:
Ratify and 
implement 
existing 
instruments 
for judicial 
and law 
enforcement 
cooperation 
and 
information 
exchange

Proposal on the reforms of  
Europol and CEPOL together 
with the European Training 
Scheme

Present a proposal on 
the European public 
prosecutor’s office

Present a proposal on 
the reform of Eurojust

Member States: 
Transpose the Directive on 
Trafficking in human beings 
without delays

Publish a fact-finding report 
on centralised bank account 
registers

Proposal for the Fourth Anti-
Money Laundering Directive

2013

Proposal for a Directive 
on the criminalisation 
of money laundering 

Adopt the Directive 
on the 
EU PNR

Adopt the 
Communication on a 
comprehensive strategy 
to fight cigarette 
smuggling

2014

Color coding:
Green: Action completed
Yellow: Action ongoing

EN 

19 

EN 

 
  
 
OBJECTIVE 2: Prevent terrorism and address radicalisation and recruitment

Action 1: Empower communities to prevent 
radicalisation and recruitment

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

Action 3: Protect critical infrastructure including 
transport

2011

2012

2013

2014

High Level Symposium on 
Countering Violent 
Extremism

Revisit and update the EU approach on 
preventing radicalisation and recruitment 

Colour coding:
Green: Action completed
Yellow: Action ongoing

Communication on EU extraction and 
analysis of financial messaging data

EU 
radicalisation-
awareness 
network and 
EU-wide 
conferences. 
Help civil 
society to 
expose, 
translate and 
challenge 
violent 
extremist 
propaganda

Mid-term report on the 
implementation of the 
EU CBRN Action Plan 
and a review of the EU 
Explosives Action Plan

Impact Assessment on the 
establishment of an EU Terrorist 
Financing Tracking System

Consider creating a framework for 
administrative measures such as 
freezing of funds of persons suspected 
of terrorist activities inside the EU

Communication on Transport 
Security Policy

Options for further strengthening 
transport security, focusing in 
particular on land transport issues

Implement 
action plans 
for preventing 
access to 
explosives and 
chemical, 
biological 
radiological 
and nuclear 
substances

Member 
States:
Implement 
the Action 
Plan on Air 
Cargo 
Security

Review the Directive on the 
designation of European 
Critical Infrastructure 
Protection

EN 

20 

EN 

 
  
 
EN 

21 

EN 

 
  
Action 1: Exploit the full potential of 
Eurosur

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

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

Action 4: Improve interagency 
cooperation at national level

Cross cutting issues

OBJECTIVE 4: Strengthen security through border management

Proposal for the 
establishment of 
Eurosur

2011

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

Amendment of Frontex regulation 
by the EP and the Council

Member States and Frontex:
Continue their efforts regards to 
the establishment of Eurosur

Develop 
initiatives to 
improve 
capabilities 
for risk 
analysis and 
targeting

Eurosur
fully established

Color coding:
Green: Action completed
Yellow: Action ongoing

2012

2013

2014

Member 
States:
Implement 
the actions 
in the EU 
Policy 
Cycle

Develop 
national 
common  risk 
analysis 
involving 
police, border 
guards and 
customs 
authorities to 
identify hot 
spots at the 
external 
borders

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

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

Proposals on the Entry/Exit 
System and the Registered 
Traveller programme based on 
the two communications and 
consultation with all relevant 
stakeholders

SISII fully operational

Develop minimum standards 
and best practices for 
interagency cooperation

EN 

22 

EN 

 
  
EN 

23 

EN