General programme "Security and Safeguarding Liberties": specific programme "Prevention and fight against crime, 2007-2013

In accordance with Decision 2007/125/JHA and Decision 2007/124/EC, this Communication consists of the mid-term evaluation of the Framework Programme “Security and Safeguarding Liberties (2007-2013) (SSL)”, composed of the two Programmes “Prevention and Fight against Crime (ISEC)” and “Prevention, Preparedness and Consequence Management of Terrorism and other Security Related Risks (CIPS)”. This report covers the 2007 – 2009 period as well as initial data related to 2010, and is aimed at assessing the quantitative and qualitative aspects of the implementation of the Programmes and the results obtained. This involves accurately mapping the programme activities, analysis of the performance of the projects financed, and a review of the instruments and implementation mechanisms, in order to identify possible corrective measures. 

Budget and Management Model: extending over the 2007 – 2013 period, the ISEC programme is endowed with a total allocation of approximately EUR 600 million, while EUR 140 million is reserved for CIPS. During the 2007 – 2009 period, ISEC allocations amounted to EUR 167 million, while CIPS received EUR 46 million. The Programmes are implemented through Annual Work Programmes (AWP), which set thematic and/or sector priorities. Implementation is carried out in the centralised direct management, i.e. all programming and operational work is carried out by the Commission, which retains full responsibility. 

Activities: during the 2007 – 2009 period, the Programmes supported nearly 400 projects and financed approximately 150 procurement contracts, worth a total of EUR 213 million.  ISEC allocations amounted to EUR167 million and for CIPS EUR 46 million. The bulk of the funding went to some 280 action grants, accounting for 61% of total resources, followed by approximately 100 FPA grants, accounting for 24% of funds. Procurement accounted for about 10% of the funds.

Nature of Activities: the Programmes provide support for a wide range of activities, from training to the purchase of equipment, and from the preparation of technical publications to assistance to cross border police operations (including the Joint Investigation Teams). In the case of ISEC, projects tend to concentrate in five main areas: (i) tools and infrastructure, which is the main output for 22% of the projects, (ii) support to law enforcement operations (18%), (iii) training programmes (17%), (iv) publications (17%), and (v) conferences (14%). For CIPS: (i) 23% of projects have an operational cooperation and coordination component, (ii)15% are focused on the development and creation of networks, (iii) 49% of projects are involved in technology and methodology transfer and (iv) another 44% deal with analytical activities.

Target Groups: law enforcement officers are the main applying group in both ISEC and CIPS, accounting for, respectively, 38% and 41% of participants in projects funded under the Programmes. In relation to ISEC, other important applying groups include NGOs and other civil society organisations (12% of participants) and government officials in general (8%). Government officials (especially those working for security and safety-related agencies) are an important group also for CIPS (19%), followed by private sector representatives (10%).

Geographical coverage: in general, the geographical distribution of projects is fairly skewed, with a relatively small number of countries playing a leading role. In the case of ISEC, four countries (Germany, Italy, Netherlands and UK) account for about 48% of all the projects and for 51% of project value. The degree of concentration is even greater in the case of CIPS, with just two countries (Italy and Spain) accounting for 48% of projects and for 60% of projects value.

Results: the results achieved reflect the varied nature of the projects funded, ranging from operational outcomes (e.g. arrests, seizures etc.) to less tangible results such as awareness-raising, development of new approaches. The most common types of results achieved are the development and adoption of new tools and methodologies, such as databases, and the spreading of best practices, but many projects also contributed to furthering the knowledge of specific issues and/or solutions. An increased mutual understanding of policies and legal and administrative systems across Member States is also a common and widely valued ‘by-product’ of many projects. In certain cases, projects with an operational orientation have achieved very tangible results. Overall, the level of achievement of results is broadly satisfactory, being in line with initial expectations in 60% of projects and better than expected for another 34%.

Improving Programme Implementation: about 75% of the s projects surveyed expressed difficulties of different kinds during the implementation affecting to a varying extent the achievement of planned results, e.g. delays in the approval of projects and the finalisation of grant agreements which have impacted beneficiaries' resource planning and implementation timetable. The report addresses the operational aspects that the Commission - or stakeholders – consider it is important to improve, and illustrates some positive changes already in place.

Future perspectives: up to now, financial support under the ISEC and CIPS programmes has covered a variety of areas of intervention. This support underlines the increasing importance of the Union's policies in the area of Freedom, Security and Justice, with the Lisbon Treaty in force and with the guidance provided by the Stockholm Programme and its Action Plan. The recent Commission communication entitled "The EU Internal Security Strategy in Action: Five steps towards a more secure Europe," proposes, over the next four years, five strategic objectives for internal security with concrete actions. This communication will orient priorities for financial support by the Union within the framework of the existing ISEC and CIPS programmes.

The Commission suggests a continuation of the programmes until 2013 without modifying the current legal bases, whilst addressing the concerns identified in the evaluation report and improving the grant approval procedure and evaluation process to enhance budget consumption of the two programmes and stimulate the submission of high quality projects. However, when contemplating the next multi-annual financial framework for 2014-2020 and the new challenges to be undertaken with limited human resources, new approaches will need to be envisaged. The Commission is currently reflecting on the future set-up of EU funding in the area of Home Affairs, and the valuable experience acquired with the ISEC and the CIPS programmes will be taken into account.