CELEX: 51996PC0297
Language: en
Date: 1996-06-26
Title: Proposal for a COUNCIL DECISION on a joint action introducing a programme of training, exchanges and cooperation in the field of identity documents

COMMISSION OF THE EUROPEAN COMMUNITIES
                                  Brussels, 26.06.1996
                                  COM(96) 297 final
                 Proposal for a
             COUNCIL DECISION
                on a joint action
           introducing a programme
   of training, exchanges and cooperation
      in the field of identity documents
        (presented by the Commission)
 ---pagebreak---  ---pagebreak---                                CONTENTS
I  Explanatoiy Mémorandum                    3
   A.     Background to proposal             3
   B.     Scope of proposal                  4
   C.     Comments on individual articles    4
II Draft decision                            8
   A.     Recitals                           8
   B.     Operative provisions            .  9
   C.     Financial statement               13
 ---pagebreak---                         EXPLANATORY MEMORANDUM
A    Background to proposal
 1.  Security in matters of identity documents and measures to combat forgery were
     seen as matters of priority for improving the effectiveness of identity checks at
     the external borders even before the Treaty on European Union came into force.
     The cooperation provided for by Title VI of the Union Treaty has œnfirmed that
     priority. The effectiveness of control work depends not only on information
     channels such as the Fraud Bulletin and the Authentic Documents Manual but
     above all on the training of those officials whose responsibility it is to perform
    the actual checks. That will result not only in greater mutual acquaintance
     between officials but also in an enrichment of the techniques and procedures
     applied. The joint action proposed here will also be a vital weapon in the fight
     against trafficking in human beings generally and clandestine immigration in
    particular.
    Article K. 1(2) of the Treaty on European Union defines "the exercise of controls"
    on the crossing by persons of the external borders of the Member States as a
    matter of common interest.
2.  At their meeting in Lisbon in June 1992, the ministers responsible for immigration
    decided to organize training seminars to this effect, two examples of which,
    intended for specialists to impart their own experience, have already taken place.
    The second, held in 1995, was charged to the Community budget under Article
    K.8oftheTEU
    Both the participants and the relevant Council working party made a positive
    assessment of the latter seminar, stressing that these experiments deserved to be
    explored further and made a regular feature in the form of carefully planned
    programmes.
    Pragmatic cooperation of this type has therefore shown itself to be a valuable
    complement to the Council's legislative activity. It must not be ignored that
    Article K.3 explicitly provides for collaboration between the relevant national
    administrative departments.
3.  These initial experiments have highlighted particularly pressing needs in specific
    respects - training for trainers and for specialists. The former has a multiplier
    effect, as the results of training conceived and dispensed at Union level are
    disseminated throughout the Union. With the latter, experts' know-how can be
    constantly adapted to the ongoing process of technological development without
    unwarranted delay, and the quality of the training given to those responsible for
    controls can be maintained. Success in these areas will depend on durability of the
    measures undertaken and on a coherent concept and organization.
 ---pagebreak---  B.       Scope of the proposal
 4.       The aim of the joint action is:
                  as to substance, to devise a programme which is consistent, encompasses
                  the various components of a training policy and comprises both tuition
                  proper and periods of training and exchanges in other States in such a way
                  as to consolidate existing links between the departments responsible for
                  identity control;
                  as to timing, to establish multiannual practical cooperation between the
                  authorities responsible for checking identity documents, resulting in greater
                  familiarity with the methods used in other Member States and more
                  effective ways of combating the use of forged documents.
          The lessons learnt at the initial stages need to be explored in greater depth.
          Particular thought should be given to the idea of exchanges between officials
         while the study and research aspect needs to be examined further so that the
         effects of activities can filter through more easily to those who have not actually
         taken part in training.
 5.      The structure of this programme is therefore one of annual training sessions
         hinging on seminars, accompanied by exchanges between officials and involving
         study and research activities. This structure reflects the needs revealed by the
         evaluation of the seminars already held and confirmed by Council working parties
         of expertsfromthe Member States. This structure does not prevent other measures
         from being devised as and when new technology for the production of non-
         forgeable documents and the detection of forgeries is introduced.
         The complementarity of this approach allows a certain measure of flexibility in
         the management of the multiannual programme whilst respecting its fundamental
         priorities. Such flexibility is needed in order to adapt as quickly as possible to
         technological developments and counteract new ways of using forged documents.
6.       The programme is designed to meet these objectives by underpinning initiatives
         taken in the field of continuing training by public or private institutions in order
         to increase familiarity with the techniques by which identity documents are
         produced and to heighten awareness of the need to combat the use of forged
         documents. Furthermore, thanks to the potential economies of scale afforded by
         this programme, it may eventually be possible to incorporate it into a broader
        programme relating to border checks, to be implemented experimentally in 1996.
C        Comments on individual articles
Article 1
Article 1 sets out the general principle and objectives of the programme and stipulates
that it is to qualify for Community support. The attached financial statement allows a
total package of ECU 5 million for the first five years, with the proviso that an initial
appropriation of ECU 400 000 will be allocated to the programme in 1996.
 ---pagebreak---  The objectives are set with the emphasis on the dual aspects of the programme's perennial
 nature and the need for further exploration of the measures involved. Particular stress is
 laid on the importance of clearly defined priorities as prerequisites for ensuring the
 overall consistency of the programme. In this respect, the adoption of a long-term
 approach seems to be the most effective way of exploring both the means of action and
 the possibility of tackling the problemfromthe angles of both prevention and prosecution
 (technical, legal or even cultural and sociological dimensions).
Article 2
 Article 2 provides the basic definitions needed to understand the exact features of this
joint action, with particular reference to identity documents and the main types of
 measure making up the programme.
Article 3
Article 3 deals with the first component of the annual programmes, i.e. the seminars.
 There are to be two types of seminars: "general seminars" for the instructors whose
responsibility it will subsequently be to relay the information onward in the Member
 States, and "specialist seminars" to enable recognized specialists to study specific aspects
 identified as meriting particular attention. These seminars are to be held at regular
(annual) intervals so as to produce a knock-on effect, culminating, at the end of the
exercise, in a genuine reference source. They will share the characteristics of being
designed for the purpose of studying the theoretical and practical aspects of document
security, providing an opportunity to update existing knowhow and developing teaching
methods for instructors. Obviously, this must not involve any encroachment on the
powers of the Community, for example as regards the standard format for visas or the
Union citizen residence card.
In view of the special links with the associated countries (Central and Eastern Europe,
Cyprus and Malta) and given the need to devise ways of combating the use of forged
documents beyond the purely European Union context, provision has been made for
holding a number of seminars for representatives from the associated countries. Experts
from these countries will be invited to attend specially organized broader-purpose
seminars, i.e. seminars where those aspects of most direct concern to them can be
addressed.
Article 4
Article 4 deals with the aspect designed to supplement the seminars, i.e. exchanges
between officials. These may take the form, for instance, of unilateral or reciprocal
placements in the national departments responsible for control so as to enable officials
to gainfirst-handexperience of the problems encountered in other Member States and of
the most up-to-date methods of designing and producing identity documents.
Since these exchanges will also be open to representatives of non-member countries and
not merely those of associated countries, participants will also be able to learn from the
experience gained by countries pursuing similar aims.
 ---pagebreak---  Article 5
 The third component of the annual programmes relates to studies, the main purpose of
 which will be to devise and disseminate teaching materials (teaching kits, back-up
 software etc). Research might focus more on the design of equipment for the checking
 of documents and technology for the rapid dissemination of data on forged documents
 and their use.
 Article 6
 The overriding criterion which determines whether or not a measure qualifies for
 Community support is its value to the Union. To be certain as to this fact, the principle
 is laid down that in the case of measures involving only Member States, there must be
 at least three of them. In the case of measures involving associated countries, these
 should involve at least two Member States and three associated States. This avoids any
 danger of duplication with bilateral initiatives taken by the Member States.
Article 7
 These provisions relating to the jurisdiction of the Commission and the Court of Justice
 are conventional for an instrument of this type.
Article 8
 This article sets out the general terms of financing under the Community budget.
 Paragraph 2 lays down an overall limit embodying the principle that the contribution
 made by the national authorities must be less than the contribution from the Community
budget. However, in order to remain flexible enough to adapt to individual programmes,
this ceiling may be raised to take account of the particular circumstances described in
paragraph 3.
Paragraph 4 lays down the principle that the Community contribution is confined to
certain categories of expenditure, thus emphasising the operational rather than
administrative nature of the budget item. Here too, a certain measure of flexibility is
allowed in order to be able to adapt to particular circumstances.
Article 9
The rules of procedure set out in this article are conventional for an instrument of this
type.
Article 10
This article lays down the principle of the responsibility of the Commission for managing
and monitoring the programmes and, in particular, for drawing up annual programmes.
The Commission has a central role to play in the conduct of these programmes. In
devising the annual programmes, the Commission will have to process the various
applications submitted to it. To this end, it will also process the proposals submitted by
the Member States, thus enabling them to contribute to the design of the programmes.
Suggestions will be considered in the light of three criteria set out in the second
subparagraph of paragraph 2. In its processing work, the Commission will, where
 ---pagebreak--- necessary, draw on the advice of experts well versed in the methods of combating forged
identity documents.
Article 11
This article deals with the decision-making procedure for the adoption of the annual
programme. A committee has been set up to operate on the basis of Procedure Ha of
Council Decision No 87/373 of 13 July 1987 laying down the procedures for the exercise
of implementing powers conferred on the Commission (OJ L 197, 18.7.1987, p. 33). The
draft annual programme will be submitted to a committee chaired by the Commission,
which will decide by a majority of votes as provided for in the second subparagraph of
Article K.4(3) of the TEU. Should the Commission reject the opinion of the Committee,
it will be up to the Council itself to decide. This procedure presents the two-fold
advantage of consultations with the Member States within the Committee and
effectiveness of the decision-making procedure where there is agreement. The advantages
of this procedure, which has proved itself in other contexts, will also become apparent
in relation to this programme.
Article 12
This article provides for evaluation and monitoring. This task is incumbent primarily on
the Commission, which has to ensure that Parliament and the Council are kept
appropriately informed so as to maintain concordance with work in progress or planned
in the field of external borders, asylum and immigration.
Article 13
The provisions relating to the entry into force of the common action set out in this article
are conventional for an instrument of this type.
 ---pagebreak---                                      DRAFT DECISION
                    OF THE COUNCIL OF THE EUROPEAN UNION
                                       OF.
                                     on a common action
                                  introducing a programme
                          of training, exchanges and cooperation
                             in the field of identify documents
 THE COUNCIL OF THE EUROPEAN UNION
 Having regard to the Treaty on European Union, and in particular Articles K3(2)(b) and
 K.8(2) thereof,
Having regard to the Commission proposal of                ,
Whereas the Member States consider identity checks on persons crossing the external
borders of the Union and the security of identity documents to be a matter of common
interest;
Whereas the establishment of a framework for training, information, study and exchange
activities will serve to improve officials' familiarity with the techniques applied in the
production and checking of identity documents in other Member States and consequently
lend greater effectiveness to the efforts made to combat forgery;
Whereas, thanks to the economies of scale and cumulative effects implicit in the intended
measures, these objectives can be achieved more effectively at Union level than at the
level of the individual Member States;
Whereas this joint action will not prejudice the powers of the Community, especially in
the field of vocational training and will therefore not detract from the Community
measures taken in implementation of this policy, in particular the Leonardo da Vinci
programme,
HAS DECIDED AS FOUUOWS:
 ---pagebreak---                                 SECTION!- GENERAL
                                         Article 1
                                 Principle and objectives
1.     A programme (hereinafter referred to as the Sherlock programme) of training,
       exchange and cooperation in thefieldof the security of identity documents within
       the meaning of the definitions in Article 2, which shall qualify for Community
       financial support, is hereby established for the period from 1996 to 2000.
2.     Without prejudice to the powers of the Community, the general objective of the
       programme shall be to extend existing cooperation in the matter of identity
       documents thanks to its multiannual organization. The definition of clear priorities
       will serve to rationalize this cooperation in the long term.
                                         Article 2
                                        Definitions
The following definitions shall apply for the purposes of the Sherlock programme:
       Identity documents: documents issued by Member States and non-member
       countries enabling their holders to prove their identity and cross external borders;
       Training: organization of seminars focusing on theoretical and practical
       understanding of the security of identity documents;
       Exchange: period spent by an official in a Member State other than his own for
       the purpose of improving his knowledge of control techniques through first-hand
       experience;
       Studies: design and dissemination of teaching material for combating of forged
       identity documents.
                              SECTION H: STRUCTURE
                                         Article 3
                                         Training
1.     The main component of the Sherlock programme shall be following annual
       programmes:
               basic training seminar for instructors,
               further training seminar for recognized specialists on the production of
               documents.
2.     The seminars are intended for officials of the Member States. However, seminars
       specifically open to officials of non-member countries may also be held .
 ---pagebreak---                                           Article 4
                                         Exchanges
 The Sherlock programme shall also comprise exchanges of officials both of the Member
 States and of non-member countries. Exchanges shall take the form in particular of work
 placements of limited duration within the national administrative departments responsible
 for checking identity documents.
                                         Article 5
                                     Study and research
 1.      The Sherlock programme shall œmprise the design, production and dissemination
         of teaching material in the Member States and the associated States.
2.       Ways of improving the circulation of information œncerning thefraudulentuse
         of forged identity documents may also be a matter for study and research.
                        SECTION Hfc FINANCIAL PROVISIONS
                                         Article 6
                                     Financing criteria
To qualify for Community finance, projects must be of demonstrable interest to the
European Union and involve at least three Member States.
Projects designed to increase cooperation with the associated States must involve at least
two Member States and three associated States.
                                         Article 7
                                      Financial control
Thefinancingdecisions and the contracts arising therefrom shall provide for monitoring
and financial control by the Commission and audits by the Court of Auditors.
                                         Article 8
                               Level of Community finance
1.      All types of expenditure which are directly chargeable to the implementation of
        the measure and have been incurred over a specific, contractually defined period
        shall be eligible.
2.      The proportion offinancialsupport from the Community shall not exceed 60% of
        the total cost of the programme save in exceptional cases where, subject to the
        procedures laid down in Section 4 of this joint action, it shall not exceed 80%.
3.      Translation and interpreting costs, confuting costs and expenditure on durables
        or consumables shall not be considered unless they are essential for the realization
        of the project and shall be financed only up to a limit of 50% of the grant, or
        80% in cases where the nature of the project makes them indispensable.
                                            10
 ---pagebreak--- 4.  Expenditure relating to premises, collective facilities and the salaries of officials
    of the State and public bodies shall be eligible only if it corresponds to irregular
    postings and tasks, specifically connected with the implementation of the project.
                                       Article 9
                                  Rules ofprocedure
1.  Measures incorporated in the programme and financed by the budget of the
    Communities shall be managed by the Commission in conformity with the
    Financial Regulation of 21 December 1977 applicable to the general budget of the
    European Communities, as last amended by Regulation No 2335/95 of
     18 September 1995.
2.  When presenting thefinancingproposals, the Commission shall take account of
    the principles of sound financial management and in particular of economy and
    cost-effectiveness as required by Article 2 of the Financial Regulation.
                       MANAGEMENT AND MONITORING
                                      Article 10
                               Devising ofprogramme
1. The Commission shall be responsible for managing and monitoring the
   programme and shall take such measures as are necessary to this effect.
2. The Commission shall draw up a draft annual programme comprising a
   breakdown of the appropriations available and based on thematic priorities
   corresponding to the structure and objectives of the Sherlock programme.
   To this effect, the Commission shall scrutinize the projects submitted to it in the
   light rvf
   lirrht of thf*
             the following
                  iriWnwnna criteria
                            rritfrïîv
            the innovative character of the proposed measure;
            the urgency of the need for the initiative as a way of improving the
            security of documents;
            the overall consistency of the programme.
                                      Article 11
                                    Implementation
1. The Commission shall be assisted by a committee consisting of a representative
   of each Member State and chaired by a representative of the Commission. The
   latter shall submit to the Committee the draft annual programme referred to in
   Article 10 of this joint action. The Committee shall deliver its opinion within a
   time limit set by the Chairman according to the level of urgency. The opinion
   shall be delivered by qualified majority as laid down in the second subparagraph
   of Article K.4(3) of the Treaty on European Union. The Chairman shall not vote.
                                          11
 ---pagebreak---         The Commission shall adopt measures, which shall be immediately applicable.
        However, should these measures not be consistent with the opinion delivered by
        the committee, they shall be communicated by the Commission to the Council
        forthwith. In such an event, the Commission may defer the application of the
        measures it has adopted for a period of not more than one month from the date
        of its communication to the Council.
        The Council, acting by a qualified majority, may then take an alternative decision
        within the period referred to in the foregoing subparagraph.
                          SECTION V: FINAL PROVISIONS
                                        Article 12
                                        Evaluation
Each year, the Commission shall undertake an assessment of the measures taken during
the previous year and shall address a report to Parliament and the Council.
                                        Article 13
This Joint Action shall enter into force on the day of its publication in the Official
Journal.
                                                     Done at Brussels,
                                            12
 ---pagebreak---                                     Financial statement
Item B5-800: Cooperation in the fields of justice and home affairs. The commitment
appropriations have been entered in Chapter BO-40.
1.     TITLE OF OPERATION
       Joint action on a programme of training, exchanges and cooperation in the field
       of the security of identity documents (to be known as the "Sherlock programme").
2.    BUDGET HEADING INVOLVED
      B5-800: Cooperation in the fields of justice and home affairs, more especially
      fields covered by Article KT(2) and (3) of the TEU.
3.    LEGAL BASIS
      Article K3(2) of the Treaty on European Union.
4.    DESCRIPTION OF OPERATION
4.1   General objective
      Greater security of identity documents can be seen as a priority area for the type
      of cooperation provided for in Title VI of the TEU, and more especially for
      enhancing the effectiveness of checks at the Union's external borders. The
      effectiveness of control work depends not only on information channels such as
      the Fraud Bulletin, the Authentic Documents Manual and the Encoded Document
      Reference System but above all on the training of officials working in this area,
      especially where it involves an increases in exchanges between Member States
      and greater familiarity with the techniques, procedures and implements used. Two
      seminars intended for specialists to share their own experience have already taken
      place. The second, held in 1995, was charged to the Community budget under
      Article K.8 of the TEU.
      The general aim of the action, based as it is on the implementation of a
      multiannual programme, is to extend cooperation in this field, rationalize
      initiatives by coordinating them around clear priorities and, by making this an
      ongoing process, ensure that the results have an enduring impact.
4.2   Period covered
      The action covers a period of five years from 1996.
5.    CLASSIFICATION OF EXPENDITURE
      NCE/DA
                                            13
 ---pagebreak--- 6.   TYPE OF EXPENDITURE
     Grants (of up to 80%) for co-financing with other public or private sector sources.
7.   FINANCIAL IMPACT
7.1  Method of calculating total cost of operation
    The grants will cover the following:
             training;
             exchange and work placement programme;
             studies and research, dissemination of information
    It is anticipated that, subject to the annual budgetary procedure, an indicative
    financial package of ECU 5 million will be set aside for this programme for the
    period 1996-2000, in accordance with the timetable set out at 7.2.
    The annual amounts, calculated on the basis of similar actions already carried out
    (including the Karolus and Mattheus programmes) or actions in progress, are as
    follows:
    - 1996: - training:       *seminar for the training of instructors: 30 participants (2
                             x 15 Member States), duration 15 days (cost per trainee:
                             ECU 6300):
                                                                           ECU 190 000
                             •basic training seminar for Central and Eastern European
                             associated countries (7 States) in conjunction with 3
                             Member States: 20 participants (2 per State), duration 10
                             days (cost per trainee: ECU 4200): ECU 84 000 rounded up
                             to:
                                                                            ECU 90 000
            - studies and research, dissemination of information (design of teaching
            material, production of documents):
                                                                           ECU 120 000
    - per year for the period 1997-98:
    - training:      *seminar for the training of instructors: 30 participants (2 x 15
                    Member States), duration 15 days (cost per trainee: ECU 6300):
                                                                           ECU 190 000
                     •further training seminar (15 days, 1 participant per Member State,
                    cost ECU 6300): ECU 94 500 rounded up to:
                                                                            ECU 95 000
                     •basic training seminar for Central and Eastern European
                    associated countries (7 States) in conjunction with 3 Member
                                           14
 ---pagebreak---                       States: 20 participants (2 per State), duration 10 days (cost per
                      trainee: ECU 4200): ECU 84 000 rounded up to:
                                                                             ECU 90 000
                      •seminar for the training of instructors from Central and Eastern
                      European associated countries (7 States) in conjunction with 3
                      Member States: 20 participants (2 per State), duration 10 days (cost
                      per trainee: ECU 4200): ECU 84 000 rounded up to:
                                                                             ECU 90 000
       - exchanges: •S-day exchanges (cost per trainee ECU 2000) for 150 officials
                      from Member States:
                                                                            ECU 300 000
                      •5-day exchanges (cost per trainee ECU 2000) for 50 officials
                      from associated non-member countries:
                                                                            ECU 100 000
                      •other exchanges (visits to production workshops, research
                      laboratories etc):
                                                                ECU 60 000 (lump sum)
       - studies and research, dissemination of information:
                                                                             ECU 75 000
- per year for me period 1999/2000:
       - training:    •seminar for the training of instructors: 30 participants ( 2 x 1 5
                      Member States), duration 15 days (cost per trainee: ECU 6300):
                                                                            ECU 190 000
                      •further training seminar (15 days, 1 participant per Member State,
                      cost ECU 6300): ECU 94 500 rounded up to:
                                                                             ECU 95 000
                      •basic training seminar for Central and Eastern European
                      associated countries (7 States) in conjunction with 3 Member
                      States: 20 participants (2 per State), duration 10 days (cost per
                      trainee: ECU 4200): ECU 84 000 rounded up to:
                                                                             ECU 90 000
                      •seminar for the training of instructors from Central and Eastern
                      European associated countries (7 States) in conjunction with 3
                      Member States: 20 participants (2 per State), duration 10 days (cost
                      per trainee: ECU 4200): ECU 84 000 rounded up to:
                                                                             ECU 90 000
       - exchanges: •S-day exchanges (cost per trainee ECU 2000) for 150 officials
                      from Member States:
                                                                            ECU 300 000
                                            15
 ---pagebreak---                          •5-day exchanges (cost per trainee ECU 2000) for 100 officials
                         from associated non-member countries:
                                                                              ECU 200 000
                         •other exchanges (visits to production workshops, research
                         laboratories etc):
                                                                 ECU 100 000 (lump sum)
          - studies and research, dissemination of information:
                                                                             ECU 235 000
 7.2      Itemized breakdown of cost
                                                             AC in ECU millions
                                                             (at current prices)
   Breakdown                  1996        1997     1998      1999       2000     Total
   Training (seminars)        0.28       0.465    0.465      0.465      0.465    2.14
   Training (exchanges)                  0.4      0.4        0.5        0.5      1.8
   Other exchanges
   Studies, research,                    0.06     0.06       0.1        0.1      0.32
   dissemination of           0.12       0.075    0.075      0.235      0.235    0.74
   information
   TOTAL                      0.4         1       1          1.3        1.3      5
7.3      Indicative schedule of appropriations
                                                             AC in ECU millions
                          1996      1997     1998     1999      2000     2001    Total
  Appropriations for      0.4       1        1       1.3        1.3              5
  commitment
  Appropriations for
  payment
   1996                   0.1       0.3                                          0.4
   1997                             0.7      0.3                                  1
   1998                                      0.7     0.3                         1
   1999                                              1          0.3              1.3
  2000                                                          1        0.3     1.3
  Total                   0.1       1        1       1.3        1.3      0.3     5
Indicative financial package for the period 1996-2000: ECU 5 million. The programme
is scheduled to take place in three phases.
                                              16
 ---pagebreak--- For 1996, since initial expenditure cannot be committed before the last third of the year,
the annual amount has been calculated on the basis of what, given the necessary
preparatory work, could actually be organized.
For 1997-98: an initial phase designed to have an appreciable knock-on effect on the
national training programmes of the Member States, which will have instructors trained
at Union level and jointly devised teaching material at their disposal.
For 1999-2000: the expected results of the knock-on effect on the national programmes
will generate new requirements at Union level, making it possible to amplify and expand
the operation on the basis of a mid-way assessment (end 1998) of a more detailed nature
than the annual report.
8. FRAUD PREVENTION MEASURES; RESULTS OF MEASURES TAKEN
Verification of grants or receipt of payments and preparatory, feasibility and assessment
studies is carried out by the Commission before payment is made, taking into account
contractual obligations, economic principles and principles of soundfinancialor general
management. Anti-fraud provisions (checks, delivery of reports, etc.) are included in all
the agreements or contracts concluded between the Commission and the recipients of the
payments.
9. EIJEMENTS OF <X)ST-EFFEOTVENESS ANALYSIS
9.1 Specific and quantifiable objectives; target population
- Specific objectives:
Under the general objective referred to at 4.1, the Commission will devote special
attention to the following:
* Ongoing training seminars in the field of document security in three areas
- mstnictor-tmining
- further training for recognized specialists
- basic training for officials from certain Central and Eastern European countries
The underlying aim here is to harmonize the training of the officials concerned by
focusing on specific levels: Union level for the training of instructors and advanced
training and Member-State level for the relaying of training to the greatest possible
number of national officials. Likewise in a spirit of harmonization and in anticipation of
their possible accession, training will also be organized at Union level for officials from
Central and Eastern European countries.
* In conjunction with the foregoing objective, teaching material will be developed which
can subsequently be used in training programmes in the Member States, thereby
capitalizing on the training provided at Union level, producing economies of scale and
adding a further element of harmony to the training provided at Member State level.
                                              17
 ---pagebreak---   * Research to improve ways and means of disseminating information relating to the
 recognition of documents and forgeries
 The latter objective will help to avoid duplication of research efforts in a field where the
 exchange of information between Member States is of primordial importance to the
 establishment of completefreedomof movement.
 - Target population:
 Officials responsible for designing, issuing or checking documents.
 Officials responsible for training, especially devising and implementing training schemes
 in the departments concerned and in particular for devising instmctor-tmining.
 9.2 Justification for action
 Cooperation between the Member States as defined by Title VI of the TEU, with which
the Commission is fully associated, covers matters which the Member States regard as
being of common interest. Document security is one such matter, being particularly
important as regards immigration control at the external borders. Cooperation between
government departments of the Member States at Union level therefore supplements the
efforts made by those departments in their own field of competence. The high-speed
exchange of information and the need to work in real time therefore require officials to
have an increasingly detailed knowledge of procedures in other Member States. The
Sherlock programme, which, as shown in the above presentation of the specific objectives
of the programme, complies totally with the principle of subsidiarity as regards the level
at which the measures are located, is thus a reflection of this need.
Two principles will underlie the selection of projects:
         adherence to the structure of the programme as defined in Section II of the joint
         action, which requires measures to be repeated regularly as a way of ensuring
         long-term effectiveness and producing a knock-on effect in the Member States;
         compliance with the criteria set out in Article 10 of the joint action which, in
         addition to the consistency of the programme, concern innovation (e.g.
        technological developments) or need for urgent action (new types of documents,
         emergence of new sources of forgeries).
9.3 Monitoring and evaluation
Two types of indicators will be used to measure the attainment of objectives:
        number of trainee days recorded at Union level as regards both seminars and
        exchanges;
        number of trainee days at Member State level using instructors trained under the
         Sherlock programme and teaching material produced under the programme.
These quantitative indicators will be supplemented by more qualitative evaluations
measuring the impact of the training on trained officials (panel with evaluation at
successive intervals after training).
                                              18
 ---pagebreak---       The annual reports will be supplemented by a more detailed instruction report after the
      first three years of the programme's implementation.
      10.     ADMINISTRATIVE EXPENDITURE
              (Part A of Section HI of me General Budget)
      The effective mobilization of the necessary human resources will be determined by the
      Commission's annual decision on allocation of resources, taking account of the staff
      numbers and additional amounts agreed by the budget authority.
      It should be stressed that this joint action aims to manage commitment appropriations of
      around ECU 5 million per year and that, in order to ensure "sound financial management"
      of the operating appropriations, it will be necessary to make available administrative
      appropriations corresponding to the additional workflowingfromimplementation of the
     joint action over the period in question.
      Supplementary resources have been estimated on the basis of human resource costs
      observed for Title VI pilot training projects run under the 1995 budget.
      10.1    Effect on number of posts
Types of work          Staff required to manage      Of which                      Period
                       the project
                       Permanent      Temporary      use of          to be
                                                     resources       financed
                                                     existing within from
                                                     DG or Service   additional
                                                     concerned       funds
Officials or A         1                                             1             5 years
temporary B            1/2                                           1/2           from
staff             C    1/2                                           1/2           September
                                                                                   1996
Other resources
Total                  2                                             2
                                                    19
 ---pagebreak---  10.2    Overall financial effect of additional human resources
                               Amount       Method of calculation
   Officials                   765 000      (ECU 92 000 + 33 000 + 28 000) x 5 years
   Temporary staff                          NB: ace. scales supplied by DG IX
   Other resources
 1               Total        [765 000 |                  =    =                           |
 The amounts express the total cost of additional posts jor the total duration oj the action.
 10.3    Increase of other expenditure resulting from the project
  Budget item                     Amount             Method of calculation
  (Number and title)
  A 2510                           12 000            Missions: 20 days/official: 20 x ECU
                                                     120 x 5 years
                                   50 000            Journeys: 10 annual journeys x ECU
                                                     1000 x 5 years
                                  156 375            Committee provided for in Article
                                                     11: 15 people x ECU 695 x 3
                                                     meetings x 5 years
                                   80 400            Experts: 20 days/experts/year x ECU
                                                     804 x 5 years
                T0tal
                                 "298775
The amounts correspond to the toted expenditure oj the action
The purpose of the missions is to evaluate and coordinate measures taken to implement the
programme and to monitor the project at first hand. The cost of these missions is calculated
at ECU 62 000.
                                               20
 ---pagebreak---                                                                   ISSN 0254-1475
                                                           COM(96) 297 final
                                             DOCUMENTS
EN                                                                       06 11
                                    Catalogue number : CB-CO-96-306-EN-C
                                                             ISBN 92-78-05743-6
Office for Official Publications of the European Communities
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