Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the Justice programme for the period 2028-2034 and repealing Regulation (EU) 2021/693
Date: 2025-09-03
Institutions: Directorate-General for Justice and Consumers, European Commission
Subjects: EU programme, access to the courts, democracy, digitisation, electronic government, fundamental rights, independence of the judiciary, judicial cooperation in civil matters in the EU, judicial cooperation in criminal matters in the EU, rule of law

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 3.9.2025  COM(2025) 463 final 2025/0255 (COD)  Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the Justice programme for the period 2028-2034 and repealing Regulation (EU) 2021/693 {SWD(2025) 550-551} - {SEC(2025) 547}  
 
EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

This proposal provides for a date of application as of 1 January 2028 and is presented for a 
Union of 25 Member States. For Ireland and Denmark, the provisions of Protocols No 21 and 
No 22 annexed to the Treaty on European Union (TEU) and to the Treaty on the Functioning 
of  the  European  Union  (TFEU)  apply,  as  illustrated  in  the  section  on  variable  geometry  on 
page 8. 

•  Reasons and objectives 

Article 3  of  TEU  states  that  ‘The  Union  shall  offer  its  citizens  an  area  of  freedom,  security 
and justice’. Justice is closely linked to Union values, as enshrined in Article 2 TEU. These 
core  values  imply  the  need  for  independent  judiciaries  operating  within  efficient  and  high-
quality justice systems capable of safeguarding fundamental rights and freedoms guaranteed 
by  Union  law,  in  particular  by  ensuring  access  to  justice  for  suspects,  accused  persons, 
requested  persons  in  European  arrest  warrant  (EAW)  proceedings  and  victims  of  crime. 
Judicial  independence  itself  stems  from  the  common  constitutional  traditions  shared  by  all 
Member States, the rule of law mentioned in Article 2 TEU, the Member States’ obligation to 
provide remedies sufficient to ensure effective legal protection in the fields covered by Union 
law  under  Article 19  TEU,  and  from  the  fundamental  right  to  an  effective  remedy  before  a 
tribunal,  as  enshrined  in  Article 47  of  the  Charter  of  Fundamental  Rights  of  the  European 
Union  (‘the  Charter’).  In  addition  to  being  in  line  with  Union  values,  a  well-functioning 
Union  area  of  justice  with  effective,  efficient  and  resilient  national  justice  systems  is 
necessary for a flourishing internal market and is also a precondition for economic growth and 
competitiveness. 

In the past  years, the EU has combined several  instruments  to  build a  Union area of justice 
based  on  mutual  trust.  Several  legislative  and  policy  initiatives1  have  been  adopted  and 
supported, also thanks to dedicated EU funding.  

Since its launch in 2014, the Justice programme has actively supported the creation of an area 
of freedom, security and justice, by fostering judicial cooperation based on mutual recognition 
and  enforcement  of  judicial  decisions.  The  Programme  has  also  promoted  Member  States’ 
adherence to the rule of law and fundamental rights and supported the proper functioning of 
independent judicial systems. This has led to tangible progress across the EU as, for instance, 
national  justice  systems  have  become  more  effective,  with  legal  practitioners  now  better 
informed  and  equipped  to  apply  the  relevant  EU  acquis,  e.g.  on  the  use  of  cross-border 
judicial  cooperation  procedures  and  mechanisms.  At  the  same  time,  the  practical  protection 
and  promotion  of  the  rights  of  children  and  other  vulnerable  groups  (such  as  persons  with 
disabilities) involved in judicial proceedings continues to improve. 
Significant progress has been made2, but achieving an effective, efficient, accessible, resilient 
and digitalised Union area of justice, based on the rule of law, remains an ongoing challenge. 

1

These  include  the  European  judicial  training  strategy,  the  EU  strategy  on  victims’  rights,  the  Council’s  European  e-justice 
strategy, the EU strategy on the rights of the child, and the forthcoming Commission strategy on digitalisation of justice that aims to promote 
digital transformation within justice systems. Moreover, to further uphold the rule of law, the European Commission established the rule of 
law mechanism, including the annual rule of law report, which evaluates developments in judicial independence, anti-corruption frameworks 
and access to justice in Member States. The Commission’s anti-corruption package, adopted in 2023, introduced comprehensive measures to 
combat corruption, enhance transparency and safeguard judicial integrity throughout the Union. The EU has also adopted an internal security 
strategy and a counter-terrorism agenda. 
2

For  instance,  insights  from  the  EU  Justice  Scoreboard  2024  and  data  collected  via  recent  Eurobarometer  surveys  highlighted 
progress in Member States’ efforts to deliver effective national justice systems, but these insights also suggest that there is a continued need 

EN 

2 

  EN 

 
 
 
 
This calls for continued coordinated action by the EU and its Member States. In the Political 
Guidelines  for  the  European  Commission  2024-2029,  President  von  der  Leyen  emphasised 
that the respect for the rule of law should remain ‘a must for EU funds’3. This underscores the 
critical role EU funding plays in addressing persistent challenges. 

In fact, despite the EU commitment, the protection and promotion of fundamental rights is an 
ongoing challenge4. These rights –such as the right to an effective remedy and to a fair trial, 
as well as the protection of whistleblowers and their right to freedom of expression, associated 
procedural safeguards for suspects and accused persons as well as requested persons in EAW 
proceedings,  and  victims’  rights  –  are  central  to  justice  and  the  rule  of  law.  Their  effective 
implementation  is  essential  to  build  trust  in  the  justice  system  and  ensure  that  everyone, 
including  the  most  vulnerable,  can  effectively  exercise  their  rights  in  the  EU  as  an  area  of 
justice.  However,  as  the  2021  annual  report  on  the  application  of  the  Charter  also  shows, 
fragmented application of Union law and legal protection gaps5 reflect ongoing challenges in 
this area6. 

In  addition,  progress  on  digitalisation  across  the  EU  is  uneven.  The  EU’s  growth  and 
competitiveness  increasingly  rely  on  digitalisation,  including  in  the  justice  sector.  Digital 
tools and artificial intelligence (AI) can help public administrations, including courts, deliver 
faster, more accessible and cost-effective services. At the same time, the use of qualified trust 
services, such as electronic signatures and seals, brings benefits in terms of convenience and 
legal  certainty  in  the  context  of  cross-border  transactions  and  is  becoming  increasingly 
relevant for transparent and trustable justice systems. The upcoming rollout of the EU Digital 
Identity  framework  and  the  forthcoming  European  Business  Wallets  are  also  expected  to 
further  facilitate  digitalisation  and  build  trust.  Efficient  and  transparent  justice  systems 
enhance  legal  certainty,  attract  investment  and  strengthen  cross-border  cooperation  in  civil 
and criminal matters. Digitalisation reduces burdens on justice professionals, improves access 
to  judicial  files  and  allows  citizens  and  businesses  to  engage  with  courts  remotely.  This 
increases  transparency,  saves  costs  and  supports  economic  productivity.  Moreover,  digital 
justice  systems  are  more  resilient  during  crises,  ensuring  continuity  and  reinforcing  public 
trust. 

The rapidly changing economic, social and geopolitical environment creates uncertainties and 
challenges,  including  Russia’s  full-scale  war  against  Ukraine.  Among  the  challenges  which 
affect,  more  specifically,  the  Union  area  of  justice,  are  the  increasing  threats  to  the  rule  of 
law, several forms of serious crime and obstacles to access to justice and judicial cooperation. 
Respect  for  the  rule  of  law  is  a  key  determinant  of  a  predictable  business  environment  that 
drives  investment  and  innovation,  and  an  essential  consideration  for  companies  operating 
across borders. Respect for the rule of law ensures the proper functioning and resilience of the 
internal  market,  of the cooperation in  the justice area based on mutual  trust  and recognition 

for improvement. Possible improvements include: (i) the need to reduce the burden of court fees; (ii) the availability of legal aid; (iii) the 
promotion of voluntary use of alternative dispute resolution methods (ADRs); (iv) support for the participation of persons with disabilities as 
professionals in the justice system; and (v) facilitating access to justice by electronic means, because the uptake of digitalisation in national 
justice  systems  across  EU Member  States  remains  uneven.  In  addition, cross-border  crimes  have continued  to rise  since  2020,  suggesting 
cross-border judicial cooperation will only become more important. 
3

Political guidelines European Commission 2024-2029. 

4

Special Eurobarometer 487b. Also Special Eurobarometer 552: just over six in ten respondents (62%, 3 p.p. since 2021) indicate 
being aware of the Charter of Fundamental Rights of the EU, including a quarter of  all respondents (25%) who have heard of it and know 
what it is. Close to four in ten (37%) of all respondents have heard of the Charter, but do not really know what it is. 
5

435ae4e8-f5f4-432b-a391-b05468474a1e_en (europa.eu). 

6

Report  from the Commission to  the European  Parliament,  the Council,  the  European Economic and  Social Committee  and  the 
Committee of the Regions: ‘Protecting Fundamental Rights in the Digital Age - 2021 Annual Report on the Application of the EU Charter of 
Fundamental Rights’. 

EN 

3 

  EN 

 
 
 
 
 
and  is  an  essential  precondition  for  compliance  with  the  principles  of  sound  financial 
management of the Union budget. Respect for the rule of law is necessary for the effective, 
uniform and transparent application of Union law and for equal access to justice. Facilitating 
cooperation  in  relation  to  forms  of  serious  crime,  such  as  corruption,  terrorism  and 
environmental  crime  is  essential  to  maintain  the  rule  of  law  and  trust  in  those  who  govern 
public institutions. 

Other  challenges  include  persistent  obstacles  to  judicial  cooperation  and  access  to  justice. 
Effective  access  to  justice,  including  through  digital  means,  is  a  prerequisite  for  economic 
growth.  If  there  is  no  effective  access  to  justice,  both  citizens  and  business  development, 
especially  that  of  small  and  medium-sized  enterprises  (SMEs),  are  affected.  Weak  justice 
systems,  characterised  by  inefficiency  or  high  costs,  deter  business  activities,  thereby 
hindering  economic  growth7.  One  of  the  main  obstacles  is  the  fact  that  communication  in 
cross-border judicial proceedings is  very often still paper-based, which leads to unnecessary 
delays and costs. One of the reasons is the different speeds of digitalisation of national justice 
systems  and  the  absence  of  sufficient  interoperability  between  Member  States’  national  IT 
systems,  and  similarly,  between  national  systems  and  EU  Justice  and  Home  Affairs  (JHA) 
agencies  and  bodies.  Besides  this  aspect,  delays  and  inefficiencies  in  cross-border  judicial 
cooperation procedures remain evident. Access to justice – i.e. the ability of everyone to seek 
and obtain a just resolution of legal problems through a range of legal and justice services, in 
a manner that complies with fundamental rights, including access to reliable legal information 
and  effective  enjoyment  of  procedural  safeguards  –  is  still  problematic,  above  all  in  cross-
border contexts. This affects individuals, such as victims and persons suspected or accused of 
crime,  and  businesses.  Moreover,  the  existing  tools  for  collecting  comparative  information 
about  the  quality,  independence  and  efficiency  of  Member  States’  justice  systems  are  still 
insufficient.  All  these  factors  can  undermine  Member  States’  trust  in  each  other’s  justice 
systems and may therefore hinder the proper functioning of the EU area of freedom, security 
and justice.  

Lastly,  the  level  of  knowledge,  skills  and  awareness  of  the  EU  acquis  and  EU  digital  tools 
among practitioners in the justice field is often  insufficient. Despite the progress made8, the 
level of participation in training still differs considerably between Member States and among 
justice  professions.  This  has  a  negative  impact  on  the  development  of  a  common  European 
judicial culture, since well-trained practitioners play a key role in ensuring that the EU acquis 
is  implemented  correctly  and  consistently  across  the  EU.  Justice  professionals  also  lack  the 
necessary  digitals  skills  and  are  not  well  equipped  to  use  digital  tools  and  infrastructure. 
Training on Union law is also particularly important in view of the following factors: (i) the 
deterioration of the rule of law and attacks on fundamental rights in some Member States; (ii) 
the  need  to  prevent  and  combat  forms  of  serious  crime,  including  corruption;  (iii)  the 
increasing  relevance  of  digitalisation;  and  (iv)  the  fact  that  there  are  more  and  more 
individuals exercising their right to live and work in another Member State9. 

The consequences of not addressing these challenges will have serious repercussions, as most 
of these issues have a marked transnational dimension and cannot be adequately addressed by 
Member  States  acting  alone.  Building  an  effective  Union  area  of  justice  has  profound 

7

Stakeholder_contribution_on_rule_of_law_-_oecd.pdf (europa.eu); 9789264303416-2-en.pdf (oecd-ilibrary.org). 

8

As highlighted by the annual reports on European judicial training published by the Commission’s Directorate-General for Justice 
and Consumers, since the implementation of the two consecutive European judicial training strategies (Commission’s 2020 Communication 
Ensuring justice in the EU – a European judicial training strategy for 2021-2024 and 2011 Communication, Building trust in EU-wide justice 
– a new dimension to judicial training), over 2 million EU justice professionals have participated in judicial training on Union law. 
9

European  Commission  Communication,  Ensuring  justice  in  the  EU  –  a  European  judicial  training  strategy  for  2021-2024. 

Available at: https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52020DC0713. 

EN 

4 

  EN 

 
 
 
 
implications for the political, social and economic life of the EU. It also has tangible benefits 
for people’s day-to-day lives and business operations. The 2028-2034 Justice programme will 
support the further development of a Union area of justice based on the Union’s values, the 
rule  of  law,  mutual  recognition  and  trust,  as  well  as  effective,  inclusive,  accessible  and 
resilient justice systems, which are a precondition for economic growth and competitiveness. 
The new Programme will also facilitate access to justice, promote judicial cooperation in civil 
and  criminal  matters  and  promote  judicial  training  with  a  stronger  emphasis  on  the 
digitalisation of justice. The policy areas covered by this legal proposal are firmly anchored in 
the EU Treaties, which provide the legal bases for EU action through financial intervention. 
The  Justice  programme  will  continue  to  sustain  open,  democratic,  pluralist  and  more  equal 
and inclusive societies under the next Multiannual Financial Framework (2028-2034). 

•  Consistency with existing policy provisions 

In recent years, the Justice programme has supported several legislative and policy initiatives 
and  has  directly  contributed  to  delivering  on  several  of  the  Commission’s  priorities10.  The 
priorities listed below are and will become even more relevant for the Justice programme:  

1.  ‘Protecting  our  democracy,  upholding  our  values’.  The  Justice  programme  will  support 
judicial  cooperation  and  access  to  justice  by  reinforcing  the  rule  of  law  and  fundamental 
rights  as  democratic  foundation  of  the  EU.  The  Programme’s  new  enhanced  focus  on 
digitalisation  will  make  judicial  systems  more  efficient,  by  enabling  faster  access  to  legal 
protection.  This  new  focus  directly  complements  efforts  to  safeguard  democracy  and 
fundamental  rights,  and  increase  legal  certainty,  investment  protection,  procedural  fairness 
and  public  trust  in  democratic  institutions.  The  2028-2034  Justice  programme  will  support 
judicial  independence  and  increase  the  capacity  to  enforce  laws,  including  relevant  rules  to 
protect  democracy.  It  will  enable  cross-border  judicial  cooperation  to  combat  cross-border 
digital crimes and support the implementation of digital tools that align with broader digital 
enforcement  policies  like  the  Digital  Services  Act11,  the  AI  Act12  and  the  European 
Accessibility Act13. It will contribute to the application of the Charter by supporting training 
of  legal  professionals  on  fundamental  rights.  To  this  end,  synergies  will  be  fostered  in 
particular with the AgoraEU programme14. 

2.  ‘Supporting  people,  strengthening  our  societies  and  our  social  model’.  The  Justice 
programme  will  contribute to  uphold  fundamental  rights,  for instance by  promoting judicial 
training  on  non-discrimination  and  on  the  application  of  the  Charter  and  create  links  with 
social cohesion policies by supporting consistent legal protection across Member States. The 
Programme will also support the implementation of the European Pillar of Social Rights15 by 
ensuring  enforceability  through  more  accessible  justice  mechanisms.  Moreover,  digitalised 
justice  systems,  set  up  with  due  attention  to  security  vulnerabilities  and  the  needs  of  all 

10

(Digital 

Services  Act),  OJ 

amending  Directive 2000/31/EC 

Political guidelines European Commission 2024-2029. 
Regulation (EU) 2022/2065 of the European Parliament and of the Council of 19 October 2022 on a Single Market For Digital 
1–102, 
and 

11 
Services 
ELI: http://data.europa.eu/eli/reg/2022/2065/oj. 
12 
Regulation  (EU) 2024/1689  of  the  European  Parliament  and of the Council of 13  June 2024  laying  down harmonised  rules  on 
artificial intelligence and amending Regulations (EC) No 300/2008, (EU) No 167/2013, (EU) No 168/2013, (EU) 2018/858, (EU) 2018/1139 
and  (EU)  2019/2144  and  Directives  2014/90/EU,  (EU)  2016/797  and  (EU)  2020/1828  (Artificial  Intelligence  Act),  OJ  L,  2024/1689, 
12.7.2024, ELI: http://data.europa.eu/eli/reg/2024/1689/oj. 
13 
products and services, OJ L 151, 7.6.2019, pp. 70–115, ELI: http://data.europa.eu/eli/dir/2019/882/oj. 
14 
the period 2028-2034, and repealing Regulations (EU) 2021/692 and (EU) 2021/818, COM(2025) 550 final. 
15 
inclusive-european-union_en. 

Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing the 'AgoraEU' programme for 

Directive (EU) 2019/882 of the European Parliament and of the Council of 17 April 2019 on the accessibility requirements for 

https://employment-social-affairs.ec.europa.eu/policies-and-activities/european-pillar-social-rights-building-fairer-and-more-

27.10.2022, 

277, 

pp. 

L 

EN 

5 

  EN 

 
 
affected  persons,  have  the  potential  to  improve  access  to  justice,  including  by  reducing 
barriers, especially for children and other vulnerable groups such as people with disabilities, 
Roma and other marginalised communities. In this regard, synergies will be fostered with the 
Erasmus+  programme16  and  the  National  and  Regional  Partnership  Plans17including,  in 
particular  in  the  framework  of  the  European  Social  Fund18.  By  improving  accessibility  and 
affordability  (e.g.  videoconferencing,  e-filing),  digital  justice  can  better  inform  interested 
parties,  serve  the  needs  of  many  individuals  and  businesses,  and  reduce  inequalities  in 
accessing  rights  and  services,  by  strengthening  social  and  intergenerational  fairness  and 
making legal processes more efficient and inclusive. 

3. ‘Delivering together and preparing our Union for the future’. The Justice programme will 
contribute  to  a  more  integrated  and  effective  Union,  including  by  creating  and  connecting 
digital  infrastructure  across  Member  States.  Its  increased  focus  on  digitalisation  will  reduce 
administrative burdens for Member States, bring savings for citizens and businesses, improve 
cross-border  cooperation  and  support  mutual  recognition  and  enforcement  of  judgments.  At 
the  same  time,  the  Programme  will  support  the  goal  of  simplifying  EU  mechanisms  by 
promoting more interoperability among national justice systems. In this regard, synergies will 
be  fostered  with  the  National  and  Regional  Partnership  Plans  to  ensure  progress  on  the 
digitalisation of national justice systems at both national and EU level. 

•  Consistency with other Union policies 

1. “A New Plan for Europe’s Sustainable Prosperity and Competitiveness”. The digitalisation 
of  justice  contributes  to  growth  and  competitiveness  by  creating  more  efficient  justice 
systems,  with  simplified  legal  procedures  and  reduced  time  and  costs  for  cross-border 
litigation across the EU. This is particularly important for SMEs and start-ups. In this regard, 
synergies will be fostered with the National and Regional Partnership Plans in key areas such 
as skills, capacity-building and digitalisation. The Programme will complement also the plan 
to  deepen  the  Single  Market  (especially  in  services  and  digital  sectors  and  on  financial 
services)  by  promoting  legal  interoperability  and  smoother  enforcement  of  EU  rules.  By 
financing  activities  on  consumer  and  investors  policy,  company  law  and  contract  law  and 
anti-money  laundering,  the  2028-2034  Single  Market  and  Customs  programme  will 
complement  the  Justice  programme  and  contribute  directly  to  the  implementation  of  EU 
policy  in  the  field  of  justice  and  the  creation  of  a  Union  area  of  justice.  Moreover,  by 
reinforcing  the  rule  of  law  and  legal  certainty,  the  Justice  programme  will  strengthen  the 
investment  environment,  reinforce  the  actions  underpinning  the  Savings  and  Investments 
Union19  and  support  the  European  Competitiveness  Fund20  by  creating  a  stable  legal 
framework  for  business  activity.  Lastly,  there  will  also  be  synergies  in  the  field  of  research 
and  innovation,  specifically  concerning  the  need  to  deepen  the  understanding  of  the  use  of 
advanced new technologies, such as AI, in the justice sector and, therefore, synergies will be 

Proposal for a Regulation (EU) XXX  of the European Parliament and of the Council establishing the Erasmus+ programme for 

16 
the period 2028-2034, and repealing Regulations (EU) 2021/817 and (EU) 2021/888, COM/2025/549 final. 
17

Proposal  for  a  Regulation  (EU)  XXX  of  the  European  Parliament  and  of  the  Council  establishing  the  European  Fund  for 
economic, social and territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and security for the period 2028-2034 and 
amending Regulation (EU) 2023/955 and Regulation (EU, Euratom) 2024/2509, COM/2025/565 final. 
18 
Proposal for a Regulation (EU) XXX  of the European Parliament and of the Council establishing the European Social Fund as 
part of the National and Regional Partnership Plan set out in Regulation (EU) […] [NRP Plan] establishing conditions for the implementation 
of the Union support to quality employment, skills and social inclusion for the period from 2028 to 2034, COM/2025/558 final. 

19 
https://finance.ec.europa.eu/regulation-and-supervision/savings-and-investments-union_en. 
20 
Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing the European Competitiveness 
Fund ('ECF’), including the specific programme for defence research and innovation activities, repealing Regulations (EU) 2021/522, (EU) 
2021/694,  (EU) 2021/697,  (EU) 2021/783,  repealing provisions of  Regulations  (EU) 2021/696,  (EU) 2023/588, and  amending Regulation 
(EU) [EDIP], COM/2025/555 final. 

EN 

6 

  EN 

 
 
 
fostered  with  the  next  Framework  Programme  for  Research  and  Innovation  (Horizon 
Europe)21. 

2. “A New Era for European Defence and Security”: The Justice programme facilitates cross-
border  judicial  cooperation,  which  is  crucial  for  security  and  to  combat  organised  crime, 
terrorism, and cyber threats. The Programme also supports the enforcement of the European 
Arrest  Warrant  (EAW)  and  provides  digital  infrastructure  for  lawful  access  to  electronic 
evidence  and  case  management  across  borders.  Moreover,  the  Justice  programme  supports 
anti-corruption measures at EU level. This  complements the call for reflection on extending 
the competence of the European Public Prosecutor’s Office (EPPO) to handle serious cross-
border crimes,  especially corruption, that impacts Union funds and cannot  be handled alone 
by Member States.  In addition, the political  guidelines  for the European  Commission  2024-
202922 include the ambition to bolster Europol’s capacity to support national law enforcement 
agencies  and  its  cooperation  with  other  EU  agencies  and  bodies.  This  ambition  is  closely 
aligned with the Programme’s increased focus on digitalisation, enabling faster transmission 
of evidence, real-time coordination and an enhanced use of secure AI/data analytics in legal 
enforcement  within  the  limits  of  the  applicable  legal  frameworks.  It  also  aligns  with  the 
establishment of the Authority for Anti-Money Laundering and Countering the Financing of 
Terrorism (AMLA), which will help prevent the Union’s financial system from being used of 
money laundering and terrorist financing. Likewise, the reform of Eurojust will help EU-level 
coordination  of  cross-border  investigations  and  prosecutions  to  become  more  effective, 
including  thanks  to  new  digital  tools.  Additionally,  the  digitalisation  of  justice  will  also 
provide  technical  resilience,  secure  infrastructure  for  legal  systems,  and  frameworks  for 
prosecuting cybercrime, thereby complementing the Preparedness Union23 and cyber-defence 
strategies24  as  well  as  the  ‘ProtectEU  –  a  European  Internal  Security  Strategy’25.  Given  the 
intrinsic connections between security and justice on the ground, there will be synergies with 
EU  funds  covering  asylum,  migration  and  integration,  border  management  and  internal 
security, for instance to provide adequate training to the judiciary, also in relation to the new 
rules  introduced  by  the  Pact  on  Migration  and  Asylum,  and  ensure  effective  protection  to 
victims  of  crime,  interoperability  with  the  European  Criminal  Records  Information  System 
(ECRIS) and inter-agency cooperation in the fields of justice and internal security, including 
via justice-related agencies and bodies such as Eurojust and the EPPO. 

3. “A Global Europe: Leveraging Our Power and Partnerships”: The Programme’s focus on 
the rule of law, judicial cooperation and access to justice will mirror how they are promoted at 
global  level,  including  through  the  implementation  of  the  United  Nations  (UN)  Sustainable 
Development  Goals  (SDGs)26.  In  this  respect,  synergies  will  be  developed  with  Global 
Europe27,  as  the  Justice  programme  will  contribute  to  the  EU’s  external  action  by 
strengthening  judicial  systems  in  accession  countries  in  the  context  of  the  enlargement 
process. 

21 
Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing Horizon Europe, the Framework 
Programme for Research and Innovation, for the period 2028-2034 laying down its rules for participation and dissemination, and repealing 
Regulation (EU) 2021/695, COM/2025/543 final. 
22

Political guidelines European Commission 2024-2029. 
https://commission.europa.eu/topics/preparedness_en. 
https://digital-strategy.ec.europa.eu/en/policies/cybersecurity-strategy. 
https://home-affairs.ec.europa.eu/news/commission-presents-protecteu-internal-security-strategy-2025-04-01_en.  
https://sdgs.un.org/goals. 
Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing Global Europe, COM/2025/551 

23 
24 
25 
26 
27 
final. 

EN 

7 

  EN 

 
 
2. 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

•  Legal basis 

This  proposal  is  based  on  Article 81(1)  and  (2)  and  Article 82(1)  of  the  Treaty  on  the 
Functioning of the European Union (TFEU). 

Article 81(1) TFEU provides that the Union shall develop judicial cooperation in civil matters 
having cross-border implications. 

Article 81(2)  TFEU  provides  for  the  adoption  of  measures  aimed  at  ensuring  the  mutual 
recognition  and  enforcement  of  judgments;  the  cross-border  service  of  judicial  and 
extrajudicial  documents;  effective  access  to  justice  and  support  for  the  training  of  the 
judiciary  and  judicial  staff.  Article 82(1)  TFEU  provides  for  measures  to  promote  judicial 
cooperation in criminal matters. 

The  combination  of  these  Articles  allows  for  a  comprehensive  approach  to  support  the 
development  of  judicial  cooperation  in  civil  and  criminal  matters,  especially  cross-cutting 
issues affecting both fields. 

•  Variable geometry 

This  Regulation  is  based  on  legal  bases  under  Title  V  of  Part  Three  TFEU,  concerning  the 
area of freedom, security and justice. As a consequence, the application of the Regulation to 
Denmark and  Ireland is  subject  to  the provisions laid down in Protocol No 21 and Protocol 
No 22 annexed to the TEU and the TFEU. 

In  accordance  with  Articles  1  and  2  of  Protocol  No  22,  Denmark  does  not  take  part  in  the 
adoption by the Council of measures proposed pursuant to Title V of Part Three TFEU, and 
such measures are not binding upon or applicable in Denmark.  

In  accordance  with  Articles  1  and  2  of  Protocol  No  21,  Ireland  does  not  take  part  in  the 
adoption by the Council of measures proposed pursuant to Title V of Part Three TFEU, and 
such measures are not  binding on or applicable in  Ireland. However,  Ireland may choose to 
take part in the adoption and application of any such proposed measure. In addition, any time 
after  the  adoption  of  such  a  measure,  Ireland  may  accept  the  measure,  subject  to  the 
completion of procedures referred to in Article 4 of Protocol No 21. 

•  Subsidiarity (for non-exclusive competence) 

The objectives outlined under the section “reasons and objectives” have a strong transnational 
dimension  and  require  joint  solutions,  as  well  as  EU-level  governance,  coordination  and 
support. Isolated national actions would be less effective and impactful than coordinated EU-
level efforts, which foster cooperation, capacity building, mutual learning, and the sharing of 
resources, expertise and best practice. 

Without EU action and funding, the functioning of a Union area of justice would be at risk, 
negatively  affecting  many  beneficiaries,  especially  members  of  the  judiciary,  civil  society 
organisations (CSOs) working on access to justice, and EU-wide legal networks. EU support 
helps  overcome  national  barriers,  enabling  each  Member  State  to  act  on  issues  it  could  not 
address alone. This ensures no Member State is left behind in tackling cross-border problems. 

EU-level  action  is  also  key  for  addressing  EU-wide  priorities  that  may  not  rank  highly  on 
national  agendas  or  where  targeted  support  is  needed.  In  some  areas,  national  efforts  alone 
may be insufficient, short-term or misaligned with EU priorities. For example, the EU should 
continue  to  support  cross-border  training  on  Union  law  and  exchanges  for  judicial 
professionals. This is not only a Treaty-based obligation, but also essential for meeting shared 

EN 

8 

  EN 

transnational challenges, equipping justice professionals with the right skills and reinforcing 
core Union values. 

The EU is uniquely positioned to create cross-border opportunities for justice professionals to 
connect,  develop  and  contribute  to  a  shared  legal  culture.  It  should  therefore  continue  to 
promote  transnational  cooperation,  awareness  raising  and  networking.  Such  activities  build 
mutual trust among national justice systems and help gather comparative data on their quality, 
independence and efficiency – something individual Member States cannot achieve alone. 

EU  action  is  equally  crucial  in  areas  needing  close  coordination  with  Member  States  to 
uphold  international  justice  standards,  such  as  the  UN  SDGs,  and  to  maintain  a  unified  EU 
stance on key issues like fundamental rights in the digital sphere and data protection. 

Lastly, EU action is essential for advancing justice reforms in candidate countries as part of 
the  enlargement  process,  particularly  in  the  areas  of  the  rule  of  law,  independence  of  the 
judiciary  and  anti-corruption.  These  efforts  are  vital  for  safeguarding  EU  justice  standards, 
completing the Single Market and strengthening EU cohesion and prosperity. 

In addition to the need for EU action in this field, EU funds have also a strong added value 
because the EU is best placed to ensure that justice systems across the Union can operate in a 
harmonised manner. EU intervention has intrinsic added value for EU judicial training since 
delegating  this  responsibility  at  national  level  would  lead  to  a  more  inconsistent 
understanding  and  implementation  of  Union  law  across  Member  States.  This  will  have 
negative effects on the overall capacity of national actors to implement EU policies and laws, 
address  cross-border  issues  and  on  the  development  of  transnational  multi-country  projects. 
Moreover,  EU  action  on  justice  policies  helps  boost  the  Single  Market  and  improves 
competitiveness. A comprehensive and harmonised justice framework across Member States 
reduces  legal  uncertainties  and  inconsistencies,  thereby  facilitating  smoother  cross-border 
business  operations  and  investments.  Predictable  enforcement  of  regulations,  consistent 
protection  of  intellectual  property  rights,  and  effective  dispute  resolution  mechanisms  are 
crucial for maintaining investor confidence and encouraging entrepreneurship and innovation. 
By  providing  clear  legal  standards  and  ensuring  their  uniform  application,  the  EU  helps 
the  overall 
companies  operate  efficiently,  reduces 
attractiveness of the Single Market. This legal predictability also bolsters fair competition by 
ensuring that businesses face equal conditions irrespective of their country of origin within the 
EU, thus promoting economic stability and sustainable growth. 

transaction  costs  and  enhances 

•  Proportionality 

The  proposal  does  not  go  beyond  the  minimum  required  in  order  to  achieve  the  stated 
objective at Union level. 

•  Choice of the instrument 

The  new  2028-2034  Justice  programme  builds  primarily  on  the  2021-2027  Justice 
programme. The most appropriate instrument  to  operationalise the proposed framework is  a 
regulation. 

3. 

RESULTS  OF  RETROSPECTIVE  EVALUATIONS,  STAKEHOLDER 
CONSULTATIONS AND IMPACT ASSESSMENTS 

•  Retrospective evaluations/fitness checks of existing legislation 

The  mid-term  evaluation  of  the  2021-2027  Justice  programme  highlights  that  the  actions 
funded by the Programme are coherent with policies and priorities at EU and national levels, 
aligned with other EU funding instruments and consistent with international commitments and 

EN 

9 

  EN 

objectives,  such  as  the  SDGs28.  The  streamlined  architecture  of  the  2021-2027  Programme 
allows for greater impact and a more focused approach in key areas compared to the previous 
Programme  2014-2020.  Specifically,  the  2021-2027  Justice  programme  is  successfully 
contributing to supporting the mutual recognition and enforcement of judicial decisions across 
Member  States  and  to  improving  cross-border  cooperation,  by  creating  a  long-term  impact 
through the further development of a cohesive Union area of justice built on mutual trust and 
cooperation. 

Direct funding to beneficiaries has led to immediate and tangible benefits for the target groups 
involved.  In  particular,  funding  for  EU  networks  such  as  the  European  Judicial  Training 
Network  (EJTN)  facilitates  sustained  collaboration,  capacity  building,  and  continuous  high-
quality engagement among legal professionals across the EU. Furthermore, the Programme’s 
continued emphasis on judicial training significantly contributes to unify and develop the EU 
legal landscape. The Justice programme plays a crucial role in fostering a shared legal culture 
by training thousands of judges, lawyers and court staff and by supporting the implementation 
of  the  2021-2024  strategy  on  European  judicial  training29.  By  facilitating  exchanges  of  best 
practice,  the  Programme  strengthens  Member  States’  collaboration,  ensuring  that  judicial 
practitioners apply Union law in a uniform, coherent and consistent way across borders, thus 
enhancing the integrity of EU legislation. 

The  2021-2027  Programme  builds  on  the  progress  achieved  in  the  previous  programming 
period  (2014-2020),  by  further  reducing  barriers  to  justice  and  improving  frameworks  and 
protections for marginalised individuals30. At the same time, its mid-term evaluation points to 
some areas for improvement. First of all, evidence gathered through stakeholder consultations 
highlights the need to expand the Programme’s reach. Even if it has already reached a large 
number  of  people,  awareness  of  the  Programme  remains  limited  among  certain  types  of 
stakeholders31  and  also  varies  between  Member  States.  This  suggests  that  while  the 
Programme’s communication activities are effective, they may not be reaching all sectors and 
Member  States  equally32.  Moreover,  some  stakeholders  suggested  including  correctional 
services  and  prison  staff  in  the  Programme’s  target  groups.  In  order  to  better  reflect  the 
Programme’s  impact  and  enhance  its  added  value  and  visibility,  further  actions  could  be 
considered,  e.g.  a  more  systemised  process  for  collecting  stakeholders’  perceptions  and 
experiences,  and  ways  to  link  the  existing  platforms  (such  as  the  EJTN  and  the  e-Justice 
portal)  with  successful  projects  on  the  EU  Funding  &  Tenders  portal.  In  addition,  to  keep 
increasing the Programme’s cost-effectiveness, collaboration with existing EU-level networks 
could be further explored. 

All these findings are taken into account  for the 2028-2034 Justice programme presented in 
this proposal. 

In terms  of addressing new challenges,  the digitalisation of justice has  become a significant 
cross-cutting  objective  of  the  2021-2027  Justice  programme,  particularly  following  the 
COVID-19 pandemic, which accelerated the use of digital technologies. This focus facilitates 
easier access to legal information, modernises cross-border judicial cooperation mechanisms 
and supports broader EU digital transformation goals, making justice systems more efficient 

28

29

Mid-term evaluation of the 2021-2027 Justice programme, COM(2025)267 and SWD(2025)134. 

For instance, in 2022, 24 208 justice professionals took part in training supported by the Justice programme (around 35.3% of all 

those who received EU (co-)funded training on Union law that year). See Justice programme performance statement. 
30

Mid-term evaluation of the 2021-2027 Justice programme, COM(2025)267 and SWD(2025)134. 

31

32

Higher education and public authorities reported higher awareness of the Programme compared to CSOs. 

Mid-term evaluation of the 2021-2027 Justice programme, COM(2025) 267 and SWD(2025)134. 

EN 

10 

  EN 

 
 
 
 
 
 
and  accessible.  Investment  in  digitalisation  also  strengthens  fundamental  rights  within  the 
justice field, such as the presumption of innocence 33. Moreover, the increased use of digital 
tools expands the Programme’s reach efficiently.  There is still scope to further capitalise on 
opportunities  brought  about  by digitalisation in  the justice field.  This  is  why the  2028-2034 
Justice  programme  will  have  an  increased  focus  on  digitalisation  under  its  general  and 
specific objectives. This will ensure a more strategic and consistent approach to all the issues 
and challenges related to the digitalisation of justice. 

•  Stakeholder consultations 

The consultation strategy supporting the preparatory work for the Programme included: (i) a 
first  open  public  consultation  (OPC)  for  the  final  evaluation  of  the  2014-2020  Justice 
programme  2024-2020  and  the  mid-term  evaluation  of  the  2021-2027  Justice  programme 
2021-2027;  (ii)  a  second  OPC  in  the  domains  of  cross-border  education,  youth,  culture, 
media, values and civil society; and (iii) ad hoc consultations that the Commission organised 
in the form of interviews and targeted surveys with stakeholders. 

The  first  OPC  aimed  to  strengthen  the  evidence  base  for  the  evaluation  of  the  two  Justice 
programmes  by  gathering  the  views  of  relevant  stakeholders  on  the  Programmes’ 
effectiveness,  efficiency,  relevance,  coherence  and  EU  added  value.  It  was  launched  on 
3 April 2024 and was open for 12 weeks (closing on 26 June 2024). 

Overall,  respondents  to  this  OPC  considered  the  Justice  programmes’  general  and  specific 
objectives to be highly relevant. Among the specific objectives, judicial training and access to 
justice  were  considered  the  most  relevant.  Moreover,  most  respondents  considered  the 
activities  funded  by  the  Justice  programmes  to  be  relevant,  in  particular  those  related  to 
developing and maintaining information and communication technology 34, with digitalisation 
perceived  as  an  important  dimension  of  the  Programme.  Respondents  considered  both 
programmes  effective  in  achieving  their  objectives  and  intended  results,  specifically 
concerning:  (i)  improving  access  for  all  citizens  to  CSO  services,  counselling  activities  and 
support activities (assessed as achieved to a very or high extent by 62% of respondents); (ii) 
supporting  training  activities  for  stakeholders  (assessed  as  achieved  to  a  very  high  or  high 
extent  by  50%  of  respondents);  and  (iii)  increasing  the  cross-border  interoperability  of 
systems (assessed as achieved to a very or high extent by 50% of respondents). In that regard, 
respondents highlighted the development of E-CODEX and ECRIS, as well as the training in 
the  use  of  IT  tools,  as  particularly  relevant  and  effective.  In  terms  of  coherence,  most 
respondents  were  not  able  to  compare  the  Justice  programme  with  other  programmes  (only 
three  out  of  eight  respondents  indicated  that  they  were  familiar  with  other  similar  EU 
initiatives and/or national initiatives in the field  of justice). Two respondents considered the 
Justice  programmes  to  be  complementary  to  other  EU  programmes  or  initiatives  to  a  great 
extent, and one to a limited extent. There was consensus among respondents on the EU added 
value of  both programmes,  with  all  respondents  considering that the EU  was best  placed to 
fund the type of activities under the Justice programme, as EU involvement ensured that all 
Member States adhered to the same standards, resulting in more equal access to justice. As a 
result,  most  respondents  considered  that,  if  the  2021-2027  Justice  programme  were  to  stop, 
Member States would not be able to achieve similar results at national, regional or local level 
and  technical  cooperation  would  become  limited  to  smaller-scale  bilateral  projects  between 
neighbouring Member States, while some organisations would not be able to secure funding 

33

34

Ibidem. 

Considered highly relevant by 62% of respondents. 

EN 

11 

  EN 

 
 
 
at all. A summary report of the OPC is available on the European Commission’s “Have your 
say platform”35. 

The second OPC, which informed the impact assessment for EU programmes in the domains 
of cross-border education, youth, culture, media, values and civil society under the 2028-2034 
MFF, was carried out between 12 February and 7 May 202536. The EU programmes covered 
by this OPC were: Creative Europe, Erasmus+, the European Solidarity Corps, the Citizens, 
Equality, Rights and Values programme and the Justice programme. The purpose of this OPC 
was  to  help  assess  the  public  perception  of  the  relevance  and  EU  added  value  of  the  EU 
programmes and to identify barriers to their specific impact and potential improvements to the 
Programmes’  architecture.  The  public  consultation  received  4 861  responses  from  110 
countries, encompassing all EU Member States as well as non-EU countries37. Most of these 
responses came from respondents with experience of Erasmus + and the European Solidarity 
Corps; only 60 respondents declared to have experience with the Justice programme. 51% of 
responses were submitted by EU citizens. Within this group, around 1 200 respondents were 
under the age of 30. 49% of responses were submitted by organisations and institutions. These 
included 17% responses from academic and research bodies, the majority of which were large 
institutions, with 69% employing more than 250 people. Another 11% of submissions came 
from  non-governmental  organisations  (NGOs),  several  of  which  were  umbrella  CSO 
networks. Public authorities accounted for 232 submissions, including a mix of international, 
national,  regional  and  local  entities.  A  further  208  responses  came  from  companies  and 
businesses.  A  small  number  of  additional  responses  (around  45)  were  received  from  trade 
unions, business associations, consumer groups and environmental organisations. 

Some of the main results relevant for the justice field are detailed here below: 

–  According  to  the  respondents,  “uphold  and  promote  the  rule  of  law”  is  an  important 
(22.51%)  and  very  important  (58.71%)  policy  priority  and  an  area  where  EU  funding 
provide added value to a large extent compared to funding at national, local or regional 
level (50.44%); 

–  According  to  the  respondents,  “the  effective  protection  of  EU  funds  against  fraud, 
corruption  and  other  illegal  activity”  is  an  important  (25.78%)  and  very  important 
(55.09%) policy priority and an area where EU funding provide added value to a large 
extent compared to funding at national, local or regional level (54.68%); 

–  According to the respondents, “build an EU area of justice, promote judicial training, 
judicial cooperation and access to justice” is an important (29.77%) and very important 
(37.03%) policy priority and an area where EU funding provide added value to a large 
extent compared to funding at national, local or regional level (47.85%); 

–  At  the  same  time,  the  respondents  consider  that  the  following  actions,  which  are 
particularly  relevant  under  the  Justice  programme,  bring  to  a  large  extent  a  positive 
impact  in  the  future:  “Supporting  cross-border  mutual  learning,  exchange  of  good 
practices and cooperation, coalition building” (72.19%), “Supporting the creation and 
development  of  EU-level  networks  and  organisations”  (60.48%),  “Capacity  building 
and  training/train-the-trainer  activities”  (56.10%),  “Cross-border  mutual  learning 
possibilities in the justice area” (49.08%). 

35

Justice programme - final evaluation of the 2014-2020 programme and interim evaluation of the 2021-2027 programme. 
https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/14523-EUs-next-long-term-budget-MFF-EU-funding-for-

36 
cross-border-education-training-and-solidarity-young-people-media-culture-and-creative-sectors-values-and-civil-society_en. 
37

The country of residence with the most contributions overall was Germany, followed by France and Italy. 

EN 

12 

  EN 

 
 
 
•  External expertise 

The  proposal  has  been  informed  by  external  and  internal  reports  and  assessments,  e.g. 
programme  evaluations  (mid-term  and  ex post),  the  spending  review  exercise,  reports  and 
documents from other EU institutions, agencies and international organisations 38. 

•  Impact assessment 

The  impact  assessment  on  cross-border  education,  youth,  culture,  media,  values  and  civil 
society analysed the future of five funding programmes  in  this  cluster, including  the  Justice 
programme. 

The two options below were discarded at an early stage: 

–  A  discontinuation  of  the  EU  funding:  this  option  was  immediately  discarded  given  the 
importance of the problems affecting the policy areas in this cluster, the prominence given to 
these policies in the Political Guidelines  for the European Commission 2024-202939 and the 
added value of the EU interventions, underpinned by the respective mid-term evaluations. 

– Merging the Justice programme with other programmes in this cluster: this option was 
also discarded at  an early stage for legal  reasons. The Justice programme cannot be merged 
with  other  programmes  in  this  cluster,  as  not  all  27  EU  Member  States  participate  in  the 
Justice programme (contrary to the other existing programmes in the cluster). The legal bases 
of the Regulation establishing the 2021-2027 Justice programme are Article 81(1) and (2) and 
Article 82  (1)  TFEU.  These  provisions  are  part  of  Title  V  TFEU,  which  covers  the  area  of 
freedom,  security  and  justice.  By  virtue  of  the  Protocols  annexed  to  the  Treaties,  Denmark 
does  not  take  part  in  decisions  made  under  Title  V  in  line  with  Protocol  No 22  (known  as 
‘opt-out’) and Ireland can choose to take part in certain measures if it decides to ‘opt-in’, in 
line  with  Protocol  No 21.  The  other  programmes  in  the  scope  of  the  impact  assessment  are 
open to all Member States and are therefore incompatible with the legal bases of Title V. 

Retained  options:  The  Commission  decided  to  have  a  stand-alone  Justice  programme, 
because  both  the  final  evaluation  of  the  2014-2020  Justice  programme  and  the  interim 
evaluation  of  the  2021-2027  Justice  programme  confirmed  that  the  Programme  provided 
unique  added  value  that  would  be  difficult  to  replicate  at  national  level.  This  decision  is 
reflected  in  the  post-2027  MFF  proposal  package  presented  by  the  Commission  on  16 July 
2025. 

In line with the Better Regulation Guidelines, the 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  the  following:  scope,  problem  definition  and  the  use  of  evaluations, 
intervention  logic  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 RSB’s comments and 
recommendations. 

•  Simplification 

Including 

38 
(europa.eu);  https://eige.europa.eu/gender-
statistics/dgs/indicator/wmidm_jud_natcrt__wmid_natcrt_supcrt/datatable;  http://www.coe.int/t/dghl/cooperation/cepej/evaluation/default_ 
en.asp. 
39

instance:  Stakeholder_contribution_on_rule_of_law_-_oecd.pdf 

for 

Political guidelines European Commission 2024-2029. 

EN 

13 

  EN 

 
 
The initiative will be in line with  the  Communication on the road to  the  2028-2034 MFF 40 
and  its  aim  to  streamline  EU  management,  governance  and  implementation  of  EU 
programmes  to  improve  efficiency  for  applicants,  beneficiaries  and  EU  institutions.  Efforts 
will  be  made  to  simplify  the  application,  management  and  reporting  requirements  and  to 
provide additional guidance. Pooling of resources, including in areas such as monitoring and 
internal  and  external  communication  will  bring  economies  of  scale  and  enhance  the 
predictability of EU funding more widely among beneficiaries, stakeholders and EU citizens. 

As  regards  the  management  mode  of  the  Programme,  there  is  no  clear  scope  for  further 
simplification  as  the  management  modes  used  for  the  2021-2027  Justice  programme  are 
appropriate  for  a  programme  of  this  size  (i.e.  direct  management  and  a  limited  number  of 
initiatives  implemented under  indirect  management  by  the  bodies  referred  to  in  point  (c)  of 
the first subparagraph of Article 62(1) of Regulation (EU) 2024/2509). During the last years, 
the Programme  has  implemented several  simplification measures  to  streamline its processes 
and administrative procedures, thereby enhancing its efficiency. There is limited evidence to 
suggest that major changes are still needed, especially considering the simplification measures 
implemented  thus  far.  For  instance,  to  simplify  implementation  and  reduce  administrative 
burden for beneficiaries, the use of simplified forms of funding will remain the standard form 
of contribution for reimbursing grants. 

Beneficiaries consider the instruments used for the 2021-2027 Justice programme (grants and 
procurement activities) suitable for the needs of the Programme. 

At  the  same  time,  several  findings  show  that  the  growing  demand  for  the  digitalisation  of 
justice is highlighting significant investment gaps at both EU and national levels. 

A  two-level  approach  (i.e.  at  EU  level  and  at  Member-State  level)  is  therefore  necessary  to 
allow  the  full  digitalisation  of  national  justice  systems  and  to  build  an  effective  and 
interconnected Union area of justice. 

This  would  not  only  create  more  links  with  all  the  policy  areas  covered  under  the  Justice 
programme  but  will  also  provide  for  strong  coherence  with  actions  carried  out  at  national 
level  for  the  digitalisation  of  national  justice  systems  under  the  National  and  Regional 
Partnership plans. 

•  Fundamental rights 

The Programme objectives are closely linked to the promotion of fundamental rights and are 
in line with the Charter. 

In the implementation  of all of its actions, the Programme  also  seeks to  promote the Union 
values set out in Article 2 TEU, gender equality, the rights of the child, including by means of 
child-friendly  justice,  the  protection  of  victims’  rights  and  the  effective  application  of  the 
principle  of  equal  rights  and  non-discrimination  based  on  any  of  the  grounds  listed  in 
Article 21  of  the  Charter,  in  accordance  with  and  within  the  limits  set  by  Article 51  of  the 
Charter. 

In  addition,  projects  funded  under  the  Programme  must  comply  with  the  highest  ethical 
standards,  the  General  Data  Protection  Regulation  2016/67941  and  international  law 

40

https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex:52025DC0046.  
41 
Regulation (EU) 2016/679 of the European Parliament and of the Council of 27 April 2016 on the protection of natural persons 
with  regard  to  the  processing  of  personal  data  and  on  the  free  movement  of  such  data,  and  repealing  Directive  95/46/EC  (General  Data 
Protection Regulation),  OJ L 119, 4.5.2016, pp. 1–88, ELI: http://data.europa.eu/eli/reg/2016/679/oj. 

EN 

14 

  EN 

 
 
agreements  to  which  the  Union  or  all  EU  Member  States  are  party  (including  the  United 
Nations Convention on the rights of persons with disabilities42). 

4. 

BUDGETARY IMPLICATIONS 

The  financial  envelope  for  the  implementation  of  the  Justice  programme  for  the  period 
1 January 2028 to 31 December 2034 will be EUR 798 million (current prices). 

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  established  under  Regulation  (EU)  XXX  of  the  European  Parliament  and  of  the 
Council  [Performance Regulation]43. The performance framework  also  sets  out  the rules for 
evaluations, which 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. 

The  Programme  is  implemented  through  direct  management  by  the  Commission.  A  limited 
number of initiatives might also be implemented under indirect management by international 
organisations. 

•  Detailed explanation of the specific provisions of the proposal 

The  general  objective  of  the  proposed  2028-2034  Justice  programme  (Article 3  of  the 
Regulation) is to contribute to the further development of an efficient, inclusive, resilient and 
digitalised  Union  area  of  justice,  based  on  the  rule  of  law,  mutual  recognition  and  mutual 
trust.  By  achieving  this  objective,  the  Programme  will  also  strengthen  democracy  and  the 
protection of fundamental rights and contribute to growth and competitiveness. This general 
objective will be achieved through three specific objectives:  

(a)  To  facilitate  and  support  judicial  cooperation  in  civil  and  criminal  matters,  and  to 

promote the rule of law;   

(b)  To promote and support judicial training;  

(c)  To facilitate  and support effective  and non-discriminatory access  to  justice for all and 

effective remedy, including by digital means. 

The  Programme  will  provide  for  synergies  between  its  different  specific  objectives  to 
effectively support the policy areas these objectives cover and increase their potential to reach 
its target groups. 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 tailor-
made approaches. 

In  implementing  this  Regulation,  the  Commission  will  set  the  funding  priorities  in  the 
respective policy areas each year. The structure of the Regulation allows for flexibility and for 
quick  adjustments  based  on  policy  needs  and  new  policy  and  technological  developments.

42 
OJ L 23, 27.1.2010, p. 37, ELI: http://data.europa.eu/eli/convention/2010/48(1)/oj. Since the Union became a Party to the United 
Nations Convention on the Rights of Persons with Disabilities, its provisions have become an integral part of the Union legal order and are 
binding upon the institutions of the Union and on its Member States including its Article 13 on access to justice. That Article requires that 
States Parties ensure effective access to justice for persons with disabilities on an equal basis with others (including through the provision of 
procedural  and  age-appropriate  accommodations)  in  all  legal  proceedings,  including  at  investigative  and  other  preliminary  stages.  It  also 
indicates that States Parties shall promote appropriate training for those working in the field of administration of justice, including police and 
prison staff. 
43 
and performance framework and other horizontal rules for the Union programmes and activities, COM/2025/545 final. 

Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing a budget expenditure tracking 

EN 

15 

  EN 

 
2025/0255 (COD) 

Proposal for a 

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

establishing the Justice programme for the period 2028-2034 and repealing Regulation 
(EU) 2021/693 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Article 81(1) and (2) and Article 82(1) 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 Committee1, 
Having regard to the opinion of the Committee of the Regions2, 

Acting in accordance with the ordinary legislative procedure, 

Whereas: 

(1) 

(2) 

Article 3 of the Treaty on European Union (TEU) provides that the Union is to offer 
its citizens an area of freedom, security and justice and Article 67 of the Treaty of the 
Functioning  of  the  European  Union  (TFEU)  further  specifies  that  the  Union  is  to 
constitute an area of freedom, security and justice with respect for fundamental rights 
and the different legal systems and traditions of the Member States. Justice is closely 
linked  to  core  values  on  which  the  Union  is  founded,  particularly  the  rule  of  law, 
democracy  and  respect  for  fundamental  rights  as  enshrined  in  Article 2  TEU.  Those 
core  values  imply  the  necessity  of  independent  judiciaries  operating  within  efficient 
justice  systems.  Judicial  independence  itself  stems  from  the  common  constitutional 
traditions  shared  by  all  Member  States,  the  rule  of  law,  and  from  the  principle  of 
effective  judicial  protection  provided  for  in  Article 19(1)  TEU  and  Article 47  of  the 
Charter of Fundamental Rights of the European Union (the ‘Charter’). 

The  completion  of  an  area  of  freedom,  security  and  justice  is  still  challenged  by 
factors such as threats to the rule of law, several forms of serious crime and obstacles 
to access to justice and judicial cooperation. It is therefore more important than ever to 
promote, strengthen, and defend justice, which has direct implications for the political, 
economic,  financial  and  social  life  in  the  Union  and  beyond  and  is  necessary  to 
prepare  for  an  enlarged  Union.  Building  on  the  2021-2027  Justice  programme 
established  by  Regulation  (EU)  2021/693  of  the  European  Parliament  and  of  the 
Council3, 
the  Justice  programme  (the 
‘Programme’) in  order to  support the further development  of a Union area of justice 
based  on  the  rule  of  law,  fundamental  rights,  democracy,  the  independence  and 

this  Regulation  aims  at  establishing 

1 
2 
3

OJ C, […], […], ELI:. […].  
OJ C, […], […], ELI: […]. 
Regulation (EU) 2021/693 of the European Parliament and of the Council of 28 April 2021 establishing the Justice Programme 

and repealing Regulation (EU) 1382/2013 (OJ L 156, 5.5.2021, p. 21, ELI: http://data.europa.eu/eli/reg/2021/693/oj). 

EN 

1 

  EN 

 
 
(3) 

(4) 

(5) 

(6) 

impartiality of the judiciary, mutual recognition and mutual trust, access to justice and 
cross-border judicial cooperation in civil and criminal matters. The Programme should 
also  provide  an  enhanced  focus  on  digitalisation  of  justice  across  all  its  specific 
objectives. 

This Regulation lays down an indicative financial envelope for the Justice programme. 
For  the  purpose  of  this  Regulation,  current  prices  are  calculated  by  applying  a  fixed 
2% deflator. 

In  a  rapidly  changing  economic,  social  and  geopolitical  environment,  which  creates 
uncertainties and challenges, recent experience has shown the need for a more flexible 
multiannual financial framework and Union spending programmes. To that effect, and 
in line with the objectives of the Justice programme, the funding should duly consider 
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 budget implementation. 
Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council4 
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, 
financial 
instruments and budgetary guarantees. 

financial  assistance, 

In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom) 
No 883/2013 of the European Parliament and of the Council5, Council Regulation (EC 
Euratom)  No 2988/956,  Council  Regulation  (Euratom,  EC)  No 2185/967  and  Council 
Regulation  (EU)  2017/19398,  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  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 
Council9.  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 

and  of 

the  Council 

and  Council  Regulation 

Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September 2024 on the financial rules 

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

4 
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). 
5 
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 
(OJ  L  248,  18.9.2013,  p. 1., 
ELI: http://data.europa.eu/eli/reg/2013/883/oj). 
6 
interests (OJ L 312, 23.12.95, p. 1, ELI: http://data.europa.eu/eli/reg/1995/2988/oj). 
7 
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  fraud  and  other  irregularities  (OJ  L 
292.15.11.96, p. 2, ELI: http://data.europa.eu/eli/reg/1996/2185/oj). 
8 
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). 
9 
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). 

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 

Council  Regulation  (EU)  2017/1939  of  12 October  2017  implementing  enhanced  cooperation  on  the  establishment  of  the 

(Euratom)  No 1074/1999 

EN 

2 

  EN 

 
(7) 

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. 

The Programme is to be implemented in accordance with Regulation (EU) XXX of the 
European Parliament and of the Council [Performance Regulation]10 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. 

(8)  Measures  under  the  Programme  should  support  enhanced  mutual  recognition  and 
enforcement of judgments and judicial decisions in civil and criminal matters, mutual 
trust between Member States and the necessary approximation of legislation in order 
to  facilitate  cooperation  between  all  the  relevant  authorities,  including  by  digital 
means. The Programme should also support the maintenance and setting up of existing 
and  new  IT  tools  or  platforms  for  new  judicial  cooperation  instruments.  While 
harvesting  the  efficiency  gains  of  digitalisation  of  justice,  the  protection  of 
fundamental  rights,  in  accordance  with  the  Charter,  as  well  as  safeguards  against 
inequalities, discrimination and exclusion should be ensured. 

(9) 

(10) 

(11) 

The Programme should, in all its activities, promote the rule of law also by supporting 
efforts to improve the independence, quality and efficiency of national justice systems 
in  order  to  enhance  mutual  trust,  which  is  indispensable  for  judicial  cooperation  in 
civil and criminal matters. 

In  civil  matters,  the  Programme  should  support the  protection  of  individual  rights  in 
civil  and  commercial  cases,  including  Anti-SLAPP  (strategic  lawsuits  against  public 
participation), and promote greater convergence in civil law. This will help eliminate 
obstacles  to  satisfactory  and  efficiently  functioning  judicial  and  extrajudicial 
procedures  for  the  benefit  of  all  parties  in  a  dispute.  To  support  the  effective 
enforcement and practical application of Union law in this area, the Programme should 
also support the functioning of the European Judicial Network in civil and commercial 
matters established by Council Decision 2001/470/EC11. 

In  criminal  matters,  the  Programme  should  help  implement  rules  and  procedures  to 
ensure the recognition of judgments and decisions throughout the Union and support 
the  protection  of  the  Union  financial  interests.  It  should  contribute  to  removing 
obstacles  to  effective  mutual  trust  and  cooperation,  including  through  support  for 
measures  that  ensure  the  correct  transposition  of  Union  legal  acts  approximating 
national  criminal  laws.  The  Programme  should  also  support  actions  aimed  at 
facilitating  cooperation  in  relation  to  forms  of  serious  crime  such  as  corruption, 
terrorism  and  environmental  crime.  In  particular,  the  Programme  should  enhance 
coordination and cooperation between law enforcement, judicial authorities and other 

Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing a budget expenditure tracking 

10 
and performance framework and other horizontal rules for the Union programmes and activities (OJ L …, …., ELI: …). 
11

Council Decision 2001/470/EC of 28 May 2001 establishing a European Judicial Network in civil and commercial matters (OJ L 

174, 27.6.2001, p. 25, ELI: http://data.europa.eu/eli/dec/2001/470/oj). 

EN 

3 

  EN 

 
 
competent authorities. Furthermore, it should support cooperation with and awareness 
raising of the role of Union bodies and agencies, such as the European Union Agency 
for  Criminal  Justice  Cooperation  (Eurojust)  and  the  EPPO,  thereby  enabling  a  more 
integrated system of judicial cooperation in the Union.  

(12)  The  Programme  should  contribute  to  improving  non-discriminatory  access  to  justice 
for all and should support activities to protect the rights of victims of crime as well as 
the procedural rights of suspects and accused persons in criminal proceedings as well 
as  requested  persons  in  European  Arrest  Warrant  (EAW)  proceedings.  Access  to 
justice  should  include,  in  particular,  access  to  courts,  alternative  methods  of  dispute 
resolution, and legal advice to be provided in an independent and impartial manner by 
public office-holders. Particular attention should be given to improved implementation 
of  the  various  Union  legal  acts  for  the  protection  of  victims  of  crime,  as  well  as  to 
actions  aimed  at  the  exchange  of  best  practices  between  competent  authorities, 
including  judicial  authorities,  law  enforcement  authorities,  legal  practitioners  and  at 
supporting  the  improvement  of  the  knowledge  and  use  of  collective  redress 
instruments. Moreover, support should be given to activities which facilitate effective 
and equal access to justice for persons who face discrimination or are in a situation of 
vulnerability  (such  as  persons  with  disabilities  in  accordance  with  Article 13  of  the 
United  Nations  Convention  on  the  Rights  of  Persons  with  Disabilities12,  children, 
minorities,  LGBTIQ+  persons  and  victims  of  gender-based  violence,  domestic 
violence  and  other  forms  of  interpersonal  violence.  The  Programme  should  also 
support activities of civil society organisations which contribute to those objectives. 

(13)  The Programme should support the training of the judiciary and judicial staff. Training 
activities  should  contribute  to  the  implementation  of  Union  strategic  priorities, 
including for instance, training on civil and criminal law, on the effective application 
of the Charter, on mutual  recognition  as well as on procedural  safeguards (including 
safeguards for strategic lawsuits against public  participation  (anti-SLAPP)).  Training 
activities under the Programme should have a strong focus on digitalisation of justice, 
providing  a  supportive  environment  for  the  judiciary  and  judicial  staff,  including 
through  increasing  digital  skills,  knowledge  and  awareness.  Training  should  also 
support  the  digitalisation  of  cross-border  judicial  proceedings.  Support  to  training 
should happen in synergy with measures at national level, thus leveraging the impact 
of the Programme. 

(14)  The Programme should support the annual work programme of the European Judicial 
Training Network (EJTN), which is an essential actor with regard to judicial training 
and  plays  an  important  role  in  supporting  and  implementing  the  objectives  of 
European  judicial  training  policy.  The  EJTN  is  the  only  network  at  Union  level 
bringing together the judicial training bodies of the Member States. It is therefore in a 
unique position to organise exchanges and training for the judiciary between Member 
States and to coordinate the work of national judicial training bodies, thereby fostering 
synergies  between  Union  supported  and  nationally  funded  training  and  structured 
communication  between  the  Union  and  national  training  providers.  Moreover,  the 
EJTN may also include the judicial training bodies of candidate countries and potential 
candidates as observer members. 

(15)  The  protection  of  children’s  rights  is  a  core  objective  of  the  Union,  as  enshrined  in 
Article 3(3)  of  the  TEU  and  Article 24  of  the  Charter.  In  all  actions  concerning 

12

OJ L 23, 27.01.2010, p. 37, ELI: http://data.europa.eu/eli/convention/2010/48(1)/oj.  

EN 

4 

  EN 

 
 
children,  the  best  interests  of  the  child  are  to  be  a  primary  consideration. That  is 
essential  also  for  the  legitimacy  and  effectiveness  of  justice  systems. Children 
involved  in  legal  proceedings,  whether  as  witnesses,  victims,  suspects,  accused  or 
convicted  persons,  or  other  parties,  often  face  significant  barriers  which  undermine 
their  ability 
from  appropriate 
safeguards. Strengthening the capacity of national justice systems and practitioners to 
address  the  specific  needs  of  children  is  therefore  necessary  to  ensure  the  effective 
exercise of their rights. 

to  participate  effectively  and 

to  benefit 

(16)  The Programme should contribute to digitalisation of justice, including by developing, 
rolling-out  and  maintaining  tools  at  Union  level.  It  could  thus  leverage  tools 
facilitating  digital  communication  between  courts  and  parties  such  as  the  European 
Electronic Access Point, allowing easier access to judicial data such as the European 
Case  Law  Identifier,  or  enhancing  the  efficiency  and  security  of  digitalised  judicial 
procedures  such  as  trust  services  under  Regulation  (EU)  No  910/2014  and  the 
European  Digital  Identity  Wallets.  A  well-functioning  Union  area  of  justice  with 
effective  and  resilient  national  justice  systems  is  necessary  for  a  flourishing  internal 
market  and  it  is  a  precondition  for  economic  growth,  sound  financial  markets  and 
competitiveness.  Digitalisation  enhances  the  efficiency  of  cross-border  judicial 
procedures in civil and criminal matters as well as access to justice within the Union, 
which  in  turn  are  a  driver  for  investments.  Digitalisation  of  justice  also  enables  and 
facilitates  the  effective  and  efficient  cooperation  with  other  competent  authorities  in 
the implementation and enforcement of key pieces of the EU digital rulebook, such as 
for instance the Digital Services Act. Digitalising justice systems helps also to reduce 
costs for both  public budgets  and end users, while maintaining  effective  services  for 
citizens  and  businesses.  It  enables  justice  professionals  to  focus  on  core  tasks, 
improving the quality and efficiency of proceedings. Digital tools also expand access 
to justice, by allowing remote communication and easy access to judicial files, thereby 
enhancing transparency. Moreover, digitalisation strengthens the resilience of national 
justice systems  in  times of crisis  (such as pandemics), ensuring they can continue to 
operate effectively for the benefit of citizens and businesses. That strengthens trust in 
the justice system’s ability to function reliably under unexpected circumstances. 

(17)  The Union must protect its security interest against suppliers which could represent a 
persistent security risk due to the potential interference from third countries as well as 
their  security,  notably  cybersecurity.  It  is  therefore  necessary  to  reduce  the  risk  of 
persisting  dependency  on  high-risk  suppliers  in  the  internal  market,  including  in  the 
ICT supply chain, as they could have potentially serious negative impacts on security 
for  users  and  companies  across  the  Union  and  the  Union’s  critical  infrastructure  in 
terms  of the integrity of data and services as  well as the availability of service. This 
restriction  should  be  based  on  a  proportionate  risk  assessment  and  associated 
mitigation measures as defined in the Union policies and laws. 

(18)  The  Commission  should  ensure  overall  consistency,  complementarity  and  synergies 
with  the  work  of  Union  bodies,  offices  and  agencies,  in  particular  Eurojust,  the 
European Union Agency for Fundamental Rights (FRA), the European Union Agency 
for the Operational Management of Large-Scale IT Systems in the Area of Freedom, 
Security and Justice (eu-LISA) and the EPPO, and should take into account the work 
of other national and international actors in the areas covered by the Programme.  

(19) 

In  order  to  ensure  the  efficient  allocation  of  funds  from  the  general  budget  of  the 
Union, it is necessary to ensure that all actions carried out under the Programme have 
Union added value, complement Member States’ actions and are consistent with other 

EN 

5 

  EN 

Union  actions.  Consistency,  complementarity  and  synergies  should  be  sought  in 
particular  with  funding  programmes  supporting  policy  areas  that  are  closely 
interlinked,  such  as  the  National  and  Regional  Partnership  Plans  (established  by 
Regulation XXX of the European Parliament and of the Council [NRP Regulation]13), 
the AgoraEU programme (established by Regulation XXX of the European Parliament 
and  of  the  Council  [AgoraEU]14,),  and  external  actions  supported  by  Global  Europe 
(established by Regulation XXX of the European Parliament and of the Council15).  

(20)  The Programme replaces the programme established by Regulation (EU) 2021/693 for 

the programming period 2021-2027 which should therefore be repealed. 

(21) 

(22) 

In  accordance  with  Articles  1  and  2  of  Protocol  No  22  on  the  position  of  Denmark, 
annexed to the TEU and to the TFEU, Denmark is not taking part in the adoption of 
this Regulation and is not bound by it or subject to its application. 

In accordance with Article 3 of Protocol No 21 on the position of the United Kingdom 
and Ireland in respect of the area of freedom, security and justice, annexed to the TEU 
and  the  TFEU,  Ireland  has  notified  [,by  letter  of  …,]  its  wish  to  take  part  in  the 
adoption and application of this Regulation. 

or 

In accordance with  Articles 1 and 2 of Protocol No 21 on the position of the United 
Kingdom and Ireland in respect of the area of freedom, security and justice, annexed 
to  the  TEU  and  to  the  TFEU,  and  without  prejudice  to  Article 4  of  that  Protocol, 
Ireland is not taking part in the adoption of this Regulation and is not bound by it or 
subject to its application, 

HAVE ADOPTED THIS REGULATION: 

Article 1 

Subject matter 

This  Regulation  establishes  the  Justice  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 

Definition 

For the purposes  of this  Regulation,  ‘judiciary  and judicial staff’ means judges,  prosecutors 
and  members  of  staff  of  courts  and  of  prosecutors’  offices,  as  well  as  any  other  justice 
professionals  associated  with  the  justice  systems  or  otherwise  participating  in  the 
administration of justice, irrespective of the definition in national law, legal status or internal 
organisation,  such  as  lawyers,  notaries,  bailiffs  or  enforcement  officers,  insolvency 
practitioners,  mediators,  court  interpreters  and  translators,  court  experts,  prison  staff  and 
probation officers. 

13 
Proposal  for  a  Regulation  (EU)  XXX  of  the  European  Parliament  and  of  the  Council  establishing  the  European  Fund  for 
economic, social and territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and security for the period 2028-2034 and 
amending Regulation (EU) 2023/955 and Regulation (EU, Euratom) 2024/2509, COM(2025) 565 final. 
14 
the period 2028-2034, and repealing Regulations (EU) 2021/692 and (EU) 2021/818, COM(2025) 550 final.  
15 
final. 

Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing Global Europe, COM/2025/551 

Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing the 'AgoraEU' programme for 

EN 

6 

  EN 

 
 
Article 3 

Programme objectives 

1. 

The general objective of the Programme is to contribute to the further development 
of an efficient, inclusive, resilient and digitalised Union area of justice, based on the 
rule  of  law,  mutual  recognition  and  mutual  trust,  thereby  also  strengthening 
democracy and the protection of fundamental rights, and contributing to the Union’s 
growth and competitiveness, as well as the digitalisation of justice at the Union level. 

2. 

The Programme has the following specific objectives: 

(a) 

(b) 

(c) 

to  facilitate  and  support  judicial  cooperation  in  civil  and  criminal  matters,  and  to 
promote  the  rule  of  law,  in  particular  the  independence,  quality  and  efficiency  of 
justice  systems,  including  through  improving  the  effective  cross-border  recognition 
and enforcement of judicial decisions; 

to  promote  and  support  training  of  the  judiciary  and  judicial  staff,  with  a  view  to: 
promoting the rule of law, fundamental rights  and  democracy;  fostering a  common 
legal and judicial culture; ensuring the consistent and effective implementation of the 
relevant  Union  legal  instruments;  and  providing  a  supportive  environment  for  the 
digitalisation of judicial cooperation and justice systems. 

to facilitate and support effective and non-discriminatory access to justice for all and 
effective  remedy,  including  by  digital  means,  by  promoting  efficient  civil  and 
criminal  procedures  and  by  promoting  and  supporting  the  rights  of  all  victims  of 
crime  and  the  procedural  rights  of  suspects  and  accused  persons  in  criminal 
proceedings as well as of requested persons in European Arrest Warrant proceedings. 

Article 4 

Budget 

1. 

2. 

3. 

1. 

The indicative  financial  envelope  for the  implementation  of the  Programme  for the 
period  from  1 January  2028  to  31 December  2034  is  set  at  EUR 798  000  000  in 
current prices. 

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  5  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 5 

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 

EN 

7 

  EN 

2. 

1. 

2. 

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 4(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. 

Article 6 

Alternative, combined and cumulative funding 

The Programme shall be implemented in synergy with other Union programmes. An 
action  that  has  received  a  Union  contribution  from  another  programme  may  also 
receive  a  contribution  under  the  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 
the  Union  contribution  is  based  on  eligible  costs,  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 5 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. 
For the purposes of Article 153(3) of Regulation (EU, Euratom) 2024/2509, in joint 
award procedures the evaluation committee may be partially composed by members 
that are representatives of the partners in that procedure.   

Article 7 

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; 

EN 

8 

  EN 

(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 Programme; 

lay  down  the  conditions  of  participation  in  the  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; 

(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  the  first  subparagraph,  point  (d),  the  third  country  shall  grant  the 
necessary  rights  and  access  required  under  Regulations  (EU,  Euratom)  2024/2509  and  (EU, 
Euratom)  883/2013,  and  guarantee  that  enforcement  decisions  imposing  a  pecuniary 
obligation on the basis of Article 299 of the Treaty on the Functioning of the European Union, 
as  well  as  judgements  and  orders  of  the  Court  of  Justice  of  the  European  Union,  are 
enforceable. 

1. 

2. 

3. 

4. 

1. 

2. 

Article 8 

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, procurement and non-financial donations. 

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. 

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. 

Article 9 

Eligibility 

Eligibility criteria shall be set to support achievement of the objectives laid down in 
Article  3  of  this  Regulation,  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 receive Union funding: 

(a) 

entities established in a Member State; 

(b) 

entities established in an associated third country; 

EN 

9 

  EN 

(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 7 (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. In accordance 
with Article 136 of Regulation (EU, Euratom) 2024/2509, eligibility restrictions shall 
apply to high-risk suppliers in line with Union law, for security reasons. 

The  work  programme  referred  to  in  Article 110  of  Regulation  (EU,  Euratom) 
2024/2509,  the  calls  for  proposals  and  calls  for  tenders  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 
Judicial Training Network to cover expenditure associated with its permanent work 
programme.  

3. 

4. 

5. 

6. 

Article 10 

Work programme 

The  Programme  shall  be  implemented  by  work  programmes  referred  to  in  Article 110  of 
Regulation (EU, Euratom) 2024/2509. 

Article 11 

Repeal 

Regulation (EU) 2021/693 is repealed with effect from 1 January 2028. 

Article 12 

Transitional provisions 

1. 

2. 

This  Regulation  shall  not  affect  the  continuation  or  modification  of  the  actions 
initiated  under  Regulation  (EU)  2021/693,  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 Regulation (EU) 2021/693. 

Article 13 

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. 

EN 

10 

  EN 

 
It shall apply from 1 January 2028. 

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

Done at Brussels, 

For the European Parliament 
The President 

For the Council 
The President                         

EN 

11 

  EN 

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 ............................................................................................ 5 

1.4. 

1.5. 

The proposal/initiative relates to: ................................................................................. 5 

Grounds for the proposal/initiative .............................................................................. 5 

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 ............................................................ 5 

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. ................................................................................. 6 

1.5.3.  Lessons learned from similar experiences in the past .................................................. 7 

1.5.4.  Compatibility with the multiannual financial framework and possible synergies with 
other appropriate instruments ....................................................................................... 7 

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

redeployment ................................................................................................................ 7 

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 .................................... 8 

Method(s) of budget implementation planned ............................................................. 8 

MANAGEMENT MEASURES .............................................................................. 10 

Monitoring and reporting rules .................................................................................. 10 

Management and control system(s) ........................................................................... 10 

Justification of the budget implementation method(s), the funding implementation 
mechanism(s), the payment modalities and the control strategy proposed ................ 10 

Information concerning the risks identified and the internal control system(s) set up 
to mitigate them.......................................................................................................... 10 

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) ......................................... 11 

2.3. 

3. 

Measures to prevent fraud and irregularities .............................................................. 11 

ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE ..... 12 

EN 

1 

  EN 

 
3.1. 

Heading(s) of the multiannual financial framework and expenditure budget line(s) 
affected ....................................................................................................................... 12 

3.2. 

Estimated financial impact of the proposal on appropriations ................................... 13 

3.2.1.  Summary of estimated impact on operational appropriations.................................... 13 

3.2.1.1.  Appropriations from voted budget EUR million (to three decimal places) ............... 13 

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

decentralised agencies)............................................................................................... 15 

3.2.3.  Summary of estimated impact on administrative appropriations ............................... 17 

3.2.3.1. Appropriations from voted budget .............................................................................. 17 

3.2.3.2.  Appropriations from external assigned revenues (NA) ............................................. 17 

3.2.4.  Estimated requirements of human resources.............................................................. 18 

3.2.4.1.  Financed from voted budget....................................................................................... 18 

3.2.4.2.  Financed from external assigned revenues (NA) ....................................................... 19 

3.2.5.  Overview of estimated impact on digital technology-related investments ................ 21 

4. 

4.1. 

4.2. 

4.3. 

4.4. 

4.5. 

DIGITAL DIMENSIONS ........................................................................................ 23 

Requirements of digital relevance .............................................................................. 23 

Data ............................................................................................................................ 25 

Digital solutions ......................................................................................................... 26 

Interoperability assessment ........................................................................................ 29 

Measures to support digital implementation .............................................................. 29 

EN 

2 

  EN 

 
 
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  Justice  programme  and  repealing  Regulation  (EU)  No 2021/693  for  the  period 
2028-2034. 

1.2. 

Policy area(s) concerned 

Judicial cooperation in civil and criminal matters, judicial training, access to justice, 
the rule of law, fundamental rights. 

1.3. 

Objective(s) 

1.3.1.  General objective(s) 

The Programme has the general objective of contributing to the further development 
of an efficient, inclusive, resilient and digitalised Union area of justice, based on the 
rule  of  law,  mutual  recognition  and  mutual  trust,  thereby  also  strengthening 
democracy and the protection of fundamental rights, and contributing to the Union’s 
growth and competitiveness as well as to the digitalisation of justice at Union level. 

1.3.2. 

Specific objective(s) 

The Programme will have the following specific objectives: 

Specific objective No 1: 

To  facilitate  and  support  judicial  cooperation  in  civil  and  criminal  matters,  and  to 
promote  the  rule  of  law,  in  particular  the  independence,  quality  and  efficiency  of 
justice  systems,  including  through  improving  the  effective  cross-border  recognition 
and enforcement of judicial decisions. 

Specific objective No 2: 

To promote  and support training of the  judiciary and judicial staff, with  a view to: 
promoting the rule of law, fundamental rights  and democracy;  fostering a  common 
legal and judicial culture; ensuring the consistent and effective implementation of the 
relevant  Union  legal  instruments;  and  providing  a  supportive  environment  for  the 
digitalisation of judicial cooperation and justice systems. 

Specific objective No 3: 

To facilitate and support effective and non-discriminatory access to justice for all and 
effective  remedy,  including  by  digital  means,  by  promoting  efficient  civil  and 
criminal  procedures  and  by  promoting  and  supporting  the  rights  of  all  victims  of 
crime  and  the  procedural  rights  of  suspects  and  accused  persons  in  criminal 
proceedings as well as of requested persons in European Arrest Warrant proceedings. 

1.3.3.  Expected result(s) and impact 

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

- Increased capacity - including digital capacity - of national practitioners, courts and 
authorities  to  address  issues  related  to  judicial  cooperation  in  civil  and  criminal 

EN 

3 

  EN 

 
matters and to implement EU instruments on civil and civil procedural law, as well 
as on criminal and criminal procedural law; 

-  Improved  cross-border  cooperation  and  mutual  trust  between  judicial  authorities 
responsible  for  judicial  cooperation  in  civil,  commercial  and  criminal  matters,  and 
improved  cooperation  and  coordination  between  these  authorities  and  other 
responsible agencies and institutions across the EU; 

- Acceleration of proceedings in relation to judicial cooperation in civil and criminal 
matters; 

-  Improved  situation  of  persons  subject  to  measures  in  the  field  of  judicial 
cooperation  in  criminal  matters,  enhancement  of  their  social  rehabilitation  and  re-
integrations, reduced risks of violation of their fundamental rights; 

-  Enhanced  capacity  and  visibility  of  EU  level  Networks  active  in  the  areas  of 
judicial training, access to justice and judicial cooperation; 

-  Improved  promotion  of  the  rule  of  law,  independence  and  impartiality  of  the 
judiciary, including by supporting the efforts to improve the effectiveness of national 
justice  systems,  particularly  through  collection  of  information  on  rule  of  law 
situation  at  national  level,  the  collection  of  data  on  the  independence,  quality  and 
efficiency  of  national  justice  systems,  promotion  and  upholding  of  European 
standards and best practices in these areas; 

- Strengthened cooperation and exchange of information between competent national 
authorities,  European  networks,  NGOs  and/or  professional  organisations  in  relation 
to the rights of persons suspected or accused of crime and of victims of crime; 

- Reduced risks of breaches of fair trial rights; 

-  Facilitating  cooperation  in  relation  to  forms  of  serious  crime,  such  as  corruption, 
terrorism and environmental crime; 

-  Improved  public  awareness  and  knowledge,  also  among  relevant  policy  makers, 
about procedural rights of suspected and accused persons and victims’ rights at both 
EU and national level; 

- Increased awareness and knowledge on the use of digital and AI tools in criminal 
proceedings  (in  particular  the  use  of  videoconferencing  technology)  and  its  impact 
(chances  and  risks)  on  the  procedural  rights  of  suspected  and  accused  persons  and 
victims’ rights at both EU and national level; 

- Increased awareness and knowledge about the specific needs of the most vulnerable 
victims of crimes, including victims of terrorism, and most vulnerable suspects and 
accused persons; 

-  Improved  knowledge  about  legal  remedies  available  for  victims  in  case  of  a 
violation of their rights as well as about challenges and benefits for victims related to 
digitalisation of justice; 

- Improved support services to victims; 

-  Enhanced  knowledge  of  EU  civil  law,  commercial  law,  criminal  law  and 
fundamental rights related instruments (including on the scope of application of the 
EU  Charter  of  Fundamental  Rights  and  on  existing  remedies  and  redress)  among 
justice professionals; 

EN 

4 

  EN 

-  Increased  ‘Digital  capacity’  of  justice  professionals  to  use  digital  tools  and 
infrastructures  effectively,  handle  the  impact  of  digitalisation  on  court  proceedings 
and procedural rights and apply cross-border cooperation tools; 

- Increased legal certainty for citizens and businesses. 

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 Regulation]1. 

1.4. 

The proposal/initiative relates to: 

 a new action 
 a new action following a pilot project / preparatory action2 

 the extension of an existing action 

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

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 

Whereas legislation is a key tool to implement the Union’s objectives in the area of 
justice, it needs to be complemented by other means. In this context, funding has an 
important  role  to  play  to  enhance  the  effectiveness  of  legislation  by  increasing 
knowledge,  awareness  and  capacity  of  justice  professionals  and  other  key 
stakeholders, through supporting, for instance: 

- dissemination of information and awareness raising, including support for national 
and European campaigns to inform people of their rights and forums for discussion 
for stakeholders to enhance the knowledge of the Programme and the transferability 
of its results; 

-  training,  exchanges  and  capacity  building  for  the  judiciary  and  judicial  staff  and 
other practitioners and relevant national authorities, to equip them with the tools to 
effectively put Union rights and policies into practice. 

Funding  has  also  a  central  role  in  promoting  cooperation  at  transnational  level  and 
developing mutual trust, through, for instance: 

-  developing  and  strengthening  the  capacity  of  key  European-level  networks, 
European-level judicial associations and European level judicial training providers to 
assist  with  the  preparation  of  future  initiatives  in  the  areas  covered  by  the 
Programme, as well as to promote their consistent implementation across Europe; 

- cross-border cooperation on enforcement and coordination of other national actions 
to maximise and deepen the impact of Union level actions; 

Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing a budget expenditure tracking 

1 
and performance framework and other horizontal rules for the Union programmes and activities, COM/2025/545 final. 
2 

As referred to in Article 58(2), point (a) or (b) of Regulation (EU) 2024/2509. 

EN 

5 

  EN 

 
-  cross-border  interoperability  of  systems  and  applications  by  deploying  and 
maintaining innovative techniques and technologies, notably digital ones. 

Additionally, funding should also support, for instance: 

- Research, studies, surveys, evaluations, impact assessments, analytical, monitoring 
and other support activities which allow to be always updated on new improvements 
and challenges on the ground. The results of  these activities will then feed into the 
development  and  implementation  of  Union  policies  and  ensure  that  they  are 
evidence-based, well targeted and well structured. 

The  Programme  will  contribute  to  tackling  common  transnational  challenges  by 
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. 

The  Programme  will  publish  every  year  around  four  calls  for  proposals  (including 
operating  grant  calls)  and  support  some  indirect  management  activities  with 
international  organisations.  Some  calls  will  be  biennial.  In  addition  to  this,  the 
Programme  will  undertake  some  actions  through  contracts  following  public 
procurement. The types of activities funded may include, for example: conferences, 
expert meetings, meetings of committees in support of implementing EU legislative 
acts, seminars, communication, information and visibility activities; development of 
training  material  and  development  and  maintenance  of  IT  platforms  and  systems; 
surveys, studies and impact assessments. 

All  these  activities  will  be  implemented  over  the  whole  period  2028-2034.  It  is 
difficult to set a precise roll-out at this stage, as the Programme has been conceived 
to remain flexible enough to adapt to new emerging priorities and needs. 

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) 

Despite  progress,  the  EU  continues  to  face  major  cross-border  justice  challenges 
requiring  coordinated  action.  The  Justice  programme  remains  highly  relevant  and 
impactful,  helping  Member  States  uphold  EU  values  and  fundamental  rights. 
Without  EU-level  support,  national  responses  would  be  fragmented,  inefficient  and 
uneven, especially in areas like judicial training, access to justice, and digitalisation. 
EU funding enables joint solutions, legal cooperation, and interoperability of justice 
systems,  particularly  benefiting  smaller  Member  States.  It  also  helps  fill  national 
gaps,  sustain  EU-wide  legal  networks  and  build  a  common  European  legal  culture. 
The Justice programme is vital for supporting CSOs working in the field of access to 
justice  and  transnational  projects  that  could  not  be  realised  otherwise.  EU  action 
ensures  uniform  standards,  promotes  fair  access  to  justice,  strengthens  the  Single 
Market  and  boosts  competitiveness  by  reducing  legal  uncertainty.  It  also  key  to 
support  the  EU  enlargement  process  and  to  ensure  coherence  between  internal  and 
external justice policies, thereby reinforcing the EU’s role globally and safeguarding 
its legal order. 

EN 

6 

  EN 

Expected generated EU added value (ex post) 

Collaboration and networking between stakeholders will lead to the dissemination of 
best  practices,  in  particular  innovative  and  integrated  approaches  in  different 
Member States. The participants in the activities funded by the Programme will then 
act  as  multipliers  in  their  respective  professional  activities  within  their  Member 
State.  European  Union  intervention  allows  for  these  activities  to  be  pursued 
consistently across the Union and brings economies of scale. 

1.5.3.  Lessons learned from similar experiences in the past 

The  mid-term  evaluation  of  the  2021-2027  Justice  programme  showed  that  the 
Programme continues to effectively strengthen cross-border judicial cooperation and 
mutual trust among Member States as well as judicial training and access to justice 
for vulnerable groups. The Pprogramme is also increasingly promoting digitalisation, 
thereby improving access to legal information and modernising judicial cooperation 
tools. The evaluation confirmed the overall effectiveness of the Programme and the 
validity  of  its  targeted  objectives,  but  some  aspects  have  been  identified  for 
improvement, in particular: the limited budget constrains the Programme’s ability to 
meet  growing  digital  needs;  awareness  remains  uneven,  with  CSOs  less  informed 
than  public  authorities  and  the  Programme  is  less  known  in  some  countries. 
Additionally,  some  beneficiaries  continue  to  experience  challenges  with  the 
application procedure and reporting requirements. 

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  Programme  will  seek  synergies,  consistency  and  complementarities  with  other 
Union  instruments  supporting  policy  areas  which  are  closely  interlinked,  such  as 
with  the  AgoraEU  programme  and  the    programmes  in  the  areas  of  asylum, 
migration  and  integration,  border  management  and  internal  security,  consumers, 
employment,  education,  social inclusion, research and innovation.  Cooperation will 
be sought as well as with external actions supported by Global Europe and with the 
National  and  Regional  Partnership  Plans  for  what  concerns  judicial  reforms  and 
digitalisation  of  national  justice  systems.  Duplication  with  activities  under  these 
other programmes will be avoided. 

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

redeployment 

N/A. 

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 2034 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 planned3 

 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. CoE, OECD, UNESCO…) 

 the European Investment Bank and the European Investment Fund 

 bodies referred to in Articles 70 and 71 of the Regulation (EU) 2024/2509) 

 public law bodies (e.g. Pillar assessed bodies) 

bodies  governed  by  private  law  with  a  public  service  mission  to  the  extent  that 
they are provided with adequate financial guarantees (e.g. Pillar assessed bodies) 

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 (e.g. 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. 

3 
https://myintracomm.ec.europa.eu/corp/budget/financial-rules/budget-implementation/Pages/implementation-methods.aspx. 

Details  of  budget  implementation  methods  and  references  to  the  Financial  Regulation  may  be  found  on  the  BUDGpedia  site: 

EN 

8 

  EN 

 
 
 
Comments 

The  Programme  will  be  implemented  under  direct  management  as  well  as  under  indirect 
management through international organisations (e.g. CoE, UNESCO, OECD…) 

EN 

9 

  EN 

2. 

MANAGEMENT MEASURES 

2.1.  Monitoring and reporting rules 

This  initiative will  be monitored through the performance framework for the 2028-
2034  budget  established  under  Regulation  (EU)  XXX  of  the  European  Parliament 
and of the Council [Performance Regulation]. The performance framework also sets 
out  the  rules  for  evaluations,  which  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. 

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 Justice programme will be managed directly by the Commission as this allows to 
better  adapt  the  Programme  to  the  needs  of  the  different  policies,  have  more 
flexibility  to  re-adjust  priorities  in  case  of  emerging  needs  and  establish  direct 
contacts with beneficiaries/contractors and stakeholders directly engaged in activities 
that  serve  relevant  Union  policies.  The  implementation  mode  of  the  2021-2027 
Programme (direct and indirect management) has so far proved effective and suitable 
for the needs of the Programme and its beneficiaries. The use of simplified forms of 
funding will remain the standard form of contribution for reimbursing grants. 

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 2021-2027 MFF and are provided in the  Regulation (EU) 
2024/2509); (4) the use of corporate procedures and systems for the management of 
proposals and grants (e.g. grants vademecum, eGrants etc.) to ensure a full alignment 
with  best  practice  in  all  stages  of  the  grant  and  procurement  lifecycles;  (5)  the 
measures laid down in the anti-fraud strategy. 

The control system  envisaged for the 2028-2034 Programme will be a continuation 
of  the  2021-2027  control  system.  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’ aimed at identifying a maximum of anomalies in view 
of recovering undue payments. 

EN 

10 

  EN 

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  3.2%  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 

DG JUST  will continue  to  apply  its Anti-Fraud  Strategy (updated in  June 2024) in 
line  with  the  Commission’s  Anti-Fraud  Strategy  (CAFS)  in  order  to  ensure,  inter 
alia, that its 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. 

The  Anti-fraud  strategy  enables  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:  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  information, 
communication and visibility. 

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. 

3.1. 

ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE 

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 

Contribution  

Heading of 
multiannual 
financial 
framework 

Number  

Non-diff. 

from EFTA 
countries 

from 
candidate 
countries 
and 
potential 
candidates 

from other 
third 
countries 

other 
assigned 
revenue  

2 

06  01  04  Support  expenditure  for 
Justice 

Non-
diff. 

YES/NO  YES/NO  YES/NO  YES/NO 

2 

06 05 01 Justice 

Diff. 

YES/NO  YES/NO  YES/NO  YES/NO 

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 EUR million (to three decimal places) 

Heading of multiannual financial framework  

Number  2 

DG: <JUST.> 

Year  Year  Year  Year  Year  Year  Year 

2028 

2029 

2030 

2031 

2032 

2033 

2034 

TOTAL MFF 2028-2034 

Operational appropriations  

06 05 01 Justice 

Commitments 

(1b) 

pm 

pm 

pm 

pm 

pm  
Appropriations of an administrative nature financed from the envelope of specific programmes[1]\ 
06  01  04  support  expenditure  for 
Justice 

Payments 

pm  

pm  

pm  

pm  

pm  

pm  

pm  

(3) 

(2b) 

pm 

pm  

pm 

pm  

pm 

pm  

pm  

pm  

pm  

TOTAL appropriations 

Commitments 

=1a+1b+3 

101 

105 

109 

114 

118 

123 

128 

for DG <JUST> 

Payments 

=2a+2b+3 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

Mandatory table 

pm 

pm 

pm 

798 

pm 

Year 

2028 

Year 

2029 

Year 

2030 

Year 

2031 

Year 

2032 

Year 

2033 

Year 

2034 

TOTAL 
MFF 2028-
2034 

EN 

13 

EN 

 
 
 
 
 
 
TOTAL 
appropriations 

operational 

Commitments 

Payments 

TOTAL appropriations of an administrative 
nature  financed  from  the  envelope  for 
specific programmes  

TOTAL 
appropriations 
under HEADING 
<2> 
of the multiannual 
financial framework 

Commitments 

Payments 

(4) 

(5) 

(6) 

=4+6 

=5+6 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

101 

105 

109 

114 

118 

123 

128 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

pm 

798 

pm 

==================================================================================================== 

Heading of multiannual financial framework  

4 

‘Administrative expenditure’1 

DG: <JUST> 

 Human resources  
 Other administrative expenditure  

EUR million (to three decimal places) 

Year 

Year 

Year 

Year 

Year 

Year 

Year 

2028 

2029 

2030 

2031 

2032 

2033 

2034 

TOTAL 
MFF 
2028-
2034 

9,470 
0,380 

9,470 
0,387 

9,470 
0,395 

9,470 
0,403 

9,470 
0,411 

9,470 
0,420 

9,470 
0,428 

66,290 
2,824 

1 

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

EN 

14 

EN 

 
 
 
 
 
TOTAL DG 
<JUST> 

Appropriations  

9,850 

9,857 

9,865 

9,873 

9,881 

9,890 

9,898 

69,114 

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

Commitments 

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 

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

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 

No 

Cost 

No 

Cost 

No 

Cost 

No 

Cost 

No 

Cost 

No 

Cost 

No 

Cost 

Total 
No 

Total 
cost 

Indicate 
objectiv
es and 
outputs 

Typ
e2 

Avera
ge 
cost 

 

SPECIFIC OBJECTIVE 
No3… 

2 
3 

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 

- 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 

Human resources  
Other administrative expenditure  
Subtotal HEADING 4 

Human resources  
Other expenditure of an administrative 
nature 

Subtotal outside HEADING 4 

Year 
2028 

9,470 
0,380 
9,850 

0,505 
 p.m. 

Year 
2029 

Year 
2030 
HEADING 4 
9,470 
0,395 
9,865 

9,470 
0,387 
9,857 

Outside HEADING 4 

0,505 
 p.m. 

0,505 
p.m. 

Year 
2031 

Year 
2032 

Year 
2033 

Year 
2034 

TOTA
L 2028 
- 2034 

9,470 
0,403 
9,873 

0,505 
p.m. 

9,470 
0,411 
9,881 

9,470 
0,420 
9,890 

9,470 
0,428 
9,898 

0,505 
p.m. 

0,505 
p.m. 

0,505 
p.m. 

66,290 
2,824 
69,114 

3,535 
p.m. 
3,535 

0,505 

0,505 

0,505 

0,505 

0,505 

0,505 

0,505 

TOTAL 

10,355 

10,362 

10,370 

10,378 

10,386 

10,395 

10,403 

72,649 

=================================================================== 

3.2.3.2.  Appropriations from external assigned revenues (NA) 

EXTERNAL ASSIGNED 
REVENUES 

Human resources  
Other administrative expenditure  
Subtotal HEADING 4 

Human resources  
Other expenditure of an administrative 
nature 

Subtotal outside HEADING 4 

Year 
2028 

0.000 
0.000 
0.000 

0.000 
0.000 
0.000 

Year 
2031 

Year 
2029 

Year 
2030 
HEADING 4 
0.000 
0.000 
0.000 

0.000 
0.000 
0.000 
Outside HEADING 4 
0.000 
0.000 
0.000 

0.000 
0.000 
0.000 

0.000 
0.000 
0.000 

0.000 
0.000 
0.000 

Year 
2032 

0.000 
0.000 
0.000 

0.000 
0.000 
0.000 

Year 
2033 

0.000 
0.000 
0.000 

0.000 
0.000 
0.000 

Year 
2034 

0.000 
0.000 
0.000 

0.000 
0.000 
0.000 

TOTA
L 2028 
- 2034 

0.000 
0.000 
0.000 

0.000 
0.000 
0.000 

TOTAL 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

3.2.3.3.  Total appropriations 

TOTAL 
 VOTED APPROPRIATIONS + EXTERNAL 
ASSIGNED REVENUES 

Year  Year  Year  Year  Year  Year  Year  TOTA
L 2028 
- 2034 

2028  2029  2030  2031  2032  2033  2034 

Human resources  

9,470 

9,470 

9,470 

9,470 

9,470 

9,470 

9,470 

66,290 

HEADING 4 

EN 

17 

  EN 

 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Other administrative expenditure  

Subtotal HEADING 4 

0,380 
0,387 
9,857 
9,850 
Outside HEADING 4 

0,395 
9,865 

0,403 
9,873 

0,411 
9,881 

0,420 
9,890 

0,428 
9,898 

2,824 
69,114 

Human resources  
Other expenditure of an administrative nature 

Subtotal outside HEADING 4 

0,505 
 p.m. 
0,505 

0,505 
 p.m. 
0,505 

0,505 
p.m. 
0,505 

0,505 
p.m. 
0,505 

0,505 
p.m. 
0,505 

0,505 
p.m. 
0,505 

0,505 
p.m. 
0,505 

3,535 
p.m. 
3,535 

TOTAL 

10,35
5 

10,36
2 

10,37
0 

10,37
8 

10,38
6 

10,39
5 

10,40
3 

72,649 

=================================================================== 

The  appropriations  required  for  human  resources  and  other  expenditure  of  an  administrative  nature 
will  be  met  by  appropriations  from  the  DG  that  are  already  assigned  to  management  of  the  action 
and/or  have  been  redeployed  within  the  DG,  together,  if  necessary,  with  any  additional  allocation 
which may be granted to the managing DG under the annual allocation procedure and in the light of 
budgetary constraints. 

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 

VOTED 
APPROPRIATIONS 

Year 

2028 

Year 

2029 

Year 

2030 

Year 

2031 

Year 

2032 

Year 

2033 

Year 

2034 

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

20 01 02 01 (Headquarters and 

Commission’s Representation 
Offices) 

20 01 02 03 (EU Delegations) 

01 01 01 01 (Indirect research) 

01 01 01 11 (Direct research) 

Other budget lines (specify) 

20 02 01 (AC, END from the 

‘global envelope’) 

20 02 03 (AC, AL, END and 

JPD in the EU Delegations) 

Admin. 
Support line 

06 01 04 

- at 

Headquarters 

- in EU 
Delegations  

01 01 01 02 (AC, END - 

Indirect research) 

01 01 01 12 (AC, END - Direct 

research) 

Other budget lines (specify) - 

Heading 7 

Other budget lines (specify) - 

Outside Heading 7 

TOTAL 

06 01 04 

- in EU 
Delegations  

 Establishment plan posts (officials and temporary staff) 

45 

45  

45 

45 

45 

45 

45 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

• External staff (in FTEs) 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

10 

10 

10 

10 

10 

10 

10 

0 

5 

0 

0 

0 

0 

0 

60 

0 

0 

5 

0 

0 

0 

0 

0 

60 

0 

0 

5 

0 

0 

0 

0 

0 

60 

0 

0 

5 

0 

0 

0 

0 

0 

60  

0 

0 

5 

0 

0 

0 

0 

0 

60 

0 

0 

5 

0 

0 

0 

0 

0 

60 

0 

0 

5 

0 

0 

0 

0 

0 

60 

0 

18 

EN 

  EN 

 
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
01 01 01 02 (AC, END - 

Indirect research) 

01 01 01 12 (AC, END - Direct 

research) 

Other budget lines (specify) - 

Heading 7 

Other budget lines (specify) - 

Outside Heading 7 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

TOTAL 

60 

60 

60 

60 

60 

60 

0 

0 

0 

0 

60  

=================================================================== 

3.2.4.2.  Financed from external assigned revenues (NA) 

EXTERNAL ASSIGNED 
REVENUES 

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) 

20 02 01 (AC, END from the 

‘global envelope’) 

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 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 
• External staff (in full time equivalent units) 

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 

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 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

3.2.4.3.  Total requirements of human resources 

TOTAL VOTED 
APPROPRIATIONS + 
EXTERNAL ASSIGNED 
REVENUES 

Year 

Year 

Year 

Year 

Year 

Year 

Year 

2028 

2029 

2030 

2031 

2032 

2033 

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) 

45 

0 

0 

45  

0 

0 

EN 

45 

0 

0 

45 

0 

0 

45 

0 

0 

45 

0 

0 

45 

0 

0 

19 

  EN 

 
 
 
 
 
 
 
 
 
 
 
(Direct research) 

0 

0 

0 

0 

Other budget lines (specify) 

20 02 01 (AC, END from the 

‘global envelope’) 

20 02 03 (AC, AL, END and 

JPD in the EU Delegations) 

Admin. Support 
line 

- at 

Headquarters 

06 01 04 

- in EU 
Delegations  
(AC, END - Indirect research) 

(AC, END - Direct research) 

Other budget lines (specify) - 

Heading 4 

Other budget lines (specify) - 

Outside Heading 4 

0 

0 
• External staff (in full time equivalent units) 

0 

0 

10 

10 

10 

10 

0 

5 

0 

0 

0 

0 

0 

0 

5 

0 

0 

0 

0 

0 

0 

5 

0 

0 

0 

0 

0 

0 

5 

0 

0 

0 

0 

0 

0 

0 

10 

0 

5 

0 

0 

0 

0 

0 

0 

0 

10 

0 

5 

0 

0 

0 

0 

0 

0 

0 

10 

0 

5 

0 

0 

0 

0 

0 

TOTAL 

60 

60 

60 

60 

60 

60 

60  

=================================================================== 

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

Exceptional additional staff* 

To be covered by 
current 
staff 
available  in  the 
Commission 
services  

To  be  financed 
under  Heading 
4 or Research 
15 

8 

To  be  financed 
from BA line 

To be financed 
from fees 

N/A 

5 

Establishment 
plan posts 
External 
(CA, 
INT) 

staff 
SNEs, 

30 

2 

Method of calculation, description of tasks to be carried out and reasoned request 

DG JUST staff working on the 2021-2027 Justice programme combines the operational staff, 
working  full  time  on  the  management  of  the  Programme,  throughout  all  phases  of  the 
programme  cycles  (work  programme,  calls  for  proposals,  evaluation,  contracting  and 
implementation) as well as having initiation and verification roles, with staff from policy units 
(ensuring  the  subject-matter  expertise)  and  staff  ensuring  the  overall  coordination  and 
horizontal tasks. 

The estimation of the operational staff working on the Programme is based on a distribution 
corresponding to the share of Justice budget against the total programme budget managed by 
the  DG,  which  also  includes  the  CERV  programme  and  the  consumer  strand  of  the  Single 
Market Programme. 

EN 

20 

  EN 

 
 
 
 
 
 
 
 
 
 
The estimation of staff from policy units is based on the high number of policies and pieces of 
legislation  supported  by  the  Justice  programme  implementation,  hence  on  policy  units 
involvement at key stages of the process, such as preparation of the calls for proposals, project 
selection and implementation. 

Operational,  policy  and  coordination  staff  combined  amount  to  60  FTE,  including  5  CA 
funded  from  outside  Heading  4  (former  BA  lines),  which  is  considered  necessary  to 
effectively  cater  for  the  expanded  more  labour  intensive  portfolio  –  including,  in  particular, 
initiatives such as the digitalisation of justice, increased number of financial operations for the 
implementation of the Programme, and in line with the thematic scope of the Programme as 
per political guidelines. 

Starting from the current staffing level as baseline, and considering the 2.7 fold increase in the 
envelope  of  the  Justice  programme  in  the  next  MFF,  the  FTEs  requested  is  necessary  to 
enable DG JUST to cope with the actions required to reach the political objectives of the Von 
der  Leyen  II  Commission  with  the  2028-2034  Justice  programme  being  instrumental  in 
successfully delivering on the Commission’s ambitions. 

There is  no margin in  the current  teams  to  further redeploy  staff between functions without 
putting  at  risk  the  credibility  of  the  Commission  to  deliver  in  the  areas  of  DG  JUST’s 
competence. 

Officials and temporary staff 

External staff 

45 

15 

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

TOTAL Digital 
and IT 
appropriations 

HEADING 4 

IT expenditure 
(corporate)  

Subtotal 
HEADING 4 
Outside HEADING 4 

Policy IT 
expenditure on 
operational 
programmes 

Subtotal outside 
HEADING 4 

Year 

2028 

Year 

2029 

Year 

2030 

Year 

2031 

Year 

2032 

Year 

2033 

Year 

2034 

TOTAL 
MFF 
2028 - 
2034 

0.492 

0.492 

0.492 

0.492 

0.492 

0.492 

0.492 

3.444 

0.492 

0.492 

0.492 

0.492 

0.492 

0.492 

0.492 

3.444 

37 

37 

37 

37 

37 

37 

37 

259 

37 

37 

37 

37 

37 

37 

37 

259 

TOTAL 

37.492 

37.492 

37.492 

37.492 

37.492 

37.492 

37.492 

262.444 

EN 

21 

  EN 

 
 
 
 
 
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:  
Appropriations in EUR million (to three decimal places) 

Year  
2028 

Year  
2029 

Year  
2030 

Year  
2031 

Year  
2032 

Year  
2033 

Year  
2034 

Total 

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 

Appropriation
s available for 
the current 
financial year 

Budget revenue line: 

Article ………… 

EUR million (to three decimal places) 

Impact of the proposal/initiative 

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). 

[…] 

EN 

22 

  EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
4. 

DIGITAL DIMENSIONS 

4.1. 

Requirements of digital relevance 

The Justice programme has key digital relevance as it will continue to fund a number of 
EU-level IT systems supporting cross-border judicial cooperation. These systems ensure 
the  implementation  of  different  legal  instruments  and  the  proper  functioning  of  the 
cross-border judicial cooperation. 

Actors affected 
or concerned 
by the 
requirement 

European 
Commission; 
Beneficiaries 

High-level 
Processes 

Categories 

Digital 
solutions 

Programme 
implementation 
through direct 
grant 
management 

European 
Commission; 
Beneficiaries 

Programme 
implementation
, monitoring 
and evaluation 

Digital 
solutions, data 

European 
Commission; 
Beneficiaries 

Dissemination, 
support to the 
Programme 

Digital 
solutions 

Reference to 
the 
requirement 

Requirement 
description 

Article 4 

Article 3, par. 1 

Article 3, par. 2 
(b) 

Article 4 

[…] 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… 

[…] as well as 
to the 
digitalisation of 
justice at EU 
level. 

[…] promoting 
the rule of law, 
fundamental 
rights and 
democracy. 

[…] Technical 
and 
administrative 

EN 

23 

  EN 

 
 
 
 
 
 
 
 
European 
Commission; 
Beneficiaries 

Dissemination, 
support to the 
Programme 

Digital 
solutions 

assistance for 
the 
implementation 
of the 
Programme 
such as… 
information and 
communication 
activities, 
including 
corporate 
communication 
on the political 
priorities of the 
Union. 

[…] promoting 
efficient civil 
and criminal 
procedures 
and… 
promoting… 
the rights of all 
victims of 
crime and the 
procedural 
rights of 
suspects and 
accused persons 
in criminal 
proceedings as 
well as of 
requested 
persons in 
EAW 
proceedings. 

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

Article 3, par. 2 
(c) 

Article 4 

EN 

24 

  EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
such as… 
information and 
communication 
activities, 
including 
corporate 
communication 
on the political 
priorities of the 
Union. 

4.2. 

Data 

Type of data 

Reference(s) to the 
requirement 

Standard and/or 
specification (if 
applicable) 

Countries, 
budget,  participants 
priorities per project 

organisations, 
and 

Article 4, Article 3, par. 1 
and par. 2 (b) and (c) 

Regulation 
[Performance Regulation] 

(EU)  XXX 

reporting 

Commission 
and 
databases, 
eGrants. 

monitoring 
tools  and 
including 

Alignment with the European Data Strategy 

The  provisions  under  the  proposal  support  interoperability,  reusability,  and  secure  data 
sharing,  in  line  with  the  European  Data  Strategy.  Where  personal  data  are  processed  (e.g. 
participants), it aligns with the General Data Protection Regulation (GDPR)1. The architecture 
is  also  consistent  with  the  Open  Data  Directive2,  as  relevant  aggregated,  non-personal  data 
may be made available for reuse by researchers or public bodies. 

Alignment with EU Digital Identity Framework 

The  proposal  aligns  with  the  EU  Digital  Identity  Framework,  which  enables  secure 
identification  and  the  use  of  electronic  attestations  of  attributes  to  verify  specific 
characteristics  or  qualifications  of  individuals,  economic  operators  and  organisations, 
including  in  the  context  of  justice  and  legal  proceedings.  Furthermore,  the  proposal  will  be 
compatible  with  the  forthcoming  European  Business  Wallets,  which  will  further  enable  the 
sharing  of  attestations  in  professional  contexts,  such  as  in  cross-border  legal  proceedings, 
allowing  legal  professionals  and  businesses  to  securely  and  efficiently  share  verified 
information  with  courts,  public  administrations,  and  other  partners,  thereby  reducing 
administrative burdens and increasing trust in digital justice systems. 

1 
Regulation (EU) 2016/679 of the European Parliament and of the Council of 27 April 2016 on the protection of natural persons 
with  regard  to  the  processing  of  personal  data  and  on  the  free  movement  of  such  data,  and  repealing  Directive  95/46/EC  (General  Data 
Protection Regulation),  OJ L 119, 4.5.2016, pp. 1–88, ELI: http://data.europa.eu/eli/reg/2016/679/oj. 
2 
sector information (recast), OJ L 172, 26.6.2019, pp. 56–83, ELI: http://data.europa.eu/eli/dir/2019/1024/oj. 

Directive (EU) 2019/1024 of the European Parliament and of the Council of 20 June 2019 on open data and the re-use of public 

EN 

25 

  EN 

 
 
 
 
 
 
Alignment with the once-only principle 

Dashboards established are the source of traceability and reusability of the data available from 
the Programme implementation. Data comes from the project lifecycle tools/documents (e.g. 
application forms, final  reports, participant surveys). Traceability and reusability 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 
Regulation]  regarding  transparency  of  information  on  programmes  performance  and 
achievements through the Single Gateway portal. 

Data flows 

Type 
data 

of 

Countries, 
organisation
budget, 
s, 
participants 
and 
priorities 
per project 

Reference(s) 
to 
the 
requirement(
s) 

Article 4, 
Article 3,  par. 
1  and  par.  2 
(b) and (c) 

Regulation 
(EU) XXX 
[Performance 
Regulation] 

Actor  who 
provides 
the data 

Actor  who 
receives 
the data 

Trigger 
the 
exchange 

for 
data 

Frequency  (if 
applicable) 

Beneficiari
es 

General 
public 
Commissio
n European 
Parliament 
Council  of 
the 
European 
Union 

XXX 

Regulation 
(EU) 
[Performance 
Regulation]: 
Article  XXX 
(monitoring) 
and 
XXX 
(implementati
on  report  and 
retrospective 
evaluations). 

Article 

XXX 

Regulation 
(EU) 
[Performance 
Regulation]: 
Article  XXX 
(monitoring) 
and 
XXX 
(implementati
on  report  and 
retrospective 
evaluations). 

Article 

Regular 
programme 
reporting 

General comment: 

The exchange of data between the Member States is of key importance for the success of the 
various  initiatives  in  the  field  of  digitalisation  of  justice.  A  number  of  initiatives  are 
dependent  on  data  and  its  availability.  A  good  example  is  the  EU  Strategy  for  the 
digitalisation of justice, planned to be adopted by the end of 2025. Another example for the 
exchange of data is the European Legal Data Space3, which aims to ensure the availability of 
judicial  data,  including  for  the  purposes  of  training  AI.  All  these  systems  will  be  supported 
and sustained through the Justice programme. 

4.3. 

Digital solutions 

Digital 

Reference(s Main 

Responsi How 

is  How 

is  Use  of  AI 

3 

https://data.europa.eu/en/ELDS. 

EN 

26 

  EN 

 
 
 
solution 

) 
the 
to 
requiremen
t(s) 

mandated 
functionalit
ies 

ble body 

accessibil
ity 
catered 
for? 

reusabilit
y 
considere
d? 

technologi
(if 
es 
applicable
) 

Article 4 

Direct 
Grant 
Managemen
t 

European 
Commissi
on 

// 

In 
accordanc
e 
with 
Commissi
on 
Standard 

Disseminate 
Programme
’s results 

European 
Commissi
on 

Article 3, 
par.  1  and 
(b) 
par.  2 
and  (c)  and 
Article 4 

// 

In 
accordanc
with 
e 
Commissi
on 
Standard 

– 

Digital 
solution 
#1 
Direct 
Grant 
Managem
ent 
platform 

Digital 
solution 
– 
#2 
Platform(s
) 
to 
support 
the 
Programm
e 

Digital solution #1 - Direct Grant Management platform 

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

Explanation on how it aligns 

use 

The 
platform 
shall 
leverage 
the 
artificial 
intelligenc
e  where 
relevant 
and 
adhering 
with 
precaution
ary 
principle. 

the 

use 

shall 

The 
platform(s
) 
leverage 
the 
artificial 
intelligenc
e  where 
relevant 
and 
adhering 
with 
precaution
ary 
principle. 

the 

EN 

27 

  EN 

 
 
 
 
AI Act4 

EU Cybersecurity framework5 

EU  Digital 
European Business Wallets 

Identity 

Framework, 

leveraging  AI, 

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

to  Regulation  (EU) 
Without  prejudice 
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 

In accordance with the EU Digital Identity 
Framework,  the  Commission  shall  ensure 
that  the  grant  management  platform  is 
interoperable  with  the  EU  Digital  Identity 
Wallets  and  the  forthcoming  European 
Business  Wallets  to  enable  identification, 
authentication,  the  exchange  of  electronic 
attestations of attributes and the use of trust 
services.” 

Single Digital Gateway6 and IMI7 

Others 

NA 

NA 

Digital solution #2 - Platform(s) to support the Programme 

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

Explanation on how it aligns 

AI Act 

EU Cybersecurity framework 

leveraging  AI, 

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

to  Regulation  (EU) 
Without  prejudice 
2016/679,  the  European  Commission  shall 
ensure  the  security,  integrity,  authenticity 

4 
Regulation  (EU) 2024/1689  of  the  European  Parliament  and of the Council of 13  June 2024  laying  down harmonised  rules  on 
artificial intelligence and amending Regulations (EC) No 300/2008, (EU) No 167/2013, (EU) No 168/2013, (EU) 2018/858, (EU) 2018/1139 
and  (EU)  2019/2144  and  Directives  2014/90/EU,  (EU)  2016/797  and  (EU)  2020/1828  (Artificial  Intelligence  Act),  OJ  L,  2024/1689, 
12.7.2024, ELI: http://data.europa.eu/eli/reg/2024/1689/oj. 
5 
Regulation (EU, Euratom) 2023/2841 of the European Parliament and of the Council of 13 December 2023 laying down measures 
for  a  high  common  level  of  cybersecurity  at  the  institutions,  bodies,  offices  and  agencies  of  the  Union,  OJ  L,  2023/2841,  18.12.2023, 
ELI: http://data.europa.eu/eli/reg/2023/2841/oj. 
6 
https://single-market-economy.ec.europa.eu/single-market/single-digital-gateway_en. 
7 
Regulation (EU) No 1024/2012 of the European Parliament and of the Council of 25 October 2012 on administrative cooperation 
through  the  Internal  Market  Information  System  and  repealing  Commission  Decision  2008/49/EC  (  ‘the  IMI  Regulation’  ),  OJ  L  316, 
14.11.2012, pp. 1–11, ELI: http://data.europa.eu/eli/reg/2012/1024/oj. 

EN 

28 

  EN 

 
 
 
 
 
 
EU  Digital 
European Business Wallets 

Identity 

Framework, 

and confidentiality of the data collected and 
stored for the purpose of this regulation 

In accordance with the EU Digital Identity 
Framework,  the  Commission  shall  ensure 
that  these  platforms  are  interoperable  with 
the  EU  Digital  Identity  Wallets  and  the 
forthcoming European Business Wallets to 
enable  identification,  authentication,  the 
exchange  of  electronic  attestations  of 
attributes and the use of trust services.”  

Single Digital Gateway and IMI 

Others 

NA 

NA 

General comment: 

The Justice programme will continue to fund a number of digital solutions, which have been 
developed over the years, as well as will support the development of new IT systems. Some 
examples of IT systems, which will be funded by the continuation of the Justice programme, 
are  the  European  e-Justice  Portal,  which  is  a  one  stop-shop  for  all  justice  matters,  and  the 
decentralised IT system developed under Regulation (EU) 2023/28448 for the digitalisation of 
cross-border  judicial  cooperation.  The  Justice  programme  is  used  to  fund  IT  systems  at  EU 
level stemming from legal instruments or from the voluntary cooperation of Member States. 
In both  cases,  these are  systems  with  high  political  and operational  importance  for Member 
States,  which  support  the  smooth  day-to-day  functioning  of  the  justice  sector  by  enhancing 
efficiency and ensuring interoperability. 

4.4. 

Interoperability assessment 

Interoperability  is  essential  for  the  success  of  the  different  IT  systems  and  tools.  The 
Justice programme promotes the interoperability of national systems in order to facilitate 
their  interconnection  at  EU  level  and  the  possibility  to  develop  decentralised  systems, 
facilitating cross-border cooperation. Systems developed at EU level are set up with the 
idea that all Member States should be able to connect their national systems to a central 
one,  but  mostly  between  each  other,  by  using  commonly  agreed  digital  procedural 
standards as  provided by the Digitalisation Regulation.  The EU-level  solution  needs  to 
be interoperable on its own to allow and support the integration with existing and newly 
developed national solutions. 

4.5.  Measures to support digital implementation 

In  connection  with  the  future  planning,  all  justice-related  legal  instruments  foresee,  or 

8 
Regulation (EU) 2023/2844 of the European Parliament and of the Council of 13 December 2023 on the digitalisation of judicial 
cooperation and access to justice in cross-border civil, commercial and criminal matters, and amending certain acts in the field of judicial 
cooperation, OJ L, 2023/2844, 27.12.2023, ELI: http://data.europa.eu/eli/reg/2023/2844/oj. 

EN 

29 

  EN 

 
 
 
 
 
 
are expected to foresee,  a certain  level  of digitalisation. This  will create the obligation 
for  the  EU  to  develop  new  systems  and  solutions  but  also  for  the  Member  States  to 
connect to those systems. In this regard, the Justice programme will support the digital 
implementation  through  different  measures.  This  might  include  ICT  procurement 
procedures, internal development of the EU-level solution and support for the Member 
States in the form of exchange of expertise, provision of action grants or others. 

EN 

30 

  EN