REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Strengthening Citizens' Rights in a Union of Democratic Change EU Citizenship Report 2017
Date: 2017-01-24
Institutions: Directorate-General for Justice and Consumers, European Commission
Subjects: EU national, European citizenship, access to information, administrative formalities, democratisation, equal treatment, free movement of persons, fundamental rights, political rights, public awareness campaign

EN 

   EN 

   EUROPEAN COMMISSION  Brussels, 24.1.2017  COM(2017) 30 final   REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Strengthening Citizens' Rights in a Union of Democratic Change  EU Citizenship Report 2017  
 
 
Contents 

1. 

2. 

2.1. 

2.2. 

3. 

3.1. 

3.2. 

3.3. 

3.4. 

4. 

4.1. 

Introduction .................................................................................................................. 3 

Promoting EU citizenship rights and EU common values ........................................... 4 

Making it easier for citizens to know their EU rights .................................................. 4 

Strengthening European common values ..................................................................... 5 

Promoting and enhancing citizens’ participation in the democratic life of the EU ..... 8 

Enhancing citizens’ engagement in the EU democratic process .................................. 8 

Enhancing transparency – towards a more democratic Union ..................................... 9 

Access to political information across borders .......................................................... 10 

Increasing participation of mobile EU citizens in political life ................................. 10 

Simplifying daily life for EU citizens ........................................................................ 11 

Cutting red tape and informing citizens ..................................................................... 12 

4.1.1. 

Informing and assisting EU citizens on the move .............................................. 12 

4.1.2.  Cutting red tape on citizens’ public documents ................................................. 13 

4.1.3.  Cutting red tape in family law ............................................................................ 13 

4.2. 

Simplifying travel, living and working across the EU for citizens ............................ 14 

4.2.1. 

Increasing opportunities for students, trainees, teachers and other workers ...... 14 

4.2.2.  Further simplifying living and travelling in the EU ........................................... 15 

Strengthening security and promoting equality ......................................................... 16 

Tackling security threats and protecting citizens ....................................................... 16 

5. 

5.1. 

5.1.1.  Tackling security threats in an area of justice and fundamental rights based on 
mutual trust ....................................................................................................................... 17 

5.1.2.  Protecting EU citizens abroad ............................................................................ 17 

5.2. 

Protecting all citizens and promoting equality and non-discrimination ..................... 18 

5.2.1.  Protecting and supporting victims and witnesses ............................................... 18 

5.2.2.  Promoting equality and non-discrimination ....................................................... 19 

6. 

Conclusion.................................................................................................................. 21 

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1. 

INTRODUCTION 

As  a  citizenship  shared  by  all  Europeans,  complementing  and  not  replacing  national 
citizenships, EU citizenship embodies shared rights and values as well as the rich diversity of 
a Union of different nationalities and languages. 

The  Lisbon  Treaty  and  the  EU  Charter  of  Fundamental  Rights  consolidated  the  rights, 
opportunities and safeguards of EU citizenship. These include the freedom to travel, work and 
study in other EU countries, to participate in European political life and to be protected from 
discrimination on the basis of nationality. 

To gain insight into the state of EU citizenship across the Union, and assess its impact on the 
everyday lives of European citizens and the need for further action, in 2015 the Commission 
carried  out  a  dedicated  consultation1  and  two  surveys  on  EU  citizenship,2  including  one  on 
electoral  rights.3  Events  with  key  stakeholders  were  also  organised,  in  particular  with  the 
European Parliament as well as with the Committee of Regions.4 Other feedback was received 
directly from EU citizens and stakeholders.5 

Since  EU  citizenship  was  first  enshrined  in  the  Maastricht  Treaty  twenty-five  years  ago, 
significant  progress  has  been  made  to  ensure  the  effectiveness  of  EU  citizens’  rights  in 
practice.  Today,  two-thirds  of  Europeans  feel  they  are  citizens  of  the  EU,  and  even  more 
among the younger generations.6 

However,  continuous  efforts  are  needed  to  make  sure  that  all  EU  citizens  know  their  rights 
and can fully participate in the European democratic process. This is a political priority for the 
Commission, which has called for a Union of democratic change.7 It is also a joint effort, in 
which  Member  States,  national  parliaments  and  the  EU  institutions  work  together  to 
strengthen  the  trust  of  Europe’s  citizens  in  our  common  project,  for  a  stronger  and  better 
Europe.8  

1  Public consultation on EU citizenship, common values, rights and democratic participation launched by the 
citizenship’), 

Commission 
on  EU 
http://ec.europa.eu/justice/citizen/document/files/2015_public_consultation_booklet_en.pdf.  

14  September 

(‘2015  Public 

consultation 

2015 

on 

2  Flash Eurobarometer 430 – European Union Citizenship – October 2015 (‘2015 EB on EU citizenship’). 
3  Flash Eurobarometer 431 – Electoral Rights – November 2015 (‘2015 EB on Electoral rights’).  
4 

Joint  European  Parliament  and  Commission  hearing of  15  March 2016  ‘Union  Citizenship  in  practice:  our 
common values, rights and democratic participation’; see also the conference on EU citizenship and Justice 
organised  by  the  Luxemburg  presidency  on  14-15  September  2015  with  the  support  of  the  Commission, 
http://www.eu2015lu.eu/en/agenda/2015/09/14-15-conf-cjue-citoyens/index.html.  See  also  the  conference 
jointly  organised  between  the  Commission  and  the  Committee  of  the  Regions  on  Citizenship  at  Oviedo, 
September 2016: http://ec.europa.eu/newsroom/just/item-detail.cfm?item_id=34851. 

5  This  includes  complaints  and  requests  for  information  from  civil  society  organisations  as  well  as  citizens, 
including  in  the  framework  of  the  Your  Europe  portal  which  received  its  210,000th  enquiry  in  December 
2016. 

6   According to the Standard EB on EU citizenship from Spring 2016 (‘2016 Standard EB on EU citizenship’), 
the  sense  of  European  citizenship  is at  its  second highest  level  since 2010,  at  66% overall  (67%  in Spring 
2015), 70% among the under 50s, and 77% among those aged 25 and under. 

7   Jean-Claude Juncker, A new start for Europe: my agenda for jobs, growth, fairness and democratic change 

(political guidelines for the next European Commission).  

8   Jean-Claude  Juncker,  State  of  the  Union  address  2016:  Towards  a  better  Europe  –  a  Europe  that  protects, 

empowers and defends (Strasbourg, 14 September 2016).  

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In  2013  the  Commission  announced  twelve  new  initiatives  in  six  key  areas  to  remove 
remaining obstacles in the way of citizens’ enjoyment of their EU rights.9 It has since acted on 
all of these actions.10  

With this third EU citizenship report, the Commission takes stock of progress in line with its 
political priorities for jobs, growth, fairness and democratic change. The Report sets out the 
main  initiatives  taken  since  2014  to  promote  and  strengthen  European  citizenship,  and  puts 
forward  concrete  proposals  to  deliver  its  key  priorities  for  promoting,  protecting  and 
strengthening EU citizenship rights.  

2. 

PROMOTING EU CITIZENSHIP RIGHTS AND EU COMMON VALUES 

Citizens need to be aware of their rights in order to benefit from them. While some rights are 
well  known  and  implemented  effectively,  gaps  and  misunderstandings  remain.  The 
effectiveness  of  EU  citizenship  rights  depends  on  this  awareness,  among  citizens,  Member 
State governments and local and regional authorities. 

1.1.  Making it easier for citizens to know their EU rights 
Europeans  are  more  than  ever  aware  of  their  status  as  citizens  of  the  Union11  and  the 
majority of them now consider they know their rights as EU citizens.12 They also feel better 
informed about these rights, though not necessarily all of them:13 for example awareness of 
the right to consular protection remains low.14 The proportion of Europeans wanting to know 
more  about  their  rights  continues  to  increase.15  Moreover,  EU  citizens  may  not  always  be 
aware  that  benefitting  from  the  rights  stemming  from  EU  citizenship  also  entails  some 
responsibilities.16  They  may,  for  example,  overlook  the  significance  of  their  identity  and 
travel documents and of the fact that they should promptly report their loss and theft to reduce 
the risks of fraud. 

Further improving the understanding of EU rights, including the right to free movement and 
the conditions attached to it, is important for their effective day-to-day implementation.  

The Commission will continue its efforts to inform citizens about their EU rights and about 
what  to  do  if  these  are  not  respected.17  It  will  also  continue  to  assist  the  ever-increasing 
number  of  EU  citizens  seeking  information  on  their  rights,  especially  through  the  Your 
Europe  portal,18  which  currently  receives  more  than  1.4  million  visits  per  month.19  The  e-

9   2013 EU Citizenship Report (COM(2013) 269 final). 
10   See annex to this report for a full account of actions taken since 2013.  
11   87% are aware of the status and 78% know how it is acquired: 2015 EB on EU citizenship. 
12   2016 Standard EB on EU citizenship. 
13   2015 EB on EU citizenship. 42% feel fairly well or very well informed about their rights (up by 6 percentage 

points since the 2012 EB on EU citizenship). 

14   Idem. 72% know that EU citizens have the right, when outside the EU, to seek help from the embassy of any 
EU country if their country does not have an embassy there. However, 75% incorrectly believe they would 
have the right to seek such help also when they are staying in another EU country. 

15   2016 Standard EB on EU citizenship. 
16  Article 20(2) of the Treaty on the functioning of the European Union (TFEU). 
17   2015 EB on EU citizenship. 26% of respondents do not feel sufficiently informed about what to do if their 
rights  are  not  respected.  This  represents  a  slight  improvement  compared  to  2012.  See  also  point  11  in  the 
annex.  

18   Sixty ‘Your Europe’ experts work every day to answer questions and advise in jargon-free terms on personal 

EU rights in all 24 official EU languages. 

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justice  portal,20  an  electronic  one-stop  shop  in  the  area  of  justice,  complements  this  tool  by 
providing  citizens  requiring  access  to  the  justice  system  –  and  judges,  lawyers  and  other 
justice  professionals  –  with  information  on  justice  systems  and  improving  access  to  justice. 
The  Commission  is  also  improving  its  Europa  website  to  help  people  find  the  information 
they  are  looking  for  quickly  and  easily.21  Efforts  to  improve  accessibility  of  the  Europa 
website will facilitate the access to this information for persons with disabilities. 

In many cases, Member States are best placed to help citizens to exercise EU rights. National 
authorities or bodies,22 including judges, regional and local authorities, have an essential role 
to  play  in  informing  citizens  and  improving  their  awareness  of  their  EU  rights,  and  in 
ensuring respect for these rights. Member States also cooperate through the SOLVIT network, 
which works with Commission support to solve the problems that individuals encounter when 
exercising their EU rights.23 The upcoming SOLVIT Action plan should enhance the capacity, 
the  visibility  and  the  authority  of  this  network  as  a  problem-solving  tool  for  business  and 
citizens, and as an instrument for feedback. The Commission is also launching an e-learning 
tool to help front desks that play a key role in enforcing EU citizens’ free movement rights, in 
particular local and regional authorities, understand and correctly apply free movement rules.  

Member  States  moreover  have  a  further  specific  responsibility  to  bear  in  mind  that,  when 
granting  or  removing  nationality,  they  also  grant  or  remove  EU  citizenship  and  should 
therefore  respect  the  principle  of  sincere  cooperation  and  the  limits  set  out  by  the  Court  of 
Justice.  

1.2. 

Strengthening European common values 

Our  values,  including  freedom,  democracy  and  the  rule  of  law,  are  an  integral  part  of  our 
European  way  of  life.24  Union  citizenship  also  means  benefiting  from  equal  treatment  and 
sharing in a system of common values which the Union upholds, including respect for human 
dignity, equality and human rights, and inclusion, tolerance and respect for diversity.25 
EU  citizens  expect  more  to  be  done  to  promote  EU  common  values.26  They  suggested  that 
this  should  be  done  in  particular  through  education,  mobility  of  young  people  and  cultural 

19   Moreover,  it  is  envisaged  to  tap  into  the  potential  of  the  Your  Europe  advice  database  containing  210,000 

responses to improve the information currently provided through the Your Europe portal. 

20   See https://e-justice.europa.eu/home.do?action=home.  
21   europa.eu receives some 400 million visits every year and is one of the biggest domains in the world. The 
Digital Transformation project was kicked off in 2013 to give the Europa website a complete overhaul, which 
is expected to be complete by 2017.  

22   e.g.,  the  specialised  bodies  established  under  the  Workers’  Rights  Directive  (Directive  2014/54/EU  on 
measures facilitating the exercise of rights conferred on workers in the context of freedom of movement for 
workers, OJ L 128, 30.4.2014, pp. 8–14), which will certainly contribute to raising awareness among Union 
workers  (including  jobseekers)  and  members  of  their  families,  private  and  public  employers,  public 
authorities,  social  partners,  NGOs,  other  stakeholders  and  people  in  general  about  the  impact  of  Union 
legislation on free movement of workers. These bodies are responsible inter alia for providing information 
on review procedures and other specific assistance to workers and their family members. 

23  SOLVIT  is  a  network  of  national  authorities  working  together  to  find  informal,  out-of-court  and  free  of 

charge solutions to problems faced by citizens.  

24   Jean-Claude  Juncker,  2016  state  of  the  Union  address.  See  also:  Communication  from  the  Commission 

supporting the prevention of radicalisation leading to violent extremism (COM(2016) 379 final). 

25   Article 2 Treaty on European Union. 
26   2015 public consultation on EU citizenship. 

5 

 
 
                                                                                                                                                         
activities.  This  was  also  the  spirit  behind  the  adoption  of  the  Paris  Declaration  of  March 
2015.27 

Promoting awareness of EU citizenship and the values attached to it among young Europeans 
reaching voting age and those acquiring the nationality of a Member State, and in society as a 
whole,  requires  a  joint  effort  of  all  actors  concerned  at  all  levels  –  the  Member  States, 
including their local and regional authorities28, EU institutions and civil society.  

In its Communication of 14 June 2016 on supporting the prevention of radicalisation leading 
to  violent  extremism,  the  Commission  announced  concrete  actions.  In  particular,  the 
Commission will establish a network to facilitate direct contacts with positive role models in 
schools,  and  in  youth  and  sports  clubs,  to  encourage  and  inspire  young  people  to  become 
active  and  engaged  members  of  European  society.  It  will  further  promote  the  capacity  of 
youth work, youth organisations and networks to act as forces of inclusion by helping young 
people engage, volunteer and drive positive social change, and in close cooperation with the 
Member  States,  will  develop  a  toolkit29  to  support  youth  workers  and  organisations.  It  will 
increase  the  use  of  e-Twinning,30  an  online  platform  which  promotes  collaboration  and 
exchanges between teachers and schools across Europe, and extend it to countries in the EU’s 
neighbourhood. 

European values are supported through the Erasmus+ programme, which has already allowed 
five  million  people  to  study,  train,  volunteer  or  gain  professional  experience  in  a  different 
country, thus contributing to promote active citizenship and solidarity. Since 2015, Erasmus+ 
has put a special focus on projects supporting social inclusion and preventing radicalisation. 
More  than  EUR  400  million  have  been  made  available  in  2016  through  the  programme  for 
transnational partnerships to develop innovative policy approaches and practices at grass-root 
level,  which  prioritise  social  inclusion,  the  promotion  of  common  values  and  intercultural 
understanding, and a dedicated EUR 13 million will also help to scale up such actions.  

Volunteering  is  another  way  of  putting  EU  values  into  practice.  By  developing  solidarity, 
mutual understanding and tolerance, it contributes to strengthening social cohesion and active 
citizenship. The European Voluntary Service will be strengthened and action will be taken to 
promote  the  award  of  study  credits  for  volunteering,  and  the  development  of  curricula  that 
combine  academic  content  with  civic  engagement  through  Erasmus+.  The  European 
Solidarity  Corps,  rooted  in  the  core  EU  values  of  engagement  and  solidarity,  will  build  on 
existing EU youth programmes during its first phase and within its volunteering component,31 
and  mobilise  established  networks of  employment,  education  and  civil  society  actors  across 
Europe to enable young people to help where it is needed most. It will serve as a connecting 
factor  among  young  people  working  on  a  common  solidarity  project,  thus  contributing  to 
developing  a  stronger  European  perspective.  Young  people  across  the  EU  will  be  able  to 
participate  in  a  wide  range  of  solidarity  activities  by  supporting  a  non-governmental 
organisation  (NGO),  local  authority  or  private  company  active  in  addressing  challenging 
situations  across  the  EU,  such  as  rebuilding  communities  following  natural  disasters; 

27   Declaration on promoting citizenship and the common values of freedom, tolerance and non-discrimination 

through education, ST 8965/15. 

28   78% of respondents to the 2015 public consultation on EU citizenship expect local and regional authorities to 

play a greater role in this context.  

29   EU Work Plan for Youth, 2016–2018, OJ C 417, 15.12.2015, pp. 1–15. 
30   http://eacea.ec.europa.eu/llp/comenius/comenius_etwinning_en.php. 
31   https://europa.eu/youth/volunteering_en. 

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addressing  social  challenges  such  as  social  exclusion,  poverty,  health  and  demographic 
challenges; or working on the reception and integration of refugees.32 
The Rights, Equality and Citizenship Programme33 provides funding to actions that promote 
awareness  and  knowledge  of  the  rights  deriving  from  EU  citizenship  and  its  underlying 
values.  In  2016  EUR  2.5  million  were  set  aside  for  fostering  successful  inclusion  and 
participation  of  mobile  EU  citizens  in  their  host  country.34  This  programme  also  provides 
funding  to  grassroots  projects  on  fostering  tolerance  and  preventing  and  combating  racism 
and xenophobia, and supports initiatives to create better understanding between communities, 
including  through  interreligious  and  intercultural  activities.  The  Europe  for  Citizens 
programme  provides  a  unique  forum  to  involve  citizens  in  the  EU.35  It  will  continue  to  be 
developed  to  maximise  its  impact  by  strategically  funding  activities  targeting  citizens  to 
support the promotion of European citizenship and the values of the Union.36 The programme 
provides  opportunities  for  debate,  reflection  and  networking  thereby  promoting  civic 
engagement. Every year, the programme brings together more than 1 million EU citizens in a 
variety of projects from local to European level, thereby fostering the feeling of being citizen 
of the EU. 

Priorities for 2017–19: Promoting EU citizenship rights and common values 

The Commission will: 

1.  In  2017  and  2018  conduct  an  EU-wide  information  and  awareness  raising  campaign 
on  EU  citizenship  rights  including  on  consular  protection and  electoral  rights  ahead  of 
the 2019 European elections.37  

2  Take action to strengthen the European Voluntary Service and promote the benefits and 
integration  of  volunteering  in  education.  By  2020,  invite  the  first  100,000  young 
Europeans  to  volunteer  with  the  European  Solidarity  Corps  which  will  provide  the 
opportunity  to  develop  new  skills  and  meaningful  experiences,  to  make  an  important 
contribution  to  society  across  the  EU,  and  to  gain  invaluable  experience  and  acquire 
valuable skills at the start of their career.38 

3.  Safeguard the essence of EU citizenship and its inherent values; in 2017/2018 produce a 
report  on  national  schemes  granting  EU  citizenship  to  investors  describing  the 

32   http://europa.eu/rapid/press-release_MEMO-16-3062_en.htm.  
33   Regulation  1381/2013  establishing  a  Rights,  Equality  and  Citizenship  Programme  for  the  period  2014  to 

2020, OJ L 354, 28.12.2013, pp. 62–72.  

34   This amount includes activities on developing, identifying and promoting the exchange and dissemination of 
best  practices  implemented  across  the  EU  at  local/regional/national  level  to  foster  the  successful  inclusion 
and participation of  mobile  EU  citizens  in  the  host EU  country’s  civic and political  life  (e.g.  through  one-
stop-shop  information  services  addressed  to  newcomers,  by  promoting  the  participation  of  EU  citizens 
coming from another Member States in local elections etc.).  

35   See study published recently by the European Parliament: European Implementation Assessment, Europe for 

Citizens Programme (2014–2020), PE 581.418, p. 4.  

36   Support  is  already  been  given,  for  example,  for  networks  of  towns  and  civil  society  projects  which  give 

citizens an opportunity to participate concretely in EU policymaking. 

37   This includes making it easier for citizens to access relevant information on its Consular Protection website, 
and raising awareness of the value of European identity and travel documents. This will also build on other 
EU-funded  activities  including  through  the  REC  programme,  to  reach  out  to  young  people  and  through 
different channels, including new media. 

38   http://europa.eu/rapid/press-release_MEMO-16-3062_en.htm.  

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Commission’s action in this area, current national law and practices, and providing some 
guidance for Member States.  

3. 

PROMOTING AND ENHANCING CITIZENS’ PARTICIPATION IN THE DEMOCRATIC LIFE 
OF THE EU 

Being a European citizen also means enjoying political rights. Every adult EU citizen has the 
right to vote in European Parliament elections. Mobile EU citizens have the right to vote in 
their country of residence, or in their country of origin. This right is not exercised as fully as it 
could be.39 

The  functioning  of  the  EU  is  founded  on  representative  democracy.  This  requires 
transparency  and  an  accessible,  accountable  political  culture,  supported  by  an  effective 
electoral system and an informed and engaged electorate.  

1.3. 

Enhancing citizens’ engagement in the EU democratic process  

Enhancing  citizens’  engagement  in  the  EU  democratic  process  requires  a  joint  effort  of  the 
Member  States,  including  their  local  and  regional  authorities,  the  EU  institutions  and  civil 
society. 
In its 2014 European elections report40 the Commission flagged the need, in view of the 2019 
elections,  to  examine  the  reasons  for  the  persistently  low  turnout  in  European  elections  in 
some Member States, and to identify ways to address this. Citizens are more likely to engage 
when  they  know  what  policies,  programmes  and  political  parties  they  are  voting  for.  But 
participation  is  not  just  about  voting;  it  is  also  about  playing  an  active  role  in  the  political 
debate and in the life of political parties and standing for election. It is about engaging with 
EU institutions and holding them to account.  

Citizens’ Dialogues and the participation of citizens in European party campaign events and 
online  discussions  ahead  of  the  2014  European  Parliament  elections  showed  that  there  is  a 
demand  for more interaction with  EU, national and local  politicians.41 Most Europeans also 
think that turnout at European elections would be higher if voters had better information about 
the impact that the EU has on their daily lives, and about European parliamentary elections.42 
The Commission will intensify the Citizens’ Dialogues and take further action to explain its 
policies to citizens as highlighted by Commission President Jean-Claude Juncker in his 2016 
State of the Union address.  

Encouraging  voter  turnout  in  European  elections  is  a  shared  responsibility.  Member  States 
should promote participation in democratic life by better informing citizens of their rights to 
vote  in  local  and  European  elections43  and  removing  barriers  for  their  participation.44  In 

39   2015 EB on electoral rights. 
40   COM(2015) 206 final. 
41   87%  of  the  participants  in  these  dialogues  said  they  would  vote  in  the  European  elections  (Commission 
report, Citizens’ Dialogues as a contribution to developing a European public space (COM(2014) 173 final). 

42   2015 EB on electoral rights. 
43   According to the 2015 EB on EU citizenship a majority of respondents correctly identify their electoral rights 
at European level (67%) and at local level (54%). Even if these figures are higher than in 2007, the level of 
awareness of these rights has dropped slightly since 2012. 

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addition,  EU  citizens,  in  particular  those  voting  in  a  country  other  than  their  country  of 
nationality, would welcome practices making it easier for them to vote in these elections as 
non-nationals (e.g. individual letters, online registration on the electoral roll, e-voting).45 Such 
practices will benefit all EU citizens. 

In  the run  up to  the 2019 European election, the Commission will organise in  2018 a high-
level event on democratic participation with a particular focus on encouraging best practices 
to increase the participation of young people and vulnerable and underrepresented groups.  

1.4. 

Enhancing transparency – towards a more democratic Union 

Building on the Lisbon Treaty,  the Commission  took  steps to enhance the transparency and 
democracy  of  the  2014  European  parliament  elections,  including  by  promoting  the  lead 
candidate (Spitzenkandidaten) system.46  

The 2014 European Parliament elections were fundamentally different from previous ones in 
that  they  established  a  clear  link  between  the  results  of  the  elections  and  the  choice  of 
European Commission President.  

In  November  2015  the  European  Parliament  presented  a  legislative  initiative  on  European 
Parliament elections47 aimed at further enhancing the democratic and transnational dimension 
of the European elections and the democratic legitimacy of the EU decision-making system, 
such  as  introducing  the  lead  candidates  principle  into  EU  electoral  law  and  enhancing  the 
visibility of the European political parties.48 The reform of the Electoral Act is an opportunity 
for the Union to become more democratic. 

The  scope  for  holding  the  Commission  to  democratic  account  will  also  be  increased  by 
removing  the  rule  requiring  Commissioners  to  step  down  before  running  for  election  in  the 
European  elections.  On  23  November  2016,  the  Commission  proposed  to  the  European 
Parliament  to  update  the  2010  Framework  Agreement  on  relations  between  the  European 
Parliament and the European Commission accordingly.49 Open dialogue with all stakeholders 
and awareness-raising in the run-up to the European elections will build on the new features 
of the elections introduced in 2014.  

Finally, and also responding to a request by the European Parliament to investigate the use of 
e-voting,50  the  Commission  will  explore  how  using  digital  society  tools  can  contribute  to 

44   For  underrepresented  and/or  vulnerable  groups  such  as  the  disabled.  See  also  the  study  issued  by  the  EU 
Agency on fundamental rights in October 2010, on the right to political participation of persons with mental 
health problems and persons with intellectual disabilities. 

45   2015  EB  on  electoral  rights.  According  to  the  2015  Public  consultation  on  EU  citizenship,  21%  of 
respondents said they had experienced difficulties in exercising their electoral rights when living in another 
EU country. 

46   Commission  Recommendation  2013/142/EU  on  enhancing  the  democratic  and  efficient  conduct  of  the 
elections to the European Parliament OJ L 79 21.3.2013, pp. 29–32; and Towards more democratic European 
Parliament elections (COM(2014) 196 final)). 

47   European  Parliament  Resolution  of 11 November  2015 on the  reform  of  the  electoral  law of  the  European 

Union (P8_TA(2015)0395 – 2015/2035(INL)). 

48   This proposal is currently under discussion in the Council. 
49   http://europa.eu/rapid/press-release_IP-16-3929_en.htm.  
50   First Commission interim report on the implementation of pilot projects and preparatory actions (2016). 

9 

 
 
                                                                                                                                                         
democratic debate, and improve the electoral process and democratic participation, including 
for mobile EU citizens, young people and underrepresented groups.51 

1.5. 

Access to political information across borders 

Respondents to the 2015 public consultation on EU citizenship thought that the lack of cross-
border access to political news, in particular to media platforms in other EU countries, and a 
lack  of  cross-border  coverage  of  political  issues  were  a  problem.  This  makes  it  difficult  for 
EU citizens living abroad to follow news from their country of nationality, and for others to 
get a broader view of the news and political debates.  

Free media and access to a plurality of voices in society and in the media are indispensable to 
a healthy democracy. With its second annual colloquium on fundamental rights focussing on 
media  pluralism  and  democracy,  the  Commission  brought  together  key  stakeholders  to 
discuss  how  to  foster  political  debate  on  crucial  issues  for  democratic  societies  through  a 
pluralistic media environment. The outcomes will inform the Commission’s future actions in 
this area.52 

The internet is the main source of political information for most citizens today, in particular 
younger  generations.53  Europeans  are  also  increasingly  using  online  content  services  while 
moving across countries. Delivering on its Digital Single Market Strategy,54 the Commission 
proposed a Regulation to allow citizens to travel within the EU with the digital content they 
have bought or subscribed to at home.55 

1.6. 

Increasing participation of mobile EU citizens in political life 

While  EU  citizens  have  a  right  to  stand  as  candidates  in  local  elections  in  another  Member 
State  in  which  they  live  under  the  same  conditions  as  the  nationals  of  that  country,  certain 
posts  in  municipal  executive  bodies  in  some  EU  countries  can  be  filled  only  by  their  own 
nationals. The views of citizens on whether this is appropriate are fairly evenly split, and the 
Commission will keep the issue under review in its next report on local elections.56  

Citizens do not acquire the right to vote in national or presidential elections when they move 
to  another  EU  country.57  Moreover,  citizens  of  certain  EU  countries  may  currently  be 
deprived of their right to vote in national elections in their home country (disenfranchisement) 
because  they  have  been  living  in  another  EU  country  for  a  period.58  Citizens  should  not  be 
disadvantaged  as  a  result  of  exercising  their  right  to  free  movement.  In  2014  the 
Commission59 invited the Member States concerned to enable their nationals who make use of 
their  free  movement  rights  to  retain  their  right  to  vote  in  national  elections  if  they  show  a 

51   See 

http://ec.europa.eu/research/participants/portal/desktop/en/opportunities/rec/topics/rec-rppi-evot-ag-

2016.html.  

52   2016 annual colloquium on fundamental rights. 
53   2015 public consultation on EU citizenship. 
54   COM(2015) 192 final. 
55   COM(2015) 627 final. 
56   Over eight out of ten respondents to the 2015 public consultation on EU citizenship thought that EU citizens 
from other EU countries should be able to become members of the executive body of a municipality, while 
respondents to the 2015 EB on electoral rights were split on this point.  

57   64% of respondents to the 2015 EB on EU citizenship felt it justified that citizens should acquire the right to 

vote in national elections. 

58   67% of respondents to the 2015 EB on EU citizenship felt it was unjustified that citizens should lose their 

right to vote in national elections in their country of origin. 

59   Recommendation  addressing  the  consequences  of  disenfranchisement  of  Union  citizens  exercising  their 

rights to free movement 2014/53/EU OJ L 32, 1.2.2004, pp. 34–35. 

10 

 
 
                                                 
continuing  interest  in  the  political  life  of  their  country.  The  Commission  will  continue  to 
monitor  developments  in  the  relevant  Member  States  and  consider  appropriate  action  to 
encourage them to look for balanced solutions. It will also explore the possibilities for non-
national  EU  citizens  who  have  exercised  their  right  to  free  movement  to  vote  in  national 
elections in the country they live in. 

Priorities for 2017–19: Promoting and enhancing citizens’ participation in the democratic life 
of the EU 

The Commission will: 

1.  Intensify  Citizens’  Dialogues  and  encourage  public  debates,  to  improve  public 
understanding  of  the  impact  of  the  EU  on  citizens’  daily  lives  and  to  encourage  an 
exchange of views with citizens. 

2.  Report  in  2017  on  the  implementation  of  EU  law  on  local  elections  to  ensure  that  EU 

citizens can effectively exercise their voting rights at local level. 

3.  In 2018, promote best practices which help citizens vote and stand for EU elections, 
including on retaining the right to vote when moving to another Member State and cross-
border access to political news, to support turnout and broad democratic participation in 
the perspective of the 2019 European elections.60  

4. 

SIMPLIFYING DAILY LIFE FOR EU CITIZENS 

Ever  since  free  movement  was  first  enshrined  in  the  Treaties  60  years  ago,  it  has  become 
much  easier  to  live,  work,  study  and  travel  abroad  in  Europe.61  More  than  15  million 
Europeans  reside  in  another  EU  country.62  Free  movement  provides  EU  citizens  with 
opportunities to travel, study, do business, work and live in other EU countries. Surveys show 
that  EU  citizens,  especially  the  young,  see  free  movement  as  the  EU’s  most  positive 
achievement.63  They  see  it  as  beneficial  both  to  them  personally  and  to  their  countries’ 
economies.64 

60   These  best  practices  will  also  address  e-democracy  tools,  remote  voting  arrangements  (e.g.  e-voting)  and 

cross-border access to political information, and will target improving on low voter turnout. 

61   There is a greater Europeanisation of daily life for a greater proportion of European citizens than is generally 
assumed.  For  example,  more  than  50%  of  EU  citizens  ‘communicate  regularly  by  phone,  internet,  mail  or 
email  with  family  and/or  friends  abroad’,  ‘have  visited  at  least  another  EU  Member  State  in  the  last  two 
years’, ‘watch TV in a non-native language’ or feel ‘familiar with at least another EU country’ (EU funded 
research project EUCROSS). 

62   http://ec.europa.eu/eurostat/statistics-explained/index.php/Migration_and_migrant_population_statistics. 
63   Autumn 2016 Standard EB on EU citizenship. ‘Free movement of people, goods and services within the EU’ 
is  at  the  top  of  the  list  of  the  EU’s  most  positive  results  for  56%  of  respondents,  ahead  of  ‘peace  among 
Member States of the EU’. Also 81% of Europeans are in favour of the "free movement of EU citizens who 
can live, work, study and do business anywhere in the EU". Majorities of respondents support free movement 
in all countries). 

64   2015 EB on EU citizenship. 71% agree with the statement that free movement of people within the EU brings 
overall benefits to the economy of their country. Also, 2015 Public consultation on EU citizenship: the great 
majority  of  respondents  felt  that  moving  to  another  EU  country  brings  with  it  cultural  diversity,  fosters 
mutual understanding and brings specific knowledge and skills. 

11 

 
 
                                                 
Nevertheless, Europeans can still encounter difficulties with moving or living in another EU 
country.65  Some  difficulties  are  legal,  others  procedural,  others  technological,  but  often 
comparatively little change is needed to make a significant difference.  

1.7. 

Cutting red tape and informing citizens 

Respondents to the 2015 public consultation on EU citizenship said the difficulties they had 
experienced related mostly to lengthy or unclear administrative procedures, lack of sufficient 
information and difficulties in accessing private services. They also reported difficulties in the 
communication  between  public  authorities  and  with  the  healthcare  system.66  More  work  is 
needed to simplify the exercise of EU citizens’ free movement rights. 

1.7.1. 

Informing and assisting EU citizens on the move 

Before  deciding  to  move  to  another  EU  country  (or  return  to  their  country  after  living 
elsewhere in the EU), most Europeans use the internet to find the information and assistance 
they  need  to  be  able  for  example  to  work,  study,  travel,  live  or  retire  in  another  Member 
State.67 In practice, the information available online is often difficult to find, incomplete, hard 
to  understand, inaccurate, outdated or  unavailable, and it does  not  always correspond to  the 
users’ needs. Most Europeans say it would be easier to settle in another EU country and live 
there if authorities provided information and advice tailored to individual needs through one-
stop shop web portals, and if they could deal with administrative formalities online. The new 
EURES  Regulation  (EU)  2016/589  already  makes  it  easier  to  connect  jobseekers  and 
employers across borders.68 Better cooperation between national authorities would also ease 
formalities.69  

In  the  Digital  Single  Market  Strategy  the  Commission  committed  itself  to  create  a  user-
friendly information system for citizens and business by extending and integrating European 
and national portals.70 The Single Market Strategy also backed the ‘Single Digital Gateway’ 
which  intends  to  provide  online  ‘everything  that  entrepreneurs  and  citizens  need’  to  do 
business cross-border and/or to travel to, buy from, work, study or reside in another country in 
the EU Single Market. The gateway would be based on existing portals, contact points,71 and 
assistance  and  problem-solving  networks,  with  the  aim  to  expand,  improve  and  better  link 
them  up  to  enable  citizens  and  businesses  to  have  an  online  access  to  high  quality, 
comprehensive  information,  effective  assistance  and  problem-solving  services  and  efficient 
procedures.  

A connected Digital  Single Market includes  further developing  and creating seamless,  user-
friendly and user-centric e-government services for those citizens who want to  study, work, 

65   As shown for example by the complaints received by SOLVIT and Your Europe.  
66   In  2014,  the  vast  majority  of  problems  faced  by  citizens  who  used  SOLVIT  were  issues  related  to  social 
See 

security, 
http://ec.europa.eu/internal_market/scoreboard/performance_by_governance_tool/solvit/index_en.htm. 

movement 

followed 

related 

issues. 

free 

by 

67   73% of respondents to the 2015 Public consultation on EU citizenship said the main source of information 
consulted before moving to another EU country were websites of public authorities, including regional and 
local authorities, of that country. 

68   Regulation  (EU)  2016/589  of  13  April  2016  on  a  European  network  of  employment  services  (EURES), 
workers’ access to mobility services and the further integration of labour markets, OJ L 107 22.4.2016, pp. 
1–28. 

69   2015 public consultation on EU citizenship and 2016 public consultation on the Single Digital Gateway.  
70   COM(2015) 0192 final. 
71   Such as Your Europe, Single Points of Contact, Product Contact Points and Contact Points for Construction 

Products. 

12 

 
 
                                                 
live  and  retire,  or  set  up  and  run  a  business  anywhere  in  the  EU.  The  Commission  is  also 
exploring  the  possibility  to  implement  the  ‘once-only’  principle,  so  that  citizens  and 
businesses  do  not  have  to  submit  the  same  information  more  than  once  to  public 
administrations.72 This would further reduce the administrative burden on citizens.73  

1.7.2.  Cutting red tape on citizens’ public documents 

To get married or obtain a job in another EU country, citizens often need to go through costly 
and  time-consuming  formalities.  To  address  this  problem,  in  July  2016  the  EU  adopted  a 
regulation74 to put an end to this red tape and to help citizens move more easily to another EU 
country.  Once  EU  countries  have  put  all  the  necessary  measures  in  place,75  citizens  will  be 
able  to  present  in  one  Member  State  public  documents  (such  as  birth,  marriage  or  death 
certificates) issued in another without having to obtain a stamp (the ‘Apostille’) to prove that 
their  documents  are  authentic.  In  addition,  by  making  use  of  multilingual  standard  forms, 
which the Commission will finish developing with the Member States in 2017, citizens will 
not always need to provide translations of their public documents.  

1.7.3.  Cutting red tape in family law 

As the number of international families in the EU increases,76 so does the potential for cross-
border disputes on family matters. Distress caused by divorce, legal separation or death can be 
made  worse  by  the  often  complex  family  law  issues  which  arise  regarding  property  and 
parental responsibility. Resolving such issues across borders can be even more complex and 
makes  EU  citizens’  lives  particularly  difficult.  Important  steps  have  been  taken  towards 
cutting  red  tape  and  bringing  legal  clarity  for  international  families  going  through  difficult 
times,  and  new  proposals  have  been  adopted  on  the  protection  of  children  in  cross-border 
family disputes.  
Rules on international succession77 help international families to determine which court will 
be competent and which law will apply  to  their succession, for example when the deceased 
lived in an EU country which was not his or her country of origin, or had heirs or property in 
different  EU  countries.  Citizens  will  benefit  from  the  ‘European  Certificate  of  Succession’, 
which will enable heirs, legatees, executors of wills and administrators of the estate to prove 
their status and exercise their rights and powers across the EU. To address remaining gaps for 
those international couples who have to go through unclear legal situations in case of divorce 
or  death  of  a  partner,  a  pair  of  regulations  adopted  in  June  201678  will  help  international 

72   The  EU  e-Government  Action  Plan  2016–2020  includes  actions  piloting  the  once-only  principle 
(COM(2016)0179 final). See also Regulation (EU) 910/2014 of 23 July 2014 on electronic identification and 
trust services for electronic transactions in the internal market, OJ L 257, 28.8.2014, pp. 73–114. 

73   Public  administrations  only  re-use  information  about  the  citizens  or  companies  that  is  in  their  possession 

without asking again in 48% of cases. 

74   Regulation (EU) No 2016/1191 of 6 July 2016 on promoting the free movement of citizens by simplifying 
the requirements for presenting certain public documents in the European Union, OJ L 200, 26.7.2016, pp. 1–
136. 

75   They have two years and a half to do so from its entry into force on 15 August 2016. 
76   The estimated number of 16 million international families is rising. 
77   Regulation (EU) No 650/2012 of 4 July 2012 on jurisdiction, applicable law, recognition and enforcement of 
decisions  and  acceptance  and  enforcement  of  authentic  instruments  in  matters  of  succession  and  on  the 
creation of a European Certificate of Succession, OJ L 201, 27.7.2012, pp. 107–134.  

78   Council  Regulation  (EU)  2016/1103  of  24  June  2016  implementing  enhanced  cooperation  in  the  area  of 
jurisdiction,  applicable  law  and  the  recognition  and  enforcement  of  decisions  in  matters  of  matrimonial 
property regimes, OJ L 183, 8.7.2016, pp. 1–29; and Council Regulation (EU) 2016/1104 of 24 June 2016 
implementing  enhanced  cooperation  in  the  area  of  jurisdiction,  applicable  law  and  the  recognition  and 

13 

 
 
                                                 
 
couples – whether married or in a registered partnership – manage their property and share it 
in case of divorce or death of a partner.79  

In June 2016, in order to improve the functioning of existing rules on parental responsibility 
matters  such  as  custody,  visiting  rights  and  parental  child  abduction,  the  Commission 
proposed new simplified rules which will directly benefit many families and children.80 Once 
these new rules have been adopted, they will speed up proceedings and minimise distress and 
uncertainty,  taking  into  account  the  best  interest  of  the  child.  As  a  part  of  this,  the 
Commission  will  also  continue  to  support  the  accession  of  third  States  to  the  1980  Hague 
Convention  on  the  Civil  Aspects  of  International  Child  Abduction  to  protect  the  child  from 
the harmful effects of a parental abduction. 

1.8. 

Simplifying travel, living and working across the EU for citizens 

Most  Europeans  moving  to  another  EU  country  do  so  because  they  want  to  study  or  work 
there.81  Increasingly  many  young  people  in  Europe  are  open  to  improving  their  skills  and 
competences by studying, training or volunteering in another EU country, either during their 
studies or at the beginning of their professional careers. Europeans largely believe that cross-
border training, education and volunteering experiences can improve their potential and career 
prospects.82  

1.8.1. 

Increasing opportunities for students, trainees, teachers and other workers 

The work done in 2016 to roll out the New Skills Agenda for Europe with the Members States 
will  promote  skills  development  and  matching,  and  support  better  recognition  of 
qualifications: this will contribute to removing obstacles for workers, students and trainees in 
the EU. Public consultations have suggested that Europeans consider that a platform hosting 
cross-border placements or offers for apprenticeships and trainees would further help young 
people looking for opportunities beyond (or prior to) employment. The mobility of teachers 
across  borders  can  benefit  learners  and  teachers  alike,  who  could  share  good  practices  with 
their peers. Another way to benefit learners is to give them the opportunity to attend seminars 
with staff invited from companies from other countries.83 

The ‘School Education Gateway’ is an online platform whose objective is to link teachers and 
other education practitioners across borders and provide them with opportunities to share and 
learn  about  different  policies  and  practices,  and  to  develop  themselves  as  a  professional 
community.  The  ‘Teacher  Academy’  benefits  educators  by  offering  tailor-made  online 
courses  that  provide  a  vital  context  for  developing  pedagogical  approaches  across  Europe. 
The portal ‘Open Education Europe’ complements this by focusing its content and discussions 
on the potential of digital technologies and materials to improve teaching and learning. The 
aim is to provide a space to discuss, learn, share, ask questions and be inspired. 

enforcement  of  decisions  in  matters  of  the  property  consequences  of  registered  partnerships,  OJ  L  183, 
8.7.2016, pp. 30–56. 

79   The Regulations give Member States 30 months to put all necessary measures in place so that international 

couples can enjoy the benefits of the regulations. 

80   COM(2016) 411 final. 
81   According to the 2015 public consultation on EU Citizenship, most respondents had moved to another EU 
county for work related reasons (66%). A similar number of respondents (64%) had moved to another EU 
country in order to study or volunteer. 
82   2015 public consultation on EU citizenship. 
83   Idem. 

14 

 
 
                                                                                                                                                         
Professional qualifications is another area where modernised rules will increase opportunities 
for EU citizens.84 At least 21% of the labour force in the EU (50 million people) works in a 
regulated  profession.85  Over  20,000  persons  with  a  professional  qualification  from  an  EU 
Member State had their professional qualifications recognised in another EU country in 2014. 
In addition, professionals from five professions86 have since January 2016 been able to pursue 
their  professions  more  freely  in  other  EU  countries  thanks  to  the  first  EU-wide  electronic 
procedure  for  the  recognition  of  professional  qualifications  (European Professional  Card).  The 
card simplifies professional qualification recognition procedures in other EU countries.  

1.8.2.  Further simplifying living and travelling in the EU 

When  citizens  who  have  worked  in  several  EU  countries  retire  and  want  to  know  their 
pension  entitlements,  or  when  workers  receive  pay  and  benefits  in  other  EU  countries,  this 
can involve various public authorities in the same country and across borders, which requires 
coordination to establish which rules apply to the person concerned. To facilitate coordination 
and to prevent fraud, the Commission is already working together with the Member States to 
enable full electronic exchange between social security authorities across borders.87  

Bank  accounts  are  indispensable  to  all  citizens,  permitting  them  to  receive  their  salaries, 
pensions and allowances, and to pay bills. But some citizens face difficulties, for example for 
students  or  short-term workers, in opening a bank account in  another EU country.  Since 18 
September 2016 all EU citizens have a right to open a basic bank account88 even if they do 
not  live  in  the  EU  country  where  the  bank  is  located  and  irrespective  of  their  financial 
situation.89  Despite  significant  progress  in  recent  years,  further  efforts  are  needed  before 
financial services such as insurance, mortgages and loans, which also play an important role 
in  the  everyday  lives  of  EU  citizens,  can  be  bought  and  sold  across  EU  borders  without 
difficulties.90 An action plan on retail financial services will be proposed to allow citizens to 
benefit  from  better  products  and  more  choice  regardless  of  their  age,  skills  and  country  of 
residence. 

EU  law  helps  citizens  receive  medical  treatment  in  another  EU  country  and  be  reimbursed. 
For  patients,  EU  law  means  greater  choice  of  healthcare,  more  information  and  easier 
recognition  of  prescriptions  across  borders.  Citizens’  awareness  of  their  rights  to  choose 
healthcare in another EU country remains low.91 Less than two in ten citizens feel they are 
informed  about  their  rights  in  this  area,92  so  the  Commission  is  working  closely  with  the 

84   Directive  2013/55/EU  of  20  November  2013  amending  Directive  2005/36/EC  on  the  recognition  of 
professional  qualifications  and  Regulation  (EU)  No  1024/2012  on  administrative  cooperation  through  the 
Internal Market Information System OJ L 354, 28.12.2013, pp. 132–170. 

85   http://ec.europa.eu/europe2020/pdf/themes/2015/regulated_professions_20151126.pdf.  
86   General care nurses, physiotherapists, pharmacists, real estate agents and mountain guides. 
87   Within the framework of the Electronic Exchange of Social Security Information project on developing an IT 

system that will enable these exchanges.  

88   Directive  2014/92/EU  of  23  July  2014  on  the  comparability  of  fees  related  to  payment  accounts,  payment 
account switching and access to payment accounts with basic features, OJ L 214, 28.8.2014, pp. 214–246.  
89   Persons  with  disabilities  can  also  encounter  difficulties  accessing  banking  services.  The  proposal  for  a 
European Accessibility Act presented by the Commission in 2015 aims to improve accessibility of products 
and services by harmonising requirements in the EU (COM(2015) 615 final). 

90   Green Paper on retail financial services (COM(2015) 630 final). 
91   COM(2015) 421 final. 
92   And only one in ten is aware that national contact points have been set up to provide information to patients 

on their rights and on quality and safety issues. 

15 

 
 
                                                 
Member  States  and  their  National  Contact  Points  to  increase  awareness  of  citizens’  right  to 
cross-border healthcare. 

Europeans  made  214  million  cross-border  trips  to  other  EU  countries  in  2014.  Many  EU 
citizens  travel  for  work  or  commute  between  EU  countries.  EU-wide  multimodal  travel 
information  would  help  EU  citizens  plan  for  such  trips  and  travel.  Currently,  a  multimodal 
journey  across  Europe  is  complicated  and  time  consuming,  especially  when  compared  to 
taking  the  car.  Planning  a  door-to-door  journey  requires  a  combination  of  numerous  travel 
information services and travellers are not always able to handle disruptions effectively when 
they occur. Multimodal travel information should ideally provide travellers with a wide range 
of travel options  and allow them to  opt,  for example,  for the fastest  and  cheapest route, the 
most environmentally friendly or the most accessible for persons with reduced mobility, while 
obtaining compensation in the event of delay. 

Citizens in the EU are protected by a whole set of passenger rights, whether they travel by 
air,  rail,  ship,  bus  or  coach,  but  for  persons  with  reduced  mobility  and/or  disabilities,  it  is 
often  more  difficult  to  travel.  Most  Europeans  consider  that  the  EU  should  help  provide  or 
support accessibility of transport infrastructure, such as airports, train stations or bus terminals 
and  that  accessibility  information  should  be  provided,  for  example  on  the  companies’ 
websites.  A  Commission  evaluation93  of  the  existing  EU  law  on  rail  passengers’  rights 
highlighted specific areas for improvement, and ongoing concerns about both the provisions 
of  the  legislation  and  its  application.  The  Commission  is  therefore  considering  options  to 
improve this. 

Priorities for 2017–19: Simplifying travel, living and working across the EU for citizens 

The Commission will: 

1.  Submit a proposal for setting up a ‘Single Digital Gateway’ to give citizens easy, online 
access  to  information,  assistance  and  problem-solving  services  and  the  possibility  to 
complete  online  administrative  procedures  in  cross-border  situations  by  linking  up 
relevant EU and national-level content and services in a seamless, user-friendly and user-
centric  way.  Moreover,  assess  cutting  red  tape  in  national  administrations  by  requiring 
citizens to supply their data only once.  

2.  Further facilitate and promote EU-wide multimodal travel in order to make mobility of 
EU  citizens  more  efficient  and  user-friendly,  through  the  specification  of  EU-wide 
multimodal  travel  information  services  and  improvements  to  the  interoperability  and 
compatibility of systems and services.  

5. 

1.9. 

STRENGTHENING SECURITY AND PROMOTING EQUALITY 

Tackling security threats and protecting citizens  

Europe faces complex, often cross-border, security threats and the vast majority of Europeans 
believe more common EU action is needed to address them.94 Free movement inside the EU, 
which is cherished by EU citizens, also requires measures to secure the external borders and 

93   COM(2013) 587 final. 
94  Perceptions  and  expectations,  fight  against  terrorism  and  radicalisation,  special  European  Parliament 

Eurobarometer on Europeans in 2016 (June 2016). 

16 

 
 
 
                                                 
to  combat  and  prevent  crime.  Moreover,  the  Schengen  area  has  enabled  the  crossing  of 
internal borders without checks on persons, resulting in easier and more frequent interaction 
between EU citizens. But the challenge of maintaining security in an open Europe has been 
put to a huge test in recent years. 

1.9.1.  Tackling security threats in an area of justice and fundamental rights based on 

mutual trust  

The implementation of the European Agenda on Security,95 the establishment of an effective 
and genuine EU Security Union96 and the enhanced protection of the EU external borders can 
provide  an  adequate,  realistic  and  tangible  answer  to  the  citizens’  security  concerns,  in  full 
respect of the European values and fundamental rights and freedoms. 

The  European  Commission  has  already  put  in  place  and  will  propose  further  initiatives  to 
support  the  upgrade,  modernisation  and  interoperability  of  Europe’s  security  framework 
(European  Criminal  Record  Information  System  (ECRIS),97  European  Travel 
Information  and  Authorisation  System  (ETIAS),98  illegal trafficking  of  firearms,  updates 
to the Schengen Information System (SIS), Passenger Name Recognition (PNR)). At the very 
core of these initiatives is the security of citizens, through improving trust between relevant 
actors  in  the  Union,  stepping  up  operational  cross-border  cooperation  between  national  law 
enforcement authorities, and enabling the better and smarter exchange and use of information 
and intelligence at all levels to address the threat of terrorism.  
In December 2016, the Commission adopted an Action Plan on document security99 setting 
out specific actions to improve the security of travel documents. One of the actions relates to 
fraud  and  forgery  of  national  identity  cards  issued  by  Member  States  and  residence 
documents for EU nationals residing in another Member State and their family members. EU 
citizens  and  their  family  members  who  live  or  travel  in  the  EU  can  indeed  encounter 
difficulties in relation to the use of these documents.100  There is  currently a  wide variety  of 
such cards and documents with security levels that vary significantly, which leads to practical 
difficulties  for  citizens.  Identity  cards  and  residence  documents  that  are  more  secure  and 
easily recognisable  would make  it easier  for citizens to  exercise  their  EU citizenship rights. 
Public authorities, including border authorities, and businesses (such as shops, banks, utilities, 
etc.) would more easily accept such documents. At the same time, it would limit the risk of 
fraud and forgery. In this perspective, the Commission is currently assessing different policy 
options, including a possible harmonisation of security features, to help remedy the practical 
difficulties encountered by citizens and thus facilitate their free movement.101 

1.9.2.  Protecting EU citizens abroad  

Crises  and  individual  emergencies  abroad  can  cause  particular  risk  and  distress  to  citizens 
who  are  beyond  the  immediate  reach  of  their  home  authorities.  The  EU  right  to  consular 

95   COM(2015) 185 final. 
96   Delivering  on  the  European  Agenda  on  Security  to  fight  against  terrorism  and  pave  the  way  towards  an 

effective and genuine Security Union (COM(2016) 230 final). 

97 COM(2016) 7 final. 
98   COM(2016) 731 final. 
99   COM(2016) 790 final. 
100  2013 EU citizenship report. 
101  Enhancing security in a world of mobility: improved information exchange in the fight against terrorism and 

stronger external borders (COM(2016) 602 final); and COM(2016) 790 final. 

17 

 
 
 
                                                 
protection102 is an invaluable additional guarantee for EU citizens finding themselves in need 
of  assistance  in  a  country  outside  the  EU  where  their  home  country  is  not  represented. 
Following  a  proposal  from  the  Commission  in  2011,  a  Directive  was  adopted  on  20  April 
2015103 to clarify when and how EU citizens can receive help and how EU countries should 
coordinate and cooperate among themselves and with the Union to ensure effective protection 
for unrepresented EU citizens. Member States have until May 2018 to implement these rules. 
The  Commission  supports  Member  States  in  their  efforts  to  ensure  the  correct  and  timely 
transposition of the Directive. In parallel, it continues to include and negotiate consent clauses 
in  bilateral  agreements  with  a  number  of  third  countries  to  ensure  that  they  agree  that 
represented EU countries give assistance to the unrepresented nationals of other EU countries. 

Consular protection includes  assistance  in  case of arrest  or  detention or in  case of a serious 
accident or illness. But what EU citizens most frequently need help with when outside the EU 
is when their passport has been stolen, lost, destroyed or is temporarily unavailable. They then 
need an emergency travel document to be able to travel home.104 Existing rules at EU level 
which  established  a  common  format  for  such  emergency  travel  documents  date  back  to 
1996105 and need to be updated.106 Some Member States do not use the common format due to 
security  concerns.  The  Commission  will  explore  possibilities  to  modernise  the  rules  on 
emergency travel documents for unrepresented EU citizens, including the security features 
of the EU common format ETD, to guarantee that citizens can effectively exercise their right 
to consular protection.  

EU citizens and their non-EU family members may also find themselves in situations where 
they are unrepresented and need assistance from the authorities of another EU country when 
travelling within the EU. These circumstances are not currently covered by the Directive and 
the  Commission  will  therefore  evaluate  the  situation  of  unrepresented  EU  citizens  in 
distress  within  the  EU  and  determine  whether  any  action  is  needed  to  ensure  their 
protection.107 

1.10. 

Protecting all citizens and promoting equality and non-discrimination 

1.10.1.  Protecting and supporting victims and witnesses 

Millions of people in the EU fall victims to crime every year. There is EU legislation in place 
to  ensure that all victims of all crime have  basic rights independent  of where  in the EU the 
crime  or  the  criminal  proceedings  take  place.  EU  citizens  also  now  enjoy  better  access  to 
justice  as  the  Parliament  and  Council  have  passed  legislation  on  the  presumption  of 
innocence,  on  safeguards  for  children,  and  on  legal  aid  in  criminal  proceedings.  The 

102  Which is guaranteed by Articles 20(2)(c) and 23(2) TFEU. 
103  Directive (EU) 2015/637 on the coordination and cooperation measures to facilitate consular protection for 
unrepresented  citizens  of  the  Union  in  third  countries  and  repealing  Decision  95/553/EC,  OJ  L  106, 
24.4.2015, pp. 1–13. 

104  The issuance of emergency travel documents is in practice the most frequent form of assistance given by the 

Member States to unrepresented EU citizens (more than 60% of all cases). 

105  Decision  of  the  representatives  of  the  Governments  of  the  Member  States  meeting  within  the  Council  of 

25.06.1996; OJ L 168 of 6.7.1996, pp. 4–11. 

106 Also in view of the entry into force of Article 23(2) TFEU and Directive 2015/637/EU. 
107  EU rules on consular protection (Articles 20(2)(c) and 23 TFEU and Directive (EU) 2015/637) only apply 

outside the EU. 

18 

 
 
  
 
                                                 
Commission  will continue to  monitor  the situation to  ensure that EU rules, in particular the 
the  2011  Anti-Trafficking  Directive109  are 
2012  Victims’  Rights  Directive108  and 
implemented correctly so that victims can fully rely on their rights in practice.  

Regarding  violence  against  women  in  particular,  almost  all  Europeans  (96%)  think  that 
domestic  violence  against  women  is  unacceptable110  but  it  still  occurs  widely.  The 
Commission is launching a year of focused actions to further its commitment to eradicating 
all forms of violence against women and girls and to reducing gender inequality.111 It aims to 
connect  all  efforts  across  the  EU  and  engage  all  stakeholders  –  Member  States,  relevant 
professionals, and NGOs – to collectively combat violence against women. The Commission 
is also working on the Union’s accession to the Council of Europe Convention on combating 
and preventing violence against women and domestic violence (the ‘Istanbul Convention’). 

1.10.2.  Promoting equality and non-discrimination  

Despite efforts to eliminate discrimination, there has been a clear increase since  2012 in the 
number  of  Europeans  who  say  they  have  experienced  some  form  of  discrimination  or 
harassment.112 To fill the gaps in the protection from discrimination, including on the grounds 
of age, religion or belief, disability or sexual orientation, and to ensure a level playing field in 
terms of equality throughout the Union, it is vital to conclude the negotiations on the proposed 
Horizontal Anti-Discrimination Directive.113 

Thanks  to  work  at  all  levels,  the EU’s  policies  on  gender  equality  have  helped change  the 
lives  of  many  European  citizens  for  the  better.114  Nonetheless,  there  remains  room  for 
improvement  in  some  areas,  such  as  pay.  The  2016–2019  Strategic  Engagement  for  gender 
equality  adopted  in  December  2015  provides  a  comprehensive  view  of  the  efforts  of  all  to 
strengthen equality between women and men.115 The Commission also gives every year high 
visibility to the need to address gender inequalities in the European Semester.116 EU funds are 
also playing a key role. Between 2014 and 2020, it is estimated that approximately EUR 5.85 
billion will be spent on measures promoting gender equality. 
The Commission committed in its Work Programme for 2017117 to set out its proposal for a 
Pillar of Social Rights and to present related initiatives, such as to address the challenges of 
work-life balance faced by working families.118  

108  Directive  2012/29/EU  establishing  minimum  standards  on  the  rights,  support  and  protection  of  victims  of 

crime, and replacing Council Framework Decision 2001/220/JHA, OJ L 315, 14.11.2012, pp. 57–73. 

109  Directive 2011/36/EU the European Parliament and the Council of 5 April 2011 on preventing and 

combating trafficking in human beings and protecting its victims, and replacing Council Framework Decision 
2002/629/JHA, OJ L 101, 15.4.2011, pp. 1–11 

110  Special Eurobarometer 449 – Gender-based violence – November 2016.  
111  http://europa.eu/rapid/press-release_STATEMENT-16-3945_en.htm. 
112  Special Eurobarometer 437 – Discrimination in the EU in 2015 – October 2015. 
113  COM(2008) 426 final. 
114  Europeans  feel  very  strongly  about  this.  76%  think  that  tackling  gender  inequality  should  be  a  priority  – 

Special Eurobarometer 428 – gender equality - March 2015. 

115  SWD(2015) 278 final. 
116  The recently  adopted  Annual  Growth Survey put a  strong focus on  gender  employment  and  pay gaps,  and 
these issues were also very present in the year’s European Semester Country Reports and Country Specific 
Recommendations.  
117  COM(2016) 710 final.  
118  The  employment  impact  of  parenthood  continues  to  affect  women  far  more  than  men,  with  many  women, 
especially  mothers,  employed  in  jobs  below  their  skill  level,  or  not  at  all.  According  to  Eurostat  statistics, 

19 

 
 
                                                 
 
Promoting  equality  and  non-discrimination  for  lesbian,  gay,  bisexual,  trans,  and/or 
intersex (LGBTI) people is another area in which the Commission is committed to act.119 To 
advance LGBTI equality in Europe, it has put forward a list of actions to be implemented in 
2016–2019, across all policy areas relevant for LGBTI people: non-discrimination, education, 
employment, health, asylum, hate speech/hate crime, enlargement and foreign policy.  

The  Commission  is  also  renewing  its  call  for  commitment  to  improving  the  economic  and 
social integration of Roma in the EU. Within the framework of the Europe 2020 dialogue,120 
the  European  Commission  stresses  that  further  efforts  must  be  made  to  achieve  Roma 
inclusion and that European institutions and every Member State have a joint responsibility to 
achieve this.121 

Little or no accessibility to goods and services for people with disabilities and older people is 
also  seen  by  a  majority  of  Europeans  as  a  form  of  discrimination.122  In  a  world  that  is 
becoming  more  digitised  every  day,123  boosting  connectivity  for  all  EU  citizens  is  a  key 
priority  for  the  Commission  under  the  2020  Digital  Agenda  and  Digital  Single  Market 
Strategy. It is important that online services for citizens be accompanied by default by safety 
nets for EU citizens in vulnerable situations.124  

Priorities for 2017–19: Strengthening security and promoting equality 

The Commission will: 

1.  In the first quarter of 2017 finalise the study on EU policy options to improve the security 
of  EU  citizens’  identity  cards  and  residence  documents  of  EU  citizens  residing  in 
another  Member  State  and  of  their  non-EU  family  members.125  The  Commission  will 
evaluate the next steps, options and their impacts in view of a possible legislative initiative 
by the end of 2017. 

2.  In  2017  assess  how  to  modernise  the  rules  on  emergency  travel  documents  for 
unrepresented EU citizens, including the security features of the EU common format, to 
guarantee that citizens can effectively exercise their right to consular protection. 

female labour market participation was at 63.5% in 2014, which is 11.5% below the Europe 2020 target for 
total employment rate of 75% for men and women. 

119  The figures on the lack of social acceptance of this group are alarming (65 % of respondents would feel at 
ease  (54  %  comfortable,  11  %  indifferent)  with  a  gay,  lesbian  or  bisexual  person  in  the  highest  elected 
political 
uncomfortable) 
http://ec.europa.eu/justice/discrimination/files/thematic_factsheet_lgbt_en.pdf. 

position; 

would 

they 

said 

feel 

21 

120  http://ec.europa.eu/europe2020/index_en.htm. 
121  The  Commission’s  2016  report  assessing  the  implementation  of  the  EU  Framework  for  National  Roma 
Integration  Strategies  and  the  Council  Recommendation  on  effective  Roma  integration  measures  in  the 
Member  States  sets  out  its  priorities  for  action  in  this  area,  which  include  taking  action  to  ensure  full 
enforcement of anti-discrimination legislation, support Member States’ Roma integration efforts and promote 
participation and dialogue at the European level of all stakeholders. 

% 

122  Eurobarometer Special report – Discrimination in the EU 2012. 
123  http://ec.europa.eu/digital-agenda/en/news/eu-egovernment-report-2015-shows-online-public-services-

europe-are-smart-could-be-smarter.  

124   Future-proofing  e-Government  for  a  Digital  Single  Market,  Final  insight  report:  June  2015,  p.  65.  On  the 
see  also: 

the  websites  and  mobile  applications  of  public 

sector  bodies 

accessibility  of 
https://ec.europa.eu/digital-single-market/en/web-accessibility. 

125 COM(2016) 790 final. 

20 

 
 
                                                                                                                                                         
3.  Carry  out  in  2017  a  campaign  on  violence  against  women  and  actively  support  the 
accession of the Union to the Istanbul Convention alongside Member States and present 
proposals to address the challenges of work-life balance for working families. 

4.  Act to improve the social acceptance of  LGBTI people across the EU by implementing 
the list of actions to advance LGBTI equality and actively support the conclusion of the 
negotiations on the proposed horizontal Anti-Discrimination Directive.126 

6. 

CONCLUSION 

In  producing  this  report,  the  Commission  has  drawn  on  European  citizens’  experiences  and 
views,  as  expressed  in  the  wide-ranging  consultations  that  helped  shape  it,  and  listened  to 
their needs and the problems they face in their daily lives when exercising their rights as EU 
citizens. It has developed its 2017–2019 priorities on this basis, in order to further guarantee 
that  citizens  will  be  able  fully  to  enjoy  their  EU  rights  and  the  practical  benefits  the  EU 
provides.  

Civic  awareness  and  democratic  participation  among  Union  citizens  are  crucial,  especially 
ahead of the next European elections. The Commission believes that further steps should be 
taken to deepen the democratic life of the Union. 

The Commission’s work on EU citizenship will continue to focus on the key areas that most 
directly affect European citizens’ wellbeing:  

  empowering them through information, advice and democratic participation;  
  protecting  them,  securing  their  equal  treatment  in  the  EU  and  providing  them  with 

 

direct support; and  
simplifying  their  daily  lives  by  providing  them  with  easy,  online  access  to 
information,  assistance,  problem-solving  services  and  online  procedures,  cutting  red 
tape, protecting them as consumers, workers and students, and removing other barriers 
to their enjoyment of their rights. 

Shaping and delivering this agenda is not a job for the Commission to deliver on its own, but 
a collective effort for the Union as a whole.  

The Commission is fully committed to making EU citizenship a reality on the ground and it 
will work in partnership with the other EU institutions, the Member States, local and regional 
authorities, civil society and, most importantly, citizens themselves to bring this about. 

126  See political guidelines of President Juncker.  

21 

 
 
 
 
 
                                                 
ANNEX 

Follow up to the 2013 EU Citizenship Report: progress on implementing twelve actions  

In  its  2013  EU  Citizenship  Report  the  Commission  set  out  twelve  actions  to  improve  EU 
citizens’ lives and further remove obstacles standing in the way of their enjoyment of their EU 
rights. This annex presents the main actions taken by the Commission to deliver on its 2013 
commitments. 

Action  1:  Revising  the  Social  Security  Coordination  Regulation  to  make  it  easier  for 
citizens to look for a job in another EU country 

EU social security coordination rules protect citizens’ social security rights when they move 
to another Member State. For instance, the rules ensure that an individual can only be insured 
in one country at any one time, that his or her insurance periods can be added up to insurance 
periods fulfilled in another country and that benefits can be paid in another EU country. 

After obtaining the views of the public through two consultations (December 2012 to March 
2013  and  from  July  to  October  2015),  the  Commission  proposed  on  13  December  2016  a 
revision of the  social  security coordination regulations127  to  ensure that these  rules continue 
being fit-for-purpose, clear and fair and contribute to create a deeper, better functioning and 
fairer European labour market. The revision will enable Member States to better prevent and 
fight fraud or abuse, while ensuring that free movement of workers is not hampered. In doing 
so, this initiative serves to facilitate the exercise of the right to free movement of citizens by 
ensuring social security coordination is efficient and effective. 

The  revision  updates  the  coordination  rules  as  regards  unemployment  benefits,  long-term 
care,  access  to  social  benefits  by  economically  inactive  citizens,  and  posting  of  workers. 
Under the proposal, jobseekers may take their unemployment  benefits with them to another 
Member State for at least 6 months, instead of the current period of 3 months. This will give 
them  a  better  chance  to  find  work,  and  help  tackle  EU-wide  unemployment  and  skill 
mismatches.  This  new  rule  will  be  combined  with  a  reinforced  cooperation  mechanism  to 
support jobseekers to search for work, thus increasing the likelihood of their reintegration into 
the labour market. 

Action  2:  Helping  young  EU  citizens  develop  their  skills  and  enter  the  labour  market  by 
developing a quality framework for traineeships  

In  March  2014  the  Council,  acting  on  a  proposal  from  the  Commission,  adopted  a  Quality 
Framework  for  Traineeships128  to  enable  trainees  to  acquire  high-quality  work  experience 
under safe and fair conditions, and to increase their chances of finding a good quality job. The 

127  Regulation  (EC)  No  883/2004  of  29  April  2004  on  the  coordination  of  social  security  systems,  OJ  L  166, 
30.4.2004, pp. 1–123 and Regulation (EC) No 987/2009 of 16 September 2009 laying down the procedure 
for  implementing  Regulation  (EC)  No  883/2004  on  the  coordination  of  social  security  systems,  OJ  L  284, 
31.10.2009, pp. 1–42; COM (2016)815 final. 

128   Council Recommendation of 10 March 2014 on a Quality Framework for Traineeships, OJ C 88, 27.3.2014, 

pp. 1–4. 

22 

 
 
 
 
 
 
                                                 
Commission consulted a wide range of stakeholders, including small businesses, in order to 
ensure  that  the  Framework  would  be  neither  too  prescriptive  nor  too  burdensome.  The 
Framework increases transparency with regard to traineeship conditions, e.g. by requiring that 
traineeships be based on a written traineeship agreement. The Commission is monitoring the 
implementation of the Framework in all Member States.  

In  addition,  to  support  young  EU  citizens  developing  skills  and  entering  the  labour  market, 
the Commission launched the ‘Your first EURES job’ website. In its initial phase, ‘Your first 
EURES job’ aims at improving cross-border mobility for 5,000 people.129 This website will 
help young people aged 18–35 from the European Economic Area  in their search for a  job, 
traineeship or apprenticeship in another country. Employers are also able to find well-suited 
candidates in another EU country for their hard-to-fill vacancies. 

Action 3: Working on solutions to remove obstacles faced by EU citizens and their family 
members  who  live  in  an  EU  country  other  than  their  own  in  relation  to  identity  and 
residence documents issued by Member States 

In late 2015 the Commission launched a comprehensive study on identity cards and residence 
documents issued by the Member States to their nationals, to mobile EU citizens and to their 
family members residing on their territory.130  

On 8 December 2016, the Commission adopted an Action Plan on document security setting 
out  specific  actions  to  improve  the  security  of  travel  documents,  including  that  of  national 
identity cards issued by Member States and of residence documents for EU nationals residing 
in another Member State and their family members.131  

Action  4:  Promoting  best  tax  practice  in  cross-border  situations  and  ensuring  the  correct 
application  of  EU  law  so  as  to  make  it  easier  for  European  citizens  moving  or  operating 
across borders to deal with different sets of tax rules 

In  order  to  identify  what,  if  any,  tax  problems  EU  citizens  face  when  moving  or  operating 
across  borders,  the  Commission  launched  studies  to  examine  Member  States’  current  cross-
border administrative practices132 and to examine whether and to what extent taxpayers who 
operate across borders face higher tax compliance costs than taxpayers who operate within a 
single Member State.133 In addition, the Commission set up a private sector expert group to 
examine  cross-border  personal  tax  and  inheritance  tax  problems  and  identify  possible 
solutions. The group published its findings in two reports.134 As the main problems in cross-
border situations, it highlighted double taxation, administrative complexities of dealing with 
two or more tax authorities, difficulties in obtaining sufficient information from the different 
tax authorities involved, and discrimination as the main problems in cross-border situations. 

129  http://euxtra.com/en/2012/05/22/your-first-eures-job/.  
130  Study to support the preparation of an impact assessment on EU policy initiatives on residence and identity 

documents to facilitate the exercise of the right to free movement. 

131  COM(2016)790 final. 
132http://ec.europa.eu/taxation_customs/resources/documents/common/publications/studies/study_cross_border_t

x_obstacles_final_report.pdf. 

133  http://ec.europa.eu/taxation_customs/resources/documents/common/publications/studies/study_compliance_c 

ts_final_report.pdf. 

134  http://ec.europa.eu/taxation_customs/taxation/individuals/expert_group/index_en.htm.  

23 

 
 
 
 
                                                 
The  Commission  can  and  will  continue  to  take  legal  action  to  tackle  problems  of  tax 
discrimination.  It  will  promote  pragmatic  ways  to  tackle  these  problems,  including  by 
encouraging  the  use  of existing  Internal  Market  problem  solving  tools  such  as  SOLVIT,  by 
encouraging  wider  adoption  of  best  cross-border  tax  practices  and  by  encouraging  better 
cooperation  between  tax  administrations  and  taxpayers  in  particular  so  as  to  ensure  that 
taxpayers have adequate information on their rights and obligations. 

Action  5:  Establishing  a  ‘vehicle  information  platform’  to  facilitate  the  recognition  of 
roadworthiness certificates, making it easier and safer for citizens to travel to another EU 
Member State 

Directive  2014/45/EU  on  periodic  roadworthiness  tests  for  motor  vehicles  and  their  trailers 
entered into force on 3 April 2014135. In the framework of the ‘Roadworthiness Package’, two 
other  Directives  were  adopted:  Directive  2014/46/EU  on  the  registration  documents  for 
vehicles, on the basis of which data of registered vehicles is to be kept in an electronic register 
and  the  authorisation  to  use  in  road  traffic  a  vehicle  constituting  an  immediate  risk  to  road 
safety  is  suspended;  and  Directive  2014/47/EU  on  technical  roadside  inspections  of 
commercial  vehicles,  which  creates  risk  profiles  of  the  operators,  better  regulates  roadside 
inspections (also excluding any discrimination on grounds of the nationality of the driver or of 
the country of registration of the vehicle) and includes roadside checks on the securing of the 
cargo. 

Action 6: Facilitating the mobility of persons with disabilities within the EU by supporting, 
in  2014,  the  development  of  a  mutually  recognized  EU  disability  card  to  ensure  equal 
access within the EU to certain specific benefits (mainly in the areas of transport, tourism, 
culture and leisure). 

The  employment  rate  among  people  with  disabilities  is  low  (currently  around  48%)  and  a 
third  of  them  are  at  risk  of  poverty.  Also,  people  with  disabilities  face  practical  problems 
when travelling to another EU country, because for example their disability cards or status are 
not always recognised. The Commission therefore took forward the European Disability Card 
project to support mutual recognition of the disability status. In a dedicated study (2010), the 
Academic Network of European Disability Experts showed the diversity of benefits provided 
in Member States following different eligibility criteria. 

At  an  initial  stage,  the  Commission  made  EUR  1.5  million  available  to  Member  States  and 
launched  a  call  for  projects  in  2015  to  facilitate  the  establishment  of  a  mutually  recognised 
European Disability Card and associated benefits.136 It is also providing financial support to 
the fifteen participating Member States and has launched different phases of the card. Eight 
countries applied for the project and were selected: Belgium, Cyprus, Estonia, Finland, Italy, 
Malta, Slovenia and Romania. The projects started in February 2016 and will last 18 months. 

135  Directive  2014/45/EU  of  the  European  Parliament  and  of  the  Council  of  3  April  2014  on  periodic 
roadworthiness  tests  for  motor  vehicles  and  their  trailers  and  repealing  Directive  2009/40/EC,  OJ  L  127, 
29.4.2014, pp. 51–128. 

136  VP/2015/012  Call  for  proposals  to  support  national  projects  on  a  mutually  recognised  European  Disability 

Card and associated benefits. http://ec.europa.eu/social/main.jsp?catld=629. 

24 

 
 
 
 
 
 
                                                 
The  EU  Disability  Card,  which  will  have  a  common  design,  will  ensure  an  equal  access  to 
certain specific benefits, mainly in the areas of culture, leisure, sport and transport. The Card 
will be mutually recognised between EU countries participating in the system, on a voluntary 
basis.  The  Card  does  not  change  national  eligibility  criteria  or  rules.  Member  States  retain 
their discretion to decide who is eligible the Card, using the national definition of disability, 
and to determine the issuing procedure. 

Action  7:  Proposing  a  package  of  legal  instruments  to  further  strengthen  citizens’ 
procedural rights when they are suspected or accused in criminal proceedings, taking into 
account the specific situations of children and vulnerable citizens 

On  27  November  2013  the  Commission  adopted  a  package  of  five  measures  to  further 
strengthen  procedural  safeguards  for  citizens  in  criminal  proceedings.  The  three  Directives 
proposed by the Commission were adopted in 2016: 

  The  Directive  on  presumption  of  innocence  sets  out  common  standards  of  this 

principle and the right to be present at the trial.137  

  The  Directive  on  special  procedural  safeguards  for  children  in  criminal  proceedings 

will improve considerably the European standards on juvenile justice.138  

  The  Directive  on  legal  aid  will  ensure  that  the  right  of  access  to  a  lawyer  is  an 
effective  right  also  for  those  who  cannot  afford  a  lawyer  in  particular  in  the  early 
stages of proceedings when suspects are questioned by police.139  

Member State implementation is ongoing. 

The  Commission  also  adopted  two  recommendations  on  special  safeguards  for  vulnerable 
suspects  in  criminal  proceedings  (2013/C  738/02)  and  on  legal  aid  in  criminal  proceedings 
(2013/C 378/03). 

Action  8:  Revising  the  European  Small  Claims  Procedure  to  facilitate  the  settling  of 
disputes regarding purchases in another EU country 

In  November  2013  the  Commission  proposed  to  improve  the  European  Small  Claims 
Procedure  in  order  better  to  protect  and  inform  EU  citizens  who  are  still  experiencing 
problems when shopping online.140  
The new Regulation was adopted end 2015 and will enter into force in July 2017141 extends 
the  scope  of  the  European  Small  Claims  Procedure  to  claims  of  a  value  up  to  EUR  5000. 

137  Directive  (EU)  2016/343  of  the  European  Parliament  and  of  the  Council  of  9  March  2016  on  the 
strengthening of certain aspects of the presumption of innocence and of the right to be present at the trial in 
criminal proceedings OJ L 65, 11.3.2016, p. 1–11, which entered into force on 31 March 2016. 

138  Directive  (EU)  2016/800  of  the  European  Parliament  and  of  the  Council  of  11  May  2016  on  procedural 
safeguards for children who are suspects or accused persons in criminal proceedings OJ L 132, 21.5.2016, p. 
1–20, which entered into force on 10 June 2016. 

139 Directive (EU) 2016/1919 of the European Parliament and of the Council of 26 October 2016 on legal aid for 
suspects and accused persons in criminal proceedings and for requested persons in European arrest warrant 
proceedings, OJ L 297, 4.11.2016, p. 1–8, which entered into force on 24 November 2016. 

140  The 2012 public consultation on EU citizenship highlights that one in four respondents encounter problems 

when shopping online. 

141  Regulation (EU) 2015/2421 of the European Parliament and of the Council of 16 December 2015 amending 
Regulation  (EC)  No  861/2007  establishing  a  European  Small  Claims  Procedure  and  Regulation  (EC)  No 

25 

 
 
 
 
                                                 
 
These  and  other  changes  will  make  the  European  Small  Claims  Procedure  a  faster  and 
cheaper tool for enforcement of consumer rights and for cross-border debt recovery. 

Action  9:  Developing  a  model  for  the  online  display  of  key  requirements  to  make  the 
information  on  digital products  clearer  and  easier to  compare  and  launching  a  dedicated 
EU-wide awareness-raising campaign on consumer rights 
Via its Consumer Rights Awareness Campaign,142 the Commission informed citizens of their 
rights  under  EU  consumer  law  and  where  they  can  get  more  information,  advice  or  help  in 
case of questions  or  problems (Your  Europe  portal,143 ECC-Net  etc.). The campaign, which 
ran  from  spring  2014  to  March  2016,  aimed  to  increase  consumers’  general  knowledge  of 
their  EU-wide  consumer  rights.  The  was  a  particular  focus  on  the  Consumer  Rights 
Directive,144  the  Unfair  Commercial  Practices  Directive,145  the  Unfair  Contract  Terms 
Directive146 and the Consumer Sales and Guarantees Directive.147 

Action 10: Taking actions to ensure that local administrations are given the tools to fully 
comprehend the free movement rights of EU citizens 

The Commission is launching an e-training tool on EU free movement rights. This tool, which 
has been developed in cooperation with the Member States, will be made available in all EU 
languages.  It  will  help  front  desks  that  play  a  key  role  in  enforcing  EU  citizens’  free 
movement  rights,  in  particular  local  administrations,  better  understand  the  rights  and 
obligations  associated  with  the  EU  citizen’s  rights  of  free  movement  and  thus  improve  the 
practical  application  of  the  EU  rules.  This  better  application  should  reduce  problems 
encountered  by  EU  citizens  and  their  families  when  they  go  to  live  in  another  EU  country, 
related  to  their  rights  of  residence,  social  assistance  benefits,  discrimination,  access  to 
education etc. 

Local administrations will be able to acquire and test their knowledge concerning the rights 
and  procedures  laid  down  in  EU  law  on  free  movement,  including  Directive  2004/38/EC. 
Member  States  can  add  information  they  consider  relevant  concerning  the  national 
transposition and implementation of the rules. 

Action 11: Making it clearer and easier for citizens to know who to turn to for their rights 
to be redressed by providing user-friendly guidance on the central Europa web site 

1896/2006 creating a European order for payment procedure has been published in the Official Journal on 24 
December 2015, OJ L 341 of 24.12.2015, pp. 1–13. 

142  http://ec.europa.eu/justice/newsroom/consumer-marketing/events/140317_en.htm.  
143  http://europa.eu/youreurope/citizens/consumers/index_en.htm. 
144  Directive 2011/83/EU of 25 October 2011 on consumer rights, OJ L 304, 22.11.2011, pp. 64–88. 
145  Directive 2005/29/EU of 11 May 2005 concerning unfair business-to-consumer commercial practices in the 

internal market, OJ L 149, 11.6.2005, pp. 22–35. 

146  Directive 93/13/EEC of 5 April 1993 on unfair terms in consumer contracts, OJ L95, 21.4.1993, pp. 29–34. 
147  Directive  99/44/EC  of  25  May  1999  on  certain  aspects  of  the  sale  of  consumer  goods  and  associated 

guarantees, OJ L 171, 7.7.1999, pp. 12–16. 

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The Commission launched an online tool148 on its central Europa website to guide citizens to 
the most appropriate service to help them solve their problem. This can be either at EU level 
(EU assistance services or institutions), at national or local level.149  

The new tool is now set up to respond to citizens’ concrete needs or questions. For example, 
citizens  can  obtain  guidance  on  getting  a  public  authority  in  another  EU  country  to  respect 
their EU rights, social security rights (including family benefits, urgent healthcare, pensions) 
and  residence  rights,  on  recognition  of  their  professional  qualifications,  registering  their 
vehicles and exchanging their driving licences. Citizens can also obtain information on their 
consumer  rights,150  getting  help  if  they  are  facing  discrimination,  how  to  complain  about 
unfair treatment by an EU body, report a breach of EU law by national authorities or obtain 
consular  assistance  when  outside  the  EU  in  a  country  where  their  own  country  has  no 
diplomatic mission.151 In 2015 the webpage had 11,079 visitors, which represented an 86.6% 
increase from the year before. 

The Commission offers already multilingual user-friendly information about the rights of EU 
citizens152 and strives to make information on its webpages easier to find and to help citizens 
better  understand  what  it  does.  It  is  currently  implementing  its  Digital  Transformation 
Programme,153 which seeks to present relevant information in a user-friendly way. 

Action  12  (1):  Promoting  EU  citizens’  awareness  of  their  EU  citizenship  rights,  and  in 
particular  their  electoral  rights,  by  launching  on  Europe  Day  in  May  2014  a  handbook 
presenting those EU rights in clear and simple language 
In 2014 the Commission issued a handbook ‘Did you know? 10 EU rights at a glance’154 and 
a new updated version of its booklet ‘Your Europe – Your Rights’ in all EU official languages, 
to  increase  citizens’  knowledge  and  awareness  of  their  rights  as  EU  citizens.155  These 
publications  have  been  widely  distributed,  including  through  Commission  Representations 
and Europe Direct Information Centres. They explain in reader-friendly language some of the 
EU citizens’ specific rights, such as being able to return faulty goods ordered online, benefit 
from low roaming costs or obtain compensation for cancelled flights. Real-life situations are 
presented, including participation in European and local elections, citizens making their voice 
heard  and  citizens  exercising  their  free  movement  rights,  their  right  to  receive  necessary 

148  http://ec.europa.eu/your-rights/help/individuals/. 
149  One  possibility  that  citizens  have  for  solving  problems  is  through  effective  mediation  or  other  alternative 
dispute resolution methods. The Mediation Directive provides an EU framework which allows EU citizens to 
benefit fully from mediation as a means to have their disputes settled, whether they are of a commercial or a 
family  law  nature  (Directive  2008/52/EC  of  21  May  2008  on  certain  aspects  of  mediation  in  civil  and 
commercial  matters,  OJ  L  136,  24.5.2008,  pp.  3–8).  In  2016,  the  Commission  adopted  a  report  on  the 
application of this Directive (COM(2016) 542 final). 

150  Buying goods/services in the country where the citizen lives, buying goods/services in another EU country, 
out  of  court  complaint  with  a  bank,  insurance  company,  investment  fund  etc.,  making/receiving  payments 
abroad in the EU or out of court disputes for goods bought online. 

151  If e.g. the passport is lost or stolen, in case of serious accident, illness or death or of violent crime, arrest or 

detention, emergency relief/repatriation. 

152  http://europa.eu/youreurope/citizens/index_en.htm 
153  http://ec.europa.eu/ipg/basics/web_rationalisation/index_en.htm.  The  programme  will  be  gradually 

implemented by the end of 2017. 

154  http://ec.europa.eu/justice/citizen/files/10_eu_rights_en.pdf. 
155  http://bookshop.europa.eu/en/your-europe-your-rights-pbKM0214968/. 

27 

 
 
 
                                                 
healthcare in any EU country, and their consumer and travel rights. They also explain how to 
contact the EU in your own language and get information and assistance on your EU rights. 

Action  12  (2):  Propose  constructive  ways  to  enable  EU  citizens  living  in  another  EU 
country  to  fully  participate  in  the  democratic  life  of  the  EU  by  maintaining  their  right  to 
vote in national elections in their country of origin  

Five  Member  States  (Denmark,  Ireland,  Cyprus,  Malta  and  the  United  Kingdom)  currently 
have rules in place whereby citizens can lose their voting rights in national elections, simply 
because  they  have  exercised  their  right  to  free  movement  in  the  EU.  While  under  the  EU 
Treaties Member States are competent to determine who can benefit from the right to vote in 
national  elections,  disenfranchisement  practices  can  negatively  affect  EU  free  movement 
rights.  
On  29  January  2014,  the  Commission  adopted  a  Recommendation156  inviting  the  Member 
States  in  question  to  enable  their  nationals  who  make  use  of  their  free  movement  right  to 
retain their right to vote in national elections, if they demonstrate a continuing interest in the 
political  life  of  their  country,  including  by  applying  to  remain  on  the  electoral  roll.  The 
Commission also recommended that those Member States inform their citizens in a timely and 
appropriate  way  about  the  conditions  and  practical  arrangements  for  retaining  their  right  to 
vote in national elections. It continues to monitor the situation in these Member States.  

Action 12 (3): Exploring ways of strengthening and developing the European public space 

The  Commission  is  funding  and  co-funding  the  production  or  dissemination  of  multimedia 
(radio,  TV,  internet,  etc.)  products  through  European  media  –  while  fully  respecting  the 
broadcasters’ editorial independence – in partnership with broadcasters, such as Euronews, in 
several languages. It is also producing and broadcasting European programmes in six different 
languages and funding EU-themed magazines. 

156  Addressing  the  consequences  of  disenfranchisement  of  Union  citizens  exercising  their  rights  to  free 

movement (COM(2014) 391 final). 

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