Source: EURLEX
Language: en
Format: md

**Council of the**
**European Union**
**Brussels, 17 July 2025**
**(OR. en)**

**11771/25**

**Interinstitutional File:**

**2025/0550 (COD)**

**CULT 87** **SAN 473**

**AUDIO 67** **IND 286**

**FREMP 211** **COMPET 761**

**CODEC 1050** **PROCIV 103**

**CADREFIN 113** **HYBRID 97**

**FIN 901** **DISINFO 67**

**IA 93** **JAI 1102**

**JEUN 202** **SERVICES 33**

**EDUC 331** **POLGEN 96**

**CULT HERIT 9** **MI 559**

**SOC 535** **RELEX 1031**

**GENDER 165** **INF 118**

**DIGIT 149** **COPEN 225**

**DATAPROTECT 162 JUSTCIV 136**

**ANTIDISCRIM 75** **DROIPEN 89**

**PROPOSAL**

From: Secretary-General of the European Commission, signed by Ms Martine
DEPREZ, Director

date of receipt: 17 July 2025

To: Ms Thérèse BLANCHET, Secretary-General of the Council of the
European Union

No. Cion doc.: COM(2025) 550 final

Subject: Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND
OF THE COUNCIL establishing the 'AgoraEU' programme for the period
2028-2034, and repealing Regulations (EU) 2021/692 and (EU)
2021/818

Delegations will find attached document COM(2025) 550 final.

Encl.: COM(2025) 550 final

11771/25

## TREE.1.B EN

EUROPEAN

COMMISSION

Brussels, 16.7.2025
COM(2025) 550 final

2025/0550 (COD)

Proposal for a

**REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL**

**establishing the 'AgoraEU' programme for the period 2028-2034, and repealing**

**Regulations (EU) 2021/692 and (EU) 2021/818**

{SEC(2025) 547 final} - {SWD(2025) 550 final} - {SWD(2025) 551 final}

# **EN EN**

**EXPLANATORY MEMORANDUM**

**1.** **CONTEXT** **OF** **THE** **PROPOSAL**

**•** **Reasons for and objectives of the proposal**

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

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

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

response.

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

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

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

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

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

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

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

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

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

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

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

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

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

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

**•** **Consistency with existing policy provisions in the policy area**

_Fundamental rights, EU values and democracy_

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

# EN 3 EN

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

The European Union’s commitment to equality is anchored in numerous key communications
and action plans. The European Commission’s 2020 Strategy for the Equality of LGBTIQ
People and the 2021 Gender Equality Strategy underscore the EU’s dedication to tackling
discrimination and promoting equality across all aspects of society. Both strategies will be
renewed, as the current ones end in 2025. These are complemented by the upcoming EU AntiRacism Strategy 2026-2030, the EU Roma Strategic Framework for Equality, Inclusion and

– –
Participation (2020 2030), the Strategy for the Rights of Persons with Disabilities (2021
2030), and the EU Strategy on the Rights of the Child, the EU Strategy on combating
antisemitism and fostering Jewish life (2021-2030) and the work strand on combatting antiMuslim hatred. The upcoming Intergenerational Fairness Strategy is also of relevance in this

context.

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

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

_Media and audiovisual_

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

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

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

# EN 4 EN

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

_Culture_

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

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

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

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

**•** **Consistency with other Union policies**

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

_Consistency with policies supporting people, strengthening our societies and our social model_

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

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

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

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

_Consistency with justice policies_

The alignment between justice policies and the rule of law creates a robust framework that
ensures accountability, promotes legal coherence across and within Member States, and
protects fundamental rights, thereby enhancing trust and cooperation within the Union. The
relationship between fundamental rights and justice policies is key in shaping fair and

–
equitable societies. Fundamental rights ranging from the right to a fair trial, freedom from

–
discrimination to the protection of privacy define the essential standards that justice systems
must uphold, and translate abstract principles into concrete legal measures and practices. For
instance, anti-discrimination laws enforce the principle of equality before the law.

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

_Consistency with policies for the Single Market and competitiveness_

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

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

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

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

Programme.

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

_Consistency with policies for a global Europe_

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

**2.** **LEGAL** **BASIS,** **SUBSIDIARITY** **AND** **PROPORTIONALITY**

**•** **Legal basis**

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

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

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

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

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

**Article 24 TFEU** obliges the European Parliament and the Council to adopt provisions for the
procedures and conditions required for a citizens’ initiative within the meaning of Article 11
TEU. This has been done by adopting Regulation (EU) 2019/788 of the European Parliament
and of the Council [1] . The Programme should support the financing of technical and
organisational support for the implementation of that Regulation, thereby underpinning the
exercise by citizens of the right to launch and support European citizens’ initiatives. Together
with the other rights set out in Article 24 TFEU, that right ensures citizens’ direct
participation in the democratic life of the Union.

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

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

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

**•** **Subsidiarity (for non-exclusive competence)**

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

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

1 OJ L 130, 17.5.2019, p. 55–81

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

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

**•** **Proportionality**

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

purposes.

**•** **Choice of the instrument**

The new ‘AgoraEU’ Programme builds primarily on the Creative Europe Programme (20212027), the Citizens, Equality, Rights and Values (CERV) Programme (2021-2027) and
existing prerogative lines, bringing together EU financial support to sustain culture, media
and Union values. The new instrument takes into account the specific features of the different
sectors, their different target groups, and particular needs, while ensuring synergies and
complementarities.

**3.** **RESULTS** **OF** **EX-POST** **EVALUATIONS,** **STAKEHOLDER**
**CONSULTATIONS** **AND** **IMPACT** **ASSESSMENTS**

**•** **Ex-post evaluations/fitness checks of existing legislation**

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

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

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

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

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

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

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

**•** **Stakeholder consultations**

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

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

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

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

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

**•** **Collection and use of expertise**

The proposal has been informed by external reports and assessments.

# EN 10 EN

The proposal has been informed by a wealth of studies and reports, such as from the European
Parliament, the EU Agency for Fundamental Rights and the European Institute for Gender
Equality, which point towards the growing and serious challenges testing fundamental rights
and values in the EU as well as the resilience of our democratic institutions [2] .

In the field of media and audiovisual, it has relied on the conclusions of the 2023 European
Media Industry Outlook [3], which provided valuable insights into the structural challenges of
the media and audiovisual industries (incl. gaming). Media companies in the EU are under
increasing pressure from global competitors for users’ attention and revenue. Consumer
spending and media consumption have stagnated since the COVID-19 pandemic, with digital
platforms aggregating more content and capturing more ad revenue than traditional media.
T he sectors also struggle with high technology adoption costs, limited private investment, and
heavy dependence on non-EU technologies. In addition, the report revealed that, in the EU,
the circulation of audiovisual works across borders is limited, hindering the industry’s
potential. Meanwhile, the viability of news media is increasingly at risk, with declining
revenues, shrinking employment, and limited consumer trust.

In the field of culture and creative sectors, the proposal has been informed by thematic
meetings, findings of independent studies, Council conclusions [4], resolutions from the
European Parliament [5], the evaluation of the European Heritage Label action [6] and the first
interim evaluation of the European Capital of Culture action for the year 2020-2033 [7], as well
as recommendations made by experts from Member States in the context of the Open Method
of Coordination on culture [8] . These various sources underline the persisting relevance of the
Culture strand of Creative Europe while pointing at areas of improvement, in particular in
connection with the digital and green transitions and the surge of AI, working conditions of
artists and cultural and creative professionals, as well as the international context.

2 Including the EP 2021/2103(INI) on “The shrinking space of civil society in Europe”; the FRA Report
on “Protecting civil society – update 2023”; the EIGE Gender Equality Index 2024: Tackling violence against
women, tackling gender inequalities.
3 The second edition of the Media Industry Outlook will be published in July 2025.
4 In particular, Council conclusion of May 2025 on supporting young artists and cultural and creative
professionals in starting their careers, Council Conclusions of November 2024 on improving and fostering access
to culture, Council conclusions of May 2024 on empowering the cultural and creative sectors through datadriven audience development and Council Conclusions of May 2023 on at-risk and displaced artists.
5 European Parliament resolution of 17 January 2024 on cultural diversity and the conditions for authors
[in the European music streaming market (2023/2054(INI)), European Parliament resolution of 16 January 2024](https://oeil.secure.europarl.europa.eu/oeil/popups/ficheprocedure.do?lang=en&reference=2023/2054(INI))
[on the implementation of the Creative Europe Programme 2021-2027 (2023/2003(INI)), European Parliament](https://oeil.secure.europarl.europa.eu/oeil/popups/ficheprocedure.do?lang=en&reference=2023/2003(INI))
resolution of 21 November 2023 with recommendations to the Commission on an EU framework for the social

[and professional situation of artists and workers in the cultural and creative sectors (2023/2051(INI)), European](https://oeil.secure.europarl.europa.eu/oeil/popups/ficheprocedure.do?lang=en&reference=2023/2051(INL))
[Parliament resolution of 14 September 2023 on the future of the European book sector (2023/2053(INI)),](https://oeil.secure.europarl.europa.eu/oeil/popups/ficheprocedure.do?lang=en&reference=2023/2053(INI))
European Parliament resolution of 14 December 2022 on the implementation of the New European Agenda for
[Culture and the EU Strategy for International Cultural Relations (2022/2047(INI)), European Parliament](https://oeil.secure.europarl.europa.eu/oeil/popups/ficheprocedure.do?lang=en&reference=2022/2047(INI))
[resolution of 20 October 2021 on the situation of artists and the cultural recovery in the EU (2020/2261(INI)](https://oeil.secure.europarl.europa.eu/oeil/popups/ficheprocedure.do?lang=en&reference=2020/2261(INI))
6 Evaluation of the European Heritage Label (EHL) action for the period 2018-2024,, conducted by PPMI
for the European Commission (July 2025).
7 –
First Interim Evaluation of the European Capital of Culture Action 2020 2033, conducted by Ecorys
and KEA European Affairs for the European Commission (July 2025).
8 In particular, OMC Working Group of Member States’ experts of June 2023 ‘The status and working
conditions of artists and cultural and creative professionals’ and OMC Working Group of Member States’
Experts of 4 June 2021 entitled ‘Towards gender equality in the cultural and creative sectors’.

# EN 11 EN

**•** **Impact assessment**

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

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

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

The evaluation of the options and their impacts highlighted that an integration based on policy
objectives (objective-based merger) would offer better potential compared to the two
alternatives. It would allow for reinforced coordination, targeted flexibility, and a more

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

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

# EN 12 EN

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

**•** **Regulatory fitness and simplification**

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

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

**•** **Fundamental rights**

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

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

**4.** **BUDGETARY** **IMPLICATIONS**

see Annex

**5.** **OTHER** **ELEMENTS**

**•** **Implementation plans and monitoring, evaluation and reporting arrangements**

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

# EN 13 EN

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

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

**•** **Detailed explanation of the specific provisions of the proposal**

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

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

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

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

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

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

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

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

(a) Contribute to protecting and promoting fundamental rights, equality and nondiscrimination and Union citizens’ rights enshrined in the Treaties including free
movement of citizens, and empowering civil society.

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

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

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

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

# EN 14 EN

2025/0550 (COD)

Proposal for a

**REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL**

**establishing the 'AgoraEU' programme for the period 2028-2034, and repealing**

**Regulations (EU) 2021/692 and (EU) 2021/818**

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,

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

Having regard to the proposal from the European Commission,

After transmission of the draft legislative act to the national parliaments,

Having regard to the opinion of the European Economic and Social Committee [9],

Having regard to the opinion of the Committee of the Regions [10],

Acting in accordance with the ordinary legislative procedure

Whereas:

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

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

9 OJ C,, p. .
10 OJ C,, p. .

# EN 15 EN

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

(4) The Programme should succeed the Creative Europe Programme established by
Regulation (EU) 2021/818 of the European Parliament and the Council [11] and the
Citizens, Equality, Rights and Values Programme, established by Regulation (EU)
2021/692 of the European Parliament and of the Council [12] . It should streamline
various funding actions in support of media freedom and pluralism, fight against
disinformation in support of the provision on information on Union affairs. Free and
pluralistic media and civil society are among key watchdogs of the Union’s
democratic systems, playing a crucial role for democratic resilience, and should be
supported. The Programme should also support the cultural, creative and media
sectors, harness the power of culture and cultural diversity, enhance the information
space, and support the Union’s efforts to strengthen a rights-based, inclusive, equal
and democratic society. This Regulation lays down an indicative financial envelope
for the ‘AgoraEU’ Programme [13] . For the purpose of this Regulation, current prices are
calculated by applying a fixed 2% deflator.

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

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

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

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

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

# EN 16 EN

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

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

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

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

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

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

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

# EN 17 EN

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

(15) The protection and promotion of fundamental rights contributes to the construction of
a more democratic Union. Non-discrimination is a core principle of the Union
enshrined in Article 19 TFEU and in Article 21 of the Charter. Working towards an
equal and discrimination-free society contributes to untapping the potential of
individuals in their diversity and to cultural, economic and social growth. It also helps
to address important root causes of violence against vulnerable groups, which in turn
is a frontal attack on equality. Therefore, the Programme should promote actions to
address all forms of discrimination and intolerance, namely direct and indirect
discrimination, paying attention to the specific forms of structural and intersectional
discrimination, with a view to supporting relevant Union policy frameworks. The
Programme should support actions to prevent and combat all forms of xenophobia and
racism, antisemitism and anti-Muslim hatred, homophobia, biphobia, transphobia,
interphobia, intolerance and discrimination based on gender identity, intolerance
towards persons belonging to minorities including Roma, as well as hate speech. The
Programme should also contribute to enabling the Union to deliver on the commitment
taken as Party to the UN Convention on the Rights of Persons with Disabilities
adopted on 13 December 2006 [14] to promote, protect and ensure the full and equal
enjoyment of all human rights and fundamental freedoms by all persons with
disabilities.

(16) The rights to privacy and the protection of personal data, enshrined respectively in
Article 7 of the Charter and in Article 16 TFEU and Article 8 of the Charter, are
enforced through a dedicated Regulation [15] and Directive [16] . The Union’s legal
framework lays down provisions to ensure that the right to protection of personal data
is effectively protected. These legal instruments entrust the national data protection
supervisory authorities with the task of promoting public awareness and understanding
the risks, rules, safeguards and rights in relation to the processing of personal data.
The Programme should contribute to raising awareness, carry out studies and other
relevant activities in this field, including through the national data protection
supervisory authorities, given the importance of the right to the protection of personal
data in times of rapid technological developments.

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

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

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

# EN 18 EN

in all social and economic contexts. Violence against women and persons belonging
to other groups at risk is a violation of human rights and a frontal attack on equality.
Thus, preventing and addressing such violence is a societal imperative and contributes
to tackling such discrimination as well as addressing the impacts of violence,
including on health. At the same time, ensuring a discrimination-free society will also
help address the root causes of violence against vulnerable groups, since they are
intrinsically linked. Therefore, the Programme should continue the longstanding
Union effort in preventing, responding to and fighting violence at all levels as well as
in protecting and supporting all direct and indirect victims and survivors of violence,
building on the five consecutive generations of the Daphne programme and strand [17] .
The Programme should support the achievement of the objectives of the Council of
Europe Convention on preventing and combating violence against women adopted in
Istanbul on 11 May 2011, the implementation of the Commission Recommendation on
developing and strengthening integrated child protection systems in the best interests
of the child [18], which protects children from any form of violence, as well as contribute
to enabling the Union to deliver on the commitment taken as Party to the UN
Convention on the Rights of Persons with Disabilities, which protects persons with
disabilities against any form of exploitation, violence and abuse.

(19) In accordance with Union acquis on equal treatment, the Member States have set up
independent bodies for the promotion of equal treatment (‘equality bodies’), which
play a key role in promoting equality and ensuring the effective application of equal
treatment legislation. Further, the Programme should support the European Network of
Equality Bodies (Equinet) composed of the national equality bodies as provided for by
Council Directive (EU) 2024/1499 [19] and Directive (EU) 2024/1500 of the European
Parliament and of the Council [20], since Equinet is the only entity which ensures
coordination of activities between equality bodies. This is of key importance for the
effective implementation of Union anti-discrimination law in the Member States.

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

17
[Three consecutive generations of the Daphne programme ( OJ L 34, 9.2.2000, p. 1; OJ L 143,](https://eur-lex.europa.eu/legal-content/EN/AUTO/?uri=OJ:L:2000:034:TOC)
[30.4.2004, p. 1; OJ L 173, 3.7.2007, p. 19–26), and the results of the Daphne strands of the Rights, Equality and](https://eur-lex.europa.eu/legal-content/EN/AUTO/?uri=OJ:L:2004:143:TOC)

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

# EN 19 EN

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

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

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

(23) Civil society organisations, and other civic space actors, such as independent human
rights bodies, equality bodies and Ombudspersons Institutions, play a vital role in
contributing to the implementation of policy, encouraging people’s participation,
holding institutions accountable, and driving positive change. The Programme should
help ensure sufficient resources and an enabling environment for them to operate
independently, freely, safely, and effectively. To this end, Union funding should
complement efforts at national level by supporting, protecting, empowering and
building their capacity, as emphasised in the European Parliament resolution of 19
April 2018 [21], as well as Council conclusions of 10 March 2023 [22] and 7 March 2025 [23] .
Civil society also plays an important role in ensuring an effective implementation of
Directive (EU) 2019/1937 of the European Parliament and of the Council [24] by
fostering a speak-up culture and a favourable environment for whistleblowers.

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

21 2018/2619(RSP) (OJ C 390, 18.11.2019, p. 117–119, [https://eur-lex.europa.eu/legal](https://eur-lex.europa.eu/legal%20content/EN/TXT/?uri=oj:JOC_2019_390_R_0017)
[content/EN/TXT/?uri=oj:JOC_2019_390_R_0017)](https://eur-lex.europa.eu/legal%20content/EN/TXT/?uri=oj:JOC_2019_390_R_0017)
22 ST-7388/23, Council Conclusions on the application of the EU Charter of Fundamental Rights; The role
of the civic space in protecting and promoting fundamental rights in the EU
23 ST-6878/25, Council Conclusions on the application of the EU Charter of Fundamental Rights: funding
to promote, protect and enforce fundamental rights
24 Directive (EU) 2019/1937 of the European Parliament and of the Council of 23 October 2019 on the
protection of persons who report breaches of Union law (OJ L 305, 26.11.2019, p. 17,
[ELI: http://data.europa.eu/eli/dir/2019/1937/oj).](http://data.europa.eu/eli/dir/2019/1937/oj)

# EN 20 EN

all the other Member States, and recognises that they share with it, the common values
contained in Article 2 TEU, on which the Union is founded [25] . That premise is based
on the specific and essential characteristics of Union law, including the autonomy it
enjoys in relation to the laws of the Member States and to international law. That
premise implies and justifies the existence of mutual trust between the Member States
that those values will be recognised and, therefore, that the Union law that implements
them will be respected. It follows that compliance by a Member State with the values
contained in Article 2 TEU is a condition for the enjoyment of all the rights deriving
from the application of the Treaties to that Member State. The Court of Justice of the
European Union has therefore confirmed that in the areas for which the Union is
competent, it can take action to ensure respect for the values set out in Article 2 TEU.

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

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

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

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

(29) The Programme should also support the financing of technical and organisational
support for the implementation of Regulation (EU)2019/788 of the European
Parliament and of the Council [26], thereby underpinning the exercise by citizens of the
right to launch and support European citizens’ initiatives. Together with the other
rights set out in Article 24 TFEU, that right ensures citizens’ direct participation in the
democratic life of the Union.

25 This stems directly from Opinion 2/13, EU:C:2014:2454, paragraph 168.
26 Regulation (EU) 2019/788 of the European Parliament and of the Council of 17 April 2019 on the
[European citizens' initiative (OJ L 130, 17.5.2019, p. 55, ELI: http://data.europa.eu/eli/reg/2019/788/oj).](http://data.europa.eu/eli/reg/2019/788/oj)

# EN 21 EN

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

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

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

(33) Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council [27]
applies to the Programme. It lays down the rules on the establishment and the
implementation of the general budget of the Union, including the rules on grants,
prizes, non-financial donations, procurement, indirect implementation, financial
assistance, financial instruments and budgetary guarantees.

(34) In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom)
No 883/2013 of the European Parliament and of the Council [28], Council Regulation
(EC, Euratom) No 2988/95 [29], Council Regulation (Euratom, EC) No 2185/96 [30] and
Council Regulation (EU) 2017/1939 [31], the financial interests of the Union are to be
protected through proportionate measures, including the prevention, detection,
correction and investigation of irregularities and fraud, the recovery of funds lost,
wrongly paid or incorrectly used and, where appropriate, the imposition of
administrative sanctions. In particular, in accordance with Regulations (EU, Euratom)
No 883/2013 and (Euratom, EC) No 2185/96, the European Anti-Fraud Office
(‘OLAF’) may carry out investigations, including on-the-spot checks and inspections,
with a view to establishing whether there has been fraud, corruption or any other
illegal activity affecting the financial interests of the Union. In accordance with
Regulation (EU) 2017/1939, the European Public Prosecutor's Office (EPPO) may

27 Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September
2024 on the financial rules applicable to the general budget of the Union (OJ L, 2024/2509, 26.9.2024, ELI:
http://data.europa.eu/eli/reg/2024/2509/oj).
28 Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council of 11
September 2013 concerning investigations conducted by the European Anti-Fraud Office (OLAF) and repealing
Regulation (EC) No 1073/1999 of the European Parliament and of the Council and Council Regulation
[(Euratom) No 1074/1999 (OJ L248, 18.9.2013, p. 1, ELI: http://data.europa.eu/eli/reg/2013/883/oj).](http://data.europa.eu/eli/reg/2013/883/oj)
29 Council Regulation (EC, Euratom) No 2988/95 of 18 December 1995 on the protection of the European
[Communities financial interests (OJ L 312, 23.12.95, p. 1, ELI: http://data.europa.eu/eli/reg/1995/2988/oj).](http://data.europa.eu/eli/reg/1995/2988/oj)
30 Council Regulation (Euratom, EC) No 2185/96 of 11 November 1996 concerning on-the-spot checks
and inspections carried out by the Commission in order to protect the European Communities' financial interests
against fraud and other irregularities (OJ L 292, 15.11.1996, p. 2,
[ELI: http://data.europa.eu/eli/reg/1996/2185/oj).](http://data.europa.eu/eli/reg/1996/2185/oj)
31 Council Regulation (EU) 2017/1939 of 12 October 2017 implementing enhanced cooperation on the
establishment of the European Public Prosecutor’s Office (‘the EPPO’) (OJ L 283, 31.10.2017, p. 1, ELI:
http://data.europa.eu/eli/reg/2017/1939/oj).

# EN 22 EN

investigate and prosecute fraud and other illegal activities affecting the financial
interests of the Union as provided for in Directive (EU) 2017/1371 of the European
Parliament and of the Council [32] . In accordance with Regulation (EU, Euratom)
2024/2509, any person or entity receiving Union funds is to fully cooperate in the
protection of the Union’s financial interests, to grant the necessary rights and access to
the Commission, OLAF, EPPO and the European Court of Auditors and to ensure that
any third parties involved in the implementation of Union funds grant equivalent
rights.

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

(36) The Programme should also support the role of Programme Desks, which Member
States have the possibility to establish, and which should provide guidance and
assistance to applicants on funding opportunities and cross-border collaborations,
contributing to the Programme’s outreach visibility and dissemination in accordance
with Regulation (EU) [XXX]* of the European Parliament and of the Council

[Performance]. Programme Desks should carry out their functions independently and
without interference from public authorities in their decision making, and ought not to
have any responsibility regarding the management of the programme [33] .

(37) Pursuant to Article 85(1) of Council Decision (EU) 2021/1764 [34], persons and entities
established in overseas countries and territories are eligible for funding subject to the
ruled objectives of the Programme and possible arrangements applicable to the
Member State to which the relevant overseas country or territory is linked.

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

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

# EN 23 EN

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

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

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

HAVE ADOPTED THIS REGULATION:

### **Chapter I** **General provisions**

_Article 1_

_**Subject matter**_

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

_Article 2_

_**Definitions**_

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

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

# EN 24 EN

_Article 3_

**Programme objectives**

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

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

(a) the ‘Creative Europe - Culture’ Strand shall:

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

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

while strengthening the social, economic and international dimensions of the

cultural and creative sectors (‘culture’);

(b) the ‘MEDIA+’ strand shall:

i. contribute to the cultural diversity and competitiveness of the audiovisual and

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

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

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

by supporting free and independent journalism and news media, enhancing

citizens’ access to trustworthy information and tackling disinformation

(‘news’);

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

i. contribute to protecting and promoting fundamental rights, equality and non

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

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

citizens and civil society’);

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

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

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

(‘democratic participation and rule of law’).

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

# EN 25 EN

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

### **Chapter II** **Creative Europe - Culture strand**

_Article 4_

_**Culture**_

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

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

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

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

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

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

(f) advancing the Union’s international cultural relations and contributing to
the Union’s external action objectives through cultural cooperation;

(g) supporting the implementation of the Decisions No 445/2014/EU [35] and
No 1194/2011/EU [36 ] of the European Parliament and the Council of the
Union.

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

# EN 26 EN

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

### **Chapter III** **MEDIA+ strand**

_Article 5_

_**Audiovisual**_

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

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

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

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

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

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

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

(g) contributing to the implementation of Directive 2010/13/EU of the
European Parliament and of the Council. [37]

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

# EN 27 EN

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

_Article 6_

_**News**_

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

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

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

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

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

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

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

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

# EN 28 EN

### **Chapter IV** CERV+ Strand

_Article 7_

_**Rights, equality, citizens and civil society**_

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

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

(b) promoting gender equality, gender mainstreaming and women’s empowerment,
and protecting and promoting women’s full enjoyment of rights;

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

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

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

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

_Article 8_

_**Daphne**_

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

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

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

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

# EN 29 EN

_Article 9_

_**Democratic participation and rule of law**_

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

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

(b) supporting free, fair, resilient, accessible and inclusive electoral and democratic

processes;

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

### **Chapter V** **Cross-cutting and horizontal priorities and activities**

_Article 10_

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

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

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

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

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

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

# EN 30 EN

### **Chapter VI** **Financial provisions**

_Article 11_

_**Budget**_

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

_2._ Budgetary commitments for activities extending over more than one financial year
may be broken down over several years into annual instalments.

3. 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.

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

_Article 12_

_**Additional resources**_

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

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

# EN 31 EN

_Article 13_

_**Alternative, combined and cumulative funding**_

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

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

_Article 14_

_**Third countries associated to the Programme**_

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

(a) members of the European Free Trade Association which are members of the
European Economic Area, as well as European micro-states;

(b) acceding countries, candidate countries and potential candidates;

(c) European Neighbourhood Policy countries;

(d) other third countries.

2. The Association Agreements for participation in the Programmes shall:

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

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

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

# EN 32 EN

(d) guarantee the rights of the Union to ensure sound financial management and to
protect its financial interests;

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

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

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

_Article 15_

_**Implementation and forms of Union funding**_

1. 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.

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

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

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

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

5. 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.

# EN 33 EN

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

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

_Article 16_

_**Eligibility**_

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

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

(a) entities established in a Member States;

(b) entities established in an associated third country;

(c) international organisations;

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

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

4. 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.

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

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

# EN 34 EN

_Article 17_

_**Work programme**_

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

### **Chapter VII** **Final provisions**

_Article 18_

_**Repeal**_

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

_Article 19_

_**Transitional provisions**_

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

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

_Article 20_

_**Entry into force and application**_

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

It shall apply from 1 January 2028.

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

Done at Brussels,

_For the European Parliament_ _For the Council_
_The President_ _The President_

# EN 35 EN

**LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT**

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

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

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

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

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

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

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

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

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

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

1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for
roll-out of the implementation of the initiative ............................................................ 4

1.5.2. Added value of EU involvement (it may result from different factors, e.g.
coordination gains, legal certainty, greater effectiveness or complementarities). For
the purposes of this section 'added value of EU involvement' is the value resulting
from EU action, that is additional to the value that would have been otherwise
created by Member States alone. ................................................................................. 4

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

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

1.5.5. Assessment of the different available financing options, including scope for
redeployment ................................................................................................................ 5

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

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

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

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

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

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

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

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between
the control costs and the value of the related funds managed), and assessment of the
expected levels of risk of error (at payment & at closure) ........................................... 8

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

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

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

# EN 1 EN

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

4.2. Data ............................................................................................................................ 30

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

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

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

# 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 ‘AgoraEU’ Programme and repealing regulations (EU) No 2021/692 and No
2021/818 for the period 2028-2034

**1.2.** **Policy area(s) concerned**

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

**1.3.** **Objective(s)**

_1.3.1._ _General objective(s)_

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

_1.3.2._ _Specific objective(s)_

The Programme will underpin the following specific objectives:

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

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

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

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

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

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

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

# EN 3 EN

_1.3.3._ _Expected result(s) and impact_

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

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

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

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

_1.3.4._ _Indicators of performance_

_Specify the indicators for monitoring progress and achievements._

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

[Performance].

**1.4.** **The proposal/initiative relates to:**

¨ a new action

¨ a new action following a pilot project / preparatory action [38]

☒ the extension of an existing action

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

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

# EN 4 EN

**1.5.** **Grounds for the proposal/initiative**

_1.5.1._ _Requirement(s) to be met in the short or long term including a detailed timeline for_
_roll-out of the implementation of the initiative_

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

_1.5.2._ _Added value of EU involvement (it may result from different factors, e.g._
_coordination gains, legal certainty, greater effectiveness or complementarities). For_
_the purposes of this section 'added value of EU involvement' is the value resulting_
_from EU action, that is additional to the value that would have been otherwise_
_created by Member States alone._

# EN 5 EN

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

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

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

_1.5.3._ _Lessons learned from similar experiences in the past_

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

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

_1.5.4._ _Compatibility with the multiannual financial framework and possible synergies with_
_other appropriate instruments_

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

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

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

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

# EN 6 EN

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

2) Synergies with justice policies

The alignment between justice policies and the rule of law creates a robust
framework that ensures accountability, promotes legal coherence across Member
States, and protects fundamental rights, thereby enhancing trust and cooperation
within the Union. The relationship between fundamental rights and justice policies is

–
key in shaping fair and equitable societies. Fundamental rights ranging from the
right to a fair trial, freedom from discrimination to the protection of privacy – define
the essential standards that justice systems must uphold, and translate abstract
principles into concrete legal measures and practices. For instance, antidiscrimination laws enforce the principle of equality before the law. Thus, the
synergy between fundamental rights and justice policies ensures that legal systems
not only prevent abuses but actively promote dignity, equality, and freedom. This
synergy is essential for building public trust in legal institutions, fostering social
cohesion, and ultimately ensuring that justice is accessible and meaningful for all
individuals. To this end, synergies will be fostered between this programme and the
future Justice programme.

3) Synergies with policies for the Single Market and competitiveness

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

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

4) Synergies with policies for a global Europe

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

_1.5.5._ _Assessment of the different available financing options, including scope for_
_redeployment_

**-**

# EN 7 EN

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

☒ **limited duration**

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

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

2028 to 203x for payment appropriations.

¨ **unlimited duration**

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

–
followed by full-scale operation.

**1.7.** **Method(s) of budget implementation planned**

☒ **Direct management** by the Commission

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

– ☒ by the executive agencies

¨ **Shared management** with the Member States

☒ **Indirect management** by entrusting budget implementation tasks to:

–
¨ third countries or the bodies they have designated

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

– ☒ the European Investment Bank and the European Investment Fund

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

– ☒ public law bodies (eg Pillar assessed bodies)

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

they are provided with adequate financial guarantees

– ☒ bodies governed by the private law of a Member State that are entrusted with

the implementation of a public-private partnership and that are provided with
adequate financial guarantees (Pillar assessed bodies)

–
¨ bodies or persons entrusted with the implementation of specific actions in the

common foreign and security policy pursuant to Title V of the Treaty on
European Union, and identified in the relevant basic act

–
¨ bodies established in a Member State, governed by the private law of a Member

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

Comments

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

# EN 8 EN

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

# EN 9 EN

**2.** **MANAGEMENT** **MEASURES**

**2.1.** **Monitoring and reporting rules**

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

[Performance].

**2.2.** **Management and control system(s)**

_2.2.1._ _Justification of the budget implementation method(s), the funding implementation_
_mechanism(s), the payment modalities and the control strategy proposed_

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

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

_2.2.2._ _Information concerning the risks identified and the internal control system(s) set up_
_to mitigate them_

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

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

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

# EN 10 EN

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

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

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

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

_2.2.3._ _Estimation and justification of the cost-effectiveness of the controls (ratio between_
_the control costs and the value of the related funds managed), and assessment of the_
_expected levels of risk of error (at payment & at closure)_

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

**2.3.** **Measures to prevent fraud and irregularities**

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

responses.

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

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

# EN 11 EN

**3.** **ESTIMATED** **FINANCIAL** **IMPACT** **OF** **THE** **PROPOSAL/INITIATIVE**

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

    - New budget lines requested

_In order of multiannual financial framework headings and budget lines._

|Heading of<br>multiannual<br>financial<br>framework|Budget line|Type of<br>expenditure|Contribution|Col5|Col6|Col7|
|---|---|---|---|---|---|---|
|Heading of<br>multiannual<br>financial<br>framework|Number <br>|Diff./Non-<br>diff.|from<br>EFTA<br>countries|from<br>candidate<br>countries<br>and<br>potential<br>candidates|from<br>other<br>third<br>countries|other assigned<br>revenue|
|2|06 01 02 Support expenditure for<br>‘AgoraEU’ <br>|Non-diff|YES/NO|YES/NO|YES/NO|YES/NO|
|2|06 03 01 Creative Europe - Culture <br>|Diff.|YES/NO|YES/NO|YES/NO|YES/NO|
|2|06 03 02 MEDIA+ <br>|Diff.|YES/NO|YES/NO|YES/NO|YES/NO|
|2|06 03 03 CERV+ <br>|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_

**Heading of multiannual financial framework** 2

EUR million (to three decimal places)

|Year<br>2028|Col2|Col3|Year|Year|Year|Year|Year|Year|Year|TOTAL MFF 2028-<br>2034|
|---|---|---|---|---|---|---|---|---|---|---|
|<br>Year<br>**2028**|<br>Year<br>**2028**|<br>Year<br>**2028**|Year|**2029**|**2030**|**2031**|**2032**|**2033**|**2034**|**2034**|
|Operational appropriations|Operational appropriations|Operational appropriations|Operational appropriations|Operational appropriations|Operational appropriations|Operational appropriations|Operational appropriations|Operational appropriations|Operational appropriations|Operational appropriations|
|Budget line 06 03 01 Creative Europe - Culture|Commitments|(1a)|0,230|0,238|0,247|0,256|0,265|0,275|0,285|1,796|
|Budget line 06 03 01 Creative Europe - Culture|Payments|(2a)|pm|pm|pm|pm|pm|pm|pm|**pm**|
|Budget line 06 03 02 MEDIA+|Commitments|(1b)|0,409|0,424|0,439|0,455|0,472|0,489|0,506|3,194|
|Budget line 06 03 02 MEDIA+|Payments|(2b)|pm|pm|pm|pm|pm|pm|pm|**pm**|
|Budget line 06 03 03 CERV+|Commitments|(1c)|0,460|0,477|0,494|0,512|0,531|0,550|0,569|3,593|
|Budget line 06 03 03 CERV+|Payments|(2c)|pm|pm|pm|pm|pm|pm|pm|**pm**|
|Of which: 06 03 03 01 Equality, Rights, Citizens<br>and Values|Commitments||pm|pm|pm|pm|pm|pm|pm|**pm**|
|Of which: 06 03 03 01 Equality, Rights, Citizens<br>and Values|Payments||pm|pm|pm|pm|pm|pm|pm|**pm**|
|Of which: 06 03 03 02 Democratic participation<br>and rule of law|Commitments||pm|pm|pm|pm|pm|pm|pm|**pm**|
|Of which: 06 03 03 02 Democratic participation<br>and rule of law|Payments||pm|pm|pm|pm|pm|pm|pm|**pm**|
|Of which: 06 03 03 03 Daphne|Commitments||pm|pm|pm|pm|pm|pm|pm|**pm**|

# EN 13 EN

|Col1|Payments|Col3|pm|pm|pm|pm|pm|pm|pm|pm|
|---|---|---|---|---|---|---|---|---|---|---|
|Appropriations of an administrative nature financed from the envelope of specific programmes3940|Appropriations of an administrative nature financed from the envelope of specific programmes3940|Appropriations of an administrative nature financed from the envelope of specific programmes3940|Appropriations of an administrative nature financed from the envelope of specific programmes3940|Appropriations of an administrative nature financed from the envelope of specific programmes3940|Appropriations of an administrative nature financed from the envelope of specific programmes3940|Appropriations of an administrative nature financed from the envelope of specific programmes3940|Appropriations of an administrative nature financed from the envelope of specific programmes3940|Appropriations of an administrative nature financed from the envelope of specific programmes3940|Appropriations of an administrative nature financed from the envelope of specific programmes3940|Appropriations of an administrative nature financed from the envelope of specific programmes3940|
|Budget line 06 01 02 support expenditure for<br>AgoraEU||(3)|pm|pm|pm|pm|pm|pm|pm|**pm**|
|**TOTAL appropriations**|Commitments|=1a+1b+3|1,099|1,139|1,180|1,223|1,268|1,313|1,360|8,582|
||Payments|=2a+2b+3|pm|pm|pm|pm|pm|pm|pm|**pm**|

**Heading of multiannual financial framework** **4** ‘Administrative expenditure’ [41]

EUR million (to three decimal places)

|Year<br>DG: <EAC/CNECT/JUST><br>2028|Col2|Col3|Year<br>2029|Year<br>2030|Year<br>2031|Year<br>2032|Year<br>2033|Year<br>2034|TOTAL<br>MFF<br>2028-<br>2034|
|---|---|---|---|---|---|---|---|---|---|
|• Human resources|• Human resources|37,070|37,070|37,070|37,070|37,070|37,070|37,070|**259,490**|
|• Other administrative expenditure|• Other administrative expenditure|1,523|1,538|1,553|1,569|1585|1,602|1,619|**10,988**|
|**TOTAL**<br><…….>|Appropriations|**38,593**|**38,608**|**38,623**|**38,639**|**38,655**|**38,672**|**38,689**|**270,478**|

**TOTAL appropriations under HEADING 4 of the multiannual financial**

**framework**

(Total
commitments

= Total

**0** **0** **0** **0** **0** **0** **0** **0**

39

40 Technical and/or administrative assistance and expenditure in support of the implementation of EU programmes and/or actions (former ‘BA’ lines), indirect research, direct
research.
41 The necessary appropriations should be determined using the annual average cost figures available on the appropriate BUDGpedia webpage.

# EN 14 EN

payments)

EUR million (to three decimal places)

|Year<br>2028<br>TOTAL appropriations<br>under HEADINGS 1 to Commitments pm<br>4|Col2|Col3|Year<br>2029|Year<br>2030|Year<br>2031|Year<br>2032|Year<br>2033|Year<br>2034|TOTAL MFF<br>2028-2034|
|---|---|---|---|---|---|---|---|---|---|
|**TOTAL appropriations**<br>**under HEADINGS 1 to**<br>**4 **|**TOTAL appropriations**<br>**under HEADINGS 1 to**<br>**4 **|pm|pm|pm|pm|pm|pm|pm|**pm **|
|of the multiannual<br>financial framework|Payments|pm|pm|pm|pm|pm|pm|pm|**pm **|

_3.2.2._ _Estimated output funded from operational appropriations (not to be completed for decentralised agencies)_

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

Commitment appropriations in EUR million (to three decimal places)

|Indicate<br>objectives and<br>outputs<br>⇩|Col2|Col3|Year<br>2028|Year<br>2029|Year<br>2030|Year<br>2031|Enter as many years as necessary to show the<br>duration of the impact (see Section1.6)|Col9|Col10|TOTAL|Col12|
|---|---|---|---|---|---|---|---|---|---|---|---|
|**Indicate**<br>**objectives and**<br>**outputs**<br> <br>⇩|**OUTPUTS**|**OUTPUTS**|**OUTPUTS**|**OUTPUTS**|**OUTPUTS**|**OUTPUTS**|**OUTPUTS**|**OUTPUTS**|**OUTPUTS**|**OUTPUTS**|**OUTPUTS**|
|**Indicate**<br>**objectives and**<br>**outputs**<br> <br>⇩|Type42 <br>|Avera<br>ge<br>cost|No<br>Cost|No<br>Cost|No<br>Cost|No<br>Cost|No<br>Cost|No<br>Cost|No<br>Cost|Total<br>No<br>Total<br>cost|Total<br>No<br>Total<br>cost|
|SPECIFIC OBJECTIVE No 143…|SPECIFIC OBJECTIVE No 143…|SPECIFIC OBJECTIVE No 143…|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|
|- Output|||<br>|<br>|<br>|<br>|<br>|<br>|<br>|||

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

# EN 15 EN

|- Output|Col2|Col3|Col4|Col5|Col6|Col7|Col8|Col9|Col10|Col11|Col12|Col13|Col14|Col15|Col16|Col17|Col18|Col19|
|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|
|- Output|||||||||||||||||||
|Subtotal for specific objective No 1|Subtotal for specific objective No 1|Subtotal for specific objective No 1|||||||||||||||||
|SPECIFIC OBJECTIVE No 2 ...|SPECIFIC OBJECTIVE No 2 ...|SPECIFIC OBJECTIVE No 2 ...|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|<br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br> <br>|
|- Output|||||||||||||||||||
|Subtotal for specific objective No 2|Subtotal for specific objective No 2|Subtotal for specific objective No 2|||||||||||||||||
|**TOTALS**|**TOTALS**|**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_

|Year<br>VOTED APPROPRIATIONS<br>2028|Year|Year|Year|Year|Year|Year|Year|TOTAL 2028 -<br>2034|
|---|---|---|---|---|---|---|---|---|
|**VOTED APPROPRIATIONS**<br>Year<br>**2028**|Year|**2029**|**2030**|**2031**|**2032**|**2033**|**2034**|**2034**|
|**HEADING 4**|**HEADING 4**|**HEADING 4**|**HEADING 4**|**HEADING 4**|**HEADING 4**|**HEADING 4**|**HEADING 4**|**HEADING 4**|
|Human resources|37.070|37,070|37,070|37,070|37,070|37,070|37,070|**259,4900.000**|
|Other administrative expenditure|1,523|1,538|1,553|1,569|1,585|1,602|1,619|**10,988**|
|**Subtotal HEADING 4**|**38,593**|**38,608**|**38,623**|**38,639**|**38,655**|**38,672**|**38,689**|**270,4780.000**|
|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|
|Human resources|p.m..|p.m.<br>|p.m.<br>|p.m..|p.m.|p.m.|p.m.|**p.m.**|
|Other expenditure of an administrative nature|p.m.<br>|p.m.<br>|p.m.|p.m.|p.m.|p.m.|p.m.|**p.m.**|
|**Subtotal outside HEADING 4**|||||||||
||||||||||
|**TOTAL**|||||||||

_3.2.4._ _Estimated requirements of human resources_

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

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

_3.2.4.1. Financed from voted budget_

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

# EN 17 EN

|VOTED APPROPRIATIONS|Col2|Year<br>2028|Year<br>2029|Year<br>2030|Year<br>2031|Year<br>2032|Year<br>2033|Year<br>2034|
|---|---|---|---|---|---|---|---|---|
|•** Establishment plan posts (officials and temporary staff)**|•** Establishment plan posts (officials and temporary staff)**|•** Establishment plan posts (officials and temporary staff)**|•** Establishment plan posts (officials and temporary staff)**|•** Establishment plan posts (officials and temporary staff)**|•** Establishment plan posts (officials and temporary staff)**|•** Establishment plan posts (officials and temporary staff)**|•** Establishment plan posts (officials and temporary staff)**|•** Establishment plan posts (officials and temporary staff)**|
|20 01 02 01 (Headquarters and Commission’s<br>Representation Offices)|20 01 02 01 (Headquarters and Commission’s<br>Representation Offices)|182|182|182|182|182|182|182|
|20 01 02 03 (EU Delegations)|20 01 02 03 (EU Delegations)|0|0|0|0|0|0|0|
|(Indirect research)|(Indirect research)|0|0|0|0|0|0|0|
|(Direct research)|(Direct research)|0|0|0|0|0|0|0|
|Other budget lines (specify)|Other budget lines (specify)|0|0|0|0|0|0|0|
|**• External staff (inFTEs) **|**• External staff (inFTEs) **|**• External staff (inFTEs) **|**• External staff (inFTEs) **|**• External staff (inFTEs) **|**• External staff (inFTEs) **|**• External staff (inFTEs) **|**• External staff (inFTEs) **|**• External staff (inFTEs) **|
|20 02 01 (AC, END from the‘global envelope’)|20 02 01 (AC, END from the‘global envelope’)|28|28|28|28|28|28|28|
|20 02 03 (AC, AL, END and JPD in the EU Delegations)|20 02 03 (AC, AL, END and JPD in the EU Delegations)|0|0|0|0|0|0|0|
|Admin. Support line<br>[XX.01.YY.YY]|- at Headquarters|0|0|0|0|0|0|0|
|Admin. Support line<br>[XX.01.YY.YY]|- in EU Delegations|0|0|0|0|0|0|0|
|(AC, END - Indirect research)|(AC, END - Indirect research)|0|0|0|0|0|0|0|
|(AC, END - Direct research)|(AC, END - Direct research)|0|0|0|0|0|0|0|
|Other budget lines (specify) - Heading 4|Other budget lines (specify) - Heading 4|0|0|0|0|0|0|0|
|Other budget lines (specify) - Outside Heading 4|Other budget lines (specify) - Outside Heading 4|10|10|10|10|10|10|10|
|**TOTAL**|**TOTAL**|**0 **|**0 **|**0 **|**0 **|**0 **|**0 **|**0 **|
|[XX.01.YY.YY]|- in EU Delegations|0|0|0|0|0|0|0|
|(AC, END - Indirect research)|(AC, END - Indirect research)|0|0|0|0|0|0|0|

# EN 18 EN

|(AC, END - Direct research)|0|0|0|0|0|0|0|
|---|---|---|---|---|---|---|---|
|Other budget lines (specify) - Heading 4|0|0|0|0|0|0|0|
|Other budget lines (specify) - Outside Heading 4|0|0|0|0|0|0|0|
|**TOTAL**|**220**|**220**|**220**|**220**|**220**|**220**|**220**|

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

|Col1|To be covered by current<br>staff available in the<br>Commission services|Exceptional additional staff*|Col4|Col5|
|---|---|---|---|---|
|||**To be financed under**<br>**Heading 4 or Research**|**To be financed from BA**<br>**line**|**To be financed from**<br>**fees**|
|Establishment plan posts|139|43|N/A||
|External staff (CA, SNEs,<br>INT)|25|3|10||

Description of tasks to be carried out by:

|Officials and temporary staff|Col2|
|---|---|
|External staff||

_3.2.5._ _Overview of estimated impact on digital technology-related investments_

# EN 19 EN

|HEADING 4|Col2|Col3|Col4|Col5|Col6|Col7|Col8|Col9|
|---|---|---|---|---|---|---|---|---|
|IT expenditure (corporate)|1,804|1,804|1,804|1,804|1,804|1,804|1,804|**12,628**|
|**Subtotal HEADING 4**|1,804|1,804|1,804|1,804|1,804|1,804|1,804|**12,628**|
|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|**Outside HEADING 4**|
|Policy IT expenditure on<br>operational programmes|8,500|8,500|8,500|8,500|8,500|8,500|8,500|**59,500**|
|**Subtotal outside HEADING 4**|8,500|8,500|8,500|8,500|8,500|8,500|8,500|**59,500**|
||||||||||
|**TOTAL**|**10,304**|**10,304**|**10,304**|**10,304**|**10,304**|**10,304**|**10,304**|**72,128**|

_3.2.6._ _Compatibility with the current multiannual financial framework_

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

_3.2.7._ _Third-party contributions_

The proposal/initiative:

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

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

Appropriations in EUR million (to three decimal places)

Year Year Year Year Year Year Year
Total
**2028** **2029** **2030** **2031** **2032** **2033** **2034**

# EN 20 EN

|Specify the co-financing<br>body|Col2|Col3|Col4|Col5|Col6|Col7|Col8|Col9|
|---|---|---|---|---|---|---|---|---|
|TOTAL appropriations<br>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

EUR million (to three decimal places)

|Budget revenue line:|Appropriations available<br>for the current financial<br>year|Impact of the proposal/initiative44|Col4|Col5|Col6|Col7|Col8|Col9|
|---|---|---|---|---|---|---|---|---|
|Budget revenue line:|Appropriations available<br>for the current financial<br>year|Year**2028**|Year**2029**|Year**2030**|Year**2031**|Year**2032**|Year**2033**|Year**2034**|
|Article ………….|||||||||

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).

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

costs.

# EN 21 EN

**4.** **DIGITAL DIMENSIONS**

**4.1.** **Requirements of digital relevance**

|Reference to the<br>requirement|Requirement description|Actors affected or<br>concerned by the<br>requirement|High-level<br>Processes|Categories|
|---|---|---|---|---|
|Chapter VI– Article 11|[…]<br>Technical<br>and<br>administrative<br>assistance for the implementation of the<br>Programme|European<br>Commission;<br>Beneficiaries|Programme<br>implementation<br>through<br>Direct<br>Grant Management|Digital solutions|
|Chapter V– Article 10|[…]<br>including<br>through<br>Programme<br>Desks,<br>thereby<br>enhancing<br>outreach,<br>visibility and dissemination of the<br>Programme’s results.|European<br>Commission,<br>National<br>Authorities;<br>Beneficiaries|Dissemination|Digital solutions|
|Chapter II– Article 4(e)|[…]improving evidence base through<br>enhanced data collection, analysis[…]|European<br>Commission,<br>Executive<br>Agencies,<br>Beneficiaries|Evidence-based<br>policy-making,<br>programme<br>implementation<br>and<br>monitoring;<br>evaluation|Digital<br>solutions,<br>data|
|Chapter III– Article 5(f)|Fostering<br>[…]data<br>collection<br>and<br>analysis […]|European<br>Commission,<br>Executive<br>Agencies,<br>Beneficiaries|Evidence-based<br>policy-making,<br>programme<br>implementation<br>and<br>monitoring;|Digital<br>solutions,<br>data|

# EN 22 EN

|Col1|Col2|Col3|evaluation|Col5|
|---|---|---|---|---|
|Chapter III– Article 6(f)|Focus on […] data collection and<br>analysis, and development of common<br>standards[…] <br>|European<br>Commission,<br>Executive<br>Agencies,<br>Beneficiaries|Evidence-based<br>policy-making,<br>programme<br>implementation<br>and<br>monitoring;<br>evaluation|Digital<br>solutions,<br>data|

**4.2.** **Data**

_High-level description of the data in scope and any related standards/specifications_

|Type of data|Reference(s) to the<br>requirement|Standard and/or specification (if applicable)|
|---|---|---|
|Countries, organisations, budget,<br>participants and priorities per project|Chapter VI, Article 11<br>Chapter V, Article 10<br>Chapter II– Article 4(e)<br>Chapter III, Article 5(f) and<br>Article 6(f)<br>Regulation (EU, Euratom)<br>(202X-XXXX Performance<br>regulation)<br>|eGrants and databases of any implementing body in the frame<br>of the programme|

_**Alignment with the European Data Strategy**_

_Explain how the requirement(s) are aligned with the European Data Strategy_

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

**Alignment with the once-only principle**

_Explain how the once-only principle has been considered how the possibility to reuse existing data explored_

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

_Explain how newly created data is findable, accessible, interoperable and reusable, and meets high-quality standards_

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

**Data flows**

|Type of data|Reference(s) to the<br>requirement(s)|Actor who<br>provides the<br>data|Actor who<br>receives the data|Trigger for the data<br>exchange|Frequency (if applicable)|
|---|---|---|---|---|---|
|Countries,<br>organisations,<br>budget,<br>participants and<br>priorities per<br>project|Chapter VI– Article 11<br>Chapter V– Article 10<br> <br>Chapter II– Article 4(e)<br>Chapter III, Article 5(f)|Beneficiaries,<br>Programme<br>Desks|General public<br>Commission<br>European<br>Parliament<br>Council of the|Regulation (EU,<br>Euratom) [202X-XXXX<br>Performance<br>Regulation]: Article<br>XXX (monitoring) and<br>Article XXX<br>(implementation report|Regulation (EU, Euratom)<br>[202X-XXXX<br>Performance Regulation]<br>Article XXX (monitoring)<br>and Article XXX<br>(implementation report<br>and retrospective|

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**4.3.** **Digital solutions**

|Digital<br>solution|Reference(s)<br>to the<br>requirement(s)|Main mandated<br>functionalities|Responsible<br>body|How is accessibility<br>catered for?|How is<br>reusability<br>considered?|Use of AI technologies<br>(if applicable)|
|---|---|---|---|---|---|---|
|Digital<br>solution #1– <br>Direct Grant<br>Management<br>platform|Chapter VI– <br>Article 11|Direct Grant<br>Management|European<br>Commmission|In accordance with<br>Commission<br>Standard|//|The platform shall<br>leverage the use<br>artificial intelligence<br>where relevant and<br>adhering with the<br>precautionary principle.|
|Digital<br>solution #2– <br>Dissemination<br>platform(s)|Chapter V– <br>Article 10|Disseminate<br>Programme’s results|European<br>Commmission|In accordance with<br>Commission<br>Standard|//|The platform shall<br>leverage the use<br>artificial intelligence<br>where relevant and<br>adhering with the<br>precautionary principle.|

**-**
**Digital solution #1** **Direct Grant Management platform**

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|Digital and/or sectorial policy (when these are<br>applicable)|Explanation on how it aligns|
|---|---|
|**_AI Act_**|When leveraging AI, the European Commission will ensure the compliance with<br>the AI Act.|
|**_EU Cybersecurity framework_**|Without prejudice to Regulation (EU) 2016/679, the European Commission shall<br>ensure the security, integrity, authenticity and confidentiality of the data collected<br>and stored for the purpose of this regulation.|
|**_eIDAS_**|Not Applicable|
|**_Single Digital Gateway and IMI_**|Not Applicable|
|**_Others_**|//|

|Digital solution #2 - Dissemination platform(s)|Col2|
|---|---|
|**Digital and/or sectorial policy (when these are**<br>**applicable)**|**Explanation on how it aligns**|
|**_AI Act_**|When leveraging AI, the European Commission will ensure the compliance with<br>the AI Act.|
|**_EU Cybersecurity framework_**|Without prejudice to Regulation (EU) 2016/679, the European Commission shall<br>ensure the security, integrity, authenticity and confidentiality of the data collected<br>and stored for the purpose of this regulation.|
|**_eIDAS_**|Not Applicable|

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|Single Digital Gateway and IMI|Not Applicable|
|---|---|
|**_Others_**|//|

_**4.4.**_ _**Interoperability assessment**_

Not applicable

**4.5.** **Measures to support digital implementation**

|Description of the measure|Reference(s) to the<br>requirement(s)|Commission role<br>(if applicable)|Actors to be<br>involved<br>(if applicable)|Expected timeline<br>(if applicable)|
|---|---|---|---|---|
||||||

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