Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the 'AgoraEU' programme for the period 2028-2034, and repealing Regulations (EU) 2021/692 and (EU) 2021/818
Date: 2025-07-16
Institutions: Directorate-General for Communications Networks, Content and Technology, European Commission
Subjects: EU programme, artistic creation, audiovisual industry, civil society, cultural heritage, cultural pluralism, cultural promotion, equal treatment, fundamental rights, participatory democracy

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   EUROPEAN COMMISSION  Brussels, 16.7.2025  COM(2025) 550 final 2025/0550 (COD)  Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the 'AgoraEU' programme for the period 2028-2034, and repealing Regulations (EU) 2021/692 and (EU) 2021/818 {SEC(2025) 547 final} - {SWD(2025) 550 final} - {SWD(2025) 551 final}  
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

The EU is a community of values ingrained in Europe's history and identity and anchored in 
the EU Treaty. As set out in Article 2 of the Treaty on the European Union (TEU), these are 
common  to  all  Member  States  and  encompass  democracy,  respect  for  human  rights,  non-
discrimination,  equality,  the  rule  of  law,  and  pluralism,  with  cultural  diversity,  freedom  of 
expression,  including  media  and  artistic  freedom  and  pluralism,  also  being  enshrined  in  the 
Charter of Fundamental Rights of the EU.   

Citizens’ participation and engagement, transparency and accountability in decision-making, 
as  well  as  respect  for  fundamental  rights  and  the  rule  of  law  contribute  to  the  vitality  of 
European democracy. Media plays a crucial role in fostering public opinion and free debate. 
Audiovisual  content  and  all  other  forms  of  artistic,  cultural  and  creative  expressions, 
including  cultural  heritage,  are  essential  to  Europe’s  diversity  and  to  forging  societal 
resilience and mutual understanding. Beyond their intrinsic value and social impact, they are 
powerful  drivers  of  sustainable  economic  growth  and  competitiveness,  innovation  and 
employment, and soft power, making them essential to Europe’s future.    

The  importance  of  an  EU  financial  intervention  in  these  areas  lies  in  their  ability  to  foster 
inclusive  and  participatory  governance,  facilitate  informed  and  active  citizenship,  safeguard 
and  promote  fundamental  rights,  promote  equality  and  non-discrimination,  and  celebrate 
cultural  diversity  and  all  types  of  artistic  expressions.  Europe’s  thriving  creative  and  media 
sectors, its audiovisual industry and the richness of its cultures and heritage are central to its 
identity.  However,  these  policy  areas  face  serious  challenges  that  require  a  holistic  Union 
response.   

Union values are the object of internal and external pressures, such as challenges to the rule of 
law,  inequalities,  discrimination,  violations  of  fundamental  rights,  declining  trust  in 
democratic  institutions  as  well  as  weakened  confidence  in  democratic  processes.  Structural 
inequalities  persist  as  well  as  violence  and  discrimination  on  the  grounds  of  sex,  racial  or 
ethnic  origin,  religion  or  belief,  disability,  age  or  sexual  orientation,  often  shown  in  racism 
and  other  forms  of  intolerance.  Meanwhile,  the  traditional  role  of  independent  civil  society 
organisations in counterbalancing these trends is challenged by a weakening of financial and 
political support.  

The European media industries are a beacon of quality and creativity, but today they compete 
with  global  online  platforms  for  the  attention  of  citizens  and  consumers.  Circulation  of  EU 
audiovisual  content  continues  to  be  fragmented  along  national  lines,  and  non-EU  players 
capture  most  of  the  box  office  and  streaming  subscriptions.  While  the  video  game  industry 
has  gained  a  strong  foothold  in  contemporary  digital  culture  (more  than  half  of  the  EU 
population  regularly  plays  video  games),  the  Union’s  video  game  market  continues  to  be 
largely dominated by global competitors. Finally, the integrity of the information space is at 
risk through the spread of disinformation and the growth of foreign information manipulation 
and  interference  by  hostile  actors,  such  as  Russia.  Threats  against  media  pluralism  are 
compounded  by  phenomena  such  as  concentration  of  media  ownership.  In  parallel,  news 
media  experience  declining  advertising  revenues  and  sales,  as  digital  competitors  have 
captured  an  increasing  share  of  revenue  and  shaped  consumption  habits.  As  a  result  of  all 
these factors, media viability is under pressure. 

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Culture  and  the  cultural  and  creative  sectors  and  industries  in  the  Union  are  fragmented  as 
well along national and linguistic lines, reflecting our rich diversity. This limits transnational 
artistic collaboration, audience reach, the development of innovative practices, as well as the 
sectors’  resilience  and  potential  for  competitiveness,  and  strengthening  societal  wellbeing. 
Culture and creative sectors’ professionals struggle to work across borders and to access new 
opportunities  and  markets,  which  exacerbates  geographical  imbalances  and  reduces  the 
circulation  of  European  cultural  works.  The  limited  cross-border  mobility  and  cooperation 
hinders networking, economies of scale, pooling expertise, and co-creation, all that is crucial 
for  sustaining  careers  and  strong  culture  and  creative  sectors.  Meanwhile,  Europe’s  rich 
cultural  heritage  faces  threats  from  a  combination  of  budgetary  constraints,  vulnerability  to 
pollution, climate change and natural disasters, as well as misappropriation or destruction.    

Finally,  societal,  creative,  cultural  and  media  sectors  experience  common  technological 
dependencies  and  could  benefit  from  common  activities.  They  are  impacted  by  financial 
weaknesses,  obstacles  to  accessing  finance,  difficulties  in  using  and  uptaking  applied 
innovation,  lack  of  adaptation  to  new  sets  of  skills  and  digital  transformation.  Meanwhile, 
non-EU  tech  giants  increasingly  influence  the  civic,  media,  and  cultural  landscape,  shaping 
content  consumption  through  algorithmic  recommendations,  automated  distribution  and  AI-
generated content.  

These  are  challenges  of  a  transnational  nature  that  cannot  be  effectively  addressed  without 
joint  EU-level  solutions,  coordination,  steering  and  support.  EU  actions  can  help  enable 
cooperation,  capacity  building,  and  mutual  learning,  as  well  as  optimise  and  combine  the 
potential of these sectors to contribute to economic growth, societal development and cultural 
diversity.   

EU  support  to  address  challenges  affecting  culture,  media,  and  equality,  citizens,  rights  and 
Union values has been provided through different funding programmes over the years. In the 
2021-2027  Multiannual  Financial  Framework  (MFF),  support  to  culture,  the  cultural  and 
creative sectors and the audiovisual industries was addressed by Creative Europe, with the 
objectives  of  safeguarding,  developing  and  promoting  European  cultural  and  linguistic 
diversity  and  heritage  and  contributing  to  the  competitiveness  of  these  sectors,  notably  the 
audiovisual  sector.  Meanwhile,  the  promotion  and  protection  of  rights  and  Union  values  as 
enshrined  in  the  Treaties,  the  Charter  and  the  applicable  international  human  rights 
convention were primarily the object of the Citizens, Equality, Rights and Values (CERV) 
programme. CERV has supported civil  society organisations working  at European, national, 
regional  and  local  levels,  including  grassroots,  in  their  work  to  protect  and  promote  Union 
values. The Union support in some areas, such as news media and countering disinformation, 
was  fragmented  across  different  programmes.  The  cross-sectoral  strand  of  Creative  Europe 
included  specific  actions  on  media  pluralism,  literacy,  and  media  collaborations,  while  the 
Multimedia  actions  line  supported  the  provision  of  information  on  EU  topics.  Tackling 
disinformation has so far been funded through Digital Europe.    

The  2028-2034  MFF  proposal  aims  at  addressing  ‘complexities,  weaknesses  and  rigidities’ 
currently present in the EU’s budget, and provides a framework that is more focused, simpler, 
with  fewer  and  more  impactful  programmes.  For  this  reason,  and  to  increase  the  budget’s 
flexibility  and ability to  respond to  changing  realities and emerging  problems,  this  proposal 
seeks to streamline the EU intervention in the areas of  culture, media and equality, citizens, 
rights and values, exploiting connections and synergies where relevant, while respecting the 
singularity and specific needs of each of these policy areas.   

In the  area of equality,  citizens,  rights  and  values, the proposal will contribute to  upholding 
democracy and the rule of law, fundamental rights and equality, reducing discrimination and 

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empowering  civil  society.  The  new  Programme  will  contribute  as  well  to  fighting  against 
gender-based violence, violence against children and other groups at risk. In addition, it will 
contribute to enhancing democratic resilience and participation.   

Media  is  a  driver  of  democratic  values,  cultural  diversity  and  economic  growth.  The  media 
sector  encompasses  inter  alia  content  such  as  films,  series,  video  games,  news  and 
information,  immersive  reality  and  multimedia,  as  well  as  services  including  theatrical 
exhibition, television and radio  broadcasting,  print  and online  publishing, online  videos  and 
podcasts. To be socially relevant, the audiovisual and media industries need to be resilient and 
competitive. The proposal will support a free, competitive and diverse media and audiovisual 
space.  It  will  on  one  hand  enhance  the  production,  circulation,  IP  exploitation  and 
consumption of audiovisual works and other forms of media content, such as gaming. On the 
other  hand,  it  will  contribute  to  protecting  the  viability  and  pluralism  of  the  information 
market, notably by supporting news media and media independence including at regional and 
local  levels.  It  will  also  contribute  to  tackling  disinformation  and  foreign  information 
manipulation and interference.     

Culture and the cultural and creative sectors are great assets for Europe, projecting the image 
of a dynamic continent on the world stage. Encompassing inter alia performing arts, literature 
and  book  publishing,  music  and  visual  arts,  tangible  and  intangible  cultural  heritage, 
architecture,  archives,  libraries  and  museums,  artistic  crafts  and  design,  they  produce 
meanings on various mediums and through multiple formats. The EU intervention in the field 
of culture will contribute to increasing cross-border cultural creation and cooperation, cultural 
participation  and  accessibility  to  a  diversity  of  European  cultural  expressions  and  to 
protecting  and  preserving  cultural  heritage.  The  proposal  will  also  help  increase  the 
circulation  of  a  diversity  of  cultural  works  and  the  mobility  of  professionals,  as  well  as 
promote  inclusiveness  and  intergenerational  fairness  through  culture.  Finally,  it  will 
strengthen the social, economic and external dimensions of the cultural and creative sectors. 

Finally,  the  EU  should  promote  synergies  among  the  media,  culture,  and  civic  spheres, 
bringing together public and private entities as well as promoting cross-sectoral cooperation, 
and  innovation,  to  address  common  challenges  and  contribute  to  societal  resilience  and 
democratic participation.   

On  this  basis,  the  EU  financing  intervention  will  be  best  equipped  to  enhance  and  scale  up 
existing  successful  schemes,  to  better  address  transnational  challenges,  and  to  fill  gaps 
impossible to address at Member States level. It will also provide wider coherence and better 
alignment between regulatory policy and funding instruments, as well as between internal and 
external  policies.  Therefore,  the  proposal  will  contribute  to  reinforcing  Europe’s  societies, 
media and culture, and foster Union values and democratic participation and help unlock the 
full potential of the Union as a source of progress, sustainable development and growth.  

The policy areas covered by this legal proposal are firmly anchored in the EU Treaties, which 
provide the legal bases for EU action through Union funding programmes, and they contribute 
to  the Union’s  long-term objectives. The proposal  provides for a date of application  as  of 1 
January 2028.    

• 

Consistency with existing policy provisions in the policy area 

Fundamental rights, EU values and democracy   

The  proposal  is  fully  in  line  with  the  Charter  of  Fundamental  Rights  of  the  European 
Union, and all relevant EU policy and legislative frameworks in the field of equality and non-
discrimination. It also contributes to the Union of Equality strategy. A core ambition of the 

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European Union is to ensure, through a multi stakeholder and intersectoral approach, that all 
people,  regardless  of  gender,  race,  ethnicity,  disability,  sexual  orientation,  age,  religion  or 
belief, can live free from discrimination and participate fully in society.  

The European Union’s commitment to equality is anchored in numerous key communications 
and  action  plans.  The  European  Commission’s  2020  Strategy  for  the  Equality  of  LGBTIQ 
People  and  the  2021  Gender  Equality  Strategy  underscore  the  EU’s  dedication  to  tackling 
discrimination  and  promoting  equality  across  all  aspects  of  society.  Both  strategies  will  be 
renewed, as the current ones end in 2025. These are complemented by the upcoming EU Anti-
Racism  Strategy 2026-2030,  the EU Roma Strategic Framework for Equality,  Inclusion and 
Participation  (2020–2030),  the  Strategy  for  the  Rights  of  Persons  with  Disabilities  (2021–
2030),  and  the  EU  Strategy  on  the  Rights  of  the  Child,  the  EU  Strategy  on  combating 
antisemitism  and fostering Jewish  life  (2021-2030) and the work strand on combatting anti-
Muslim hatred. The upcoming Intergenerational Fairness Strategy is also of relevance in this 
context.  

The first EU comprehensive framework on democracy has been developed through the 2020 
European Democracy Action Plan, the 2021 package of measures to reinforce democracy and 
protect the integrity of elections and the 2023 Defence of Democracy Package in synergy with 
the  External  Action  Plan  on  Human  Rights  and  Democracy  2020-2027. The  most  recent 
legislation in this context includes the Regulation on transparency of political advertising, and 
the EU law protecting persons who engage in public participation from manifestly unfounded 
claims or abusive court proceedings ('strategic lawsuits against public participation').   

The  upcoming  European  Democracy  Shield  will  seek  to  further  protect  and  strengthen 
democracy  and  democratic  resilience.  It  will  seek  to  address  the  increasing  threats  to 
democratic  institutions,  systems  and  processes  within  the  EU  and  to  enhance  citizens’  trust 
and participation in democracy. The upcoming EU Civil Society Strategy will seek to further 
protect and empower civil society, sending a strong signal of recognition to the work carried 
out by civil society and their contribution to EU policies.  

Media and audiovisual   

This  legal  proposal  also  builds  upon  the  EU  media  and  audiovisual  framework,  where 
regulation, funding and policy effectively support each other, thereby facilitating democratic 
debate,  enriching  our  culture,  and  driving  the  digital  transformation  with  competitive  EU 
media players.   

It  will  accompany  EU  single  market  policies  in  the  audiovisual  and  media  sectors,  and  its 
design  will  complement  and  reinforce  existing  legislative  instruments.  The  Audiovisual 
Media  Services  Directive  (AVMSD)  has  laid  down  a  common  regulatory  framework  for 
audiovisual  media  services  across  the  EU,  including  provisions  such  as  the  promotion  of 
European  and  independent  works,  protection  of  minors,  and  regulation  of  audiovisual 
advertising. Together with AVMSD, the proposed Programme will strengthen the capacity of 
European  audiovisual  players  to  finance,  produce  and  disseminate  works  that  can  be 
sufficiently  visible  on  the  different  media  available  and  are  attractive  to  audiences  in  an 
increasingly open and competitive market within Europe and beyond.   

The  recently  adopted  European  Media  Freedom  Act  (EMFA)  provides  safeguards  for 
media  freedom  and  pluralism,  including  protections  against  political  interference,  enhanced 
transparency  of  media  ownership,  and  obligations  on  the  independence  of  public  service 
media. The proposed Programme will complement EMFA by providing financial support to 
news media outlets and strengthening editorial independence.  

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It will also build on the Code of conduct on countering hate speech online, the 2018 Action 
Plan  against  disinformation,  and  the  Code  of  Conduct  on  Disinformation  recently 
integrated  within  the  co-regulatory  framework  of  the  Digital  Services  Act  (DSA),  by 
enhancing media literacy and reinforcing situation awareness on the online information space 
across Member States.   

Culture  

Concerning culture, cultural  heritage and the cultural  and creative sectors, the initiative  will 
accompany  the  upcoming  Culture  Compass  for  Europe,  which  is  intended  as  a  strategic 
policy  approach  aiming  to  embed  culture  and  the  CCS  in  the  Union’s  overarching  policy 
goals and to guide and harness their multiple dimensions.    

The  initiative  builds  on  several  key  policy  initiatives,  including  the  European  Agenda  for 
Culture,  the  Council’s  Work  Plans  for  Culture,  the  EU  Strategy  for  International 
Cultural  Relations,  and  the  European  Framework  for  Action  on  Cultural  Heritage, 
which all plea for a stronger role for culture and the CCS in the further social, economic and 
international development of our Union. It aligns with European initiatives such as the New 
European Bauhaus, the European Capitals of Culture action and the European Heritage 
Label action. It is also in line with the Rome Declaration of March 2017, where the Member 
States  and  EU  institutions  envisioned  a  Union  “where  citizens  have  new  opportunities  for 
cultural  and  social  development  and  economic  growth  [...];  a  Union  which  preserves  our 
cultural heritage and promotes cultural diversity”.  

Furthermore,  it  is  consistent  with  the  Commission  Communication  on  Strengthening 
European Identity through Education and Culture, which states that it is in the shared interest 
of all Member States “to harness the full potential of education and culture as drivers for jobs, 
economic  growth,  social  fairness,  active  citizenship  as  well  as  a  means  to  experience 
European identity in all its diversity”.  The initiative is also in line with the  2005 UNESCO 
Convention on the Protection and Promotion of the Diversity of Cultural Expressions, to 
which the Union and its Member States are parties.  

Finally, the initiative is to be seen in the context of the upcoming EU Strategy on sustainable 
Tourism, aiming among others to support visitors in discovering lesser-known cultural routes 
and heritage sites across Europe, thus  fostering economic development  and promoting local 
jobs. 

• 

Consistency with other Union policies 

The  initiative  is  aligned  with  the  overarching  Commission’s  2024-2029  policy  priorities, 
namely in terms of 1) Supporting people, strengthening our societies and our social model; 2) 
Protecting  our  democracy,  upholding  our  values;  3)  Europe’s  sustainable  prosperity  and 
competitiveness; and 4) a global Europe.  

Consistency with policies supporting people, strengthening our societies and our social model 

In  the  context  of  the  Multiannual  Financial  Framework  (2028-2034),  synergies  will  be 
fostered  between  media,  culture,  equality,  rights  and  values  initiatives  and  the  future 
intervention  in  the  fields  of  skills,  education,  social  inclusion,  solidarity,  intergenerational 
fairness, youth and social and territorial cohesion. These synergies, such as in media literacy, 
digital  skills,  civic  engagement  and  civic  education  and  skills  development  and  inclusion 
through creativity and the arts  will be promoted  in  line with  the objectives of the European 
Youth  Strategy  and  the  EU  Citizenship  Report.  The  initiative  may  also  seek  synergies  and 

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complementarities with future interventions under shared management aimed at strengthening 
social and territorial cohesion within the EU. 

The initiative complements some initiatives promoting the principles of the European Pillar of 
Social Rights, including through employment and social policies, as well as of the European 
Child  Guarantee.  This  includes  promoting  equal  access  to  rights  and  fostering  diversity, 
including at the regional and local level, as means to support social inclusion and fair labour 
markets, and to tackle child poverty. As key actors in shaping public discourse and fostering 
democratic engagement, culture and media are central to building inclusive, resilient societies. 
In the context of the Union of Skills, the initiative will actively contribute to the upskilling 
and reskilling of professionals in the cultural and creative industries (CCIs), supporting their 
adaptability in the face of digital and green transitions and labour market shifts. Furthermore, 
by reinforcing the competitiveness of cultural and creative sectors, the Programme favours the 
creation  of  jobs  in  these  sectors.  At  the  same  time,  the  initiative  will  enhance  capacity-
building  for  civil  society  organisations  (CSOs)  working  in  the  field  of  equality,  rights  and 
values.  

In  light  of  increasing  risks  linked  to  natural  hazards,  health  emergencies,  technological 
accidents,  evolving  security  threats,  and  other  disruptions,  this  initiative  will  enhance  the 
resilience of vital societal functions, and build a more resilient, secure, and prepared Union, in 
line with the objectives of the EU Preparedness Union Strategy.  

Consistency with justice policies 

The  alignment  between  justice  policies  and  the  rule  of  law  creates  a  robust  framework  that 
ensures  accountability,  promotes  legal  coherence  across  and  within  Member  States,  and 
protects  fundamental  rights,  thereby  enhancing  trust  and  cooperation  within  the  Union.  The 
relationship  between  fundamental  rights  and  justice  policies  is  key  in  shaping  fair  and 
equitable societies. Fundamental rights – ranging from the right to a fair trial, freedom from 
discrimination to the protection of privacy – define the essential standards that justice systems 
must uphold, and translate abstract principles into concrete legal measures and practices. For 
instance, anti-discrimination laws enforce the principle of equality before the law.   

Thus, the synergy between fundamental rights and justice policies ensures that legal systems 
not  only  prevent  abuses  but  also  actively  promote  dignity,  equality,  and  freedom.  This 
synergy  is  essential  for  building  public  trust  in  legal  institutions,  fostering  social  cohesion, 
and  ultimately  ensuring that  justice  is  accessible  and  meaningful  for  all  individuals.  To  this 
end,  in  the  context  of  the  Multiannual  Financial  Framework  (2028-2034),  synergies  will  be 
fostered between this Programme and the future Justice programme.  

Consistency with policies for the Single Market and competitiveness 

By  contributing  to  the  competitiveness  of  media,  audiovisual  and  the  cultural  and  creative 
sectors,  the  initiative  will  complement  the  EU  policy  framework  on  industrial  policy  and 
economic competitiveness. Notably, it builds on the 2024 Single Market and Competitiveness 
Report, which adopts an ecosystem-based approach to strengthen the resilience and strategic 
autonomy of key industrial sectors, including cultural and creative industries. It also reflects 
the objectives of the Competitiveness Compass, which sets out clear benchmarks to improve 
the EU’s long-term productivity and resilience and promote innovation.   

In addition, the initiative relates to the 2020 Commission Communication “An SME Strategy 
for a sustainable and digital Europe”, which aims to unleash the power of Europe’s SMEs to 
lead  the  twin  transitions,  based  on  three  pillars:  capacity-building  and  support;  reducing 
regulatory  burden  and  improving  market  access;  and  improving  access  to  financing.  The 

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initiative also contributes to the European Commission’s new Savings and Investments Union 
Strategy, which aims to enhance financial opportunities for businesses.  

Research and innovation are essential to developing inclusive, rights-based cultural, creative, 
and  media  systems.  The  initiative  will  strengthen  synergies  with  the  future  Framework 
Programme for research and innovation and the future European Competitiveness Fund. The 
latter  includes  support  for  multidisciplinary  research  on  a  variety  of  topics,  including 
democracy,  values,  equality,  and  disinformation,  but  also  on  digital  and  industrial  topics 
closely  linked  to  the  culture  and  creative  sectors  and  cultural  heritage.  Synergies  and 
complementarities will need to be strengthened to reinforce the European research ecosystem, 
so  that  the  cultural  and  creative  sectors  and  civil  society  fully  benefit  from  the  advances  of 
European research and innovation areas. The Programme will thus contribute to the take-up of 
the  results  of  research  and  innovation  actions  funded  under  the  Research  Framework 
Programme. 

Moreover, the proposal contributes to addressing Europe’s digital transformation, in line with 
the  objectives  of  the  Digital  Decade  2030.  It  will  complement  it  by  supporting  actions  that 
promote  digital  preparedness,  skills  development  and  applied  innovation  in  the  societal, 
culture and media sectors, such as the AI Continent Action Plan and the Apply AI strategy. It 
will also accompany existing regulation, such as the Digital Services Act, the Digital Markets 
Act  and  the  AI  Act  by  increasing  the  audiovisual  and  media  content  access,  strengthening 
media literacy, encouraging fair competition and platform-neutral access to audiences. Cross-
border  collaborations  and  availability  of  audiovisual  content  would  also  strengthen 
interoperability of digital products. 

Consistency with policies for a global Europe 

The  proposed  Programme  will,  once  adopted,  complement  actions  financed  through  the 
Union’s external actions. For instance, by promoting cultural exchanges and supporting Union 
creative  industries,  media  and  audiovisual  content  globally  including  through  international 
collaborations, it will open new markets, attract global talent, enhance the EU’s influence and 
attractiveness  on  the  world  stage.  The  future  intervention  will  include  participation  of  third 
countries  in  the  Programme  and  support  for  international  collaborations,  allowing  for 
synergies with EU’s policies on external action.  

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

The proposal is based on Articles 19(2), 21(2), 24, 167(5), 168(5) and 173(3) of the Treaty on 
the  Functioning  of  the  European  Union  (TFEU),  to  achieve  the  Programme’s  general 
objectives in a comprehensive way.  

Article 19(2) TFEU provides for the adoption of incentive measures to support Member State 
action  in  combating  discrimination  based  on  sex,  racial  or  ethnic  origin,  religion  or  belief, 
disability, age or sexual orientation.  

Democratic  engagement,  civic  participation  and  the  fostering  of  civil  society  are  essential 
building  blocks  of  the  notion  of  Union  citizenship.  They  constitute  crucial  factors  and 
facilitators of the right to move and reside freely in the Union. 

Article 21(2) TFEU provides for Union measures to facilitate the exercise of citizens’ rights 
to move and reside freely within the territory of the Member States. Actions to inform citizens 
and authorities about citizens voting rights when residing in another Member State can also be 

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covered by this Article, since in practice they also facilitate the exercise of a citizen’s right to 
move and reside freely.  

Article 24 TFEU obliges the European Parliament and the Council to adopt provisions for the 
procedures and conditions required for a citizens’ initiative within the meaning of Article 11 
TEU. This has been done by adopting Regulation (EU) 2019/788 of the European Parliament 
and  of  the  Council1.  The  Programme  should  support  the  financing  of  technical  and 
organisational  support  for  the  implementation  of  that  Regulation,  thereby  underpinning  the 
exercise by citizens of the right to launch and support European citizens’ initiatives. Together 
with  the  other  rights  set  out  in  Article  24  TFEU,  that  right  ensures  citizens’  direct 
participation in the democratic life of the Union. 

Article  167(5)  TFEU  tasks  the  Union  to  adopt  incentive  measures  to  contribute  to  the 
flowering of the cultures of the Member States, while respecting their national  and regional 
diversity  and  by  bringing  forward  the  common  cultural  heritage.  The  actions  by  the  Union 
shall  encourage  co-operation  between  Member  States  and  supplement  their  actions  in  areas 
such  as  improvement  of  the  knowledge  and  dissemination  of  the  culture  and  history  of  the 
European  peoples  and  conservation  and  safeguarding  of  cultural  heritage  of  European 
significance.   

Article 168(5) TFEU provides a legal basis for the adoption of incentive measures designed 
to  protect  and  improve  human  health.  Violence,  including  against  children  and  women, 
constitutes a danger to physical and mental health. Children are vulnerable citizens and need 
an  increased  level  of  protection  against  these  dangers,  which  often  include  cross  border 
threats. Violence against  women also  constitutes a serious threat  to  the physical  and mental 
health of victims, who are in need of a high level of protection.   

Article  173(3)  TFEU  states  that  the  Union  may  decide  on  specific  measures  in  support  of 
action  taken  in  the  Member  States  to  ensure  that  the  conditions  necessary  for  the 
competitiveness  of  the  Union's  industry  exist,  including  taking  action  to  encourage  an 
environment favourable to initiative and to the development of undertakings.  

• 

Subsidiarity (for non-exclusive competence)  

The  promotion  and  protection  of  culture,  media  and  Union  values  requires  transnational 
cooperation  and  coordinated  efforts  that  extend  beyond  national  borders.  These  are  areas 
where the complexity of the challenges makes it difficult for Member States to address them 
sufficiently  on  their  own.  Coordinated  action  at  EU  level  allows  for  more  coherent  and 
impactful responses to address transnational and common challenges that slow down progress 
and allow systemic impact through the identification and the resolution of structural gaps not 
prioritised  by  Member  States.  The  EU  budget  plays  a  key  role  in  enabling  these  collective 
responses. Such an approach also ensures greater coherence between internal policies and the 
Union’s promotion of its values and international standards abroad.  

By  reason  of  the  scale  and  effects  of  the  proposed  programme,  a  Union-level  action  brings 
added value, as these objectives cannot be sufficiently achieved by the Member States acting 
alone.  For  instance,  it  strengthens  a  sense  of  EU  citizenship  and  mutual  understanding  by 
facilitating  cross-border  activities  that  foster  civic  engagement,  solidarity,  and  wider 
participation in culture and media. It also ensures consistent and high standards across the EU 
and  effective  application  of  rights  enshrined  in  EU  law  across  Member  States,  which  is 
essential for the protection of EU citizens. Moreover, EU action reinforces the Single Market 

1 

OJ L 130, 17.5.2019, p. 55–81 

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by  promoting  fair  access  and  mobility,  while  enabling  more  efficient  delivery  through 
coordinated  frameworks  and  larger-scale  joint  projects.  By  addressing  fragmentation, 
promoting  collaboration  across  Member  States  and  pooling  resources  at  EU  level,  the 
initiative ensures that creative industries, audiovisual and media companies and creators can 
fully  benefit  from  the  Single  Market.  It  improves  access  to  diverse  cultural  and  creative 
content,  supports  media  pluralism,  and  increases  the  competitiveness  of  the  European 
audiovisual industry.  

The added value of EU  funding  in  these policy  areas  was highlighted by a vast  majority of 
respondents  to  the  open public  consultation  carried  out  by  the Commission  for  the  new  EU 
programmes (see below).  

• 

Proportionality 

The proposal complies with the principle of proportionality, in that it does not go beyond the 
minimum required to achieve the stated objectives at EU level and what is necessary for those 
purposes.  

• 

Choice of the instrument 

The new ‘AgoraEU’ Programme builds primarily on the Creative Europe Programme (2021-
2027),  the  Citizens,  Equality,  Rights  and  Values  (CERV)  Programme  (2021-2027)  and 
existing  prerogative  lines,  bringing  together  EU  financial  support  to  sustain  culture,  media 
and Union values. The new instrument takes into account the specific features of the different 
sectors,  their  different  target  groups,  and  particular  needs,  while  ensuring  synergies  and 
complementarities.  

3. 

• 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Ex-post evaluations/fitness checks of existing legislation 

The  Commission  has  taken  into  account  the  results  of  the  final  evaluation  of  the  Creative 
Europe  programme  2014-2020  and  interim  final  evaluation  of  the  Creative  Europe 
programme  2021-2027,  as  well  as  the  interim  evaluation  of  the  CERV  programme  and  the 
final evaluations of the Europe for Citizens programme and the Rights, Equality and Citizens 
programmes, which were carried out over the period 2023-2025.  

These evaluations assessed the performance of the programmes, based on their effectiveness, 
efficiency, relevance, coherence, sustainability and EU added value.  

The results of these evaluations indicate that the existing programmes have largely delivered 
on  their  policy  objectives  and  provided  EU  added  value,  while  highlighting  areas  for 
improvement in terms of design.   

The  evaluation  of  Creative  Europe  underscores  the  contribution  of  the  Programme  to  the 
general  objective  of  supporting  cultural  and  linguistic  diversity  and  cultural  heritage  by 
increasing people’s access to a variety of content coming in particular from beyond national 
borders and to the objective of competitiveness by helping audiovisual and other creative and 
cultural operators to improve their skills and scale up at European level. It has a unique place 
as  the  only  source  of  funding  for  transnational  cooperation,  exchange  of  good  practices, 
circulation and mobility in these sectors.  

The interim evaluation of the CERV programme confirmed that the programme occupies an 
otherwise largely empty space in the values and fundamental rights funding landscape, as the 

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dedicated  EU  instrument  to safeguard  and  promote  fundamental  rights,  equality  and  non-
discrimination, democracy and the rule of law in Europe. The evaluation also showed the key 
role played by the programme in supporting civil society organisations working on rights and 
values,  including  those  at  the  grassroots  level,  who  would  often  lack  other  funding  sources 
and forms of support.  

The evaluation of the Multimedia Actions line (2021-2023) confirms that it was effective in 
strengthening  news  coverage  on  EU  affairs  from  a  European  perspective.  The  actions 
supported the production of a high volume of original content, achieving a notable audience 
reach.  

• 

Stakeholder consultations 

A public consultation informed the impact assessment for EU programmes in the domains of 
cross-border  education,  youth,  culture,  media,  values  and  civil  society  under  the  post-2027 
MFF.  It  was  conducted  between  12  February  and  7  May  2025.  In  total,  the  consultation 
gathered 5,845 valid replies.  

The  responses  revealed  a  clear  affirmation  of  the  EU’s  continued  role  in  fostering  cross-
border  cooperation  and  supporting  culture,  media,  democracy  and  fundamental  rights.  For 
example, the proportions of respondents finding it ‘very important’ or ‘important’ to ‘protect 
democracy  and  democratic  standards’,  to  ‘promote  respect  of  fundamental  rights  (including 
children’s and women’s rights)’, to ‘promote media independence and media pluralism, fight 
against disinformation’ and to  ‘promote cultural  and creative diversity’ were  respectively  at 
91%, 88%, 85% and 78%.   

The  responses  to  the  public  consultation  also  confirmed  that  EU  funding  provided  added 
value  compared  to  funding  at  national,  local  or  regional  level  in  the  areas  it  covered.  For 
example,  66%  of  respondents  considered  that  ‘Protecting  democracy  and  promoting 
democratic standards’ is an area where EU funding provides significant added value. Nearly 
two  thirds  of  respondents  mentioned  support  to  the  audiovisual  and  media  sectors  as  an 
“important” policy objective. Finally, approximately 80% of respondents see an added value 
in EU funding going to ‘Promote cultural and linguistic diversity’ and ‘Promote and preserve 
cultural  heritage  and  European  remembrance’  and  74%  to  ‘Ensure  widespread  access  to 
culture and cultural heritage’.  

Asked  to  evaluate  the  obstacles  preventing  the  EU  budget  from  fully  delivering  on  its 
objectives  in  the  policy  areas,  respondents  generally  welcomed  the  Commission’s  focus  on 
greater efficiency in funding, but not at the cost of “identity” and “trust”, preserving thematic 
clarity and stakeholder ownership.  

Quantitative  results  show  that  the  most  frequently  cited  obstacles  across  all  groups  were 
administrative burden (identified by 51% of citizens and 56% of organisations) and complex, 
fund-specific  compliance  rules  (49%  of  citizens  and  52%  of  organisations).  These  issues 
reflect  concerns  not  only  with  regulatory  complexity  but  also  with  fragmentation  between 
instruments  and  inefficiencies  in  delivery.  Additional  barriers  included  lack  of  flexibility  to 
reallocate  resources  in  response  to  emerging  needs  (45%  of  citizens  and  50%  of 
organisations),  delays  in  programme  implementation  and  funding  disbursement,  and 
insufficient  communication  or  clarity  about  funding  opportunities.  Public  authorities  and 
NGOs in particular emphasised delays as a source of reduced impact and local credibility.  

• 

Collection and use of expertise 

The proposal has been informed by external reports and assessments.  

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The proposal has been informed by a wealth of studies and reports, such as from the European 
Parliament,  the  EU  Agency  for  Fundamental  Rights  and  the  European  Institute  for  Gender 
Equality, which point towards the growing and serious challenges testing fundamental rights 
and values in the EU as well as the resilience of our democratic institutions2.  

In the field of media and audiovisual, it has relied on the conclusions of the 2023 European 
Media  Industry  Outlook3,  which  provided  valuable  insights  into  the  structural  challenges  of 
the  media  and  audiovisual  industries  (incl.  gaming). Media  companies  in  the  EU  are  under 
increasing  pressure  from  global  competitors  for  users’  attention  and  revenue.  Consumer 
spending and media consumption have stagnated since the COVID-19 pandemic, with digital 
platforms  aggregating  more  content  and  capturing  more  ad  revenue  than  traditional  media. 
The sectors also struggle with high technology adoption costs, limited private investment, and 
heavy dependence on non-EU technologies.  In addition,  the report revealed that, in  the EU, 
the  circulation  of  audiovisual  works  across  borders  is  limited,  hindering  the  industry’s 
potential.  Meanwhile,  the  viability  of  news  media  is  increasingly  at  risk,  with  declining 
revenues, shrinking employment, and limited consumer trust.  

In  the  field  of  culture  and  creative  sectors,  the  proposal  has  been  informed  by  thematic 
meetings,  findings  of  independent  studies,  Council  conclusions4,  resolutions  from  the 
European  Parliament5,  the  evaluation  of  the  European  Heritage  Label  action6  and  the  first 
interim evaluation of the European Capital of Culture action for the year 2020-20337, as well 
as recommendations made by experts from Member States in the context of the Open Method 
of Coordination on culture8. These various sources underline the persisting  relevance of the 
Culture  strand  of  Creative  Europe  while  pointing  at  areas  of  improvement,  in  particular  in 
connection with the digital and green transitions and the surge of AI, working conditions of 
artists and cultural and creative professionals, as well as the international context.  

2 
Including the EP 2021/2103(INI) on “The shrinking space of civil society in Europe”; the FRA Report 
on “Protecting civil society  – update  2023”; the EIGE  Gender Equality Index 2024: Tackling violence against 
women, tackling gender inequalities. 
3 
The second edition of the Media Industry Outlook will be published in July 2025. 
4 
In  particular,  Council  conclusion  of  May  2025  on  supporting  young  artists  and  cultural  and  creative 
professionals in starting their careers, Council Conclusions of November 2024 on improving and fostering access 
to  culture,  Council  conclusions  of  May  2024  on  empowering  the  cultural  and  creative  sectors  through  data-
driven audience development and Council Conclusions of May 2023 on at-risk and displaced artists. 
5 
European Parliament resolution of 17 January 2024 on cultural diversity and the conditions for authors 
in the European music streaming market (2023/2054(INI)), European Parliament resolution of 16 January 2024 
on  the  implementation  of  the  Creative  Europe  Programme  2021-2027  (2023/2003(INI)),  European  Parliament 
resolution of 21 November 2023 with recommendations to the Commission on an EU framework for the social 
and professional situation of artists and workers in the cultural and creative sectors (2023/2051(INI)), European 
Parliament  resolution  of  14  September  2023  on  the  future  of  the  European  book  sector  (2023/2053(INI)), 
European Parliament resolution of 14 December 2022 on the  implementation of the New European Agenda for 
Culture  and  the  EU  Strategy  for  International  Cultural  Relations  (2022/2047(INI)),  European  Parliament 
resolution of 20 October 2021 on the situation of artists and the cultural recovery in the EU (2020/2261(INI) 
6 
for the European Commission (July 2025). 
7 
and KEA European Affairs for the European Commission (July 2025). 
8 
In particular, OMC Working Group of Member States’ experts of June 2023 ‘The status and working 
conditions  of  artists  and  cultural  and  creative  professionals’  and  OMC  Working  Group  of  Member  States’ 
Experts of 4 June 2021 entitled ‘Towards gender equality in the cultural and creative sectors’. 

Evaluation of the European Heritage Label (EHL) action for the period 2018-2024,, conducted by PPMI 

First  Interim  Evaluation  of  the  European  Capital  of  Culture  Action  2020–2033,  conducted  by  Ecorys 

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• 

Impact assessment 

This  proposal  was  subject  to  an  impact  assessment.  Commission  services  have  explored 
several  alternative  policy  options  to  address  the  challenges  of  the  sectors  concerned  and 
determined which option served better the policy areas and the priorities of the Commission. 
The  various  options  were  mutually  exclusive.  One  option  was  to  continue  the  existing 
Creative Europe and CERV programmes as stand-alone programmes, while introducing some 
incremental  improvements.  A  second  option  consisted  of  bringing  together  the  programmes 
aimed  at  protecting  Union  values,  media  and  culture.  A  third  option  was  a  full  integration 
under a single instrument of policies covered today by CERV, Creative Europe, together with 
those covered by Erasmus+ and European Solidarity Corps (ESC). 

Other  alternatives  were  also  considered  yet  discarded  at  an  early  stage.  One  was  the 
discontinuation  of  the  EU  funding  in  the  fields  currently  covered  by  CERV  and  Creative 
Europe,  but  it  was  rejected  given  the  importance  of  the  problems  affecting  the  sectors 
concerned,  the  prominence  given  to  these  policies  in  the  Political  Guidelines  and  the 
assessment  of  the  continued  relevance  and  added  value  of  the  EU  funding  intervention, 
underpinned  by  the  respective  mid-term  evaluations.  The  option  of  alternative  merging  of 
programmes (e.g. only the Media strand of Creative Europe with the CERV programme) was 
also  abandoned  at  an  early  stage,  as  it  would  not  have  effectively  aligned  with  political 
priorities or adequately catered for the challenges of the sectors concerned.   

The  main  potential  impacts  of  the  three  shortlisted  options  (continuity,  full  integration,  and 
objective-based  merger)  were  analysed  across  various  social,  economic  and  environmental 
dimensions.  Where  relevant,  the  analysis  also  covered  costs  and  benefits,  impacts  on 
competitiveness  and  SMEs  and  on  digitalisation,  as  well  as  their  contribution  to  the  United 
Nations Sustainable Development Goals (SDG). The three policy options were assessed based 
on  their  effectiveness,  efficiency,  coherence  and  proportionality,  applying  the  Social  Multi-
Criteria Evaluation (SMCE).  

The evaluation of the options and their impacts highlighted that an integration based on policy 
objectives  (objective-based  merger)  would  offer  better  potential  compared  to  the  two 
alternatives.  It  would  allow  for  reinforced  coordination,  targeted  flexibility,  and  a  more 
impactful  use of the EU budget  –  without sacrificing  policy focus or accessibility.  It  would 
offer  the  optimal  balance  between  simplification  and  policy  relevance.  It  is  also  congruent 
with  stakeholders’  calls,  who  ask  for  the  simplification  of  access  to  funding,  flexibility  of 
resource allocation and the application of common rules. In line with the Political Guidelines, 
it  follows  a  ‘funding-follows-policy’  principle,  bringing  together  programmes  aiming  at 
protecting  culture,  media  and  Union  values.  It  will  build  on  the  success  of  current 
programmes, best practices of the current MFF, as evidenced by evaluations, better addressing 
transnational  and  common  challenges,  filling  funding  gaps  at  Member  States  level,  and 
enhancing  coherence  between  internal  and  external  policies,  while  enhancing  synergies, 
efficiency  and  effectiveness,  and  reducing  overlaps.  It  will  pay  due  visibility  to  each  of  the 
policy  areas  included  in  the  merged  programme  in  full  respect  of  the  horizontal  provisions 
detailed in Regulation (EU, Euratom) [202X/XXX, Performance Regulation] applicable to all 
Union  programmes.  It  will  also  increase  action  on  cross-cutting  priorities  and  synergies 
affecting  the  societal,  media  and  cultural  and  creative  sectors  (e.g.  sectoral  skills,  access  to 
finance, innovation uptake, etc.).    

Based  on  the  Better  Regulation  guidelines,  this  impact  assessment  report  was  submitted  for 
quality  scrutiny  to  the Regulatory  Scrutiny  Board  (RSB).  The  RSB  gave  an  opinion  on  the 
impact  assessment  on  13  June  2025.  The  RSB  made  a  series  of  comments  and 
recommendations on scope, problem definition and the use of evaluations, intervention logic 

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and  objectives,  comparison  of  options  and  cost-benefit  analysis,  governance,  coherence  and 
future  monitoring  and  evaluation.  The  impact  assessment  accompanying  this  legal  proposal 
was reviewed in accordance with the Board’s comments.  

• 

Regulatory fitness and simplification 

The  initiative  will  streamline  EU  management,  governance  and  implementation  of  EU 
programmes  to  improve  efficiency  for  applicants,  beneficiaries  and  EU  institutions. 
Application and reporting procedures will be simplified and further harmonised, through the 
introduction  of  common  or  aligned  rules,  making  it  easier  for  applicants  to  apply  to  calls 
addressing complementary policy objectives.  

To  simplify  implementation  and  reduce  administrative  burden  for  beneficiaries,  the  use  of 
simplified  forms  of  funding  (including  financing  not  linked  to  costs  and  lump  sums)  will 
become the standard form of contribution for reimbursing grants. The use of financial support 
to  third  parties,  which  has  proven  efficient  in  making  EU  funding  more  accessible  to  small 
organisations,  will  also  continue  and  could  be  extended  where  appropriate.  Moreover, 
increasing  the  use  of  multi-annual  grants  will  also  have  a  positive  impact.  Obstacles 
encountered  by  grassroots  organisations  and  first-time  applicants  will  be  addressed  through 
targeted  simplification  measures  addressing  their  circumstances,  enhanced  communication, 
and promotion of funding opportunities. The pooling of resources, including in areas such as 
monitoring, internal and external communication will bring economies of scale and enhance 
the  predictability  of  EU  funding  more  widely  among  beneficiaries,  stakeholders  and  EU 
citizens.   

• 

Fundamental rights 

Building on the previous Creative Europe and Citizens, Equality, Rights and Values (CERV) 
programmes and pre-existing prerogative lines, the new instrument aims at promoting Union 
values, including respect for fundamental rights, equality, democracy, as well as culture and 
media.  

It is in line with and promotes the values set out in Article 2 of the Treaty on European Union. 
The  objectives  of  the  new  Programme  are  closely  linked  to  the  promotion  of  fundamental 
rights and are thus in line with the Charter of Fundamental Rights of the EU. In particular, this 
proposal will contribute to the promotion and protection of the rights and principles enshrined 
in Articles 8 (protection of personal data), 11 (freedom of expression, rights to information, 
media freedom and pluralism), 12 (freedom of assembly and of association), 13 (freedom of 
the arts and science), 15 (freedom to choose an occupation and right to engage in work), 20 
and  21  (equality  and  non-discrimination),  22  (cultural  and  linguistic  diversity),  23  (equality 
between women and men), 24 (rights of the child), 26 (rights of persons with disabilities), 31 
(fair  and  just  working  conditions),  32  (prohibition  of  child  labour  and  protection  of  young 
people at work), 33 (family and professional life), 39 to 46 (citizens’ rights) of the Charter.  

4. 

BUDGETARY IMPLICATIONS 

see Annex 

5. 

• 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

This  initiative  will  be  monitored  through  the  performance  framework  for  the  2028-2034 
budget  defined  in  Regulation  (EU)  [XXX]*  of  the  European  Parliament  and  of  the  Council 

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[Performance],  which  also  details  the  specific  rules  regarding  evaluations.  The  evaluation 
shall  be  conducted  in  accordance  with  the  Commission's  Better  Regulation  Guidelines  and 
will be based on indicators relevant to the objectives of the Programme.    

A part of the Programme will be implemented by an Executive Agency under the supervision 
of the Commission services responsible for the Programme.  

• 

Detailed explanation of the specific provisions of the proposal 

The general objectives of the Programme are to promote cultural and linguistic diversity and 
heritage, to increase the competitiveness of the cultural and creative sectors, in particular the 
media and audiovisual industries, to safeguard artistic and media freedom, and to protect and 
promote equality, active citizenship, rights and values as enshrined in the Treaties and in the 
Charter, thereby enhancing democratic participation and societal resilience within the Union. 

Within this general objective, the Programme shall have three separate strands: 

First,  the  ‘Creative  Europe  –  Culture’  strand,  which  will  implement  the  following  specific 
objective:  

(a) 

Contribute 
to  cross-border  cultural  creation,  cooperation,  participation  and 
accessibility,  and  cross-border  circulation  of  a  diversity  of  cultural  works,  while 
strengthening  the social, economic  and international  dimensions of the  cultural  and 
creative sectors.    

Second, the ‘MEDIA+’ strand, which will implement the following specific objectives:  

(a) 

(b) 

Contribute to the cultural diversity and competitiveness of the audiovisual and video 
games  industries,  notably  by  enhancing  creation  and  cross-border  distribution  of 
European content and its access by citizens. 

Contribute  to  a  free,  viable  and  diverse  Union  information  ecosystem,  notably  by 
supporting  free  and  independent  journalism  and  news  media,  enhancing  citizens’ 
access to trustworthy information and tackling disinformation.  

Third,  the  Democracy,  Citizens,  Equality,  Rights  and  Values  (‘CERV+’)  strand,  which  will 
implement the following specific objectives:  

(a) 

(b) 

Contribute  to  protecting  and  promoting  fundamental  rights,  equality  and  non-
discrimination  and  Union  citizens’  rights  enshrined  in  the  Treaties  including  free 
movement of citizens, and empowering civil society. 

Contribute  to  fighting  against  gender-based  violence,  violence  against  children  and 
other groups at risk of such violence. 

(c) 

Contribute to enhancing democratic participation and upholding the rule of law. 

To maximise impact and enhance synergies across the strands, the Programme shall support 
cross-cutting  and  horizontal  activities  contributing  to  the  general  objective,  notably  by 
developing  synergies  between  the  cultural,  media  and  civic  spheres  and  promoting  cross-
sectoral collaboration and innovation. 

To be effective, the Programme should take into account the specific nature of the different 
policies, their different target groups and their particular needs through targeted approaches.  

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2025/0550 (COD) 

Proposal for a 

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

establishing the 'AgoraEU' programme for the period 2028-2034, and repealing 
Regulations (EU) 2021/692 and (EU) 2021/818 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Articles 19(2), 21(2), 24, 167(5), 168(5) and 173(3) thereof, 

Having regard to the proposal from the European Commission, 

After transmission of the draft legislative act to the national parliaments, 
Having regard to the opinion of the European Economic and Social Committee9,  
Having regard to the opinion of the Committee of the Regions10,  

Acting in accordance with the ordinary legislative procedure 

Whereas: 

(1) 

(2) 

Pursuant to Article 2 of the Treaty on European Union (TEU), the Union is founded on 
the values of respect for human dignity, freedom, democracy, equality, the rule of law 
and  the  respect  for  human  rights,  including  the  rights  of  persons  belonging  to 
minorities, which are common to the Member States in a society in which pluralism, 
non-discrimination, tolerance, justice, solidarity and equality between women and men 
prevail  (‘Union  values’).  The  Union  values  are  reflected  in  the  rights,  freedoms  and 
principles  set  out  in  the  Charter  of  Fundamental  Rights  of  the  European  Union  (the 
‘Charter’). Article 3 TEU further mandates the Union to promote the protection of the 
rights of the child. Article 10 TEU further states that the functioning of the Union shall 
be  founded  on  representative  democracy,  that  citizens  are  directly  represented  at 
Union level in the European Parliament and that citizens have the right to participate 
in the democratic life of the Union. Article 20 establishes Union citizenship and sets 
out important rights that citizens of the Union shall, inter alia, enjoy.  

Culture  and  media  and  promotion  and  respect  of  Union  values  are  all  crucial 
components  of  a  free,  fair,  diverse,  inclusive  and  cohesive  Union.  Citizens’ 
participation and engagement, in due respect of Union values, constitutes the basis of 
the democratic life of the Union, with media playing a crucial role in shaping public 
opinion and free debate. Audiovisual works and all other forms of cultural and creative 
expressions,  including  cultural  heritage,  are  essential  to  Europe’s  diversity  and  to 
forging  societal  resilience  and  mutual  understanding  among  European  citizens  and 
communities.  

9 
10 

OJ C , , p. .  
OJ C , , p. . 

EN 

15 

  EN 

 
(3) 

(4) 

(5) 

(6) 

(7) 

The ‘AgoraEU’ Programme (the ‘Programme’) will provide a significant contribution 
to the attainment and realisation of these objectives, rights and values. 

The    Programme  should  succeed  the  Creative  Europe  Programme  established  by 
Regulation  (EU)  2021/818  of  the  European  Parliament  and  the  Council11  and  the 
Citizens,  Equality,  Rights  and  Values  Programme,  established  by  Regulation  (EU) 
2021/692  of  the  European  Parliament  and  of  the  Council12.  It  should  streamline 
various  funding  actions  in  support  of  media  freedom  and  pluralism,  fight  against 
disinformation in support of the provision on information on Union affairs.  Free and 
pluralistic  media  and  civil  society  are  among  key  watchdogs  of  the  Union’s 
democratic  systems,  playing  a  crucial  role  for  democratic  resilience,  and  should  be 
supported.  The  Programme  should  also  support  the  cultural,  creative  and  media 
sectors,  harness  the  power  of  culture  and  cultural  diversity,  enhance  the  information 
space,  and  support  the  Union’s  efforts  to  strengthen  a  rights-based,  inclusive,  equal 
and  democratic  society.  This  Regulation  lays  down  an  indicative  financial  envelope 
for the ‘AgoraEU’ Programme13. For the purpose of this Regulation, current prices are 
calculated by applying a fixed 2% deflator. 

To  be  effective,  the  Programme  should  take  into  account  the  specific  nature  and 
challenges  of  the  different  policy  areas  and  sectors,  their  different  target  groups  and 
their particular needs through targeted approaches. 

In  a  fast  changing  economic,  social  and  geopolitical  environment,  the  recent 
experience  has  shown  the  need  for  a  more  flexible  multiannual  financial  framework 
and its programmes. To that effect, and in line with the objectives of the  ‘AgoraEU’ 
Programme,  the  funding  will  take  due  account  of  the  evolving  policy  needs  and 
Union’s priorities as identified in relevant documents published by the Commission, in 
Council  conclusions  and  European  Parliament  resolutions  while  ensuring  sufficient 
predictability for the implementation.  

The  cultural  and  creative  sectors,  including  performing  arts  (such  as  theatre  and 
dance),  literature  and  book  publishing,  music,  visual  arts,  tangible  and  intangible 
cultural  heritage,  architecture,  archives,  libraries  and  museums,  crafts  and  design 
(including fashion design), serve as ‘public good’, generating meaning and embodying 
the  values  of  the  Union.  They  are  also  a  great  asset  for  the  Union  and  its  regions, 
attracting sustainable tourism and projecting the image of a dynamic continent on the 
world stage. The Programme should take into account, on the one hand, their intrinsic 
and  artistic  value,  as  well  as,  on  the  other  hand,  their  extrinsic  social  and  economic 
contributions, including  to  social  and  territorial  cohesion,  well-being  and  health, 
growth and job creation, competitiveness, creativity and innovation. 

(8) 

The cultural and creative sectors are however fragmented along national and linguistic 
lines in the Union. They also face multiple challenges, such as attacks on freedom of 

11 
Regulation (EU) 2021/818 of the European Parliament and of the Council of 20 May 2021 establishing 
the  Creative  Europe  Programme  (2021  to  2027)  and  repealing  Regulation  (EU)  No  1295/2013  (OJ  L  189, 
28.5.2021, p. 34, ELI: http://data.europa.eu/eli/reg/2021/818/oj). 
12 
Regulation (EU) 2021/692 of the European Parliament and of the Council of 28 April 2021 establishing 
the  Citizens,  Equality,  Rights  and  Values  Programme  and  repealing  Regulation  (EU)  No  1381/2013  of  the 
European Parliament and of the Council and Council Regulation (EU) No 390/2014 (OJ L 156, 5.5.2021, p. 1, 
ELI: http://data.europa.eu/eli/reg/2021/692/oj). 
13 
Where  relevant,  the  support  provided  by  the  Programme  shall  accelerate  or  boost  investments  by 
addressing market failures or sub-optimal investment situations, in a proportionate manner, avoiding duplication 
or crowding out, and by incentivising private funding, and shall have Union added-value. 

EN 

16 

  EN 

 
artistic expression, precarious working conditions, digital transformations with the rise 
of  artificial  intelligence,  and  the  need  to  adapt  to  climate  change.  The  Programme 
should  help  those  sectors  respond  to  such  challenges,  untap  their  full  potential  and 
project  themselves  resolutely  into  the  future  while  ensuring  the  widest  participation, 
including from local and regional actors, through various channels and formats.   

(9) 

Europe's  cultural  heritage  is  a  shared  and  priceless  legacy  facing  budget  constraints, 
natural  and  human-induced  disasters,  climate  change,  and  regional  conflicts.  It  is 
important  to  safeguard and preserve such a legacy, enhancing  access  and fostering  a 
that  future 
collective  European 
generations  can  learn  from,  appreciate,  and  draw  inspiration  from  their  cultural 
heritage.  

identity.  Digital  preservation  further  ensures 

(10)  The Programme should also give financial support to the European Heritage Label and 
the  European  Capitals  of  Culture  actions,  that  celebrate  and  preserve  Europe's  rich 
cultural  diversity  and  heritage,  connecting  it  to  the  local  level  and  contributing  to 
culture-driven development strategies.  

(11)  Europe's  media  sectors  hold  a  unique  position  in  our  democracies,  culture,  and 
economies.  They  encompass,  inter  alia,  content  such  as  films,  series,  video  games, 
news and information, immersive reality and multimedia, as well as services including 
theatrical  exhibition,  television  and  radio  broadcasting,  print  and  online  publishing, 
advertising online videos and podcasts. The digital transformation, notably the rise of 
artificial 
intelligence,  has  accelerated  media  convergence,  changed  consumer 
behaviour,  disrupted  business  and  revenue  models,  as  well  as  intellectual  property 
management  and  exploitation.  The  Union  should  therefore  help  the  Union’s  media 
thrive,  foster  innovation  and  access  to  finance,  promote  cross  fertilisation  between 
news,  audiovisual  and  other  media  sectors  and  support  collaborations  between 
different types of media entities across the Union. 

(12)  The  Union  audiovisual  sector  faces  challenges  stemming  from  limited  cross-border 
circulation,  shifting  consumption  habits  and  the  dominance  of  non-Union  players. 
Given  these  challenges,  Union  intervention  should  support  the  capacity  of  European 
audiovisual  and  video  games  industries  to  create,  finance,  produce  and  disseminate 
European works on all platforms that are available and attractive to audiences within 
the Union and beyond. It should foster transmedia adaptations of intellectual property 
between  different  media  formats,  contribute  to  promoting  collaboration  among 
Member  States  with  different  market  capacities,  and  accompany  the  Union’s 
audiovisual regulatory framework.  

(13)  News  media  outlets  and  journalists  across  the  Union  are  under  increased  pressure, 
notably  due  to  the  rise  of  global  online  platforms,  shifting  consumption  habits  and 
growing  spread  of  disinformation.  These  challenges  impact  news  revenues  and 
distribution,  undermining  the  viability  and  public  trust  in  news  media  outlets,  and 
limiting  citizens’  access  to  diverse,  professionally  produced  European  journalistic 
content.  The  Union  should  support  a  viable,  independent  and  diverse  information 
ecosystem, protect journalists under threat, promote media freedom and pluralism, and 
reinforce the integrity of the information space, by promoting measures and enhancing 
cooperation  aimed  at  tackling  disinformation  and  supporting  digital  and  media 
literacy, including for young people.  

(14)  Democracies in the Union are facing increasing challenges. Declining trust of citizens 
in  democratic  institutions  and  processes  is  exacerbated  by  disinformation,  social 

EN 

17 

  EN 

polarisation  and  hatred  impacting  the  electoral  and  other  democratic  processes.  A 
whole of society approach is needed to make European democracy more resilient. 

(15)  The protection and promotion of fundamental rights contributes to the construction of 
a  more  democratic  Union.  Non-discrimination  is  a  core  principle  of  the  Union 
enshrined in  Article 19  TFEU  and in  Article 21 of the Charter. Working towards  an 
equal  and  discrimination-free  society  contributes  to  untapping  the  potential  of 
individuals in their diversity and to cultural, economic and social growth. It also helps 
to address important root causes of violence against vulnerable groups, which in turn 
is  a  frontal  attack  on  equality.  Therefore,  the  Programme  should  promote  actions  to 
address  all  forms  of  discrimination  and  intolerance,  namely  direct  and  indirect 
discrimination,  paying  attention  to  the  specific  forms  of  structural  and  intersectional 
discrimination,  with  a  view  to  supporting  relevant  Union  policy  frameworks.  The 
Programme should support actions to prevent and combat all forms of xenophobia and 
racism,  antisemitism  and  anti-Muslim  hatred,  homophobia,  biphobia,  transphobia, 
interphobia,  intolerance  and  discrimination  based  on  gender  identity,  intolerance 
towards persons belonging to minorities including Roma, as well as hate speech. The 
Programme should also contribute to enabling the Union to deliver on the commitment 
taken  as  Party  to  the  UN  Convention  on  the  Rights  of  Persons  with  Disabilities 
adopted  on  13  December  200614  to  promote,  protect  and  ensure  the  full  and  equal 
enjoyment  of  all  human  rights  and  fundamental  freedoms  by  all  persons  with 
disabilities. 

(16)  The  rights  to  privacy  and  the  protection  of  personal  data,  enshrined  respectively  in 
Article  7  of  the  Charter  and  in  Article  16  TFEU  and  Article  8  of  the  Charter,  are 
enforced  through  a  dedicated  Regulation15  and  Directive16.  The  Union’s  legal 
framework lays down provisions to ensure that the right to protection of personal data 
is  effectively  protected.  These  legal  instruments  entrust  the  national  data  protection 
supervisory authorities with the task of promoting public awareness and understanding 
the  risks,  rules,  safeguards  and  rights  in  relation  to  the  processing  of  personal  data. 
The  Programme  should  contribute  to  raising  awareness,  carry  out  studies  and  other 
relevant  activities  in  this  field,  including  through  the  national  data  protection 
supervisory authorities, given the importance of the right to the protection of personal 
data in times of rapid technological developments. 

(17)  Gender  equality  is  a  fundamental  right  and  an  objective  of  the  Union  and  should  be 
supported  by  the  Programme.  Despite  many  achievements,  significant  challenges 
remain,  which  require  to  reinforce  the  Union’s  commitment.  This  includes  working 
towards  freedom  from  gender-based  violence,  the  highest  standards  of  health, 
including  in  particular  sexual  and  reproductive  health,  equal  pay  and  economic 
empowerment,  work-life  balance  and  care,  equal  employment,  career  opportunities 
and  working  conditions,  quality  and  inclusive  education,  political  participation  and 
equal representation, institutional mechanisms that deliver on women’s rights, actively 
tackling gender stereotypes and addressing intersectional discrimination.  

(18)  Gender-based  violence  and  violence  against  women,  children,  young  persons  and 
other groups at risk, such as LGBTIQ persons and persons with disabilities, constitute 
a serious violation of fundamental rights and continue to persist throughout the Union, 

14 
15 
16 

OJ L 23, 27.01.2010, p. 35-36 
OJ L 119, 4.5.2016, p. 1-88. 
OJ L 119, 4.5.2016, p. 89-131. 

EN 

18 

  EN 

 
in all social and economic contexts. Violence against women  and persons belonging 
to other groups at risk is a violation of human rights and a frontal attack on equality. 
Thus, preventing and addressing such violence is a societal imperative and contributes 
to  tackling  such  discrimination  as  well  as  addressing  the  impacts  of  violence, 
including on health. At the same time, ensuring a discrimination-free society will also 
help  address  the  root  causes  of  violence  against  vulnerable  groups,  since  they  are 
intrinsically  linked.  Therefore,  the  Programme  should  continue  the  longstanding 
Union effort in preventing, responding to and fighting violence at all levels as well as 
in protecting and supporting all direct and indirect victims and survivors of violence, 
building  on the five consecutive generations of the Daphne programme and strand17. 
The  Programme  should  support  the  achievement  of  the  objectives  of  the  Council  of 
Europe Convention on preventing and combating violence against women adopted in 
Istanbul on 11 May 2011, the implementation of the Commission Recommendation on 
developing and strengthening integrated child protection systems in the best interests 
of the child18, which protects children from any form of violence, as well as contribute 
to  enabling  the  Union  to  deliver  on  the  commitment  taken  as  Party  to  the  UN 
Convention  on  the  Rights  of  Persons  with  Disabilities,  which  protects  persons  with 
disabilities against any form of exploitation, violence and abuse.  

In accordance with  Union  acquis on equal  treatment,  the Member States  have set  up 
independent  bodies  for  the  promotion  of  equal  treatment  (‘equality  bodies’),  which 
play a key role in promoting equality and ensuring the effective application of equal 
treatment legislation. Further, the Programme should support the European Network of 
Equality Bodies (Equinet) composed of the national equality bodies as provided for by 
Council  Directive  (EU)  2024/149919  and  Directive  (EU)  2024/1500  of  the  European 
Parliament  and  of  the  Council20,  since  Equinet  is  the  only  entity  which  ensures 
coordination  of  activities  between  equality  bodies.  This  is  of  key  importance  for  the 
effective implementation of Union anti-discrimination law in the Member States. 

(19) 

(20)  Citizens throughout the Union, many of whom regularly or at least occasionally travel 
to, live, study, work or volunteer in another Member State, should feel  able to enjoy 
and  exercise  their  citizenship  rights  and  to  place  their  trust  in  equal  access,  full 
enforceability  and  protection  of  their  rights  without  any  discrimination,  no  matter 
where in the Union they happen to be.  Citizens should be more aware of their rights 
deriving from citizenship of the Union, namely their right to move and reside freely in 
the  Union,  their  voting  rights  when  residing  in  another  Member  State,  their  right  to 
petition the European Parliament in any of the official languages, their right to submit 

17 
Three  consecutive  generations  of  the  Daphne  programme  ( OJ  L  34,  9.2.2000,  p.  1; OJ  L  143, 
30.4.2004, p. 1; OJ L 173, 3.7.2007, p. 19–26), and the results of the Daphne strands of the Rights, Equality and 
Citizenship Programme (OJ L 354, 28.12.2013, p. 62–72 ) and the CERV Programme (OJ L 156, 5.5.2021, p. 1–
20). 
18 
C(2024) 2680 final (OJ L, 2024/1238, 14.5.2024, ELI: http://data.europa.eu/eli/reco/2024/1238/oj). 
19 
Council Directive (EU) 2024/1499 of 7 May 2024 on standards for equality bodies in the field of equal 
treatment between persons irrespective of their racial or ethnic origin, equal treatment in matters of employment 
and occupation between persons irrespective of their religion or belief, disability, age or sexual orientation, equal 
treatment between women and men in matters of social  security and in the access to and supply of goods and 
services,  and  amending  Directives  2000/43/EC  and  2004/113/EC  (OJ  L,  2024/1499,  29.5.2024,  ELI: 
http://data.europa.eu/eli/dir/2024/1499/oj). 
20 
Directive (EU) 2024/1500 of the European Parliament and of the Council of 14 May 2024 on standards 
for equality bodies in the field of equal treatment and equal opportunities between women and men in matters of 
employment  and  occupation,  and  amending  Directives  2006/54/EC  and  2010/41/EU  (OJ  L,  2024/1500, 
29.5.2024, ELI: http://data.europa.eu/eli/dir/2024/1500/oj). 

EN 

19 

  EN 

 
citizens' initiatives and their right to lodge complaints with the European ombudsman 
against institutional maladministration.  

(21)  Encouraging  citizens  to  play  a  more  active  role  in  democracy  at  Union  level  will 
strengthen European civil society and foster the development of a European identity. 
Civil  society  therefore  needs  to  be  supported  in  promoting,  safeguarding  and  raising 
awareness  of  Union  values  and  in  contributing  to  the  effective  enjoyment  of  rights 
under Union law. When Union citizens participate in the democratic life of the Union, 
they contribute to making a reality representative democracy, a principle on which the 
functioning of the Union is founded and which gives concrete expression to the value 
of democracy enshrined in Article 2 TEU.  

(22) 

In order to bring the Union closer to its citizens and to foster democratic participation, 
a  variety  of  actions  and  coordinated  efforts  are  necessary.  European  citizenship  and 
European  identity  should  be  developed  and  advanced  by  encouraging  citizens’ 
understanding  of  the  policy-making  process,  and  by  promoting  civic  engagement  in 
the  actions  of  the  Union.  Remembrance  activities  and  critical  reflection  on  Europe’s 
historical memory are necessary to make citizens aware of the common history, and to 
lay  the  foundation  for  a  common  future  and  shared  values.  Furthermore,  supporting 
civil  society  organisations  at  local,  regional,  national  and  transnational  level  in  the 
areas covered by the Programme will contribute to increasing citizens’ engagement in 
society and ultimately to their active involvement in the democratic life of the Union. 
At  the  same  time,  supporting  activities  that  promote  mutual  understanding, 
intercultural dialogue, cultural and linguistic diversity, social inclusion and respect for 
others fosters a sense of belonging to the Union and of a common citizenship under a 
European identity, based on a shared understanding of our common European values, 
culture, history and heritage.  

(23)  Civil  society organisations, and other civic space actors, such  as  independent  human 
rights  bodies,  equality  bodies  and  Ombudspersons  Institutions,  play  a  vital  role  in 
contributing  to  the  implementation  of  policy,  encouraging  people’s  participation, 
holding institutions accountable, and driving positive change. The Programme should 
help  ensure  sufficient  resources  and  an  enabling  environment  for  them  to  operate 
independently,  freely,  safely,  and  effectively.  To  this  end,  Union  funding  should 
complement  efforts  at  national  level  by  supporting,  protecting,  empowering  and 
building  their  capacity,  as  emphasised  in  the  European  Parliament  resolution  of  19 
April 201821, as well as Council conclusions of 10 March 202322 and 7 March 202523. 
Civil society also plays an important role in  ensuring an effective  implementation of 
Directive  (EU)  2019/1937 of  the  European  Parliament  and  of  the  Council24  by 
fostering a speak-up culture and a favourable environment for whistleblowers. 

(24)  The  Court  of  Justice  of  the  European  Union  has  confirmed  that  the  Union  is  a  legal 
structure that is based on the fundamental premise that each Member State shares with 

ST-7388/23, Council Conclusions on the application of the EU Charter of Fundamental Rights; The role 

p. 

390, 

(OJ  C 

18.11.2019, 

2018/2619(RSP) 

21 
content/EN/TXT/?uri=oj:JOC_2019_390_R_0017)  
22 
of the civic space in protecting and promoting fundamental rights in the EU 
23 
to promote, protect and enforce fundamental rights 
24 
protection  of  persons  who 
ELI: http://data.europa.eu/eli/dir/2019/1937/oj). 

report  breaches  of  Union 

ST-6878/25, Council Conclusions on the application of the EU Charter of Fundamental Rights: funding 

Directive (EU) 2019/1937 of the European Parliament and of the Council of 23 October 2019 on the 
(OJ  L  305,  26.11.2019,  p.  17, 

law 

117–119, 

https://eur-lex.europa.eu/legal 

EN 

20 

  EN 

 
all the other Member States, and recognises that they share with it, the common values 
contained in Article 2 TEU, on which the Union is founded25. That premise is based 
on  the  specific  and  essential  characteristics  of  Union  law,  including  the  autonomy  it 
enjoys  in  relation  to  the  laws  of  the  Member  States  and  to  international  law.  That 
premise implies and justifies the existence of mutual trust between the Member States 
that those values will be recognised and, therefore, that the Union law that implements 
them will be respected. It follows that compliance by a Member State with the values 
contained in Article 2 TEU is a condition for the enjoyment of all the rights deriving 
from the application of the Treaties to that Member State. The Court of Justice of the 
European  Union  has  therefore  confirmed  that  in  the  areas  for  which  the  Union  is 
competent, it can take action to ensure respect for the values set out in Article 2 TEU.  

intolerance,  disinformation  and  foreign 

(25)  At  a  time  when  European  societies  face  challenges  that  affect  democracies,  such  as 
raise  of  extremisms  and 
information 
manipulation and interference by hostile actors, it is crucial that Union values such as 
respect  for  fundamental  rights,  equality  and  democracy,  continue  to  be  actively 
cultivated, protected, promoted, enforced, and shared among citizens and peoples, so 
that  those  values  remain  at  the  heart  of  the  Union  project.  A  deterioration  in  their 
protection in any Member State can have detrimental effects on the Union as a whole. 
It  is  therefore  crucial  that  this  Programme  contributes  to  protecting  Union  values, 
including respect for fundamental rights, equality and democracy. 

(26) 

In  light  of  increasing  risks  linked  to  natural  hazards,  climate  and  environmental 
disasters,  health  emergencies,  technological  accidents,  evolving  security  threats,  and 
other disruptions, it is essential to enhance the Union’s and Member States’ capability 
to  anticipate,  prepare  for,  and  respond  to  crises.  The  Programme  should  therefore 
support  citizens’  education  and  engagement  on  crisis  preparedness  thus  enhancing 
societal resilience.  

(27)  Hence,  the  Programme  should  also  support  actions  aiming  at  safeguarding  and 
strengthening  democracy  in  the  Union,  reinforcing  public  trust  in  democracy  and 
democratic 
institutions,  strengthening  democratic  preparedness  and  resilience, 
fostering  citizens’  engagement,  participation  and  awareness  of  common  history  and 
values,  thereby  supporting  citizens’  exercise  of  their  rights,  including  their  electoral 
rights, in full respect of Member States’ competences in the organisation of elections. 
The Programme should also contribute to fostering critical thinking, civic participation 
and democracy through education as a lifelong effort, so that all citizens have the skills 
to recognise foreign information, manipulation and interference and disinformation. 

(28)  The Programme should foster synergies and complementarity with Global Europe as it 
will contribute to the advancement of the  Union’s international cultural relations and 
to the Union’s external action objectives through cultural cooperation. 

(29)  The  Programme  should  also  support  the  financing  of  technical  and  organisational 
support  for  the  implementation  of  Regulation  (EU)2019/788  of  the  European 
Parliament and of the Council26, thereby underpinning the exercise by citizens of the 
right  to  launch  and  support  European  citizens’  initiatives.  Together  with  the  other 
rights set out in Article 24 TFEU, that right ensures citizens’ direct participation in the 
democratic life of the Union. 

25 
26 
European citizens' initiative (OJ L 130, 17.5.2019, p. 55, ELI: http://data.europa.eu/eli/reg/2019/788/oj). 

This stems directly from Opinion 2/13, EU:C:2014:2454, paragraph 168. 
Regulation  (EU)  2019/788  of  the  European  Parliament  and  of  the  Council  of  17  April  2019  on  the 

EN 

21 

  EN 

 
(30)  To  ensure  consistency,  the  budgetary  guarantee  and  financial  instruments  under  the 
Programme,  including  when  combined  with  other  forms  of  non-repayable  support  in 
blending operations, should be implemented in accordance with the applicable rules of 
the European Competitiveness  Fund  (ECF)  InvestEU Instrument through agreements 
concluded for that type of support under the ECF InvestEU Instrument. 

(31)  Where  Union  support  under  the  Programme  is  to  be  provided  in  the  form  of  a 
budgetary  guarantee  or  a  financial  instrument,  including  where  combined  with  non-
repayable support in a blending operation, it is necessary that such support is provided 
exclusively  through  the  ECF  InvestEU  Instrument  in  accordance  with  the  applicable 
rules of the ECF InvestEU Instrument.     

(32)  The  Commission  should  be  able  to  divide  budgetary  commitments  into  annual 
instalments.  In  that  case,  the  Commission  should  commit  the  annual  instalments 
during the implementation of the Programme, taking into account the progress of the 
actions  that  receive  financial  assistance,  their  estimated  needs  and  the  budget 
available. 

(33)  Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council27 
applies  to  the  Programme.  It  lays  down  the  rules  on  the  establishment  and  the 
implementation  of  the  general  budget  of  the  Union,  including  the  rules  on  grants, 
prizes,  non-financial  donations,  procurement,  indirect  implementation,  financial 
assistance, financial instruments and budgetary guarantees.  

(34) 

In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom) 
No  883/2013  of  the  European  Parliament  and  of  the  Council28,  Council  Regulation 
(EC,  Euratom)  No  2988/9529,  Council  Regulation  (Euratom,  EC)  No  2185/9630    and 
Council  Regulation  (EU)  2017/193931,  the  financial  interests  of  the  Union  are  to  be 
protected  through  proportionate  measures,  including  the  prevention,  detection, 
correction  and  investigation  of  irregularities  and  fraud,  the  recovery  of  funds  lost, 
wrongly  paid  or  incorrectly  used  and,  where  appropriate,  the  imposition  of 
administrative sanctions. In particular, in accordance with Regulations (EU, Euratom) 
No  883/2013  and  (Euratom,  EC)  No  2185/96,  the  European  Anti-Fraud  Office 
(‘OLAF’) may carry out investigations, including on-the-spot checks and inspections, 
with  a  view  to  establishing  whether  there  has  been  fraud,  corruption  or  any  other 
illegal  activity  affecting  the  financial  interests  of  the  Union.  In  accordance  with 
Regulation  (EU)  2017/1939,  the  European  Public  Prosecutor's  Office  (EPPO)  may 

27 
Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September 
2024  on  the  financial  rules  applicable  to  the  general  budget  of  the  Union  (OJ  L,  2024/2509,  26.9.2024,  ELI: 
http://data.europa.eu/eli/reg/2024/2509/oj).  
28 
Regulation  (EU,  Euratom)  No  883/2013  of  the  European  Parliament  and  of  the  Council  of  11 
September 2013 concerning investigations conducted by the European Anti-Fraud Office (OLAF) and repealing 
Regulation  (EC)  No  1073/1999  of  the  European  Parliament  and  of  the  Council  and  Council  Regulation 
(Euratom) No 1074/1999 (OJ L248, 18.9.2013, p. 1, ELI: http://data.europa.eu/eli/reg/2013/883/oj). 
29 
Communities financial interests (OJ L 312, 23.12.95, p. 1, ELI: http://data.europa.eu/eli/reg/1995/2988/oj). 
30 
Council  Regulation  (Euratom,  EC)  No  2185/96 of  11  November  1996  concerning on-the-spot  checks 
and inspections carried out by the Commission in order to protect the European Communities' financial interests 
against 
2, 
and 
ELI: http://data.europa.eu/eli/reg/1996/2185/oj). 
31 
Council  Regulation  (EU)  2017/1939  of  12  October  2017  implementing  enhanced  cooperation  on  the 
establishment  of  the  European  Public  Prosecutor’s  Office  (‘the  EPPO’)  (OJ  L  283,  31.10.2017,  p.  1,  ELI: 
http://data.europa.eu/eli/reg/2017/1939/oj). 

Council Regulation (EC, Euratom) No 2988/95 of 18 December 1995 on the protection of the European 

irregularities 

15.11.1996, 

fraud 

other 

292, 

(OJ 

p. 

L 

EN 

22 

  EN 

 
investigate  and  prosecute  fraud  and  other  illegal  activities  affecting  the  financial 
interests  of  the  Union  as  provided  for  in  Directive  (EU)  2017/1371  of  the  European 
Parliament  and  of  the  Council32.  In  accordance  with  Regulation  (EU,  Euratom) 
2024/2509,  any  person  or  entity  receiving  Union  funds  is  to  fully  cooperate  in  the 
protection of the Union’s financial interests, to grant the necessary rights and access to 
the Commission, OLAF, EPPO and the European Court of Auditors and to ensure that 
any  third  parties  involved  in  the  implementation  of  Union  funds  grant  equivalent 
rights. 

(35)  The Programme is to be implemented in accordance with Regulation (EU) [XXX]* of 
the European Parliament and of the Council [Performance] which establishes the rules 
for the expenditure tracking and the performance framework for the budget, including 
rules for ensuring a uniform application of the principles of ‘do no significant harm’ 
and gender equality referred to in Article 33(2), points (d) and (f), of Regulation (EU, 
Euratom)  2024/2509  respectively,  rules  for  monitoring  and  reporting  on  the 
performance  of  Union  programmes  and  activities,  rules  for  establishing  a  Union 
funding portal, rules for the evaluation of the programmes, as well as other horizontal 
provisions  applicable  to  all  Union  programmes  such  as  those  on  information, 
communication  and  visibility,  while  taking  into  account  the  scope  and  nature  of  the 
activities and priorities.  

(36) 

The  Programme should  also  support  the  role  of  Programme  Desks,  which  Member 
States  have  the  possibility  to  establish,  and  which  should  provide  guidance  and 
assistance to  applicants  on  funding  opportunities  and  cross-border  collaborations, 
contributing  to  the  Programme’s  outreach  visibility  and  dissemination  in  accordance 
with Regulation  (EU)  [XXX]*  of  the  European  Parliament  and  of  the  Council 
[Performance]. Programme Desks should carry out their functions independently and 
without interference from public authorities in their decision making, and ought not to 
have any responsibility regarding the management of the programme33. 

(37)  Pursuant to Article 85(1) of Council Decision (EU) 2021/176434, persons and entities 
established in overseas countries and territories are eligible for funding subject to the 
ruled  objectives  of  the  Programme  and  possible  arrangements  applicable  to  the 
Member State to which the relevant overseas country or territory is linked. 

(38)  Participation  of  third  countries  in  the  ‘Audiovisual’  specific  objective  requires  a 
certain level of reciprocity and regulatory alignment. For this reason, the situation of 
their  audiovisual  markets,  the  proximity  of  their  legal  frameworks  with  the  Union 

32 
Directive (EU) 2017/1371 of the European Parliament and of the Council of 5 July 2017 on the fight 
against  fraud  to  the  Union's  financial  interests  by  means  of  criminal  law  (OJ  L  198,  28.7.2017,  p.  29, 
ELI: http://data.europa.eu/eli/dir/2017/1371/oj). 
33 
In order to promote the Programme at national level, provide relevant information on the various types 
of  financial  support  available  under  Union  policy,  and  assist  operators  to  apply  for  support  under  the 
Programme, the Programme shall support the establishment of Desks in participating countries. The Desks shall 
implement their activities aiming to enhance outreach, visibility and dissemination of the Programme results in 
accordance with Regulation (EU, Euratom) 202X/XXXX which establishes the rules for the expenditure tracking 
and  the  performance  framework  for  the  budget,  including  the  rules  applicable  to  all  Union  programmes 
regarding  information,  communication  and  visibility  obligations,  including  in  particular  obligations  for 
beneficiaries and implementing partners 
34 
Council Decision (EU) 2021/1764 of 5 October 2021 on the association of the Overseas Countries and 
Territories  with  the  European  Union  including  relations  between  the  European  Union  on  the  one  hand,  and 
Greenland  and  the  Kingdom  of  Denmark  on  the  other  (Decision  on  the  Overseas  Association,  including 
Greenland) (OJ L 355, 7.10.2021, p. 6,  ELI: http://data.europa.eu/eli/dec/2021/1764/oj).   

EN 

23 

  EN 

 
audiovisual media acquis, in particular Directive 2010/13/EU, and the access to their 
support  schemes  should  be  taken  into  consideration  when  concluding  Association 
Agreements.  This  is  of  particular  importance  concerning  other  European  countries, 
whose  audiovisual  works  benefit  from  the  provisions  of  Directive  2010/13/EU  that 
promote European works, notably the quotas system. In the specific case of acceding 
countries, candidate countries and potential candidates, the requirement to align their 
national  legislations  with  Directive  2010/13/EU  was  already  included  in  Regulation 
(EU) 2021/818 establishing the Creative Europe Programme. This condition has been 
an  efficient  incentive  to  accelerate  their  work  on  the  overall  alignment  with  the  EU 
acquis in view of accession. 

(39)  Since the objectives of this Regulation cannot be sufficiently achieved by the Member 
States but can rather, by reason of the transnational nature of the challenges, be better 
achieved  at  Union  level,  the  Union  may  adopt  measures,  in  accordance  with  the 
principle of subsidiarity, as set out in Article 5 TEU. In accordance with the principle 
of proportionality, as set out in that Article, this Regulation does not go beyond what 
is necessary in order to achieve those objectives. 

(40)  This  Regulation  establishes  the  Programme  for  2028  to  2034,  which  succeeds  to  the 
Programmes established by Regulations (EU) 2021/692 and (EU) 2021/818 for 2021 
to 2027. Regulations (EU) 2021/692 and (EU) 2021/818 should therefore be repealed, 

HAVE ADOPTED THIS REGULATION: 

Chapter I 

General provisions 

Article 1 

Subject matter 

This Regulation establishes the ‘AgoraEU’ Programme (the ‘Programme’) and lays down the 
objectives of the Programme, its budget for the period 2028-2034, the forms of Union funding 
and the rules for providing such funding.  

Article 2 

Definitions 

For the purposes of this Regulation, the following definition applies: 

‘award procedure’ means an award procedure, as defined in Article 2, point (3), of Regulation 
(EU,  Euratom)  2024/2509,  as  well  as  procedures  for  entrusting  the  implementation  and 
provision  of  support  through  financial  instruments,  for  granting  the  budgetary  guarantee,  or 
for providing support under the budgetary guarantee.   

EN 

24 

  EN 

 
Article 3 

Programme objectives 

(1) 

The  general  objectives  of  the  Programme  are  to  promote  cultural  and  linguistic 
diversity  and  heritage,  to  increase  the  competitiveness  of  the  cultural  and  creative 
sectors,  in  particular  the  media  and  audiovisual  industries,  to  safeguard  artistic  and 
media  freedom,  and  to  protect  and  promote  equality,  active  citizenship,  rights  and 
values as enshrined in the Treaties and in the Charter, thereby enhancing democratic 
participation and societal resilience. 

(2) 

Within the general objectives set out in paragraph 1, the Programme  shall have the 
following strands, implementing the following specific objectives: 

(a) 

the ‘Creative Europe - Culture’ Strand shall:  

i. 

contribute  to  cross-border  cultural  creation,  cooperation,  participation  and 

accessibility,  and  cross-border  circulation  of  a  diversity  of  cultural  works, 

while  strengthening  the  social,  economic  and  international  dimensions  of  the 

cultural and creative sectors (‘culture’);   

(b) 

the ‘MEDIA+’ strand shall:   

i. 

contribute to the cultural diversity and competitiveness of the audiovisual and 

video  games  industries,  notably  by  enhancing  creation  and  cross-border 

distribution of European content and its access by citizens (‘audiovisual’); 

ii. 

contribute to a free, viable and diverse  Union information ecosystem, notably 

by  supporting  free  and  independent  journalism  and  news  media,  enhancing 

citizens’  access  to  trustworthy  information  and  tackling  disinformation 

(‘news’);   

(c) 

the Democracy, Citizens, Equality, Rights and Values (‘CERV+’) strand shall:  

i. 

contribute  to  protecting  and  promoting  fundamental  rights,  equality  and  non-

discrimination  and  Union  citizen’s  rights  enshrined  in  the  Treaties  including 

free  movement  of  citizens,  and  empowering  civil  society  (‘rights,  equality, 

citizens and civil society’);  

ii. 

contribute to fighting against gender-based violence, violence against children 

and other groups at risk of such violence (‘Daphne’);  

iii.  contribute to enhancing democratic participation and upholding the rule of law 

(‘democratic participation and rule of law’).  

(3) 

To  maximise  impact  and  enhance  synergies  across  the  strands  referred  to  in 
paragraph  2,  the  Programme  shall  support  cross-cutting  and  horizontal  activities 
contributing  to  the  general  objective  referred  to  in  paragraph  1,  notably  by 

EN 

25 

  EN 

developing  synergies  between  the  cultural,  media  and  civic  spheres  and  promoting 
cross-sectoral collaboration and innovation. 

Chapter II 

Creative Europe - Culture strand  

Article 4 

Culture 

Within  the  Creative  Europe  -  Culture  strand,  the  ‘Culture’  specific  objective,  covering  the 
cultural and creative sectors, shall focus on:  

(a) 

(b) 

(c) 

(d) 

(e) 

(f) 

(g) 

fostering  cross-border  creation,  cooperation  and  exchanges  across 
various formats, including through the mobility of artists and cultural and 
creative  professionals,  artistic  residencies,  as  well  as  partnerships 
between organisations of all sizes;    

improving access to and participation in culture and cultural heritage for 
all,  notably  for  young  people,  and  strengthening  social  resilience  and 
social  cohesion,  in  particular  intergenerational  fairness,  equality  and 
diversity, through cultural engagement;  

supporting  the  circulation,  distribution,  promotion  and  visibility  of 
diverse  European  cultural  content  through  various  channels  across  the 
Union  and  internationally,  including  through  European  platforms  for 
emerging  artists,  support  to  entities  aiming  at  training  and  promoting 
young  artists,  prizes  that  promote  artistic  talent  and  excellence,  touring 
initiatives, festivals, and translation;   

strengthening the capacity and skills in the cultural and creative sectors to 
drive  innovation  and  competitiveness  and  to  navigate  the  green  and 
digital transitions, including through support for networks of cultural and 
creative organisations, training and peer-learning activities;  

through  cooperation  and 
promoting  cultural  policy  development 
exchange of good practices at Union level, and improving evidence base 
through enhanced data collection, analysis, and pilot actions;  

advancing the Union’s international cultural relations and contributing to 
the Union’s external action objectives through cultural cooperation; 
supporting  the  implementation  of  the  Decisions  No  445/2014/EU35  and 
No  1194/2011/EU36  of  the  European  Parliament  and  the  Council  of  the 
Union. 

35 
Decision No 445/2014/EU of the European Parliament and of the Council of 16 April 2014 establishing 
a  Union  action  for  the  European  Capitals  of  Culture  for  the  years  2020  to  2033  and  repealing  Decision  No 
1622/2006/EC (OJ L 132, 3.5.2014, p. 1, ELI: http://data.europa.eu/eli/dec/2014/445(1)/oj). . 
36 
Decision  No  1194/2011/EU  of  the  European  Parliament  and  of  the  Council  of  16  November  2011 
establishing  a  European  Union  action  for  the  European  Heritage  Label  (OJ  L  303,  22.11.2011,  p.  1, 
ELI: http://data.europa.eu/eli/dec/2011/1194/oj). . 

EN 

26 

  EN 

 
The implementation of the ‘Culture’ specific objective shall be carried out with full respect of 
artistic  freedom  and  diversity  of  cultural  expressions,  and  contribute  to  the  improvement  of 
working conditions for artists and cultural and creative professionals.  

Chapter III 

MEDIA+ strand  

Article 5 

Audiovisual  

Within the MEDIA+ strand, the ‘Audiovisual’ specific objective shall focus on: 

(a) 

(b) 

(c) 

(d) 

(e) 

supporting  the  creation  of  European  audiovisual  works  across  multiple 
formats and genres, with the potential to reach diverse audiences  across 
borders;   

fostering  the  cross-border  circulation,  distribution,  prominence  and 
visibility  of  European  audiovisual  works  on  all  mediums  across  the 
Union  and  internationally,  including  through  coordinated  distribution 
strategies, marketing and promotion tools;   

building audiences for European audiovisual works, including through a 
network  of  European  cinemas,  festivals  and  outreach  campaigns,  and 
addressing in particular young Europeans and underserved communities;  

supporting  the  development  and  prototyping  of  European  video  games 
and immersive content, including through market testing, promotion and 
discoverability  audience-driven  strategies,  and  distribution  across  all 
platforms;   

enhancing talent development, supporting access to finance, business-to-
business  exchanges  and  networking,  adoption  of  innovative  tools  and 
business  models  and  cross-media  intellectual  property  exploitation 
strategies,  particularly  in response to  creative, market  and technological 
shifts;   

(f) 

fostering policy dialogue, exchange of best practices, data collection and 
analysis,  including  the  payment  of  the  contribution  fee  for  Union 
membership of the European Audiovisual Observatory; 

(g) 

contributing  to  the  implementation  of  Directive  2010/13/EU  of  the 
European Parliament and of the Council.37  

37 
Directive  2010/13/EU  of  the  European  Parliament  and  of  the  Council  of  10  March  2010  on  the 
coordination  of  certain  provisions  laid  down  by  law,  regulation  or  administrative  action  in  Member  States 
(OJ  L  95,  15.4.2010,  p.  1,  ELI: 
concerning 
http://data.europa.eu/eli/dir/2010/13/oj). 

the  provision  of  audiovisual  media 

services 

EN 

27 

  EN 

 
 
The  implementation  of  the  ‘Audiovisual’  specific  objective  shall  be  carried  out  with  full 
respect  for  artistic  freedom  and  ensuring  collaboration  among  entities  from  Member  States 
with different audiovisual capacities.  

Article 6 

News  

Within the MEDIA+ strand, the ‘News’ specific objective shall focus on:  

(a) 

(b) 

(c) 

(d) 

(e) 

(f) 

protecting news media outlets and journalists, especially where they face 
threats, monitoring, assessing and addressing risks to media freedom and 
pluralism in the internal market and promoting journalistic and editorial 
standards;  

enhancing  the  production,  distribution  and  consumption  of  professional 
journalistic  content,  including  coverage  of  Union  affairs,  investigative 
journalism, local news, and public interest media; 

supporting  the  digital  transformation  of  news  organisations,  innovative 
practices,  new  production,  distribution  and  business  models,  facilitating 
access  to  finance  and  encouraging  cross-border  activities  and  the 
reskilling and upskilling of news media professionals; 

enhancing cooperation and promoting measures  aimed at monitoring and 
safeguarding  the  online  information  space,  including  detecting  and 
combating  disinformation  and  foreign  information  manipulation  and 
interference, thereby contributing to greater resilience across the Union;  

promoting digital and media literacy activities in order to enable citizens, 
including  young  people,  to  use  and  develop  a  critical  understanding  of 
the information ecosystem; 

reinforcing policy dialogue, data collection and analysis and development 
of common standards, including by supporting the work of the European 
Board for Media Services.  

The implementation of the ‘News’ specific objective shall be carried out with full respect for 
media editorial independence and professional standards.  

EN 

28 

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Chapter IV  

CERV+ Strand  

Article 7 

Rights, equality, citizens and civil society  

Within  the  CERV+  strand,  the  ‘Rights,  Equality,  Citizens  and  Civil  Society’  specific 
objective shall focus on: 

(a) 

promoting equality, and  preventing and fighting against discrimination on the 
grounds  of  sex,  racial  or  ethnic  origin,  religion  or  belief,  disability,  age  or 
sexual orientation, and all forms of racism and intolerance;   

(b)  promoting gender equality, gender mainstreaming and women’s empowerment, 

and protecting and promoting women’s full enjoyment of rights;  

(c) 

promoting accessibility and protecting and promoting the rights of persons with 
disabilities,  supporting  the  EU  implementation  of  the  UN  Convention  on  the 
Rights of Persons with Disabilities;  

(d)  protecting and promoting the rights of the child;  

(e) 

(f) 

protecting  and  promoting  freedom  of  expression,  the  right  to  privacy,  the 
protection of personal data as well as rights in the digital space; 

nurturing  a  vibrant  civic  space  by  building  the  capacity  of,  and  providing 
financial  support  to,  civil  society  organisations,  human  rights  defenders,  and 
other relevant actors, which are active at all levels in protecting, promoting and 
raising  citizen’s  awareness  of  rights  enshrined  in  the  Treaty,  promoting  EU 
democratic resilience, non-discrimination and equality and more broadly Union 
values, such as the respect for fundamental rights, the rule of law, democracy 
and in protecting and promoting respect of the Charter.  

Article 8 

Daphne 

Within the CERV+ strand, the ‘Daphne’ specific objective shall focus on: 

(a) 

(b) 

(c) 

preventing,  responding  to  and  fighting  at  all  levels  all  forms  of  gender-based 
violence against women and girls, domestic violence, and violence against children, 
young and older people, LGBTIQ people, persons with disabilities and other groups 
at risk; 

protecting and supporting all direct and indirect victims and survivors of violence as 
referred in point (a);  

supporting  the  achievement  of  the  objectives  of  the  Council  of  Europe  Convention 
on preventing and combating violence against women and domestic violence in the 
Union.  

EN 

29 

  EN 

Article 9 

Democratic participation and rule of law 

Within the CERV+ strand, the ‘Democratic participation and rule of law’ specific objective of 
the Programme shall focus on: 

(a) 

(b) 

(c) 

protecting  and  promoting  Union  citizenship  rights  as  well  as  citizens’ 
participation and engagement in the democratic and civic life of the Union, and 
support  open,  resilient,  rights-based,  and  equal  societies  based  on  the  rule  of 
law; 

supporting free, fair, resilient, accessible and inclusive electoral and democratic 
processes;  

promoting civic awareness and better understanding of the Union, its common 
history, memory and diversity to foster mutual understanding and tolerance.    

Chapter V 

Cross-cutting and horizontal priorities and activities 

Article 10 

Within the general objectives set out in Article 3, the Programme shall support the following 
cross-cutting and horizontal priorities and activities: 

(a) 

(b) 

(c) 

(d) 

cross-sectoral cooperation and innovation across the cultural, media and civic fields, 
and protection of the integrity of the public discourse, thereby bolstering democratic 
resilience, societal preparedness and cultural and civic engagement; 

a  responsible  use  of  innovative  tools  and  content  technologies,  notably  Artificial 
Intelligence,  as  well  as  skills  development  and  capacity-building  through  cross 
sectoral approaches; 

actions  for  the  development,  implementation,  and  monitoring  of  relevant  Union 
legislation  and  policy  in  the  culture,  media  and  civic  fields,  including,  where 
applicable, through cooperation among national authorities and stakeholders. 

in  line  with  the  provisions  of  the  Regulation  (EU)  [XXX]*  of  the  European 
Parliament and of the Council [Performance], the promotion of the Programme, and 
its  funding  opportunities,  including  through  Programme  Desks,  thereby  enhancing 
outreach, visibility and the dissemination of the Programme results;  

The financing of cross-cutting and horizontal priorities and activities shall be determined by 
their nature and scope. 

EN 

30 

  EN 

Chapter VI  

Financial provisions 

Article 11 

Budget 

1. 

2. 

3. 

4. 

1. 

2. 

The indicative  financial  envelope  for the implementation  of the Programme for the 
period 2028-2034 is set at EUR 8 582 000 000 in current prices.  

Budgetary  commitments  for  activities  extending  over  more  than  one  financial  year 
may be broken down over several years into annual instalments. 

Appropriations  may  be  entered  in  the  Union  budget  beyond  2034  to  cover  the 
expenses  necessary  and  to  enable  the  management  of  actions  not  completed  by  the 
end of the Programme.  

The financial envelope referred to in paragraph 1 of this Article and the amounts of 
additional  resources  referred  to  in  Article  12  may  also  be  used  for  technical  and 
administrative  assistance  for  the  implementation  of  the  Programme,  such  as 
preparatory,  monitoring,  control,  audit  and  evaluation  activities,  corporate 
information  technology  systems  and  platforms,  information  and  communication 
activities, including corporate communication on the political priorities of the Union, 
and  all  other  technical  and  administrative  assistance  or  staff-related  expenses 
incurred by the Commission for the management of the Programme.  

Article 12 

Additional resources  

Member States, Union institutions, bodies and agencies, third countries, international 
organisations,  international  financial  institutions,  or  other  third  parties,  may  make 
additional  financial  or  non-financial  contributions  to  the  Programme.  Additional 
financial contributions shall constitute external assigned revenue within the meaning 
of Article 21(2), points (a), (d), or (e), or Article 21(5) of Regulation (EU, Euratom) 
2024/2509.  

Resources  allocated  to  Member  States  under  shared  management  may,  at  their 
request,  be  made  available  to  the  Programme.  The  Commission  shall  implement 
those  resources  directly  or  indirectly  in  accordance  with  Article  62(1),  point  (a)  or 
(c), of Regulation (EU, Euratom) 2024/2509. They shall be additional to the amount 
referred to in Article 11(1) of this Regulation. Those resources shall be used for the 
benefit of the Member State concerned. Where the Commission has not entered into 
a legal commitment under direct or indirect management for additional amounts thus 
made available to the Programme, the corresponding uncommitted amounts may, at 
the  request  of  the  Member  State  concerned,  be  transferred  back  to  one  or  more 
respective source programmes or their successors.  

EN 

31 

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Article 13 

1. 

2. 

Alternative, combined and cumulative funding  

The Programme shall be implemented in synergy with other Union programmes. An 
action  that  has  received  Union  contribution  from  another  programme  may  also 
receive  a  contribution  under  this  Programme.  The  rules  of  the  relevant  Union 
programme shall apply to the corresponding contribution, or a single set of rules may 
be applied to all contributions and a single legal commitment may be concluded. If 
all  Union  contributions are  provided  based  on  eligible  cost,  the  cumulative  support 
from the Union budget shall not exceed the total eligible costs of the action and may 
be  calculated  on  a  pro-rata  basis  in  accordance  with  the  documents  setting  out  the 
conditions for support.  

Award  procedures  under  the  Programme  may  be  jointly  conducted  under  direct  or 
indirect  management  with  Member  States,  Union  institutions,  bodies  and  agencies, 
third  countries,  international  organisations,  international  financial  institutions,  or 
other third parties (‘partners to the joint award procedure’), provided the protection 
of the financial interests of the Union is ensured. Such procedures shall be subject to 
a single set of rules and lead to the conclusion of single legal commitments. For that 
purpose, the partners to  the joint award procedure may make resources available to 
the Programme in accordance with Article 12 of this Regulation, or the partners may 
be  entrusted  with  the  implementation  of  the  award  procedure,  where  applicable  in 
accordance with Article 62(1), point (c), of Regulation (EU, Euratom) 2024/2509. In 
joint  award procedures, representatives of the partners to  the joint award procedure 
may  also  be  members  of  the  evaluation  committee  referred  to  in  Article  153(3)  of 
Regulation (EU, Euratom) 2024/2509. 

Article 14 

Third countries associated to the Programme 

1. 

The Programme may be opened to the participation of the following third countries 
through  full  or  partial  association,  in  accordance  with  the  objectives  laid  down  in 
Article  3  and  in  accordance  with  the  relevant  international  agreements  or  any 
decisions adopted under the framework of those agreements and applicable to: 

(a)  members  of  the  European  Free  Trade  Association  which  are  members  of  the 

European Economic Area, as well as European micro-states; 

(b) 

acceding countries, candidate countries and potential candidates; 

(c)  European Neighbourhood Policy countries; 

(d)  other third countries. 

2. 

The Association Agreements for participation in the Programmes shall: 

(a) 

(b) 

ensure  a  fair  balance  as  regards  the  contributions  and  benefits  of  the  third 
country participating in the Programmes; 

lay down the conditions of participation in the Union Programme, including the 
calculation of financial contributions, consisting of an operational contribution 
and a participation fee, to a programme and its general administrative costs; 

(c) 

not confer on the third country any decision-making power in the Programme;  

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(d)  guarantee the rights of the Union to ensure sound financial management and to 

protect its financial interests;  

(e)  where relevant,  ensure the  protection of security and public order interests  of 

the Union. 

For  the  purposes  of  point  (d),  the  third  country  shall  grant  the  necessary  rights  and  access 
required  under  Regulation  (EU,  Euratom)  2024/2509  and  Regulation  (EU,  Euratom)  No 
883/2013,  and guarantee that enforcement decisions imposing a pecuniary obligation on the 
basis  of  Article  299  TFEU,  as  well  as  judgements  and  orders  of  the  Court  of  Justice  of  the 
European Union, are enforceable. 

3. 

1. 

1. 

2. 

3. 

4. 

5. 

The  association  agreements  granting  participation  in  the  ‘Audiovisual’  specific 
objective  referred  to  in  Article  3  shall  take  into  account  the  situation  of  the 
audiovisual  market  in  the  country  concerned,  including  the  proximity  of their  legal 
framework with the Union audiovisual media acquis and the access to its equivalent 
support  schemes,  in  particular  with  regard  to  other  European  countries.  The 
agreements concluded with the countries referred to in paragraph 1 (b) shall require 
the alignment of their national law to Directive 2010/13/EU to grant participation in 
the ‘Audiovisual’ specific objective. 

Article 15 

Implementation and forms of Union funding 

The Programme shall be implemented in accordance with Regulation (EU, Euratom) 
2024/2509,  under  direct  management  or  under  indirect  management  with  entities 
referred to in Article 62(1), point (c) of that Regulation.  

Union  funding  may  be  provided  in  any  form  in  accordance  with  Regulation  (EU, 
Euratom)  2024/2509,  in  particular  grants,  prizes,  procurement  and  non-financial 
donations.  

Where Union support is provided in the form of a budgetary guarantee or a financial 
instrument,  including  where  combined  with  non-repayable  support  in  a  blending 
operation, it shall be exclusively provided through the ECF InvestEU Instrument and 
implemented  in  accordance  with  the  applicable  rules  of  the  ECF  InvestEU 
Instrument  through  agreements  concluded  for  that  type  of  support  under  the  ECF 
InvestEU Instrument.    

Union  support  in  the  form  of  a  budgetary  guarantee  shall  be  provided  within  the 
maximum amount of the budgetary guarantee established by the ECF Regulation. 

Where the Programme makes use of the  ECF InvestEU Instrument, it shall provide 
the  provisioning  for  the  budgetary  guarantee  and  the  financing  to  financial 
instruments, including when combined with non-repayable support in the form of a 
blending operation. 

Where Union funding is provided in the form of a grant, funding shall be provided as 
financing  not  linked  to  costs  or,  where  necessary,  simplified  cost  options,  in 
accordance with Regulation (EU, Euratom) 2024/2509. Funding may be provided in 
the form of actual eligible cost reimbursement only where the objectives of an action 
cannot be achieved otherwise.  

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6. 

7. 

1. 

2. 

3. 

4. 

5. 

6. 

For  the  purposes  of  Article  153(3)  of  Regulation  (EU,  Euratom)  2024/2509,  the 
evaluation  committee  may  be  composed  partially  or  fully  of  independent  external 
experts. 

Entities  applying  for  a  funding  under  the  Creative  Europe  -  Culture  strand  of  the 
Programme that have received over 50% of their annual revenue from public sources 
over  the  last  two  years,  shall  be  considered  as  having  the  necessary  financial, 
professional and administrative capacity to carry out activities under the Programme. 
They  shall  not  be  required  to  present  further  documentation  to  demonstrate  that 
capacity. 

Article 16 

Eligibility 

Eligibility criteria shall be set to support achievement of the objectives laid down in 
Article 3, in  accordance with Regulation (EU, Euratom) 2024/2509 and shall apply 
to all award procedures under the Programme. 

In  award  procedures  under  direct  and  indirect  management,  one  or  more  of  the 
following legal entities may be eligible to provide or receive Union support:  

(a) 

entities established in a Member States;  

(b) 

entities established in an associated third country; 

(c) 

international organisations;  

(d)  other entities established in non-associated third countries where the funding of 
such  entities  is  essential  for  implementing  the  action  and  contributes  to  the 
objectives laid down in Article 3. 

In  addition  to  Article  168(2)  and  (3)  of  Regulation  (EU,  Euratom)  2024/2509, 
associated third countries referred to in Article 14(1) of this Regulation may, where 
relevant,  participate  in  and  benefit  from  any  procurement  mechanisms  set  out  in 
Article 168(2) and (3) of Regulation (EU, Euratom) 2024/2509. Rules applicable to 
Member  States  shall  be  applied,  mutatis  mutandis,  to  participating  associated  third 
countries.   

Award  procedures  affecting  security  or  public  order,  in  particular  concerning 
strategic assets and interests of the Union or its Member States, shall be restricted in 
accordance with Article 136 of Regulation (EU, Euratom) 2024/2509.  

The  work  programme  referred  to  in  Article  110  of  Regulation  (EU,  Euratom) 
2024/2509 may further specify the eligibility criteria set out in this Regulation or set 
additional eligibility criteria for specific actions. 

An  operating  grant  may  be  awarded  without  a  call  for  proposals  to  the  European 
Network of National Equality Bodies (Equinet), to cover expenditure associated with 
the permanent work programme of Equinet.  

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Article 17 

Work programme 

The  Programme  shall  be  implemented  by  work  programmes  referred  to  in  Article  110 
Regulation (EU, Euratom) 2024/2509. The work programmes shall set out, where applicable, 
the  activities  and  related  amounts  of  Union  support  to  be  implemented  through  the  ECF 
InvestEU instrument.  

Chapter VII 

Final provisions 

Article 18 

Repeal  

Regulations (EU) 2021/692 and (EU) 2021/818 are repealed with effect from 1 January 2028. 

Article 19 

Transitional provisions  

1. 

2. 

This  Regulation  shall  not  affect  the  continuation  or  modification  of  the  actions 
concerned, until their closure, under Regulations (EU) 2021/692 and (EU) 2021/818 , 
which shall continue to apply to the actions concerned until their closure. 

The  financial  envelope  for  the  Programme  may  also  cover  technical  and 
administrative  assistance  expenses  necessary  to  ensure  the  transition  between  the 
Programme  and  the  measures  adopted  under  Regulations  (EU)  2021/692  and  (EU) 
2021/81.  

Article 20 

Entry into force and application  

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

It shall apply from 1 January 2028. 

This Regulation shall be binding in its entirety and directly applicable in all Member States. 

Done at Brussels, 

For the European Parliament 
The President 

For the Council 
The President 

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LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT 

1. 

1.1. 

1.2. 

1.3. 

FRAMEWORK OF THE PROPOSAL/INITIATIVE ................................................. 3 

Title of the proposal/initiative ...................................................................................... 3 

Policy area(s) concerned .............................................................................................. 3 

Objective(s) .................................................................................................................. 3 

1.3.1.  General objective(s) ..................................................................................................... 3 

1.3.2.  Specific objective(s) ..................................................................................................... 3 

1.3.3.  Expected result(s) and impact ...................................................................................... 3 

1.3.4. 

Indicators of performance ............................................................................................ 3 

1.4. 

1.5. 

The proposal/initiative relates to: ................................................................................. 4 

Grounds for the proposal/initiative .............................................................................. 4 

1.5.1.  Requirement(s) to be met in the short or long term including a detailed timeline for 

roll-out of the implementation of the initiative ............................................................ 4 

1.5.2.  Added value of EU involvement (it may result from different factors, e.g. 

coordination gains, legal certainty, greater effectiveness or complementarities). For 
the purposes of this section 'added value of EU involvement' is the value resulting 
from EU action, that is additional to the value that would have been otherwise 
created by Member States alone. ................................................................................. 4 

1.5.3.  Lessons learned from similar experiences in the past .................................................. 4 

1.5.4.  Compatibility with the multiannual financial framework and possible synergies with 
other appropriate instruments ....................................................................................... 5 

1.5.5.  Assessment of the different available financing options, including scope for 

redeployment ................................................................................................................ 5 

1.6. 

1.7. 

2. 

2.1. 

2.2. 

2.2.1. 

2.2.2. 

Duration of the proposal/initiative and of its financial impact .................................... 6 

Method(s) of budget implementation planned ............................................................. 6 

MANAGEMENT MEASURES................................................................................... 8 

Monitoring and reporting rules .................................................................................... 8 

Management and control system(s) ............................................................................. 8 

Justification of the budget implementation method(s), the funding implementation 
mechanism(s), the payment modalities and the control strategy proposed .................. 8 

Information concerning the risks identified and the internal control system(s) set up 
to mitigate them............................................................................................................ 8 

2.2.3.  Estimation and justification of the cost-effectiveness of the controls (ratio between 

the control costs  and the value of the related funds managed), and assessment of the 
expected levels of risk of error (at payment & at closure) ........................................... 8 

2.3. 

3. 

3.1. 

Measures to prevent fraud and irregularities ................................................................ 9 

ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE ............ 10 

Heading(s) of the multiannual financial framework and expenditure budget line(s) 
affected ....................................................................................................................... 10 

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3.2. 

Estimated financial impact of the proposal on appropriations ................................... 12 

3.2.1.  Summary of estimated impact on operational appropriations.................................... 12 

3.2.1.1.  Appropriations from voted budget ............................................................................. 12 

3.2.1.2.  Appropriations from external assigned revenues ....................................................... 17 

3.2.2.  Estimated output funded from operational appropriations......................................... 22 

3.2.3.  Summary of estimated impact on administrative appropriations ............................... 24 

3.2.3.1. Appropriations from voted budget .............................................................................. 24 

3.2.3.2.  Appropriations from external assigned revenues ....................................................... 24 

3.2.3.3.  Total appropriations ................................................................................................... 24 

3.2.4.  Estimated requirements of human resources.............................................................. 25 

3.2.4.1.  Financed from voted budget....................................................................................... 25 

3.2.4.2.  Financed from external assigned revenues ................................................................ 26 

3.2.4.3.  Total requirements of human resources ..................................................................... 26 

3.2.5.  Overview of estimated impact on digital technology-related investments ................ 28 

3.2.6.  Compatibility with the current multiannual financial framework.............................. 28 

3.2.7.  Third-party contributions ........................................................................................... 28 

3.3. 

4. 

4.1. 

4.2. 

4.3. 

4.4. 

4.5. 

Estimated impact on revenue ..................................................................................... 29 

DIGITAL DIMENSIONS .......................................................................................... 29 

Requirements of digital relevance .............................................................................. 30 

Data ............................................................................................................................ 30 

Digital solutions ......................................................................................................... 31 

Interoperability assessment ........................................................................................ 31 

Measures to support digital implementation .............................................................. 32 

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1. 

FRAMEWORK OF THE PROPOSAL/INITIATIVE  

1.1. 

Title of the proposal/initiative 

Proposal  for  a  Regulation  of  the  European  Parliament  and  the  Council  establishing 
the  ‘AgoraEU’  Programme  and  repealing  regulations  (EU)  No  2021/692  and  No 
2021/818 for the period 2028-2034 

1.2. 

Policy area(s) concerned  

Culture, audiovisual and media, fundamental rights, equality and non-discrimination, 
the rule of law, civil society, democratic participation.  

1.3. 

Objective(s) 

1.3.1.  General objective(s) 

The  general  objectives  of  the  Programme  are  to  promote  cultural  and  linguistic 
diversity  and  heritage,  to  increase  the  competitiveness  of  the  cultural  and  creative 
sectors,  in  particular  the  media  and  audiovisual  industries,  to  safeguard  artistic  and 
media  freedom,  and  to  protect  and  promote  equality,  active  citizenship,  rights  and 
values as enshrined in the Treaties and in the Charter, thereby enhancing democratic 
participation and societal resilience within the Union. 

1.3.2. 

Specific objective(s) 

The Programme will underpin the following specific objectives:  

a) 
contribute  to  cross-border  cultural  creation,  cooperation,  participation  and 
accessibility,  and  cross-border  circulation  of  a  diversity  of  cultural  works,  while 
strengthening the social, economic and international  dimensions of the cultural  and 
creative sectors (‘culture’);   

b)  contribute  to  the  cultural  diversity  and  competitiveness  of  the  audiovisual  and 
video games industries, notably by enhancing creation and cross-border distribution 
of European content and its access by citizens (‘audiovisual’); 

c) contribute to a free, viable and diverse Union information ecosystem, notably by 
supporting  free  and  independent  journalism  and  news  media,  enhancing  citizens’ 
access to trustworthy information and tackling disinformation (‘news’);  

d)  contribute  to  protecting  and  promoting  fundamental  rights,  equality  and  non-
discrimination  and  Union  citizen’s  rights  enshrined  in  the  Treaties  including  free 
movement  of  citizens,  and  empowering  civil  society  (‘rights,  equality,  citizens  and 
civil society’).  

e) contribute to fighting against gender-based violence, violence against children and 
other groups at risk of such violence (‘Daphne’).  

f)  contribute  to  enhancing  democratic  participation  and  upholding  the  rule  of  law 
(‘democratic participation and rule of law’). 

To  maximise  impact  and  enhance  synergies,  the  Programme  shall  support  cross-
cutting  and  horizontal  activities  contributing  to  the  general  objectives,  notably  by 
developing  synergies  between  the  cultural,  media  and  civic  spheres  and  promoting 
cross-sectoral collaboration and innovation. 

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1.3.3.  Expected result(s) and impact 

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

The  Programme  will  have  positive  impact  on  cross-border  cultural  cooperation, 
cultural participation and accessibility, and circulation of diverse cultural works. This 
will  come  through  promotion  of  cooperation,  creation,  networking  and  pooling  of 
experience  in  the  cultural  and  creative  sectors  (CCS),  support  of  circulation  of 
diverse cultural content and access to cultural diversity and heritage, and support of 
mobility  of  artists  and  CCS  professionals  beyond  national  borders.  Actions  will 
result  in,  among  others,  better  equipped  CCS  to  address  key  challenges,  reinforced 
CCS creative potential in respect of artistic freedom, a more diverse cultural content 
circulating  beyond  national  borders,  more  artists  and  CCS  professionals  expanding 
their  careers,  increased  and  more  inclusive  access  to  more  diverse  cultural  content 
and  heritage,  increased  international  cultural  partnerships  and  exchanges,  increased 
digitisation, access, preservation and reuse of digital heritage. 

The Programme will have positive impact on supporting the creation, circulation and 
access  of  EU  audiovisual  and  media  content,  and  a  diverse  information  market. 
Support  to  audiovisual  works  will  contribute  to  strengthening  European  cultural 
diversity  and  competitiveness, 
It  will  bring 
improvements as well in the creation, circulation and access to video games content, 
and  foster  cross-media  IP  exploitation.  The  integrity  of  the  EU  information  market 
will  be  protected  through  support  to  media  pluralism  and  independence,  media 
viability and media literacy, and by strengthening situational awareness.   

through  e.g.  co-productions. 

The  Programme  will  have  positive  impact  on  the  protection  and  promotion  of 
fundamental  rights  and  non-discrimination,  as  well  as  on  a  thriving  civic  space. 
Actions will have the effect to increase the visibility and awareness of fundamental 
rights,  reduce  discrimination  and  harassment.  Actions  will  also  have  the  effect  to 
protect  individuals,  and  particularly  women,  children  and  groups  at  risk  from 
violence  and  to  support  victims  in  addressing  its  consequences.  Citizens  and 
organisations  will  be  able  to  participate  meaningfully  in  the  political,  economic, 
social and cultural life of their societies. Citizens will be able to freely express their 
views, choose their political leaders, and have a say about their future.  

1.3.4. 

Indicators of performance 

Specify the indicators for monitoring progress and achievements. 

The  output  and  result  indicators  for  the  purpose  of  monitoring  progress  and 
achievements of this programme will correspond to the common indicators provided 
under  Regulation  (EU)  [XXX]*  of  the  European  Parliament  and  of  the  Council 
[Performance]. 

1.4. 

The proposal/initiative relates to:  

¨a new action  
¨ a new action following a pilot project / preparatory action38  

☒ the extension of an existing action  

¨a merger or redirection of one or more actions towards another/a new action 

38 

As referred to in Article 58(2), point (a) or (b) of the Financial Regulation. 

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1.5. 

Grounds for the proposal/initiative  

1.5.1.  Requirement(s) to be met in the short or long term including a detailed timeline for 

roll-out of the implementation of the initiative 

The  Programme  will  contribute  to  tackling  specific  and  common  challenges  and 
fostering synergies in the culture, media, and civic spheres while taking into account 
the specific nature and challenges of the different policy areas, their different target 
groups  and  their  particular  needs.  By  bringing  together  support  in  these  areas,  the 
Union will be better equipped to address recurrent but also new and emerging policy 
priorities, such as protecting democracies, rights and equality, fostering an enabling 
space  for  civil  society,  contributing  to  cultural  and  linguistic  diversity  and  to  the 
protection  of  cultural  heritage,  strengthening  the  cultural  and  creative  sectors  and 
increasing  their  resilience,  promoting  media  freedom  and  pluralism,  and  enhancing 
the economic growth of the media and cultural players.  

1.5.2.  Added  value  of  EU  involvement  (it  may  result  from  different  factors,  e.g. 
coordination gains, legal certainty, greater effectiveness or complementarities). For 
the  purposes  of  this  section  'added  value  of  EU  involvement'  is  the  value  resulting 
from  EU  action,  that  is  additional  to  the  value  that  would  have  been  otherwise 
created by Member States alone. 

Reasons for action at EU level (ex-ante)  

Funding  covered  by  the  programme  concentrates  on  activities  where  the  EU 
intervention can bring additional value compared to action of Member States alone.  

In particular:  

-  Addressing  transnational  and  common  challenges  (e.g.,  shrinking  civic  spaces, 
threats  to  media  freedom  and  pluralism,  fragmentation  of  the  cultural,  creative  and 
media  sectors  along  national  and  linguistic  borders):  these  challenges  makes  it 
difficult  for  Member  States  to  address  them  sufficiently  on  their  own.  EU  level 
efforts  enable  cooperation,  capacity  building,  mutual  learning  and  the  pooling  of 
resources, sharing of expertise and best practices. 

-  National-level  funding  and  policies  alone  are  insufficient  to  protect  and  promote 
EU  values  and  democratic  standards,  and  to  safeguard  the  civic  space.  This  also 
applies  to  the  overall  competitiveness  and  diversity  of  the  media,  audiovisual  and 
other cultural and creative sectors. 

- EU support is essential to maintain access to audiovisual and cultural content across 
all Member States and a high level of protection of fundamental rights. 

- EU support fill funding and service gaps not covered at Member State level. 

- EU action is critical to promote Union values at international level, implementing 
international standards coherently with internal policies. 

Expected generated  EU added value (ex-post)  

-  EU-level  action  will  enable  transnational  cooperation,  pooling  of  resources,  and 
exchange  of  best  practices  across  Member  States,  leading  to  more  coherent  and 
impactful responses to shared challenges. 

- EU support will complement national measures by supporting areas underfunded or 
deprioritized nationally. 

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-  EU  action  will  enhance  mobility  of  professionals  and  circulation,  reinforcing  the 
functioning of the internal market and cultural and linguistic diversity. 

-  EU-level  actions  will  raise  awareness  of  rights  and  nurture  a  sense  of  EU 
citizenship  and  mutual  understanding, 
the  greater  awareness  and 
appreciation  of  cultural  diversity,  the  protection  and  promotion  of  Union  values, 
supporting  democratic  and  societal  resilience,  and  a  trustworthy  information  space, 
objectives that national interventions alone cannot fully achieve. 

through 

- EU support will foster cross border access to media, audiovisual and other cultural 
and creative content to European citizens. 

1.5.3.  Lessons learned from similar experiences in the past 

The  results  of  the  mid-term  evaluations  for  the  period  2021-2027  indicate  that  the 
existing programmes have largely delivered on their policy objectives and provided 
EU  added  value,  while  highlighting  areas  for  improvement  in  terms  of  design.  For 
example, the interim evaluation of the Citizens, Equality, Rights and Values (CERV) 
programme  confirmed  that  the  programme  occupies  a  largely  empty  space  in  the 
values and fundamental rights funding landscape. Creative Europe has contributed to 
support  cultural  and  linguistic  diversity  by  increasing  people’s  access  to  diverse 
European  content  as  well  as  to  help  audiovisual  and  other  creative  and  cultural 
operators  to  scale  up  at  European  level  and  become  more  competitive.  The 
evaluation on Multimedia Actions equally confirmed the added value of supporting 
independent news coverage on EU affairs. 

The evaluations also point to areas of improvement in terms of design. These include 
expanding  the  reach  of  the  programmes,  easing  access,  simplifying  management, 
enhancing  monitoring,  strengthening  synergies  and  avoiding  overlaps  with  other 
programmes, and increasing flexibility to address new challenges.  

1.5.4.  Compatibility with the multiannual financial framework and possible synergies with 

other appropriate instruments 

The initiative is part of the 2028-2034 multiannual financial framework proposal.  

The  initiative  is  aligned  with  the  overarching  Commission’s  2024-2029  policy 
priorities, namely in terms of 1) Supporting people, strengthening our societies and 
our  social  model;  2)  Protecting  our  democracy,  upholding  our  values;  3)  Europe’s 
sustainable prosperity and competitiveness; and 4) a global Europe. 

1)  Synergies  with policies  supporting  people,  strengthening  our  societies  and  our 
social model 

Synergies  will be fostered between media,  culture, values  and rights  initiatives and 
the  future  intervention  in  the  fields  of  education,  solidarity  and  youth.  These 
synergies,  such  as  in  media  literacy,  digital  skills,  civic  engagement  and  civic 
education, arts and culture education, and skills development and inclusion, will be 
promoted  in  line  with  the  objectives  of  the  European  Youth  Strategy  and  the  EU 
Citizenship  Report  as  well  as  other  upcoming  policy  initiatives.  The  initiative 
complements  some  initiatives  under  employment  and  social  policies.  Promoting 
equal  access  to  rights  and  fostering  diversity  will  support  social  inclusion  and  fair 
labour markets. The cultural and creative  sectors and media industries will actively 
contribute  to  the  upskilling  and  reskilling  of  professionals,  in  the  context  of  the 

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Union  of  Skills,  likewise,  it  will  likely  favour  the  creation  of  jobs  in  these  sectors. 
The cultural and creative sectors will also focus on improving working conditions of 
artists and of cultural and creative professionals. 

2) Synergies with justice policies  

The  alignment  between  justice  policies  and  the  rule  of  law  creates  a  robust 
framework  that  ensures  accountability,  promotes  legal  coherence  across  Member 
States,  and  protects  fundamental  rights,  thereby  enhancing  trust  and  cooperation 
within the Union. The relationship between fundamental rights and justice policies is 
key  in  shaping  fair  and  equitable  societies.  Fundamental  rights  –  ranging  from  the 
right to a fair trial, freedom from discrimination to the protection of privacy – define 
the  essential  standards  that  justice  systems  must  uphold,  and  translate  abstract 
instance,  anti-
principles 
discrimination  laws  enforce  the  principle  of  equality  before  the  law.  Thus,  the 
synergy  between  fundamental  rights  and  justice  policies  ensures  that  legal  systems 
not  only  prevent  abuses  but  actively  promote  dignity,  equality,  and  freedom.  This 
synergy  is  essential  for  building  public  trust  in  legal  institutions,  fostering  social 
cohesion,  and  ultimately  ensuring  that  justice  is  accessible  and  meaningful  for  all 
individuals. To this end, synergies will be fostered between this programme and the 
future Justice programme.   

legal  measures  and  practices.  For 

into  concrete 

3) Synergies with policies for the Single Market and competitiveness  

The  initiative  will  complement  the  EU  policy  framework  on  Single  Market  and 
economic  competitiveness.  Notably,  it  builds  on  the  2024  Single  Market  and 
Competitiveness  Report,  which  adopts  an  ecosystem-based  approach  to  strengthen 
the resilience and strategic autonomy of key industrial sectors, including cultural and 
creative  industries.  It  also  reflects  the  objectives  of  the  Competitiveness  Compass, 
which  sets  out  clear  benchmarks  to  improve  the  EU’s  long-term  productivity  and 
promote innovation.  

The  initiative  will  strengthen  synergies  with  the  future  European  Competitiveness 
Fund  and  the  future  programme  for  research  and  innovation.  This  includes  support 
for  multidisciplinary  research  in  a  variety  of  topics  including  democracy,  values, 
equality, and disinformation, but also on digital and industrial topics closely linked to 
the cultural and creative sectors (e.g., extended reality, immersive environments, new 
media).  Moreover, 
to  addressing  Europe’s  digital 
the  proposal  contributes 
transformation, in line with the objectives of the Digital Decade 2030.  

4) Synergies with policies for a global Europe 

The future programme will complement actions financed through the Union external 
actions. For instance, by promoting cultural exchanges and supporting EU media and 
audiovisual  content  globally  including  through    international  collaborations,  it  will 
open  new  markets,  attract  global  talent,  enhance  the  EU’s  influence  and 
attractiveness on the world stage. 

1.5.5.  Assessment  of  the  different  available  financing  options,  including  scope  for 

redeployment 

 - 

EN 

7 

  EN 

1.6.  Duration of the proposal/initiative and of its financial impact 

☒ limited duration  

–  ☒  in effect from 01/01/2028 to 31/12/2034  

–  ☒  financial impact  from  2028 to  2034  for commitment  appropriations and from 

2028 to 203x for payment appropriations.  

¨ unlimited duration 

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

–  followed by full-scale operation. 

1.7.  Method(s) of budget implementation planned 

☒ Direct management by the Commission 

–  ☒ by its departments, including by its staff in the Union delegations;  

–  ☒  by the executive agencies  

¨ Shared management with the Member States  

☒ Indirect management by entrusting budget implementation tasks to: 

–  ¨ third countries or the bodies they have designated 

–  ☒ international organisations and their agencies (e.g. UNESCO, OECD, CoE...) 

–  ☒ the European Investment Bank and the European Investment Fund 

–  ¨ bodies referred to in Articles 70 and 71 of the Financial Regulation 

–  ☒ public law bodies (eg Pillar assessed bodies) 

–  ☒ bodies governed by private law with a public service mission to the extent that 

they are provided with adequate financial guarantees 

–  ☒ bodies governed by the private law of a Member State that are entrusted with 
the  implementation  of  a  public-private  partnership  and  that  are  provided  with 
adequate financial guarantees (Pillar assessed bodies) 

–  ¨  bodies  or  persons  entrusted  with  the  implementation  of  specific  actions  in  the 
common  foreign  and  security  policy  pursuant  to  Title  V  of  the  Treaty  on 
European Union, and identified in the relevant basic act 

–  ¨ bodies established in a Member State, governed by the private law of a Member 
State or Union law and eligible to be entrusted, in accordance with sector-specific 
rules,  with  the  implementation  of  Union  funds  or  budgetary  guarantees,  to  the 
extent that such bodies are controlled by public law bodies or by bodies governed 
by  private  law  with  a  public  service  mission,  and  are  provided  with  adequate 
financial  guarantees  in  the  form  of  joint  and  several  liability  by  the  controlling 
bodies  or  equivalent  financial  guarantees  and  which  may  be,  for  each  action, 
limited to the maximum amount of the Union support. 

Comments  

The  programme  will  be  implemented  under  direct  management  (with  parts  delegated  to  the 
European  Education  and  Culture  Executive  Agency)  as  well  as  under  indirect  management 

EN 

8 

  EN 

through International organisations (e.g. UNESCO, OECD, CoE,...) and other Pillar assessed 
bodies,  which  has  proven  to  be  successful  in  previous  Multiannual  Financial  Frameworks 
(MFFs).  

EN 

9 

  EN 

2. 

MANAGEMENT MEASURES  

2.1.  Monitoring and reporting rules  

(41)  The  monitoring  and  reporting  rules  for  this  programme  will  follow  the  requirements 
laid down in Regulation (EU) [XXX]* of the European Parliament and of the Council 
[Performance]. 

2.2.  Management and control system(s)  

2.2.1. 

Justification  of  the  budget  implementation  method(s),  the  funding  implementation 
mechanism(s), the payment modalities and the control strategy proposed 

The  majority  of  the  Programme's  actions  will  be  implemented  under  direct 
management  mode,  and  partly  delegated  to  the  European  Education  and  Culture 
Executive Agency (EACEA). The current  implementing mode has proven effective 
in the precedessor programmes, and the error rates are currently less than 2% for the 
Creative  Europe  programme,  based  on  preliminary  results  for  the  current  MFF. 
Funding  will  be  implemented  using  the  implementation  modes  offered  by  the 
Financial Regulation,  mainly  grants  and procurement, as this allows to better adapt 
the  actions  to  the  needs  of  the  policy  and  to  have  more  flexibility  to  re-adjust 
priorities in particular through grants. Grants will be in the form of actual costs, lump 
sums, flat rates, unit costs or a combination of these. The use of scales of units costs 
and other simplified measures will reduce the scope for error in cost claims. Several 
measures to allow better access for example for smaller organisations, simplification 
of guidelines and procedures on the basis of the Financial Regulation will be applied 
(see above).  

Direct  management  by  the  Commission  will  also  allow  to  establish  direct  contacts 
with  the  beneficiaries/contractors  engaged  in  the  implementation  of  activities  that 
serve Union policies.   

2.2.2. 

Information concerning the risks identified and the internal control system(s) set up 
to mitigate them 

The  Programme  faces  the  same  risks  as  other  Commission  programmes  that  target 
beneficiaries  which  are  diverse  in  nature.  In  particular,  some  beneficiaries  are  not 
recurring or do not have extensive administrative structures. Risks are mainly related 
to  (1)  ensuring  quality  of  selected  projects  and  their  subsequent  technical 
implementation; (2) risk of inefficient or non-economic use of funds awarded, both 
for grants and procurement; (3) fraud.  

Most of these risks are expected to be reduced thanks to: (1) careful design of calls 
for  proposals;  (2)  guidance  to  applicants  and  beneficiaries;  (3)  the  use  of  the 
simplified  cost  options  of  unit  costs,  flat  rates  and  lump  sums,  which  have  been 
effectively applied in the current MFF and are provided in the Financial Regulation; 
(4) the use of corporate procedures and systems for the management of proposals and 
grants  (e.g.  grants  vademecum,  e-Grants  etc.)  to  ensure  a  full  alignment  with  best 
practice in all stages of the grant and procurement lifecycles. 

The  control  strategy  is  composed  of  different  building  blocks:  (1)  programming, 
evaluation and selection of proposals to ensure that only best proposals are funded; 
(2)  signing  and  monitoring  of  grant  agreements,  subject  to  ex  ante  verification  at 
both  financial  and  policy  level;  (3)  ex  post  audits  based  on  a  “detection  strategy” 

EN 

10 

  EN 

aimed  at  identifying  a  maximum  of  anomalies  in  view  of  recovering  undue 
payments. 

Parts  of  the  Programme  will  continue  to  be  implemented  by  the  Education  and 
Culture  Executive  Agency  (EACEA)  which  uses  the  same  corporate  procedures 
applied throughout the Commission. 

EACEA applies an annual ex post audit plan which covers all actions, and confirms 
an error rate below 2% for the current MFF.  

Currently, EACEA is supervised by its Steering Committee with DG EAC and DG 
CNECT as the parent DGs regarding the Creative Europe programme as well as DG 
JUST as parent DG for the CERV programme. Regular reporting via dashboards is 
ensured as well as regular coordination meetings with the parent DGs. 

2.2.3.  Estimation  and  justification  of  the  cost-effectiveness  of  the  controls  (ratio  between 
the control costs  and the value of the related funds managed), and assessment of the 
expected levels of risk of error (at payment & at closure)  

The  cost  of  controls  of  the  programme  amounts  to  approximately  6%  of  the 
payments  done  by  the  Commission.  This  is  expected  to  stay  stable  or  slightly 
decrease if the use of simplified cost options is further expanded. The objective for 
the management and control system is to maintain the expected levels of risk of error 
(at payment and at closure) below the materiality threshold of 2%. 

2.3.  Measures to prevent fraud and irregularities  

The responsible services will continue to apply their Anti-Fraud Strategy – that are in 
line  with  the  Commission’s  Anti-Fraud  Strategy  (CAFS)  –  to  ensure  inter  alia  that 
their internal anti-fraud related controls are fully aligned with the CAFS and that its 
fraud risk management approach is geared to identify fraud risk cases and adequate 
responses.   

Anti-fraud  strategies  of  both  EACEA  and  the  Commission    enable  fraud  risk  to  be 
addressed, mainly via measures to prevent irregularity which are then escalated in the 
event  of  fraud detection. The following measures will continue to  be implemented, 
both  at  the  parent  DGs  as  in  EACEA:  Desk  monitoring,  monitoring  missions  in 
accordance  with  a  defined  monitoring  strategy,  clear  reporting  requirements  in  the 
grant  agreements  with  beneficiaries,  kick-off  meetings  with  new  beneficiaries, 
possibility to cut grants upon non-delivery of results or non-compliance with certain 
funding conditions such as those linked to communication.  

Beneficiaries in exclusion cases are submitted to the Early Detection and Exclusion 
Database  (EDES)  and  cases  are  followed  up  with  OLAF  and  the  European  Public 
Prosecutor’s Office (EPPO). 

EN 

11 

  EN 

3. 

ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE  

3.1. 

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

•  New budget lines requested  

In order of multiannual financial framework headings and budget lines. 

Budget line 

Type of 
expenditure 

Heading of 
multiannual 
financial 
framework 

Number  

Diff./Non-
diff. 

from 
EFTA 
countries 

Contribution  

from 
candidate 
countries 
and 
potential 
candidates 

from 
other 
third 
countries 

other assigned 
revenue  

06  01  02  Support  expenditure 
‘AgoraEU’ 

for 

Non-diff  YES/NO  YES/NO  YES/NO 

YES/NO 

06 03 01 Creative Europe - Culture 

Diff. 

YES/NO  YES/NO  YES/NO 

YES/NO 

06 03 02 MEDIA+ 

06 03 03 CERV+ 

Diff. 

Diff. 

YES/NO  YES/NO  YES/NO 

YES/NO 

YES/NO  YES/NO  YES/NO 

YES/NO 

2 

2 

2 

2 

EN 

12 

  EN 

 
 
 
 
 
 
3.2. 

Estimated financial impact of the proposal on appropriations  

3.2.1. 

Summary of estimated impact on operational appropriations  

–    The proposal/initiative does not require the use of operational appropriations  

–   The proposal/initiative requires the use of operational appropriations, as explained below 

3.2.1.1.  Appropriations from voted budget 

Heading of multiannual financial framework  

2 

EUR million (to three decimal places) 

Year 

2028 

Year 

2029 

Year 

2030 

Year 

2031 

Year 

2032 

Year 

2033 

Year 

2034 

TOTAL MFF 2028-
2034 

Operational appropriations  

Budget line 06 03 01 Creative Europe - Culture 

Budget line 06 03 02 MEDIA+ 

Budget line 06 03 03 CERV+ 

Of which: 06 03 03 01 Equality, Rights, Citizens 
and Values 

Of which: 06 03 03 02 Democratic participation 
and rule of law 

Of which: 06 03 03 03 Daphne 

(1a) 

(2a) 

(1b) 

(2b) 

(1c) 

(2c) 

Commitments 

Payments 

Commitments 

Payments 

Commitments  

Payments 

Commitments  

Payments 

Commitments  

Payments 

Commitments  

0,230   0,238   0,247   0,256   0,265   0,275   0,285  

pm  

pm  
pm  
0,409   0,424   0,439   0,455   0,472   0,489   0,506  

pm  

pm  

pm  

pm  

pm  
 0,460  

pm  
 0,477  

pm  
 0,494  

pm  
 0,512  

pm  
 0,531  

pm  
 0,550  

pm  
 0,569  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

1,796 

pm 
3,194 

pm 
3,593 

pm 

pm 

pm 

pm 

pm 

pm 

EN 

13 

EN 

 
 
 
 
 
 
 
 
 
 
Appropriations of an administrative nature financed from the envelope of specific programmes3940 
Budget  line  06  01  02  support  expenditure  for 
AgoraEU 

pm  

pm  

(3) 

pm  

pm  

pm  

pm  

pm  

Payments 

pm  

pm  

pm  

pm  

pm  

pm  

pm  

TOTAL appropriations 

Commitments 

=1a+1b+3 

1,099 

1,139 

1,180 

1,223 

1,268 

1,313 

1,360 

Payments 

=2a+2b+3 

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm 

pm 

8,582 

pm 

Heading of multiannual financial framework  

4 

‘Administrative expenditure’41 

EUR million (to three decimal places) 

DG: <EAC/CNECT/JUST> 

 Human resources  
 Other administrative expenditure  
TOTAL  
<…….> 

Appropriations  

Year 

Year 

Year 

Year 

Year 

Year 

Year  TOTAL 

2028 

2029 

2030 

2031 

2032 

2033 

2034 

37,070  37,070  37,070  37,070  37,070  37,070  37,070 

1,523 

1,538 

1,553 

1,569 

1585 

1,602 

1,619 

10,988 

38,593  38,608  38,623  38,639  38,655  38,672  38,689 

270,478 

MFF 
2028-
2034 
259,490 

TOTAL appropriations under HEADING 4 of the multiannual financial 
framework  

(Total 
commitments 
= Total 

0 

0 

0 

0 

0 

0 

0 

0 

39 
40 
research. 
41 

Technical and/or administrative assistance and expenditure in support of the implementation of EU programmes and/or actions (former ‘BA’ lines), indirect research, direct 

The necessary appropriations should be determined using the annual average cost figures available on the appropriate BUDGpedia webpage. 

EN 

14 

EN 

 
 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
payments) 

EUR million (to three decimal places) 

Year 

2028 

Year 

2029 

Year 

2030 

Year 

2031 

Year 

2032 

Year 

2033 

Year 

2034 

TOTAL MFF 
2028-2034 

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm  

pm 

pm 

TOTAL appropriations 
under HEADINGS 1 to 
4 
of the multiannual 
financial framework  

Commitments 

Payments 

3.2.2.  Estimated output funded from operational appropriations (not to be completed for decentralised agencies) 

(42)  The output and result indicators for the purpose of monitoring progress and achievements of this programme will correspond to the common 

indicators provided under Regulation (EU) [XXX]* of the European Parliament and of the Council [Performance]. 

Year  
2028 

Year  
2029 

Year  
2030 

Year  
2031 

OUTPUTS 

Commitment appropriations in EUR million (to three decimal places) 

Enter as many years as necessary to show the 
duration of the impact (see Section1.6) 

TOTAL 

o
N

Cost 

o
N

Cost 

o
N

Cost 

o
N

Cost 

o
N

Cost  N

o

Cost 

o
N

Cost 

Total 
No 

Total 
cost 

Indicate 
objectives and 
outputs  

 

Type42 

Avera
ge 
cost 

SPECIFIC OBJECTIVE No 143… 

- Output 

42 
43 

Outputs are products and services to be supplied (e.g. number of student exchanges financed, number of km of roads built, etc.). 
As described in Section 1.3.2. ‘Specific objective(s)’  

EN 

15 

EN 

 
 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
- Output 

- Output 

Subtotal for specific objective No 1 

SPECIFIC OBJECTIVE No 2 ... 

- Output 

Subtotal for specific objective No 2 

TOTALS 

EN 

16 

EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
3.2.3. 

Summary of estimated impact on administrative appropriations  

–    The proposal/initiative does not require the use of appropriations of an administrative nature  

–   The proposal/initiative requires the use of appropriations of an administrative nature, as explained below 

3.2.3.1. Appropriations from voted budget 

VOTED APPROPRIATIONS 

Year 

2028 

Year 

2029 

Year 

2030 

Year 

2031 

Year 

2032 

Human resources  

Other administrative expenditure  

Subtotal HEADING 4 

Human resources  

Other expenditure of an administrative nature 

Subtotal outside HEADING 4 

TOTAL 

37.070 

1,523 

38,593 

p.m.. 

 p.m.  

HEADING 4 

37,070 

1,538 

38,608 

37,070 

1,553 

38,623 

Outside HEADING 4 

p.m.  

 p.m.  

 p.m.  

p.m. 

37,070 

37,070 

1,569 

1,585 

38,639 

38,655 

p.m.. 

p.m. 

 p.m. 

p.m. 

Year 

2033 

37,070 

1,602 

38,672 

 p.m. 

p.m. 

Year 

2034 

37,070 

1,619 

38,689 

 p.m. 

p.m. 

TOTAL 2028 - 
2034 

259,4900.000 

10,988 

270,4780.000 

p.m. 

p.m. 

3.2.4.  Estimated requirements of human resources  

–    The proposal/initiative does not require the use of human resources  

–   The proposal/initiative requires the use of human resources, as explained below 

3.2.4.1.  Financed from voted budget 

Estimate to be expressed in full-time equivalent units (FTEs) 

EN 

17 

EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
VOTED APPROPRIATIONS 

Year 

2028 

Year 

2029 

Year 

2030 

Year 

2031 

Year 

2032 

Year 

2033 

Year 

2034 

 Establishment plan posts (officials and temporary staff) 

20 01 02 01 (Headquarters and Commission’s 

Representation Offices) 

20 01 02 03 (EU Delegations) 

 (Indirect research) 

 (Direct research) 

Other budget lines (specify) 

182 

182 

182 

182 

182 

182 

182 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

• External staff (inFTEs) 

20 02 01 (AC, END from the ‘global envelope’) 

28 

28 

28 

28 

28 

28 

28 

20 02 03 (AC, AL, END and JPD in the EU Delegations) 

Admin. Support line 

- at Headquarters 

[XX.01.YY.YY] 

- in EU Delegations  

 (AC, END - Indirect research) 

 (AC, END - Direct research) 

Other budget lines (specify) - Heading 4 

Other budget lines (specify) - Outside Heading 4 

TOTAL 

 [XX.01.YY.YY] 

- in EU Delegations  

 (AC, END - Indirect research) 

0 

0 

0 

0 

0 

0 

10 

0 

0 

0 

EN 

0 

0 

0 

0 

0 

0 

10 

0 

0 

0 

0 

0 

0 

0 

0 

0 

10 

0 

0 

0 

18 

0 

0 

0 

0 

0 

0 

10 

0 

0 

0 

0 

0 

0 

0 

0 

0 

10 

0 

0 

0 

0 

0 

0 

0 

0 

0 

10 

0 

0 

0 

0 

0 

0 

0 

0 

0 

10 

0 

0 

0 

EN 

 
 
 (AC, END - Direct research) 

Other budget lines (specify) - Heading 4 

Other budget lines (specify) - Outside Heading 4 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

TOTAL 

220 

220 

220 

220 

220 

220 

220 

The staff required to implement the proposal (in FTEs):  

To be covered by current 
staff available in the 
Commission services  

Exceptional additional staff* 

To be financed under 
Heading 4 or Research 

To be financed from BA 
line 

To be financed from 
fees 

43 

3 

N/A 

10 

Establishment plan posts 

139 

External  staff  (CA,  SNEs, 
INT) 

25 

Description of tasks to be carried out by: 

Officials and temporary staff 

External staff 

3.2.5.  Overview of estimated impact on digital technology-related investments 

TOTAL Digital and IT 
appropriations 

Year 

2028 

Year 

2029 

Year 

2030 

Year 

2031 

Year 

2032 

Year 

2033 

Year 

2034 

TOTAL MFF 
2028 - 2034 

EN 

19 

EN 

 
 
 
 
 
 
 
 
 
 
HEADING 4 

IT expenditure (corporate)  

1,804 

1,804 

1,804 

1,804 

1,804 

1,804 

1,804 

12,628 

Subtotal HEADING 4 

1,804 

1,804 

1,804 

1,804 

1,804 

1,804 

1,804 

12,628 

Outside HEADING 4 

Policy IT expenditure on 
operational programmes 

8,500 

8,500 

8,500 

8,500 

8,500 

8,500 

8,500 

59,500 

Subtotal outside HEADING 4 

8,500 

8,500 

8,500 

8,500 

8,500 

8,500 

8,500 

59,500 

TOTAL 

10,304 

10,304 

10,304 

10,304 

10,304 

10,304 

10,304 

72,128 

3.2.6.  Compatibility with the current multiannual financial framework  

The initiative is consistent with the proposal for the MFF 2028-2034. 

3.2.7.  Third-party contributions  

The proposal/initiative: 

–   does not provide for co-financing by third parties 

–    provides for the co-financing by third parties estimated below: 

Year  

2028 

Year  

2029 

Year  

2030 

Year  

2031 

Year  

2032 

Year  

2033 

Year  

2034 

Total 

Appropriations in EUR million (to three decimal places) 

EN 

20 

EN 

 
 
  
 
 
  
Specify  the  co-financing 
body  

TOTAL appropriations 
co-financed  

3.3. 

Estimated impact on revenue  

–   The proposal/initiative has no financial impact on revenue. 

–    The proposal/initiative has the following financial impact: 

–   on own resources  

–   on other revenue 

–   please indicate, if the revenue is assigned to expenditure lines 

Budget revenue line: 

Article …………. 

Appropriations available 
for the current financial 
year 

     EUR million (to three decimal places) 

Impact of the proposal/initiative44 

Year 2028 

Year 2029 

Year 2030 

Year 2031 

Year 2032 

Year 2033 

Year 2034 

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

Other remarks (e.g. method/formula used for calculating the impact on revenue or any other information). 

As regards traditional own resources (customs duties, sugar levies), the amounts indicated must be net amounts, i.e. gross amounts after deduction of  20% for collection 

21 

EN 

44 
costs. 

EN 

 
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
 
 
 
 
 
 
 
 
 
 
 
4. 

DIGITAL DIMENSIONS 

4.1. 

Requirements of digital relevance 

Reference to the 
requirement 

Requirement description 

Actors affected or 
concerned by the 
requirement 

High-level 
Processes 

Categories 

Chapter VI – Article 11 

[…]  Technical 
administrative 
assistance  for  the  implementation  of  the 
Programme 

and 

European  Commission; 
Beneficiaries 

Chapter V – Article 10 

including 

[…] 
Desks, 
visibility  and  dissemination  of 
Programme’s results.  

through  Programme 
thereby  enhancing  outreach, 
the 

Chapter II – Article 4(e) 

[…]  improving  evidence  base  through 
enhanced data collection, analysis[…] 

Chapter III – Article 5(f) 

Fostering 
analysis […] 

[…]data 

collection 

and 

European  Commission, 
National 
Authorities; 
Beneficiaries 

European  Commission, 
Agencies, 
Executive 
Beneficiaries 

European  Commission, 
Executive 
Agencies, 
Beneficiaries 

Programme 
implementation 
Direct 
through 
Grant Management  

Digital solutions 

Dissemination 

Digital solutions 

Evidence-based 
policy-making, 
programme 
implementation 
and  monitoring; 
evaluation 

Evidence-based 
policy-making, 
programme 
implementation 
and  monitoring; 

Digital 
data 

solutions, 

Digital 
data 

solutions, 

EN 

22 

EN 

 
 
 
Chapter III – Article 6(f) 

Focus  on  […] 
  data  collection  and 
analysis,  and  development  of  common 
standards […] 

European  Commission, 
Executive 
Agencies, 
Beneficiaries 

4.2. 

Data 

High-level description of the data in scope and any related standards/specifications 

evaluation  

Evidence-based 
policy-making, 
programme 
implementation 
and  monitoring; 
evaluation  

Digital 
data 

solutions, 

Type of data 

Countries, organisations, budget, 
participants and priorities per project 

Reference(s) to the 
requirement 

Chapter VI, Article 11 

Chapter V, Article 10 

Chapter II – Article 4(e) 

Chapter III, Article 5(f) and 
Article 6(f) 

Regulation (EU, Euratom) 
(202X-XXXX Performance 
regulation) 

Standard and/or specification (if applicable) 

eGrants and databases of any implementing body in the frame 
of the programme  

Alignment with the European Data Strategy 

Explain how the requirement(s) are aligned with the European Data Strategy 

EN 

23 

EN 

 
 
 
 
   
The provisions under the proposal  support  interoperability, reusability, and secure data sharing, in  line with  the European Data Strategy. 
Where personal data is processed (e.g., participants), it aligns with the General Data Protection Regulation (GDPR). The architecture is also 
consistent with the Open Data Directive, as relevant aggregated, non-personal data may be made available for reuse by researchers or public 
bodies. 

Alignment with the once-only principle 

Explain how the once-only principle has been considered how the possibility to reuse existing data explored 

Dashboards established are the source of traceability and re-usability of the data available from the programme implementation. Data comes 
from application forms, and final reports as well as possibly Programme desks. 

Explain how newly created data is findable, accessible, interoperable and reusable, and meets high-quality standards 

(43)  For specific strands of the Programme, traceability and re-usability of the data available from the programme implementation will be 
ensured.  The  data  will  be  recorded  via  the  project  lifecycle  documents  and  made  accessible,  in  line  with  the  provisions  of  the 
Regulation (EU) [XXX]* of the European Parliament and of the Council [performance] regarding transparency of information on 
programmes performance and achievements through the Single Gateway portal.  

Data flows 

Type of data 

Countries, 
organisations, 
budget, 
participants and 
priorities per 
project 

EN 

Reference(s) to the 
requirement(s) 

Actor who 
provides the 
data 

Actor who 
receives the data 

Trigger for the data 
exchange 

Frequency (if applicable) 

Chapter VI – Article 11  

Chapter V – Article 10 

Beneficiaries, 
Programme 
Desks 

General public 

Commission 

Chapter II – Article 4(e) 

Chapter III, Article 5(f) 

European 
Parliament 

Council of the 

24 

Regulation (EU, 
Euratom) [202X-XXXX 
Performance 
Regulation]: Article 
XXX (monitoring) and 
Article XXX 
(implementation report 

Regulation (EU, Euratom) 
[202X-XXXX 
Performance Regulation] 
Article XXX (monitoring) 
and Article XXX 
(implementation report 
and retrospective 

EN 

 
 
  
and Article 6(f) 

Regulation (EU, 
Euratom) [202X-XXXX 
Performance Regulation] 

European Union 

and retrospective 
evaluations). 

Regular programme 
reporting 

evaluations). 

4.3. 

Digital solutions 

Digital 
solution 

Reference(s) 
to the 
requirement(s) 

Main mandated 
functionalities 

Responsible 
body 

How is accessibility 
catered for? 

How is 
reusability 
considered? 

Use of AI technologies 
(if applicable) 

Digital 
solution #1 – 
Direct Grant 
Management 
platform  

Digital 
solution #2 – 
Dissemination 
platform(s)  

Chapter VI – 
Article 11 

Direct Grant 
Management 

European 
Commmission 

In accordance with 
Commission 
Standard  

Chapter V – 
Article 10 

Disseminate 
Programme’s results 

European 
Commmission 

In accordance with 
Commission 
Standard  

// 

// 

The platform shall 
leverage the use 
artificial intelligence 
where relevant and 
adhering with the 
precautionary principle. 

The platform shall 
leverage the use 
artificial intelligence 
where relevant and 
adhering with the 
precautionary principle. 

Digital solution #1 - Direct Grant Management platform 

EN 

25 

EN 

 
 
  
 
 
 
Digital and/or sectorial policy (when these are 
applicable) 

Explanation on how it aligns 

AI Act 

EU Cybersecurity framework 

eIDAS 

Single Digital Gateway and IMI 

Others 

When leveraging AI, the European Commission will ensure the compliance with 
the AI Act. 

Without prejudice to Regulation (EU) 2016/679, the European Commission shall 
ensure the security, integrity, authenticity and confidentiality of the data collected 
and stored for the purpose of this regulation. 

Not Applicable 

Not Applicable 

// 

Digital solution #2 - Dissemination platform(s) 

Digital and/or sectorial policy (when these are 
applicable) 

Explanation on how it aligns 

AI Act 

EU Cybersecurity framework 

When leveraging AI, the European Commission will ensure the compliance with 
the AI Act. 

Without prejudice to Regulation (EU) 2016/679, the European Commission shall 
ensure the security, integrity, authenticity and confidentiality of the data collected 
and stored for the purpose of this regulation. 

eIDAS 

Not Applicable 

EN 

26 

EN 

 
 
 
Single Digital Gateway and IMI 

Not Applicable 

Others 

// 

4.4. 

Interoperability assessment 

Not applicable 

4.5.  Measures to support digital implementation 

Description of the measure 

Reference(s) to the 
requirement(s)  

Commission role  

(if applicable) 

Actors to be 
involved 

(if applicable) 

Expected timeline 

(if applicable) 

EN 

27 

EN