Europaudvalget 2024-25
EUU Alm.del Bilag 46
Offentligt
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Europol Unclassified – Basic Protection Level
The Hague, 31 January 2024
MBS 014.2024
Ms Roberta Metsola
President of the European Parliament
A 000700 01.02.2024
Europol’s Draft Programming Document 2025-2027
Dear President Metsola,
In accordance with Article 32(1) of the Financial Regulation applicable to Europol
(‘Europol Financial Regulation’), I am pleased to transmit Europol’s draft
Programming Document (PD) 2025-2027, as endorsed by the Management Board
(MB).
The draft PD 2025-2027 contains Europol’s multiannual and annual programming,
the multiannual resource outlook, as well as the draft estimate of revenue and
expenditure for 2025.
Pertaining to resource planning, while fully supporting Europol’s need for additional
resources in order to continuously and effectively support the national competent
authorities in thwarting the current and emerging criminal threats, the MB also
acknowledged the complex budgetary context and the concerns expressed by the
Commission with regard to the feasibility of obtaining the requested additional
resources. Thus, Europol has engaged in further dialogue with the Commission,
with the aim to ascertain whether the resources requested by the Agency may be
adjusted without jeopardizing the effective fulfilment of Europol’s commitments and
responsibilities, particularly in the priority areas outlined in the draft PD.
Therefore, a draft PD 2025-2027, updated to reflect any possible adjustment, may
eventually be transmitted to the European Parliament following the forthcoming
meeting of the MB, by 31 March 2024 at the latest.
I am pleased to confirm that the Joint Parliamentary Scrutiny Group will be
consulted on the Document’s multiannual component.
I remain at your disposal for any additional information
the draft PD 2025-2027.
Management Board Secretariat Postal address
Eisenhowerlaan 73
P.O. Box 908 50
2517 KK The Hague
2509 LW The Hague
The Netherlands
The Netherlands
you may require concerning
Phone: +31(0)70 302 51 15
Email:
[email protected]
www.europol.europa.eu
This document contains Europol Unclassified -Basic Protection Level information.
It must be protected to ensure its confidentiality and is not to be disseminated to a ny unauthorised person or to the public .
 EUU, Alm.del - 2024-25 - Bilag 46: Program og invitation til 15. møde i den parlamentariske følgegruppe vedr. Europol (JPSG)
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Europol Unclassified – Basic Protection Level
Yours sincerely,
Peter De Buysscher
Chairperson
Attachment:
Europol’s
#1340002v11B).
1
Programming
Document
2025-2027
(EDOC
1
Please note that this document bears the marking “Europol Unclassified – Basic Protection
Level”. As such, it is not meant for public dissemination.
Management Board Secretariat
Eisenhowerlaan 73
2517 KK The Hague
The Netherlands
Postal address
P.O. Box 908 50
2509 LW The Hague
The Netherlands
Phone: +31(0)70 302 51 15
Email:
[email protected]
www.europol.europa.eu
This document contains Europol Unclassified -Basic Protection Level information.
It must be protected to ensure its confidentiality and is not to be disseminated to a ny unauthorised person or to the public .
 EUU, Alm.del - 2024-25 - Bilag 46: Program og invitation til 15. møde i den parlamentariske følgegruppe vedr. Europol (JPSG)
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Europol Unclassified – Basic Protection Level
The Hague,
EDOC#
31 January 2024
1340002v11B
Draft
Europol Programming Document
2025 – 2027
Endorsed by the Management Board of Europol on 31 January 2024
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Table of Contents
Table of Contents ................................................................................................. 2
List of Acronyms ................................................................................................... 3
Executive summary .............................................................................................. 4
SECTION I – General Context ............................................................................. 11
SECTION II - Multi-annual programming 2025 – 2027 ....................................... 27
1.
2.
Multi-annual programme ............................................................................... 27
Human and financial resource outlook for the years 2025-2027 ......................... 32
SECTION III - Work Programme 2025 ................................................................ 43
Activities ........................................................................................................... 43
Development of information technology and information management capabilities ..... 43
Operational Coordination ..................................................................................... 54
Combating Serious and Organised Crime ............................................................... 61
Combating Cyber Crime ...................................................................................... 71
Counter-Terrorism .............................................................................................. 83
Combating Financial and Economic Crime .............................................................. 95
Strategic and Analysis Coordination .....................................................................105
Governance, support and administration ..............................................................114
Management Board Functions ............................................................................ 122
ANNEXES .......................................................................................................... 124
Annex I: Organisational chart of the Agency for year 2025 ...............................................125
Annex II: Resources allocation per activity 2025 – 2027 ...................................................126
Annex III: Financial Resources 2025 – 2027 ...................................................................127
Annex IV: Human resources quantitative ........................................................................133
Annex V: Human resources qualitative ...........................................................................138
Annex VI: Environment management .............................................................................144
Annex VII: Buildings – year 2025 ..................................................................................146
Annex VIII: Privileges and immunities ............................................................................150
Annex IX: Evaluations ..................................................................................................151
Annex X: Strategy for the organisational management and internal control systems ............153
Annex XI: Grants .........................................................................................................155
Annex XII: Strategy for cooperation with third countries and/or international organisations ..169
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List of Acronyms
ADEP
AML
AP
ARO
BPL
CA
CBRN
CEPOL
COSI
CSDP
CSE
CT
DAP
DPF
EC3
ECA
ECTC
EDPS
EEAS
EES
EFECC
EIS
EMAS
EMAS
EMCDDA
EMPACT
EMSA
EMSC
EPE
EPPO
ESOCC
ETIAS
EUCP
EUIPO
Eurojust
Eu-LISA
Automation of Data Exchange Processes
Anti-Money Laundering
Analysis Project
Asset Recovery Office
Basic Protection Level
Contract Agent
Chemical, Biological, Radiological and
Nuclear
European Union Agency for Law
Enforcement Training
Standing Committee on Operational
Cooperation on Internal Security
Common Security and Defence Policy
child sexual exploitation
Counter-Terrorism
Data Analysis Portal
Data Protection Function
Europol Cybercrime Centre
European Court of Auditors
European Counter Terrorism Centre
European Data Protection Supervisor
European External Action Service
Entry-Exit System
European Financial and Economic Crime
Centre
Europol Information System
Europol Malware Analysis Solution
EU Eco-Management and Audit Scheme
European Monitoring Centre for Drugs
and Drug Addiction
European Multidisciplinary Platform
against Criminal Threats
European Maritime Safety Agency
European Migrant Smuggling Centre
Europol Platform for Experts
European Public Prosecutor’s Office
European Serious and Organised Crime
Centre
EU Travel Information and Authorisation
System
EU Crisis Protocol
European Union Intellectual Property
Office
European Union Agency for Criminal
Justice Cooperation
European Union Agency for the
Operational Management of Large-Scale
IT Systems in the Area of Freedom,
Security and Justice.
Financial Intelligence Unit
Frontex
GE
GO
HR
HRCN
HVT
IAC
IAM
ICT
IM
IRU
ISF
J-CAT
JHA
JRC
LEA
MB
MENA
MS
MTIC
OAC
OAP
OCG
OLAF
OSINT
OSP
OTF
PERCI
PNR
QUEST
R&D
SIENA
SIS
SNE
SOC
SOCTA
TA
TFTP
THB
TP
UMF
VIS
European Border and Coast Guard Agency
Guest Expert
Guest Officer
Human Resource
High Risk Criminal Networks
High Value Targets
Internal Audit Capability
Identity and Access Management
Information and Communications
Technology
Information Management
Internet Referral Unit
Internal Security Fund
Joint Cybercrime Action Taskforce
Justice and Home Affairs
Joint Research Centre
Law Enforcement Authorities
Management Board
Middle East and North Africa region
Member State
Excise and Missing Trader Intra
Community
Operational and Analysis Centre
Operational Action Plan (under EMPACT)
Organised Crime Group
European Anti-Fraud Office
Open Source Intelligence
Online Service Providers
Operational Task Force
European platform for takedown of
illegal content online
Passenger Name Record
Querying Europol’s systems
Research and Development
Secure Information Exchange Network
Application
Schengen Information System
Seconded National Expert
Serious and Organised Crime
Serious and Organised Crime Threat
Assessment
Temporary Agent
Terrorist Finance Tracking Programme
Trafficking in human beings
Third Part(y)/ies: Third countr(y)/ies
and/or international organisation(s)
Universal Message Format
Visa Information System
FIU
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Mission Statement
Europol’s mission is to support its Member States in preventing and combating all forms of
serious international and organised crime, cybercrime and terrorism.
Executive summary
Europol’s Programming Document is prepared on the basis of Article 12 of the Europol
Regulation and Articles 32 and 33 of the Financial Regulation applicable to Europol. An
overview of the current and anticipated future policy factors influencing or impacting Europol’s
work in the coming years is presented in Section I.
The strategic programming of Europol, including resources programming, is provided in
Section II - Multi-annual programming 2025-2027. Special focus is placed on six main
strategic priorities which have been identified as part of the Europol Strategy “Delivering
security in partnership”, endorsed by Europol’s Management Board in June 2023. These
priorities will guide the work of the Agency in the years 2025-2027 to:
be the EU criminal information hub, including for data acquisition;
deliver agile, real-time operational support;
be a platform for European policing solutions;
bring the relevant partners together for cross-border cooperation and joint action;
be at the forefront of law enforcement innovation and research;
be the model EU organisation for law enforcement cooperation.
In Section III, Europol’s Work Programme provides a comprehensive overview of the full work
portfolio of the agency, including its regular (recurrent) work and specific annual objectives
and actions for 2025; the work is organised around the different areas of operation
(Activities).
Europol will continue providing the Member States with high quality operational support to
investigations in the priority areas aligned with the EU Security Union Strategy and following
the objectives of the EU Strategy to tackle Organised Crime, the EU Cybersecurity Strategy
for the Digital Decade, the Anti-Money Laundering package, the New Pact on Migration and
Asylum and the Counter-Terrorism Agenda, among others.
The planned work of Europol’s Operational Centres, as well as the horizontal support
functions, is extensive and striving towards further evolvement of capabilities, expertise and
tools, in order to offer the necessary support to MS’ operations. In addition to regular tasks
and responsibilities, the key highlights in Europol’s planning for 2025 are summarised below:
The priorities of the European Multidisciplinary Platform against Criminal Threats
(EMPACT) 2022-2025
will remain the key driver for the operational support provided to
the MS’ competent authorities in 2025. Apart from contributing to the implementation of
all Operational Action Plans, Europol performs the coordinator role in four Common
Horizontal Strategic Goals (Intelligence Picture, High-risk criminal networks, Online and
offline trade in illicit goods & services and Criminal finances, money laundering and asset
recovery). In 2025, the agency will prepare the
Serious and Organised Crime Threat
Assessment (SOCTA) 2025,
which will lay the basis for the Council’s decision on the
EMPACT priorities for the following phase.
Criminal analysis
remains at the core of Europol’s business and the agency will be further
reinforcing analysis coordination through enhanced attention to quality output and control,
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standardisation and training. In 2025, the case management system and the joint analysis
platform will reach maturity and allow for closer and more effective collaboration with MS.
In addition, the agency is planning to develop and launch a new Analysis Training and
Coaching program to satisfy the need for state-of-the-art analytical competence at Europol
and the MS competent authorities.
The multiannual
Information management strategy
and
ICT Business Streams,
which encompass the bulk of agency’s technology development work, will continue
consolidating the most substantial transformation in Europol’s
analysis capabilities,
with
further enhancements in
joint analysis
and
case management
capabilities. Europol will
also be further improving, as needed, capabilities used directly by Member States, such
as SIENA and QUEST, and will pursue further analysis and implementation of the
obligations stemming from the
Directive on Information Exchange.
Through the
Business Streams, Europol will continue contributing to the EU Interoperability, in line with
the European Commission planning and in close cooperation with eu-LISA; work on a
second Data Centre
(which will ensure, among others, the necessary availability of
Europol’s systems in line with interoperability requirements) should start in 2025, subject
to availability of a location and resources. Finally, Europol will pursue achieving progress
on governance and administration ICT tools.
With
ETIAS
becoming operational in 2025, followed by
VIS
systematic checks in 2026,
Europol’s
Operational and Analysis Centre
(OAC) will have to ensure the provision of
24/7 swift follow-up on hits of travel authorisation and visa applications against Europol
data. In 2025, the agency should also strengthen its capabilities for processing biometric
data in view of its involvement in the approaching revised
Prüm II
framework. These new
services will be possible to implement only to the extent that Europol’s level of resources
allows.
Europol will continue providing quality support to Member States in identifying
High Value
Targets
(HVT) representing the highest risk of organised and serious crime, and in
increasingly complex investigations against HVTs through the setting up of
Operational
Task Forces
(OTF). In 2025, the
European Serious and Organised Crime Centre
(ESOCC)
will further focus on the implementation of the HVT/OTF concept and will support
the development and implementation of tools, including the related funding possibilities,
enabling fast operational support (e.g. money drops).
The combat against
drug trafficking
will target concrete crime hubs and hotspots (such
as main harbours), for which specific measures, addressing the particular crime enabling
factors or facilitating targeted regional coordination of interventions, can be set up in
consultation with the main MS/TP concerned. Europol will also exploit opportunities for
expanding the cooperation with the new European Union Drugs Agency (EUDA) replacing
EMCDDA following the new mandate of the organisation from 2024. In the area of
environmental crime,
the ESOCC will focus on boosting partnerships through dedicated
alliances, including relevant private parties, to strengthen targeted operational
cooperation, addressing intelligence gaps, sharing of expertise and innovation.
The
European Migrant Smuggling Centre
(EMSC) within ESOCC will review the
solutions and tactics deployed and the partnerships with relevant counterparts at national
and international level, in view of optimising data collection and operational coordination.
EMSC will aim at enhancing information sharing, incl. social media monitoring, especially
on migrant smuggling routes and networks. Furthermore, the centre will intensify the
financial investigation angle of the support provided to investigations, in close cooperation
with the EFECC.
The
European Cybercrime Centre (EC3)
will increase the focus on collection,
processing and production of cyber threat intelligence, and the delivery of tactical analyses
identifying and prioritising the most important cybercriminal data hubs and services and
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will provide support to follow-up operations by MS. EC3 will aim at obtaining and
processing datasets such as lawfully intercepted and decrypted communications of
criminal networks, as well as seized Darknet servers used for criminal trade and the
dissemination of child abuse material.
In 2025, EC3 will continue working on its expertise and capabilities to support
cryptocurrency-related
investigations to address the increasing demand by MS. The new
CryptoPortal will be further upgraded to provide state-of-the-art technical functionalities.
In parallel, the Digital Support Unit will keep identifying suitable tactics, performing agile
research, developing
digital forensic tools
and sharing best practices to respond to
emerging operational needs. The centre will also contribute to the implementation of the
EU Forensic Science Area 2.0 Action Plan, in particular in the areas of biometrics, artificial
intelligence, digitalisation and emerging technologies.
In preparation for the new EU Regulation laying down rules to prevent and combat
child
sexual abuse,
Europol will continue undertaking the necessary technical and operational
adjustments to ensure effective handling of the expected increase in data contributions
and effective provision of support to MS. The agency will also have in place the European
Union Child Abuse Referral Service (EU-CARES) and will utilise the benefits from this new
automated referral system, facilitating the receiving, processing and disseminating of
online child abuse material from pertinent non-law enforcement actors, and the automatic
cross check of data against EAS and IVAS.
In the area of
counter-terrorism,
efforts to enhance the targeting of HVT individuals
who represent an immediate threat to EU security and aiming to dismantle terrorist/violent
extremist organisations will continue. The
European Counter Terrorism Centre (ECTC)
will provide support to an increased number of Operational Task Forces following the
adjusted concept for establishing OTFs in the CT area and will pursue fostering information
exchange among the relevant partners at EU level. Given the rising trend of
right wing
terrorism
and violent extremism, the centre will perform priority actions aiming at
identifying targets in high profile cases and support MS through a new Analysis Project
dedicated exclusively to this crime area (if established in 2024).
In 2025, the
EU Internet Referral Unit (EU IRU)
of the ECTC will further expand its
focus towards violent left wing extremism and violent anarchism and gradually align its
monitoring capabilities, referral processes and analytical procedures for this crime
phenomenon with the other online terrorist and violent extremist areas. In parallel,
Europol should ensure the efficient functioning of the
EU platform for referrals and
removal orders (PERCI)
for handling online terrorist content and notifications of
imminent threat to life according to the requirements of Terrorist Content Online (TCO)
Regulation and (subject to developments in 2024) the Digital Services Act. Furthermore,
the EU IRU is planning to foster Europol’s crime centres competency in open source
investigations and social media monitoring and to explore the possibilities for developing
software solutions for countering fake news and trolls-driven communication.
The European Financial and Economic Crime Centre (EFECC)
is striving to increase
Europol’s responsiveness and operational performance in the areas of fraud, money
laundering, asset recovery, corruption and counterfeiting. In particular, the centre aims
at enhancing its operational support against organised crime groups and professionals
providing money laundering services to other criminal groups (crime as a service) and at
strengthening its capabilities in providing swift feedback and expertise concerning tracing
and analysis of virtual assets taking into account the high number of cases contributed by
MS.
In 2025, the new EU Anti-Money Laundering Authority (AMLA) should be operational. It
will be essential for Europol to have a well-functioning working relation with the new
agency and the Cooperation and Support Mechanism (CSM) for the FIUs, which AMLA will
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be in charge of. Europol and AMLA should have in place a secure communication channel,
access to information and modalities for structured operational collaboration such as for
participation in Joint Analysis Teams. The EFECC will utilise the new opportunities to
further improve the cooperation with the FIUs and increase the number of countries
contributing
financial intelligence
to Europol.
The EFECC will continue promoting the cooperation with the
Customs
authorities and
their participation in EMPACT and Europol’s Analysis Projects. In 2025, the centre should
benefit from the established connection between the Customs Information System and
Europol’s databases, enabling automated cross-checking. The agency will follow closely
the developments related to the Customs Reform with respect to Europol’s mandate and
prepare for taking up any potential new tasks. In parallel, Europol will support
operationally and strategically the implementation of the Commission’s
Anti-Corruption
package and contribute to the work of the new EU Network against Corruption.
Europol seeks to be at the forefront of
law enforcement innovation and research
and
through its
Innovation Lab,
it facilitates innovation in the law enforcement community
and addresses the risks and opportunities of emerging technologies. The Lab acts as the
secretariat for the
EU Innovation Hub for Internal Security
and leads the Hub Team
in collaboration with other JHA agencies. Moreover, Europol will support the European
Commission in identifying key research themes, fostering uptake of research and
innovation, as well as providing support to Member States in the use of emerging
technologies in preventing and countering crimes. In 2025, the Lab should be making use
of the sandbox environment for Europol and MS to develop, train and validate models and
tools using operational data. It will also aim at further developing an innovation pipeline
and at establishing possibilities for hosting LEA and non-LEA researchers of key emerging
technologies.
In the realm of external relations, Europol will initiate the implementation of its new
External Strategy
and will pursue cooperation with selected high-priority third countries
and organisations. In parallel, the agency will be looking into the effectiveness of already
existing agreements, possibly by delivering a strategic review of its cooperation with the
Schengen Associated Countries. Furthermore in 2025, the organisation will assess
opportunities and reach out to the private sector following the established priorities
through the new Strategy for the steering and coordination of
Private Party
cooperation.
In line with its Regulation, Europol will focus on enhancing the intake of
relevant information from the private sector for the purpose of enriching the criminal
intelligence picture.
In 2025, work will continue to implement organisational initiatives or changes identified
through the amended Europol Regulation and the renewed Europol Strategy, while the
Agency will continue making progress in promoting workforce diversity and inclusion, in
line with Europol’s
Diversity and Inclusion Strategy.
The HR and Finance Strategies
will guide and ensure the efficient and effective management of budget and resources,
while the
Strategic Housing Roadmap
will advance further to allow for the agency’s
growth. In 2025, the Temporary Satellite Building 1 is planned to be returned to the Host
State, while the Temporary Satellite Building 2 will become operational for use.
Table: Overview of Europol’s objectives for the year 2025
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Work Programme
Activity
Objective 2025
A.1.1 Continue with the implementation of the Information Management
Strategy.
A.1.2 Further develop ICT capabilities for Europol’s operations.
A.1. Development of
information
technology and
information
management
capabilities
A.1.3 Implement improvements to core MS-facing operational capabilities.
A.1.4 Advance interoperability and connectivity with information management
systems at EU level to enhance information exchange.
A.1.5 Further implement Europol’s Innovation Strategy.
A.1.6 Further improve corporate information management and related
administrative ICT capabilities.
A.1.7 Develop and maintain reliable and secure ICT capabilities.
A.2.1 Ensure the effective functioning of the Operational Centre in managing
the intake of operational information.
A.2.2 Provide support to operations and crisis management.
A.2.3 Build-up Europol’s operational services to comply with the legal
obligations stemming from ETIAS, VIS and other EU information management
systems.
A.2.4 Ensure the provision of efficient services by Europol’s SIRENE Office.
A.2.5 Build-up Europol’s biometric capabilities and services.
A.2.6 Provide support to MS investigations with travel intelligence.
A.2.7 Provide support to Member States in the area of special tactics.
A.2.8 Manage and support deployments, incl. Europol’s Guest Officers and
Guest Experts capabilities.
A.3.1 Ensure the effective functioning of the ESOCC in providing strategic and
operational support to EU MS’ investigations on SOC.
A.3.2 Provide support to EU Member States’ investigations on drug production
and trafficking.
A.3.3 Provide support to EU Member States’ investigations on weapons and
explosives.
A.3. Combating
Serious and
Organised Crime
A.3.4 Provide support to EU Member States’ investigations on high risk OCGs
and criminal networks.
A.3.5 Provide support to EU Member States’ investigations on organised
property crime.
A.3.6 Provide support to EU Member States’ investigations on environmental
crime.
A.3.7 Provide support to EU Member States’ investigations on organised crime
related to migrant smuggling.
A.3.8 Provide support to EU Member States’ investigations on trafficking in
human beings.
A.4. Combating
cybercrime
A.4.1 Ensure the effective functioning of EC3 in providing strategic and
operational support to EU Member States’ investigations on cybercrime.
A.4.2 Provide digital forensics support to EU Member States’ investigations.
A.4.3 Provide document forensics support to EU Member States’ investigations.
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A.2. Operational
Coordination
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Work Programme
Activity
Objective 2025
A.4.4 Provide cyber intelligence support to EU Member States’ investigations.
A.4.5 Provide support to EU Member States’ investigations on cyber-dependent
crimes.
A.4.6 Provide support to EU Member States’ investigations on child sexual
exploitation.
A.4.7 Provide support to EU Member States’ investigations on payment fraud
and online fraud schemes.
A.4.8 Provide support to EU Member States’ investigations on the criminal
online trade and use of online environments for criminal purposes.
A.4.9 Provide support and operational coordination to the J-CAT operations and
activities.
A.4.10 Proactively develop expertise and solutions related to challenges in
cybercriminal investigations.
A.5.1 Ensure the effective functioning of the ECTC in providing strategic and
operational support to EU Member States’ investigations related to counter-
terrorism.
A.5.2 Provide support to EU Member States’ counter-terrorism investigations.
A.5.3 Provide support to EU Member States’ investigations on war crimes,
genocide, crimes against humanity.
A.5.4 Provide support to EU Member States’ CT investigations with terrorism-
related financial information.
A.5.5 Provide CBRN/E support to EU Member States’ investigations.
A.5. Counter-
terrorism
A.5.6 Provide support to the ATLAS Network.
A.5.7 Provide quality internet referral services.
A.5.8 Ensure the efficient functioning of the EU platform to tackle illegal
content online (PERCI) as a communication and coordination tool for referrals
and removal orders within the EU.
A.5.9 Provide support to EU Member States’ CT internet-based investigations.
A.5.10 Provide technical support to CT internet-based investigations and
referrals.
A.5.11 Provide support to Member States on acquiring cross-border access to
electronic evidence.
A.6.1 Ensure the effective functioning of the EFECC in providing strategic and
operational support to EU Member States’ investigations on financial and
economic crime.
A.6.2 Provide support to EU Member States’ investigations on fraud.
A.6. Combating
Financial and
Economic Crime
A.6.3 Provide support to EU Member States’ investigations on money
laundering.
A.6.4 Increase cooperation with FIUs.
A.6.5 Provide support to EU Member States’ investigations in identifying and
tracing proceeds of crime.
A.6.6 Provide support to EU Member States’ investigations on corruption.
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Work Programme
Activity
Objective 2025
A.6.7 Provide support to EU Member States’ investigations on the production
and distribution of counterfeit goods.
A.6.8 Provide support to EU Member States’ investigations on Euro
counterfeiting.
A.7.1 Reinforce criminal analysis coordination and expertise at Europol to
ensure provision of quality analysis support to Member States’ investigations.
A.7.2 Ensure data and analysis quality control at Europol.
A.7.3 Reinforce analysis training capabilities at Europol.
A.7. Strategic and
Analysis Coordination
A.7.4 Deliver quality strategic reports.
A.7.5 Provide support and funding opportunities to EMPACT priorities and
actions.
A.7.6 Manage cooperation with EU Member States.
A.7.7 Manage cooperation with third countries.
A.7.8 Manage cooperation with EU institutions, agencies or bodies.
A.7.9 Manage cooperation with international and regional organisations.
A.7.10 Advance with the implementation of the new strategy for managing and
enhancing cooperation with private parties.
A.8.1 Continue optimising Europol’s corporate functions.
A.8.2 Ensure fundamental rights compliance in all internal and external
operational and administrative processes.
A.8.3 Ensure efficient internal and external communication.
A.8. Governance,
support and
administration
A.8.4 Ensure efficient human resources management.
A.8.5 Ensure efficient financial and budget management.
A.8.6 Ensure the necessary level of physical, personal and information security
at Europol.
A.8.7 Progress towards the rationalisation and expansion of Europol’s facilities
services and enhanced environmental management.
A.8.8 Steer and coordinate the implementation of the Strategic Housing
Roadmap.
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SECTION I – General Context
This section presents the current and future policy context that is expected to influence
Europol’s work in the coming years. Through the implementation of its Annual Work
Programme 2025, Europol will contribute to the implementation of several EU policies in the
JHA domain, as detailed below and under each specific Activity in Section III.
1.
Security Union
1.1. The EU Security Union Strategy
The EU Security Union Strategy
1
adopted on 24 July 2020 lays out four strategic priorities for
action at EU level:
A future-proof security environment: this priority comprises the establishment of new EU
rules on the protection and resilience of critical infrastructure, the revision of the Network
and Information Systems Directive and setting up of a Joint Cyber Unit. It will promote
public private cooperation to ensure stronger physical protection of public places and
detection systems against terrorist attacks.
Tackling evolving threats: the European Commission will make sure that existing EU rules
against cybercrime are fit for purpose and will explore measures against identity theft and
to enhance law enforcement capacity in digital investigations, which would include artificial
intelligence, big data, etc. The Commission put forward on 24
th
July 2020 a strategy for a
more effective fight against child sexual abuse online and will provide next an EU approach
on countering hybrid threats.
Protecting Europeans from terrorism and organised crime: Steps are underway to
strengthen border security legislation and cooperation with non-EU countries and
international organisations. EU Agenda on Counter-Terrorism, Drug Strategy and Action
Plan 2021-2025 and EU Action Plan against firearms trafficking were issued in 2020, while
EU Agenda for tackling organised crime, EU Strategy on Combatting Trafficking in Human
Beings 2021-2025 and renewed EU Action Plan against migrant smuggling 2021-2025 were
put forward in 2021.
A strong European security ecosystem: Key measures include strengthening Europol's
mandate and further developing Eurojust to better link judicial and law enforcement
authorities. Working with partners outside of the EU is also crucial. Cooperation with
Interpol will be reinforced through the planned EU-Interpol Agreement. Research and
innovation are powerful tools to counter threats and to anticipate risks and opportunities.
1.2. European Commission’s Communication: Enhancing the accession process – A
credible EU perspective for the Western Balkans
In February 2020, the European Commission adopted a communication on “Enhancing the
accession process – A credible EU perspective for the Western Balkans”
2
, which foresees
stronger commitments by the EU and the Western Balkans. Credibility should be reinforced
through an even stronger focus on fundamental reforms, starting with the rule of law, the
functioning of democratic institutions and public administration as well as the economy of the
candidate countries.
Ahead of the EU-Western Balkans Summit of 6 December 2022 and the Justice and Home
Affairs (JHA) Council on 8 December 2022, the Commission presented also an “EU Action Plan
on the Western Balkans” aimed at strengthening cooperation on migration and border
management with partners in Western Balkans. In December 2022, the European Council
decided to grant the EU candidate status to Bosnia and Herzegovina.
1
2
COM/2020/605 final
COM/2020/57 final
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1.3. Joint Communication: Eastern Partnership policy beyond 2020: Reinforcing
Resilience – an Eastern Partnership that delivers for all
The European Commission-EEAS joint communication Eastern Partnership policy beyond
2020
3
was published on 18 March 2020 and comprises a new policy framework to strengthen
resilience in partner countries in light of today's challenges, foster sustainable development
and deliver tangible results for citizens. The EU, Member States and partner countries are
invited to work together for accountable institutions, the rule of law and security. In particular,
the EU shall work to enhance its support to fighting corruption and economic crime and
improve cross-border cooperation to better protect people against organised crime. On 23
June 2022, the European Council decided to grant the status of candidate country to Ukraine
and to the Republic of Moldova.
1.4. Strengthening cooperation with CSDP missions and operations
In June 2020, the Council adopted conclusions on security and defence
4
, which initiated the
work towards a Strategic Compass for Security and Defence, adopted in March 2022. In the
Strategic Compass, MS agreed to develop a new Civilian CSDP Compact by mid-2023.
On 22 May 2023 the Council adopted the new Civilian CSDP Compact
5
reaffirming its full
commitment to strengthening civilian CSDP and calling for the enhancement of the civilian
CSDP missions’ effectiveness, impact, flexibility and robustness, enabling them to tackle more
effectively current, emerging and future security challenges across the internal – external
nexus. The implementation is taken forward by the EEAS and the Commission through a joint
action plan, as well as through MS’ own implementation plans. Reinforced cooperation
between CSDP and JHA is an important element of the Strategic Compass.
2.
Serious and Organised Crime
2.1. EU Strategy to tackle Organised Crime 2021-2025
On 14 April 2020, the European Commission presented a Communication on the EU Strategy
to tackle organised crime 2021-2025
6
that sets out the strategic framework goals to enhance
the fight against organised crime in the EU. The Strategy builds on four main priorities: (1)
boosting law enforcement and judicial cooperation, (2) effective investigations: disrupting
organised crime, (3) eliminating profits generated by organised crime and preventing
infiltration into the legal economy and society and (4) making law enforcement and judiciary
fit for the digital age. The Europol Regulation Recast and the EU Police Cooperation Package,
both adopted, were major pieces of legislation included in the strategy. Europol is an
important actor when it comes to the implementation of the Strategy, especially in connection
to High-Value Targets, High-risk organised crime groups and digital investigation tools.
2.2. EU Drug Strategy and Action Plan 2021-2025
The EU Drugs Strategy
7
provides the overarching political framework for the Union’s drugs
policy for the period 2021-2025 and is complemented by an EU Drugs Action Plan
8
, which sets
out concrete implementation actions. The Action Plan underscores the role of Europol as a
central actor for the implementation of the part on supply reduction. The Strategy puts
forward the following priorities: targeting high-risk OCGs and disrupting criminal business
models; proceeds and instrumentalities of OCGs involved in the drug markets, and social
reuse of confiscated assets; international cooperation with third countries and involvement of
relevant EU agencies. Further efforts are needed to address smuggling of drugs in and out of
the EU by using established trade channels and illicit crossing of the EU borders. The Strategy
3
4
5
6
7
8
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COM(2021)170 final
Council 14178/20
Council 9819/21
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requires measures for more effective monitoring of logistical and digital channels exploited
for drug distribution in close cooperation with the private sector.
Moreover, on 18 October 2023, the European Commission adopted the
EU roadmap to fight
drug trafficking and organised crime
9
,
which aims to reinforce the EU action against the
most serious security threats posed by the drugs trade and organised crime groups. It is
composed of seventeen Priority Actions organised around four thematic areas: 1) The
European Ports Alliance to strengthen the resilience of logistical hubs; 2) Action to dismantle
high-risks criminal networks; 3) Prevention; and 4) International cooperation. Europol is
mentioned extensively in the Roadmap and will be actively involved in the implementation of
most of its actions, in cooperation with MS and other relevant EU Agencies and bodies.
2.3. Establishment of the European Union Drugs Agency
The regulation setting up the European Union Drugs Agency (EUDA) and replacing the
European Monitoring Centre for Drugs and Drug Addiction (EMCDDA) entered into force on 1
July 2023 and will become applicable on 1 July 2024. This new legal framework will expand
the mandate of the agency, expanding its scope of actions to polysubstance use,
strengthening its monitoring and threat assessment capabilities and giving the agency a clear
mandate to analyse global and third countries developments with potential impact on the EU.
Most importantly for Europol, the EUDA will be competent to address drug supply and drug
market issues, which will offer increased opportunities for collaboration.
2.4. EU Action Plan on Firearms Trafficking 2020-2025
In its EU Action Plan on Firearms Trafficking 2020-2025
10
the European Commission invites
MS and south-east Europe partners to improve cooperation among law enforcement
authorities and with prosecutors and forensics specialists, to tackle the principal sources and
routes of illicit firearms. The Commission will also improve cooperation between law
enforcement and parcel and postal operators, to ensure stricter oversight of shipments
containing firearms. Cooperation between EU and non-EU partners need to be stepped up in
particular with countries in North Africa and the Middle East. The Commission will work to
establish a systematic and harmonised collection of data on seizures of firearms, and publish
annual statistics. In cooperation with Europol, the Commission will explore the feasibility of
rolling out an EU-level tool to track in real time firearms-related incidents and develop a
permanently up-to-date picture. The Commission invites Europol and MS to keep a focus on
firearms cases in the framework of cyber patrolling operations and actions against dark web
marketplaces.
2.5. Revision of the Regulation on the import, export and transit of firearms
On 28 October 2022, the European Commission presented a proposal to revise the Regulation
setting out rules on the import, export and transit of firearms (commercial policy) to prevent
the risk of diversion by improving the traceability of firearms and facilitating information
exchange between national authorities. Better data and information exchange will reduce the
risk of legally manufactured firearms (civilian use) being diverted to the illegal market. Key
provisions for Europol include: the obligation for customs to share information on seizures
with competent authorities via SIENA; the alignment of the scope of the regulation to the
scope of the Firearms Directive; imposition of stricter rules and controls for deactivated
weapons and alarm and signal weapons; stricter rules for the import of semi-finished firearms
and essential components; creation of national firearms contact points; enhanced cooperation
between LE (including customs) and licensing authorities; development of an EU electronic
licensing system for manufacturers and dealers to apply for import and export authorisation,
as well as the need to check SIS, ECRIS and the central system containing all refusals before
granting import or export authorisations.
9
10
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2.6. New Pact on Migration and Asylum
On 23 September 2020, the European Commission presented the New Pact on Migration and
Asylum
11
. Of relevance for Europol are the proposals for a Regulation introducing a screening
of third country nationals at the external borders (Screening Regulation) and the Regulation
on the revision of Eurodac (see section 6). Europol already participates in the regular meetings
and reporting of the EU Migration Preparedness and Crisis Blueprint, as well as the Situational
Awareness and Forecasting project.
2.7. EU Action Plans on the Central Mediterranean, Western Balkans, Western
Mediterranean routes and a Migration Management Toolbox
On 21 November 2022 the European Commission presented the
EU Action Plan on the
Central Mediterranean
in response to the large increase in migratory pressure. The Action
Plan proposes 20 measures to fight migrant smuggling and human trafficking in close
cooperation with EU Agencies (in the context of the Anti-Smuggling Operational Partnerships
as presented in the EU Action Plan against migrant smuggling).
On 6 December 2022, the Commission presented the
EU Action Plan on the Western
Balkans,
where the fight against migrant smuggling also features, including making full use
of Europol’s Operational Task Force(s) in the region and enhancing the participation of
Western Balkans partners in EMPACT, as well as ensuring implementation of the regional anti-
smuggling programme with cooperation of relevant EU Agencies.
On 6 June 2023, the Commission presented the
Action Plan on the Western
Mediterranean and Atlantic migration routes,
with 18 operational measures, of which
those in the domain of migrant smuggling and trafficking in human beings are relevant for
Europol. In the context of anti-smuggling operational partnerships, the promotion of
structured cooperation between Europol and Morocco in the form of a Working Arrangement
is promoted, as well as the implementation of a regional programme (Morocco, Tunisia, Egypt)
to fight against migrant smuggling and trafficking in human beings in cooperation with
relevant EU Agencies. Further emphasis was placed on consolidating and ensuring synergies
between existing Common Operational Partnerships and Joint Investigation Teams with West
and North African countries, as well as promoting their participation in EMPACT.
Also on 6 June 2023, the Commission put forward a new
toolbox of measures to address
the increasing misuse of commercial transport by criminal networks to facilitate
irregular migration to the EU,
with a focus on airways. In this context, Europol’s
contributions to an improved situational awareness of relevant transport operators and to flag
emerging trends is expected within the Migration and Crisis Preparedness Blueprint Network.
On 17 September 2023, in view of the recent increase in the migratory flows on the Central
Mediterranean route directed to Italy, the Commission presented the
10-Point Plan for
Lampedusa,
to reduce irregular migration and provide EU assistance to the Italian
authorities. The Plan lays out a set of immediate actions to be exercised, in full respect of
fundamental rights and international obligations, to, inter alia: reinforce the support to Italy
by the EUAA and Frontex; step up returns; take measures to limit the use of unseaworthy
vessels and against migrant smuggling; step up border surveillance; support the prevention
of departures by establishing operational partnerships on anti-smuggling with countries of
origin and transit. Europol will contribute to the implementation of this Plan, including through
the establishment of a regional OTF to combat migrants’ smuggling across the Mediterranean,
supporting with the identification of High Value Targets and ensuring real-time information
exchange between Italy, other MS and relevant third countries.
2.8. European Commission’s legislative initiative to prevent and fight migrant
smuggling
11
COM(2020)609 final
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On 28 November 2023, the European Commission announced a new legislative package to
strengthen the EU legal framework to prevent and fight migrant smuggling, including a
Regulation and a Directive. The proposal for a
Regulation on enhancing police
cooperation in relation to the prevention, detection and investigation of migrant
smuggling and trafficking in human beings, and on enhancing Europol’s support to
preventing and combating such crimes and amending Regulation (EU) 2016/794
is
particularly relevant for Europol as it: 1) establishes a European Centre Against Migrant
Smuggling (EMSC) within Europol, reinforcing its role as a focal point to support MSs in the
prevention and combating of migrant smuggling and trafficking in human beings (THB); 2)
Enhances the strategic and operational tasks of the EMSC, including the coordination and
implementation of investigative and operational activities to support MS in the fight against
migrant smuggling and THB; 3) Establishes an obligation for MS and relevant EU agencies to
provide Europol, in a timely manner, with information relating to criminal offences on migrant
smuggling and THB. Additional resources for Europol are included in the LFS of this proposal,
subject to the outcome of the ongoing negotiations.
2.9. Schengen Strategy and the Multiannual Strategic Policy for European
Integrated Border Management
The Schengen Strategy (2021) recalled Europol’s renewed mandate as an element for a
reinforced Schengen area internally. Europol also features in the new Schengen Evaluation
and Monitoring Mechanism. Europol shall provide expertise, analysis, reports and other
relevant information to support the implementation of the Regulation and may be invited to
provide experts to carry out evaluations.
On 16 May 2023, the Commission presented the second State of Schengen report
12
with
enhanced internal security of the Schengen area to fight against organised crime and drug
trafficking featuring as one of the seven priority areas for the coming year. In this context,
SIENA as the default law enforcement information exchange channel will reinforce Europol’s
position as the EU’s law enforcement information hub. Moreover, Europol also contributes to
the thematic evaluation on identifying best practices of MS in fighting drugs trafficking.
Following the Commission’s Policy document on developing a multiannual strategic policy for
European integrated border management (EIBM), the first such policy was put forward in
March 2023. Europol and law enforcement authorities feature as relevant partners in several
policy priorities and strategic guidelines for the next five years, including: border control;
analysis of risks for internal security; cooperation amongst relevant Union institutions, bodies,
offices and Agencies, including through regular exchange of information; cooperation with
third countries in the areas covered by the European Border and Coast Guard Regulation;
technical and operational measures within the Schengen area related to border control and
designed to address irregular migration and counter cross-border crime; and research and
innovation activities. Frontex will put forward the technical and operational strategy for EIBM
by Q4 2023, and Europol may be called upon to implement relevant actions.
2.10. Renewed EU Action Plan against migrant smuggling 2021-2025
Europol will play an active role in implementing the Renewed EU Action Plan against migrant
smuggling 2021-2025
13
. In terms of the reinforced cooperation with partner countries and
international organisations, Europol is called to offer assistance in line with its mandate.
Optimal use of the EMSC should be made, in particular through the Information Clearing
House and the sharing of information from immigration liaison officers, common operational
partnerships and CSDP mission and operations. The European Commission is due to step up
negotiations on cooperation between Europol and partner countries in order to facilitate the
exchange of personal data for investigators. EMPACT is also a key tool to implement the Action
Plan. The judiciary (e.g. Eurojust) should be more closely involved with the Joint Liaison Task
Force on Migrant Smuggling and Trafficking in Human Beings, while the capacity of law
12
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enforcement and judicial authorities to target the online presence of smugglers, with the
support of EU IRU, should be stepped up. The support of the European Economic and Financial
Crime Centre should be used to include a financial investigation element into migrant
smuggling cases. Finally, joint reports on migrant smuggling with Frontex are encouraged, as
well as the establishment of cooperation with the private sector.
2.11. EU Strategy on Combatting Trafficking in Human Beings 2021-2025
The EU Strategy on Combatting Trafficking in Human Beings
14
encourages national authorities
to strengthen cooperation with labour inspectorates and/or social partners and EU Agencies,
in particular with Europol and within its remit with the European Labour Authority and to carry
out concerted and joint inspections. Europol’s role is highlighted also when it comes to
breaking the criminal model to halt the exploitation of victims, since Europol facilitates MS’
intelligence-lead and financial investigations and supports effective cross-border operational
cooperation. Europol’s role is also mentioned when it comes to detection of internet content
used by traffickers. Furthermore, a Common Anti – Trafficking Plan to address the risk of
trafficking in human beings and support potential victims among those fleeing the war in
Ukraine was endorsed by the Solidarity Platform on 11 May 2022 highlighting the role of
Europol in: monitoring offline and online risks; providing information to MS and the
Commission, based on collected intelligence about the threat assessment for the area of
trafficking in human beings; training; developing indicators about potential victims of
trafficking or
modi operandi
of the traffickers, adapted to the context of the war in Ukraine.
2.12. Joint Investigation Teams (JIT) collaboration platform
On 1 December 2021, the European Commission issued a legislative proposal for a regulation
to establish a dedicated JIT platform, to be used on a voluntary basis, to support the
functioning of Joint Investigation Teams. To improve and speed up collaboration, the new
proposal will set up a collaboration platform for easy and secure exchange of information and
files, including evidence, within the joint team and between it and other bodies (e.g. Eurojust,
Europol and the European Anti-Fraud Office). Adoption of the proposal is expected in 2023.
2.13. Revision of the Environmental Crime Directive
On 15 December 2021 the European Commission submitted a proposal to revise the EU
Directive on the protection of the environment through criminal law, otherwise known as
Environmental Crime Directive. The proposal is part of the wider package of initiatives under
the European Green Deal. It broadens the scope of the Directive by introducing new criminal
offences, proposes a wider range of sanctions and introduces obligations for MS to provide
adequate training and resources to law enforcement. Trilogues started in early May 2023.
2.14. EU Action plan on cultural goods trafficking
On 13 December 2022, the European Commission presented an EU Action plan against
trafficking in cultural goods, to deter criminals effectively, to address evolving security threats
and to protect cultural heritage within and beyond the EU. The action plan builds on existing
EU activity and addresses ongoing challenges through: improving prevention and detection
of crimes by market participants and cultural heritage institutions; strengthening law
enforcement and judicial capabilities; and boosting international cooperation, including with
source and transit countries of cultural goods in conflicts and crises. The document establishes
a list of key actions to strengthen the capabilities of law enforcement and the judiciary in that
field, including several references to Europol’s role and supporting the reinforcement of
CULTNET by seconding appropriate staff to Europol.
In this context, on 8 June 2023, the Council adopted
Conclusions on the fight against
trafficking in cultural goods
15
, welcoming the Commission’s action plan and encouraging
further actions, several of which including direct references to Europol or EMPACT, such as
14
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the creation of an EU CULTNET contact point at Europol; the creation, in cooperation with the
Innovation Lab, of a specific search engine to detect trafficking in cultural goods; or the need
to take full advantage of Europol’s and Eurojust’s support for cross-border law enforcement
and judicial cooperation.
2.15. 10-Point Plan - For stronger European coordination on welcoming people
fleeing the war from Ukraine
On 28 March 2022, the European Commission presented the 10 points action plan, which
among others, calls for closer cooperation in the area of preventing human trafficking and
helping victims. The plan addresses the specific challenges emerging from the Ukrainian war.
Furthermore, with a view to addressing the internal security implications of the war in Ukraine,
the EMPACT community and Europol should support MS cooperation and investigations, and
sustain the sharing of relevant security information. MS should ensure the enforcement of EU
sanctions against Russian and Belarussian individuals and entities and take immediate
appropriate action at national level concerning sanctioned persons. In this regard, Europol is
part of the “Freeze and Seize” Task Force set up by the Commission to ensure EU-level
coordination on the implementation and enforcement of sanctions.
2.16. Council Conclusions on Action Plan for the European Forensic Science Area
2.0
On 9 March 2023, the Council approved Conclusions on the Action Plan for the European
Forensic Science Area 2.0
16
. The Action Plan aims to shape the future of forensics by 2030,
and is organised in three pillars, each addressing specific areas and outlining appropriate
actions and responsible stakeholders. Europol’s role in the implementation of the action plan
has been identified in several areas, e.g. biometrics, artificial intelligence, digitalisation, and
emerging technologies.
2.17. High-Level Expert Group on access to data for effective law enforcement
To contribute to the further consolidation of an effective Security Union, in June 2023 the
European Commission set up a High-Level Expert Group (HLEG) on access to data for effective
law enforcement, guided by the input provided by the Standing Committee on Operational
Cooperation on Internal Security (COSI). The HLEG is tasked to explore the problems that
law enforcement practitioners face in their daily work, and to define potential solutions to
overcome them. Specific focus is on the need for law enforcement practitioners to have
adequate access to data. The Group will map, assess, and prioritise the relevant issues and
will identify, in a comprehensive manner, the legal, technical, and operational challenges,
both current and potential future ones, and assess the practical impact of the lack of access
to data on law enforcement’s ability to perform their function. The Group is composed of high-
level representatives of the EU MS and the European Commission, relevant EU bodies and
agencies (including Europol, Eurojust, ENISA, FRA and CEPOL), the Joint Research Centre of
the Commission and the EU Counter Terrorism Coordinator.
3.
Cybercrime
3.1. European Commission’s e-evidence package
On 27 June 2023, the European Commission adopted a legislative package aiming at
accelerating law enforcement and judicial cross-border access to electronic evidence. The
objective is to establish a consistent legal framework and avoid conflicting obligations with
the law of non-EU countries, as well as to protect the fundamental rights of individuals.
Conceived as a judicial cooperation tool, the e-evidence legislation could have implications for
Europol, since the SIRIUS capability is mentioned as a possible platform to transmit and
facilitate the authentication of orders and as a de-confliction tool. The EU Package entered
into force in August 2023 and will start applying as of 2026.
16
Council 7152/23
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3.2. EU Strategy for a more effective fight against child sexual abuse for 2020-2025
The Strategy published in July 2020 presents a framework for EU action in 2020-2025
17
to
respond to the increasing threat of child sexual abuse both online and offline. The key
initiatives foreseen were:
•
•
•
To ensure that providers of electronic communications services could continue their
voluntary practices to detect in their systems child sexual abuse after December 2020.
To propose legislation requiring relevant online services providers to detect known child
sexual abuse material and report it to public authorities.
To establish a prevention network of practitioners and researchers.
3.3. Regulation laying down rules to prevent and combat child sexual abuse
On 11 May 2022 the European Commission proposed a Regulation laying down rules to
prevent and combat child sexual abuse (CSA Regulation) in order to replace the interim
regulation which expires in August 2024. The proposal introduces i.a., detection and reporting
obligations for online service providers, which will inevitably increase the number of referrals
to be handled by Europol. The regulation proposal establishes a European centre to prevent
and counter child sexual abuse, in the form of an EU decentralised agency, which should
cooperate closely with Europol; it is also proposed that the new Centre would “rely on the
support services of Europol (HR, IT including cybersecurity, communication)”.
3.4. Digital Services Act
On 15 December 2020 the European Commission adopted the Digital Services Act (DSA), a
legislative proposal to set harmonised new rules for all digital services that operate in the EU.
The proposal puts forward measures for countering illegal content online and introduces i.a.
obligations for hosting service providers (HSP) to report suspicions of criminal offences to law
enforcement or judicial authorities of the MS(s) concerned, once the HSP becomes aware of
a threat to the life or safety of person or persons; should the MS concerned be unclear, the
HSP must report it to the authorities of the MS in which the company is registered in the EU,
or to Europol, or both. Given its experience with the preparations for and implementation of
the Terrorist Content Online Regulation, Europol may also support MS law enforcement and
the regulator in their preparations for the other provisions under DSA, which are applicable
to national law enforcement authorities. The DSA entered into force on 16 November 2022
and its rules should become applicable in full by Q1 2024.
3.5. EU’s Cybersecurity Strategy for the Digital Decade
The EU’s Cybersecurity Strategy for the Digital Decade
18
adopted on 16 December 2020 seeks
to enhance the EU’s resilience to cyber threats. Initiatives include enhancing cooperation and
information-sharing amongst the various cyber communities and the establishment of the
Joint Cyber Unit. Furthermore, special attention should be given to preventing and countering
cyberattacks with systemic effects that might affect EU supply chains, critical infrastructure
and essential services, democratic institutions and processes and undermine economic
security. The European Commission will, together with the EU Intellectual Property Office,
Europol, ENISA, MS and the private sector, develop awareness tools to increase the resilience
of EU businesses against cyber-enabled intellectual property theft. In the area of capacity
building, the Commission should put forward an action plan to improve digital capacity for law
enforcement agencies while Europol is expected to further develop its role as a centre of
expertise to support national law enforcement authorities combatting cyber-enabled and
cyber-dependent crime, contributing to the definition of common forensic standards.
3.6. Proposal for a Regulation laying down measures for a high common level of
cybersecurity at the institutions, bodies, offices and agencies of the Union
17
18
COM(2020) 607 final
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In March 2022, the European Commission adopted the proposal for a regulation that
introduces common binding rules on cybersecurity for all EU Institutions, Bodies and Agencies
(EUIBAs). The new mandatory measures include i.a., baseline budget allocation towards
cybersecurity and standards, procedures for incident response and maturity assessment. It
also proposes the reallocation of resources and staff from relevant EUIBAs to CERT-EU, the
EU Computer Security Incident Response Team. Classified environments are broadly excluded
from the regulation, but the regulation will likely imply adjustments to Europol’s internal
cybersecurity procedures, create new reporting channels and potentially have some impact
on resources. The regulation also opens the possibility for cooperation and information
exchange between CERT-EU and the European Cybercrime Centre.
3.7. Proposal for a Regulation on information security in the institutions, bodies,
offices and agencies of the Union
Together with the Cybersecurity draft Regulation, the Commission proposed common
information security rules for all EUIBAs that will be mandatory across all EU administration.
These aim to create a baseline of security standards applicable to all information handled
within the EU entities, both non-classified and classified, as well as to relevant communication
and information systems. This Regulation will likely require some adjustments in the current
procedures related to information security at Europol.
3.8. Cyber Crisis Task Force
In March 2022, the European Commission established the Cyber Crisis Task Force to ensure
coordination at operational and executive levels regarding cybersecurity crisis management.
The Task Force is comprised of relevant Commission Services and EU bodies and agencies,
including Europol and is mandated to support operational coordination and informed political
decision-making, improve crisis management communication flows between civilian, law
enforcement, diplomatic and defence cybersecurity communities, and coordinate the
implementation of the Joint Cyber Unit.
3.9. Cyber Resilience Act
The European Commission adopted the Cyber Resilience Act
19
on 15 September 2022, which
introduces mandatory cybersecurity requirements for hardware and software products. The
proposed regulation will apply to all devices and software that are connected either directly
or indirectly to another device or network, and aims to address the impact of cybercrime, in
particular ransomware. Once it enters into force, it will likely have an impact on the ability of
law enforcement to counter cybercrime, Europol’s procurement of technology and potentially
on Europol’s role as technology provider for law enforcement.
3.10. European Commission Cyber Package
On 18 April 2023 the European Commission adopted a Cyber package, which seeks to
strengthen cybersecurity capacities in the EU and contains two main initiatives of relevance
for Europol and/or EU MS law enforcement agencies.
- The
creation of a Cybersecurity Skills Academy,
which seeks to help increase the number of
skilled cybersecurity professionals in the EU and to increase synergies across cyber
communities to fight cybercrime. The academy puts forward new ways for cooperation
between Europol, CEPOL, the EU Agency for Cybersecurity (ENISA) and the European
Cybersecurity Competences Centre, to establish an operational trainings’ need analysis to
address cyberattacks. Moreover, cooperation between Europol, CEPOL, the Commission and
the EEAS is foreseen for defining specific profiles and respective skills for law enforcement.
- The EU Cyber Solidarity Act,
which is a regulation proposal to strengthen solidarity at Union
level to better detect, prepare for and respond to significant or large-scale cybersecurity
incidents. The proposal includes i.a. the creation of a Cybersecurity Emergency Mechanism.
19
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The regulation proposal also establishes an EU Cybersecurity Reserve, comprised of a pool of
cybersecurity services from trusted providers to support response to and immediate recovery
from significant or large-scale cybersecurity incidents. As an EU Agency, Europol would qualify
as recipient of such support, should it suffer a significant cyber incident that goes beyond the
agency’s cybersecurity capabilities.
3.11. AI package
The European Commission presented on 21 April 2021 the so-called ‘AI package’, setting out
the first EU legal framework intended to regulate artificial intelligence (AI) applications at
European level. This package will have a strong impact on law enforcement agencies and
Europol, in particular due to the paradigm according to which AI-based techniques are
forbidden for law enforcement activities, with some exceptions. In line with the Proposal, six
categories of AI systems used for LEA purposes are defined as "high risk", and would be
subject to heavy authorisation schemes. Trilogues commenced in June 2023.
4.
Terrorism and radicalisation
4.1. A Counter-Terrorism Agenda for the EU: Anticipate, Prevent, Protect, Respond
On 9 December 2020, the Commission presented a new Counter-Terrorism Agenda
20
for the
EU to step up the fight against terrorism and violent extremism and boost the EU's resilience
to terrorist threats. The Commission, in cooperation with Europol, supports the development
of further guidance for the implementation of the EU Crisis Response Protocol. It also foresees
a specific proposal for the establishment of a mechanism of information exchange in CT cases
among JHA agencies, and for a network of CT financial investigators involving Europol.
4.2. Council Conclusions on EU External Action on Preventing and Countering
Terrorism and Violent Extremism
On 15 June 2020, the Council adopted Conclusions on EU External Action on Preventing and
Countering Terrorism and Violent Extremism
21
. Key areas include the Western Balkans, North
Africa and the Middle East, Sahel and the Horn of Africa. The misuse of the internet and new
technologies for terrorist purposes are specifically addressed, as well as the need to cut off
sources of terrorism financing. Furthermore, the Council recognises that Foreign Terrorist
Fighters (FTFs) will remain a major common security challenge which should be better tackled
through enhanced and timely cooperation and information sharing among MS, INTCEN,
Europol, Eurojust and Interpol.
4.3. Council Conclusions on protecting Europeans from terrorism
On 10 June 2022, the Council adopted Conclusions on protecting Europeans from terrorism
22
.
The conclusions focus on: the persistent high level of terrorist threat;
t
he need to strengthen
the use of SIS to monitor, detect individuals posing a terrorist threat, and better coordinate
national entry bans and expulsion measures; the need to combat the threat stemming from
actors contributing to radicalisation leading to terrorism; and access to essential data to fight
terrorism.
4.4. Policy recommendations in counter-terrorism
Every semester, the Terrorism Working Party (TWP) is tasked, if required by changes to the
terrorist threat picture, to prepare conclusions and policy recommendations or to adjust the
existing ones, based on INTCEN's assessments and Europol's six monthly reports on the
20
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Council 8868/20
Council 9997/22
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terrorism threat to the EU. The latest report
23
was presented to the TWP on 28 March 2023
and updated recommendations were endorsed by COSI on 16 May 2023
24
, including, i.a.:
Continuous monitoring by EU MS, with the support of INTCEN and Europol, of the impact
of the Russian war of aggression against Ukraine on terrorist activities and narratives;
Continuous development and use of EU IRU capabilities to support MS’ actions to prevent
the dissemination of all types of terrorist content; the EU IRU should continue its efforts
to flag violent extremist and terrorist content online;
Further development of the cooperation with key third countries and international partners
on access to battlefield information;
Call for the use of innovative tools and new technologies to counter terrorist threats and
funding of research, innovation and development activities at EU level.
Moreover, in February 2023, COSI endorsed a
Revised coordinated approach
25
- Defining
a process for Evaluating information on third- country nationals suspected to be jihadist
terrorists received from third parties or a Member State for possible processing in the
Schengen Information System, replacing the Protocol endorsed in 2020. This new approach
reinforces the role of Europol in supporting MS with processing data it has received from third
countries or international organisations on persons involved in terrorism.
4.5. EU Crisis Protocol (EUCP)
On 7 October 2019, the EU Internet Forum committed to a common approach in addressing
the online dimension of terrorist and violent extremist attacks as set out in the EU Crisis
Protocol (EUCP). The EUCP requires the EU IRU to assume a central role in the coordination
of the emergency responses in the event of a terrorist attack with a significant online
component. Furthermore, the EUCP points out that a designated platform is needed that would
enable two-way communication among Europol, MS authorities and hosting service providers
(HSP). The EUCP was updated in May 2023, including improved interoperability, a stronger
protection of fundamental freedoms, and a clarification between legislative and voluntary
obligations for Online Service Providers.
4.6. Regulation on preventing the dissemination of Terrorist Content Online (TCO)
The TCO Regulation entered into application on 7 June 2022. It provides a legal framework
to ensure that hosting service providers will take down terrorist content online within one
hour and requires MS to inform and cooperate with each other and make use of structures
set up by Europol, including the PERCI platform. The aim is to ensure coordination and de-
confliction with regards to removal orders and referrals. An evaluation of the TCO regulation
is foreseen by 7 June 2024.
4.7. EU anti-racism Action Plan 2020-2025
On 18 September 2020, the European Commission presented a new EU anti-racism Action
Plan
26
promoting fair policing and protection against discrimination. MS are encouraged to
step up efforts to prevent discriminatory attitudes by law enforcement authorities and to boost
the credibility of law enforcement work against hate crimes. The Commission will work
together with MS to better address violent extremist groups, including by mapping of national
responses to violent extremism. The Commission is also working with IT companies to counter
online hate speech.
4.8. Violent right-wing extremism and terrorism
On 8 October 2019, the Council endorsed four work strands to combat the threat stemming
from violent right-wing extremism: 1) Creating a better situational overview of violent right-
23
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Council 8876/23
Council 5606/23
COM(2020) 565 final
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wing extremism and terrorism; 2) Developing and sharing good practices on how to
strengthen the prevention, detection and addressing all forms of violent extremism and
terrorism; 3) Addressing the spread of unlawful right-wing extremist content online and
offline; and 4) Cooperating with key third countries, including by addressing the topic in
counterterrorism dialogues. COSI endorsed an update of the four work strands to provide a
common ground for continued work to handle the constantly evolving threat of violent right-
wing extremism and terrorism on 16 May 2023.
4.9. Digital information exchange in terrorism cases
On 1 December 2021, the European Commission adopted a new initiative on the digital
information exchange in terrorism cases. In December 2022, co-legislators reached an
agreement on a proposal for a Regulation amending Regulation (EU) 2018/1727 of the
European Parliament and the Council and Council Decision 2005/671/JHA, as regards the
digital information exchange in terrorism cases (‘CTR’). According to the compromise text,
each MS shall take the necessary measures to ensure that at least the information concerning
criminal investigations for terrorist offences which affect or may affect two or more MS,
gathered by the relevant authority, is transmitted to Europol, in accordance with national law
and with the Europol Regulation. The final adoption is pending.
4.10. Directive on the exchange of information and cooperation concerning
terrorist offences
On 1 December 2021, the European Commission published a Proposal for a Directive
amending Council Decision 2005/671/JHA on the exchange of information and cooperation
concerning terrorist offences, as regards its alignment with Union rules on the protection of
personal data. The Council Decision covers information exchange between Europol and MS,
as well as between MS related to terrorist offences. Transmission of personal data to Europol
is foreseen for the purpose of the prevention, investigation, detection or prosecution of
terrorist offences and other criminal offences in respect of which Europol is competent, as
listed in Annex I of the Europol regulation. The final adoption is pending.
5.
Financial crime
5.1. Revision of the Directive on freezing and confiscation of the proceeds of crime.
On 25 May 2022, the European Commission presented a proposal for a new Directive on Asset
Recovery and Confiscation. It provides a new comprehensive set of rules that addresses asset
recovery from beginning to end. In particular, the proposal foresees:
Clear rules on asset tracing and identification, providing the Asset Recovery Offices (AROs)
with the powers and information needed to trace and identify assets and facilitate cross-
border cooperation.
New powers to freeze assets and make sure that they do not disappear before the criminal
proceeding is finalised.
A new confiscation framework to ensure criminals are deprived of their illegal assets.
An effective management of assets to ensure that property does not lose value.
Strengthening cooperation among different actors - Europol, Eurojust, EPPO and third
partners.
The mandatory use of SIENA for all communications among asset recovery offices.
5.2. Revision of Directive 2019/1153 laying down rules facilitating the use of
financial and other information for the prevention, detection, investigation or
prosecution of certain criminal offences
On 16 May 2022, the European Commission presented a proposal to amend Directive
2019/1153, to allow designated competent authorities responsible for the prevention,
investigation, detection or prosecution of criminal offences to access and search MS’
centralised bank account registers through a single access point. This would enable them to
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establish almost immediately whether an individual holds bank accounts in other MS and
identify to which MS they should make a formal request for additional information. The new
Directive will also enable FIUs to invite Europol to support them in the joint analysis, with the
agreement of all FIUs and within Europol’s mandate.
5.3. EU’s anti-money laundering and countering the financing of terrorism
legislative package
On 20 July 2021, the European Commission presented a package of legislative proposals to
strengthen the EU’s anti-money laundering and countering the financing of terrorism
(AML/CFT) rules. The AML package consists of four legislative proposals: New regulation on
AML/CFT, 6th Directive on AML/CFT, revision of the 2015 Regulation on Transfers of Funds
(crypto-assets and limit large cash payments) expanding traceability requirements to crypto-
assets and a new EU AML Authority (AMLA), including a Coordination and Support Mechanism
for FIUs. Trilogue commenced in May 2023.
5.4. Tax Package
The European Commission adopted on 15 July 2020 a new Tax Package to ensure that EU tax
policy will boost the fight against tax abuse, curb unfair tax competition and increase tax
transparency. The most relevant initiative for Europol would be a mutual communication
channel with Eurofisc, the network of MS liaison officers facilitating multilateral efforts against
cross-border VAT fraud.
5.5. New customs reform
On 17 May 2023, the European Commission adopted the Customs reform
27
, which seeks to
establish a more cost-efficient and effective cooperation framework governing the Customs
Union. The Commission proposes to set up two key enablers:
- The EU Customs Authority, to pool expertise and competences that are currently scattered
across the EU, to steer, coordinate, and support national customs authorities in the EU. EU
Customs Authority is expected to assume its tasks on 1 January 2028.
- The EU Customs Data Hub to gradually integrate and replace the existing Customs IT
infrastructure and enhance interoperability with related policy fields. It will collect, process,
connect and store all relevant data, and also run EU-level risk analysis, to better protect the
EU’s external border for goods.
Furthermore, the Council resolution on custom cooperation in the area of law enforcement
28
adopted on 8 June 2023 highlights the vital contribution of customs and other competent
authorities of MS to the internal security of the EU through the prevention, detection and
investigation of activities involving irregular or illegal cross-border movements of goods and
money laundering. Active cooperation between custom authorities and Europol, as well as
other relevant EU agencies, was noted with satisfaction.
5.6. Update of the anti-corruption legislative framework
The European Commission adopted a new anti-corruption legislative proposal on 3 May 2023.
The package consists of 1) A Communication on the fight against corruption in the EU, which
provides an overview of existing EU anti-corruption legislation and policies, takes stock of
challenges and reflects on how to step-up EU action; and 2) A Directive on fighting corruption.
The proposal establishes rules which update and harmonise definitions and penalties for
corruption offences to ensure that high standard criminal law tools are in place to better fight
and prevent corruption and to improve enforcement. Specific focus is given to cooperation
between MS authorities, the Commission, Europol, Eurojust, OLAF and EPPO.
Communication from the Commission to the European Parliament, the Council and the European Economic and
Social Committee: Customs reform: taking the Customs Union to the next level.
28
Council 10247/23
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6.
Information exchange and interoperability
6.1. Regulations establishing a framework for interoperability
On 20 May 2019, two Interoperability Regulations were adopted to set up a framework for
interoperability between existing and future EU information systems for police and judicial
cooperation, asylum and migration. The regulations established:
A common identity repository (CIR) that would create an individual file for each person
recorded in the EES, the VIS, the ETIAS, Eurodac or the ECRIS-TCN.
The European search portal (ESP) to enable the simultaneous querying of EES, VIS, ETIAS,
Eurodac, SIS, the ECRIS-TCN as well as of Europol’s and Interpol’s databases.
A shared biometric matching service (shared BMS).
A multiple-identity detector (MID).
A central repository for reporting and statistics;
A new framework for MS law enforcement authorities’ and for Europol’s access to the EES,
VIS, ETIAS provided by the CIR and ESP.
6.2. Entry-Exit System (EES)
The Regulation establishing the EES was adopted on 30 November 2017. The EES will replace
the stamping of passports and will apply to all non-Schengen nationals admitted for a short
stay in the Schengen area. Expected to be operational in 2024, the system’s objective is to
improve the management of external borders; prevent irregular immigration and facilitate
management of migration flows; detect over-stayers and support the identification of
undocumented persons. Europol will be able to request access to the EES under specific
conditions and process.
6.3. European Travel Authorisation System (ETIAS)
On 12 September 2018, the Regulation establishing ETIAS was adopted, which will allow visa-
exempt third country nationals to obtain a travel authorisation prior to their travel to the
Schengen Area. The data provided by applicants will be automatically cross-checked, amongst
others, against Europol data. The agency is expected to provide a reasoned opinion to the
ETIAS National Units on hits against Europol data and its entries in ETIAS Watchlist.
Additionally, Europol will be able to request access to data stored in the ETIAS Central System.
ETIAS is expected to be fully operational in 2025, and its functioning will start with a grace
period during which the travel authorisation will not be mandatory yet.
6.4. ECRIS-Third Country National (TCN) system
Established in 2012, the European Criminal Records Information system (ECRIS) enables
national judicial authorities to receive information on previous criminal convictions in other
MS. On 17 April 2019, the Regulation establishing a centralised system for the identification
of MS holding conviction information on third-country nationals (TCN) was adopted to
supplement ECRIS. Europol is granted direct access to ECRIS-TCN data in order to identify
the MS holding information on previous convictions of third-country nationals. ECRIS-TCN is
expected to enter into operation in 2025.
6.5. Recast of the Visa Information System
The VIS Regulation Recast was adopted on 7 July 2021 and foresees the extension of the
scope of the VIS to include data on long-stay visas and residence permits. The data provided
by visa applicants will be automatically cross-checked against Europol data and Europol will
provide a reasoned opinion on the hits that occur against its data and against its entries in
ETIAS Watchlist. The system is planned to enter into operation in 2026.
6.6. Recast of Eurodac Regulation
The 2020 proposal of the Eurodac Regulation aims at transforming Eurodac into a common
European database to support EU policies on asylum, resettlement and irregular migration.
Among others, it will better assist the control of irregular migration and the detection of
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unauthorised movements by counting individual applicants in addition to applications. The
proposal includes a Europol access point and the agency may access Eurodac for consultation,
when Europol consults the Central Identity Repository (of biometric or alphanumeric data)
and this indicates that data is stored in Eurodac. Trilogues started in 2023 and depending on
the final adoption, the updated system is expected to become operational from 2027 onwards.
6.7. Screening regulation
The proposal for a Screening Regulation introduces searches against the European databases
for the purpose of security checks; this includes searches against Europol data, for all persons
who do not fulfil the entry conditions to the EU. When a query provides a match against
Europol data, an automatic notification is sent to Europol, in order for the agency to inform,
where needed, whether the person could pose a security risk. In the LFS of the proposed
Regulation, there are no additional resources foreseen for Europol for this purpose, even if
this promises to be a resource intensive task. Trilogues started in 2023.
6.8. Revision of the Advance Passenger Information Directive
On 13 December 2022, Commission published the Advance Passenger Information (API)
proposals that provide for the mandatory collection of API data for the purposes of border
management and for countering serious crime and terrorism. On the latter, the mandatory
collection of API data on intra-EU flights will strengthen the reliability and effectiveness of
PNR data as a law enforcement tool. Negotiations are ongoing.
6.9. Prüm II Regulation
The proposal for a revision of Prüm intends to reinforce and modernise the existing Prüm
framework by improving the technical architecture, introducing new categories of data,
enhancing the follow-up communication process, and involving Europol. The proposed
involvement of Europol aims to enable (1) MS to search and cross-check the third country
biometric data held by Europol in an automated manner and (2) Europol to cross-check data
received from third countries with the MS’ databases. Europol is also tasked to develop and
maintain EPRIS (European Police Record Index System), which forms the technical basis for
the exchange of police records. Negotiations are still ongoing.
6.10. Directive on information exchange
The Directive on information exchange entered into force on 12 June 2023. The Directive is
highly relevant for Europol and will have a significant impact on Europol’s resources since it
intends to establish SIENA as the mandatory channel for the exchange of criminal information
by default and by introducing a provision to put Europol in copy for every information
exchange concerning crimes falling under its mandate. MS have 18 months from the entry
into force to transpose it into national law (with the exception of the provision on secure
communication channel, which has to be transposed four years after entry into force).
6.11. Council Recommendation on operational police cooperation
The Council Recommendation on law enforcement cooperation
29
was adopted on 10 June
2022 and aims at creating shared standards for operational cross border cooperation between
MS. This includes a common list of crimes for which hot pursuits across borders are possible
and secure messenger tools for police officers to communicate with their counterparts when
conducting operations in other EU countries. The proposal emphasises use of the different
possibilities Europol offers to support operational cooperation between MS, especially with
regard to secure communication tools, such as SIENA or the Virtual Command Post (VCP).
7.
EMPACT 2022-2025
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The Council adopted in 2021 the EU's priorities for the fight against serious and organised
crime for the period 2022-2025 and these comprise:
1) High-risk criminal networks; 2) Cyber-attacks; 3) Trafficking in human beings; 4) Child
sexual exploitation; 5) Migrant smuggling; 6) Drugs trafficking: the production, trafficking
and distribution of cannabis, cocaine and heroin; the production, trafficking and distribution
of synthetic drugs and new psychoactive substances (NPS); 7) Fraud, economic and financial
crimes: Online fraud schemes, excise fraud, MTIC fraud, Intellectual property (IP) crime,
counterfeiting of goods and currencies, Criminal finances, money laundering and asset
recovery; 8) Organised Property Crime; 9) Environmental Crime; 10) Firearms trafficking.
Document Fraud is also included as a cross-cutting threat.
On 9 March 2023, the Council adopted conclusions on the permanent continuation of the EU
Policy Cycle for organised and serious international crime:
EMPACT 2022 +
30
, as well as on
the EU's priorities for the fight against serious and organised crime for EMPACT 2022-2025
31
.
These documents reflect 1) the replacement of annual Operational Action Plans (OAP) with
biennial OAPs from 2024; 2) the removal of the mid-term and final assessment of the
achievement of the common horizontal strategic goals that will be newly part of independent
evaluation at the end of the cycle, and 3) in case of emergency situations/threats, adjustment
of the operational actions during the implementation of the OAPs.
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Council 7100/23
Council 7101/23
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SECTION II - Multi-annual programming 2025 – 2027
1. Multi-annual programme
This section references the
Europol Strategy “Delivering security in partnership”,
endorsed by the Management Board in June 2023, following several consultations with
Member States, Europol’s Management Board and its Working Groups, the HENUs and
Europol’s management. The renewed Strategy paves the way to further improve Europol’s
performance, while benefitting from new opportunities introduced by the amended Europol
Regulation, in order to better address the operational needs of the Member States and the
security threats they are facing. To do so, it builds further on the five strategic priorities of
the previous Europol Strategy 2020+, which remain relevant, and adds an additional priority
aimed at addressing the increased complexity of law enforcement cooperation, and
strengthening the role of Europol in bringing relevant partners together for international
cooperation.
As a result, the following strategic objectives will continue guiding the work of the Agency in
the years 2025-2027 to:
Be the EU criminal information
hub, including for data
acquisition
Deliver agile, real-time
operational support
Be a platform for European
policing solutions
Bring the relevant partners
together for cross-border
cooperation and joint action
Be at the forefront of law
enforcement innovation and
research
Be the model EU organisation
for law enforcement
cooperation
The areas of specific focus for the years 2025-2027 are presented below:
Strategic Objective 1: Be the EU criminal information hub, including for data
acquisition
Europol’s function as the EU criminal information hub will be further expanded to enable
compliant access to data stored outside Europol’s own data repositories, within legal and
practical possibilities. This includes operational use of EU databases (such as SIS, VIS, EES,
ETIAS, and Eurodac) and the provision of support for the exchange of information involving
national repositories (e.g. Prüm, ADEP-EPRIS).
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Data gathering at Europol should be aimed at minimising criminal intelligence gaps and focus
on data from live, complex investigations. The latter goes hand-in-hand with the prioritisation
of Europol’s support to coordinated action against High-Value Targets (HVTs) and Operational
Task Forces (OTFs), including those with a regional focus.
Europol will prioritise the acquisition of data that fulfils this purpose, such as real-time data
from large and complex investigations, lawfully-intercepted and decrypted communications
of criminal networks, and seized darknet servers used for criminal purposes. The Agency will
also focus on data concerning crime hubs, hotspots and key crime enablers, as well as priority
areas, such as financial crime, migrant smuggling, drug trafficking, cybercrime, the illicit
weapons trade and large-scale fraud schemes.
Member States will have access to more self-service tools, including for data and operational
contributions.
Highlights:
Conducting targeted data collection with specific interest for Europol’s focus areas;
Facilitating instant communication, swift transfers from national data repositories, and
integration with (joint) case management capabilities;
Enhancing the intake of information through short-term on-the-spot deployments of
frontline support officers;
Enabling smooth data intake from private parties in relevant sectors (e.g. online
service providers, the banking sector, crypto-currency exchangers), in consultation
with Member States;
Furthering Europol’s role in EU information exchange by implementing related policies
and enabling new initiatives, including the creation of a dedicated unit to coordinate
Europol’s work concerning interoperability and travel intelligence;
Defining criteria for operational deployments to increase relevance and effectiveness,
including for data collection.
Strategic Objective 2: Deliver agile, real-time operational support
Europol’s operational support to Member States’ investigations consists of several elements,
chief among which are operational analysis, specialised capabilities, and the facilitation of
operational coordination. Increasing the operational relevance of Europol calls for continued
efforts and investments in such areas.
Europol’s capabilities should, wherever possible, be targeted towards the kind of
investigations and operations, on which Europol can have most impact and added value. These
investigations and operations are primarily large and complex cross-border investigations
requiring real-time support.
Highlights:
Furthering the OTF and HVT concepts for operational support;
Supporting the investigation of all aspects of the criminal business model, including
criminal finance, logistics, communication, corruption and intimidation;
Creating an analysis training and coaching programme to increase the number of
qualified operational and strategic analysis at Europol and in Member States, while
promoting harmonisation of methodology;
Expanding the flexible deployment of short-term SNEs/guest experts;
Optimising internal coordination of OSINT monitoring across Europol’s centres;
Stepping up support for migrant smuggling cases with essential partners for data
collection outside the EU, with additional support coming through regional OTFs;
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Nurturing (new) partnerships for combating corruption and environmental crime
through dedicated alliances, including relevant private parties;
Specialised and coordinated support in financial investigations, crypto-currency tracing
and online crimes through knowledge management among experts.
Strategic Objective 3: Be a platform for European policing solutions
Europol’s role of offering a platform for competent authorities to develop and use policing
tools and expertise has benefitted from the Europol Platform for Experts (EPE) and Operations
Network Experts Platform (ONEP). These will be further developed in line with user needs and
technical developments.
In addition, Europol will seek, where relevant and possible, to invest in platforms that can
contribute to operational coordination between partners. These may also serve joint capacity
building and the sharing of expertise and tools.
Highlights:
Enabling the coordination of the collective response to the criminal threats through
EMPACT and, where relevant, by suitable means for counter-terrorism;
Creating a coordination and de-confliction solution for HVTs;
Facilitating rapid crisis response mechanisms;
Providing guidance for Member States’ users to find the right products and services,
including technical tools and extended support services to manage their expected
growth;
Creating a single digital portal for accessing Europol’s processing systems, specialised
tools, services, data, contacts and expertise;
Rolling out in-built translation tools to facilitate communication for users in Member
States’ competent authorities and other partners.
Strategic Objective 4: Bring the relevant partners together for cross-border
cooperation and joint action
Operational support to Member States often involves the facilitation of contacts with law
enforcement from non-EU countries, with Interpol and other international organisations, and
increasingly with private parties. In the interest of coordination at EU level, the engagement
with EU Agencies in the field of Justice and Home Affairs (JHA) is also indispensable.
Since its establishment, Europol has developed into a strong enabler that brings the relevant
partners together, with the significant and valuable community of Liaison Officers at its heart.
The Agency intends to foster this evolution in the coming years to maximise operational
results, first and foremost for the Member States, but also for our other partners. Europol will
especially invest in its partnerships with the Schengen Associated Countries, Interpol, and
key JHA agencies such as Frontex.
Highlights:
Intensifying the cooperation with the Schengen Associated Countries, as essential
partners of the EU Internal Security Architecture;
Seeking practical solutions for a more targeted operational cooperation with strategic
third parties within the applicable legal frameworks;
Assessing roles and competences that will enable cooperation between Europol and
Interpol, with a view to address Member States’ needs for products and services in
relation to Third States;
Coordinating with other EU JHA Agencies, to offer an aligned set of products and
services to Member States;
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Stepping up cooperation with other (non-EU) Agencies and international organisations,
including operational cooperation where possible;
Developing a dedicated strategy for cooperation with private parties, including NGOs
and academia, to optimise their engagement, both for operational interests and to
nurture potential innovation.
Strategic Objective 5: Be at the forefront of law enforcement innovation and
research
The Innovation Lab and its structured connection to Member States serves as a solid
foundation for well-coordinated, collective innovation in the coming years. The operational
relevance of innovation is a leading principle in the Lab’s work. As a consequence, the
connection to the operational needs of the Member States, JHA partners, as well as within
Europol, has to be fostered and promoted.
The extended legal possibilities for the processing of personal data for research and innovation
purposes are to be explored and acted upon in an adapted development environment.
Highlights:
Identifying the innovative tools and processing capabilities Member States need most,
and enabling their development together with specialised law enforcement services,
as well as research and industry partners;
Pursuing the rapid development of tools supporting data collection and processing,
including through data science and artificial intelligence;
Expanding the Europol Tool Repository with new cutting-edge technology;
Optimising the possibilities for funding and priority attribution for grant schemes;
Engaging proactively with private sector, academia and research institutes, including
through Industry & Research Days;
Stimulating a culture of innovation across Europol.
Strategic Objective 6: Be the model EU organisation for law enforcement
cooperation
The operational mission of Europol must stand out in all aspects of its work. This applies also
to the internal support functions that should fulfil their tasks with operational delivery in mind.
The consideration for the specific needs of the law enforcement context in which Europol
operates will be made a priority throughout the Agency, optimising our performance and
output.
Highlights:
Investing to attract, train and retain specialists in relevant domains of expertise;
Increasing the encouragement of personal development, talent management and
empowerment;
Work with the Management Board and Member States to address legal and
administrative impediments to operational delivery;
Creating an Operational Readiness Function, including relevant internal support
services, for rapid operational response to crises and emergency situations;
Identifying possibilities for a more flexible incorporation of tools and services within
the ICT environment;
Acting on our environmental responsibility to minimise carbon emissions;
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Creating a dedicated change management capability across the organisation, in which
in particular the applicable requirements are structured and applied for every technical
solution, process or work practice;
Fostering continued engagement with former Europol staff by investing in the Europol
community, even after their employment with the Agency has ended.
Table: Key Performance Indicators for measuring multi-annual performance of the agency
Key Performance Indicator
Number of Accepted Contributions by Europol
32
Number of Operations Supported by Europol
Number of Operational Task Forces supported by Europol
Number of Operational Analysis Reports produced by Europol
Number of Action Days organised/supported by Europol
Satisfaction with Operational Support delivered by Europol
Number of Cross Match Reports and SIENA hit notifications
produced by Europol
Number of searches through EIS and QUEST
Number of SIENA messages exchanged
Number of Strategic Analysis Reports produced by Europol
Satisfaction with Strategic Analysis Reports produced by
Europol
Satisfaction with Operational Training delivered by Europol
Implementation of Audit Recommendations
33
Vacancy Rate
% Female staff
Budget Commitment Rate
Emissions (CO2)
34
Target
2025
Indicative targets
2026
2027
32
The responsibility for this indicator is shared by Europol and its partners (MS, TP). As such, the target is indicative
and used to monitor the trend of accepted contributions.
33
% of pending critical/very important audit recommendations implemented within the timeline committed to by
Europol and agreed with the auditing body.
34
It should be noted that measurement of this indicator is done on a yearly basis with results for year N being
available well into year N+1; despite this time lag, Europol considers it important to monitor this KPI.
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2. Human and financial resource outlook for the years 2025-2027
2.1. Overview of the past and current situation
Since its establishment, Europol’s role in the security landscape of the EU has been growing
and, as a result, the agency has been entrusted with several important functions, such as the
European Cybercrime Centre, the European Migrant Smuggling Centre, the European Internet
Referral Unit, within the European Counter-Terrorism Centre, and most recently, the
Innovation Lab and the European Financial and Economic Crime Centre. Although resources
were provided to perform new and additional tasks, Europol has always had to rely on the
shifting of posts from support functions to the Operations Directorate or internal re-allocation
of operational staff. In June 2022, the revised Europol Regulation entered into force; the
Europol Regulation Recast reinforced Europol’s financial and human resources, beyond the
initial MFF 2021-2027. In addition, from 2024, some additional posts were transferred from
Frontex to Europol, based on an agreement between the two Agencies, for implementing, in
particular, tasks related to ETIAS. Finally, some additional resources were foreseen, as of
2024, in the Prüm II Regulation and, as of 2025, in the new legislative proposal for preventing
and fighting migrant smuggling (subject to legislative process).
Consequently, for a few years now, Europol has been faced with an increased amount of
responsibilities that have inevitably exacerbated the pressure on resources, both staff and
financial.
2.2. Outlook for the years 2025 - 2027
As detailed in section I – General Context of Europol’s Programming Document 2025-2027, a
significant number of new and expanded tasks are foreseen for Europol, stemming from Union
policies and legislation. However, additional resources to perform these new tasks have not
been allocated to Europol in the Legislative Financial Statements (LFS) of these initiatives –
only some resources were allocated to the Agency in the Interoperability Regulations
35
, the
Prüm II Regulation and the legislative proposal to prevent and fight migrant smuggling, the
latter under negotiation. While a significant number of resources were provided to the Agency
as part of and for the purpose of implementing the amended Europol Regulation, some priority
projects are expected to have a significant multi-year impact on the resources of the agency.
In addition, inflation pressures affecting mainly staff costs were estimated and communicated
by the European Commission on 20 December 2023
36
and are expected to further compress
the existing budget in 2025. As a consequence, Europol, will not be in a position to absorb
fully its additional tasks without an adequate reinforcement to its resources.
The Management Board of Europol and its Working Groups were informed on various
occasions about this issue and the Agency is requesting resources – as part of the EU Budget
2025 process – that go beyond the ones currently provided in the multi-annual financial
framework.
While resource pressures are evident in various areas, Europol has focused its estimates only
on the following high-priority, high-impact initiatives, for which no dedicated or insufficient
resources were foreseen in the relevant legislative financial statements (where applicable):
-
-
-
Digital Services Act (DSA);
Interoperability (I/O);
Second Data Centre;
35
36
Europol received 14 TAs in the period 2019-2020.
Budget Circular for 2025 – Agency Instructions Ref. Ares(2023)8743970 -20/12/2023.
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-
-
Information Exchange Directive (IED);
Strategic Housing Roadmap (SHR).
In addition, the agency is requesting funding to offset the impact of inflation on staff costs,
as estimated in the Budget Circular 2025. The additional funds currently proposed by the
European Commission for Europol in the LFS of the new legislative proposal to prevent and
fight migrant smuggling have been provisionally included in the PD 2025-2027, in line with
the Budget Circular for the preparation of the draft budget 2025. In this respect, it is worth
highlighting that the additional resources proposed by the Commission in the LFS are
significantly lower than the resources estimated by Europol for the full implementation of the
proposed new Regulation, especially with regard to the final number of TA posts. Therefore,
subject to the outcome of the ongoing negotiations, Europol will be able to support the
implementation of this new initiative to the extent covered by the final amount of additional
resources, or by de-prioritising and delaying other activities. Nonetheless, Europol
acknowledges that part of the funds foreseen is intended to support the Agency’s work on
biometrics and SIENA integrations, which can also partially serve the objectives of
Interoperability and the Information Exchange Directive - as such; those funds have been
deducted from the final total additional budget requested.
A summary of the Agency’s outlook for 2025-2027 is presented in the tables below:
Yearly increase
Human Resources (TA, CA, SNE)
37
Establishment plan (TA) - TOTAL
Amended Europol Regulation
Prüm II Regulation
Proposal on a Regulation to prevent and fight migrant smuggling
Additional Agency Request
2025
77
19
-
3
55
2026
77
9
(2)
4
66
2027
48
5
-
3
40
Contract Agents - TOTAL
Proposal on a Regulation to prevent and fight migrant smuggling
Additional Agency Request
25
5
20
9
9
-
6
6
-
SNE - TOTAL
Proposal on a Regulation to prevent and fight migrant smuggling
Additional Agency Request
13
11
2
8
6
2
5
3
2
Yearly increase
Financial Resources (€)
TOTAL
Proposal on a Regulation to prevent and fight migrant
smuggling
Additional Agency Request
38
2025
45,713,377
15,758,000
29,955,377
2026
54,309,064
19,679,000
34,630,064
2027
61,415,221
13,456,000
47,959,221
Temporary agent numbers are approved by the Budgetary Authority (establishment plan). Contract Agent and SNE
numbers: approved by the MB within budget availability - numbers are included in the agency's request and COM
provides recommendation. If additional budget is necessary, this is approved by the Budgetary Authority.
38
For 2025, including EUR 13.1 to cover the inflation effects affecting mainly staff costs, as estimated in the COM’s
Budget Circular 2025.
33
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Additional information per initiative for the period 2025-2027
Relevant justifications for the additional resources needed for each of the five initiatives for the
period 2025-2027 are presented.
Digital Services Act (DSA)
The Digital Services Act entered into force on 16 November 2022 and its rules will become
applicable in full by Q1 2024.The regulation introduces, among others, obligations for hosting
service providers (HSP) to report suspicions of criminal offences to law enforcement or judicial
authorities of the MS(s) concerned, once the HSP becomes aware of a threat to the life or safety
of person or persons; should the MS concerned be unclear, the HSP must report it to the
authorities of the MS in which the company is registered in the EU, or to Europol, or both. Given
its experience with the preparations for and implementation of the Terrorist Content Online
Regulation, Europol may also support MS law enforcement and the regulator in their
preparations for the other provisions under DSA, which are applicable to national law
enforcement authorities.
Since August 2023, the DSA implementation by just 19 Very Large Online Platforms (VLOPs)/
Very Large Online Search Engines (VLOSEs) has resulted in an average of two notifications
received per day. It is estimated that the implementation of the DSA by all OSPs will at least
double the number of incoming notifications, raising the amount to
1,400 notifications per
year
(four per day). Europol has put forward the minimum number of additional operational
resources to handle this number of notifications, stemming from the handling of Article 18
notifications. However, the situation may evolve in February 2024 after the DSA enters into
force for all OSPs with consequences on the 24/7 intake process (with potential delays in
managing notifications and an increase of the regular backlog) and on the OSINT/IRU
capabilities.
In terms of ICT development, resources are estimated for assessing the suitability of the current
PERCI solution (or similar alternative channel) as the foundation to adapt and/or add DSA-
related functionality. This could include the potential expansion of features supporting referrals
and removal orders, expanding the functionality of PERCI to account for HSPs access and their
workflow on the platform; adjusting reporting functionality and working on access requirements
and infrastructure (incl. storage and processing power, interconnections, network, security,
auditing, scalability and availability requirements).
Interoperability (I/O)
The
EU Interoperability@Europol
Programme includes the necessary activities for Europol to
implement and operate the tasks related to six EU large-scale IT systems (SIS, VIS, Eurodac,
EES, ETIAS, ECRIS-TCN) and the interoperability components (European Search Portal (ESP),
shared Biometric Matching Service (sBMS), Common Identity Repository (CIR), Common
Repository for Reporting and Statistics (CRRS)). Additionally, the Screening Regulation and the
Prüm II Regulation will bring new tasks to Europol.
Europol’s role is particularly relevant as automated checks against Europol data and, in case of
hits, the provision of reasoned opinions (ETIAS, VIS Recast) will allow the identification of
potential and actual security risks posed by third country nationals prior to their arrival to the
EU. Access to millions of records in EU IT systems will allow for a more comprehensive and
complete criminal analysis to support the Member States. New possibilities for (biometric)
identification will enhance the identification of criminals and the detection of identity fraud. At
the same time, short deadlines, the scale of changes and the need for resources both in
development phase and after the entry into operation of the EU IT systems make the EU
Interoperability Programme a challenge for the organisation.
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The Management Board discussed in 2022 the resource needs of Europol related to
interoperability. The current request for operational staff is based on the estimation made in
2022, adjusted taking into account:
The resources already allocated to the new Integrated Operational Services Unit in 2023
(17 posts) and those foreseen to be allocated in 2024, as a result of the agreement with
Frontex (+25 to a total of 42 posts).
-
The current EU Interoperability timeline.
-
The experience gained from SIRENE.
Europol will work on the establishment of a consistent, coherent set of capabilities related to
biometrics, in sync with the Interoperability Programme milestones. Currently, Europol’s
processing of biometric data is rather limited. However, in light of EU Interoperability (especially
revised VIS and Prüm II), discussions with Member States and the future Regulation to prevent
and fight migrant smuggling, a significant upgrade of the biometric capabilities and the services
offered to the EU large scale IT systems and Member States will be required. To this end, the
Europol Strategy and Roadmap for biometrics will detail all necessary activities.
-
Implementation will also require additional ICT resources for managing and developing the
necessary systems, including update of the current AFIS, FACE and EIS solutions for scalability,
functionality (i.e. access, search and processing functionalities for fingerprint, DNA and facial
images) and data review and retention requirements across solutions.
Second Data Centre
A new (hot) data centre is considered mandatory as part of the interoperability tasks of Europol
and is envisaged and expected to:
Increase resilience – the power issues in August 2020 that led to unavailability of both
data centres at Europol HQ emphasised the need to position the data centres in two
separate areas (geo-redundancy). This minimises unavailability due to local power grid
issues / shared power infrastructure.
Ensure compliance – in line with the Interoperability programme, Europol is requested
to implement the recommendations for geo-redundancy for ETIAS and the
communication equipment for SIS/VIS. Furthermore, it is expected to provide
uninterrupted service (availability of 99.9% or more) for ETIAS searches via Quest.
Europol’s current infrastructure - that incorporates the location of the data centres - is
designed for an availability of 98%.
Increase availability – enable the implementation of near-zero downtime for solutions
with this strict requirement. It should be noted that the geo-redundant data centre
principle does not guarantee such requirement on its own; the entire solution should be
designed and built accordingly, for instance using on-premise cloud native services. For
this to work, the data centres should be close enough to minimise any communication
delays, but far enough to meet the geo-redundancy requirement.
Efficient use of equipment – At this moment, due to the design and distance, the Austria
site is used as a backup location. It however contains equipment that potentially can be
used in case of disaster (under normal conditions, this equipment is not used).
Implementing the new data centre at closer vicinity gives the opportunity to implement
the so-called hot/hot data centre principle where all equipment is used continuously at
both sites to host Europol’s ICT services. In this case, the Austria site will be further
scaled down for backup purposes only, reducing the need for equipment which is not
actively used.
The project is a multi-year one with several phases and costs related to buildings, hardware
and software, services and training. Discussions on the identification of an appropriate location
are ongoing with the Host State and the project is foreseen to start in 2026, with a minimal
investment in 2025 (design phase).
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Information Exchange Directive
The Directive on information exchange entered into force on 12 June 2023. As explained in
detail in Section I – General Context, this Directive is highly relevant for Europol and will have
a significant impact on Europol’s resources, since it intends to establish SIENA as the mandatory
channel for the exchange of criminal information by default.
It is estimated that
the number of SIENA messages received by Europol will increase to
reach up to 1 million messages in 2027
(by comparison, Europol received 160,000
messages in 2022). The increase in the volume of data will have an impact on both the
Operational & Analysis Centre and the crime Centres at Europol, with needs for additional duty
officers, analysts and specialists for data review and data quality. Taking into account the
current and future rate of implementation in the Member States and potential efforts by Europol
to optimise further the intake and processing processes, the level of additional operational
resources estimated in this area has been kept to the minimum level for the next three years.
It should be noted, however, that for subsequent years, Europol is expected to face resource
needs of up to 100 additional operational staff.
Moreover, before the impact of the IED is seen on operations, Europol needs to assist Member
States by supporting the design and further development of SIENA and the relevant integrations
with Member States systems. Additional funds will be required as of 2025 in terms of ICT
investments, to cover scalability, availability and functionality requirements, but also to cover
the expected impact on other Europol systems due to the increased volume of data intake (e.g.
Data Analysis Portal, Case Management, Unified Search Engine, Large File Exchange tool, IAM),
security and compliance requirements and support services, such as providing a helpdesk for
users and training.
Strategic Housing Roadmap (SHR)
A number of projects comprise the Strategic Housing Roadmap. In 2025, the following work is
envisaged:
Advance with the implementation of the Mid-Term Housing Solution (MTHS) project in
the HQ to increase workplace capacity, provide additional meeting rooms and other
related facilities, and strengthen the building according to the applicable governmental
building regulations.
Temporary Satellite Building 1 (TSB 1) project: decommission the building and return it
to the Host State.
Temporary Satellite Building 2 (TSB 2) project: create additional workplaces, meeting
rooms and other related facilities to support the implementation of the MTHS in the HQ
and cover organisational growth and new business demands until the delivery of HQ2 in
2029 - 2030.
Temporary Satellite Building 3 (TSB 3) project: create additional workplaces, meeting
rooms and other related facilities to support organisational growth and new business
demands, until the delivery of HQ2 in 2029 – 2030. The first stage of the building
completed and operational for use.
Long-Term Housing Measures (LTHM) project: prepare for the delivery of a second
permanent headquarters (HQ2) forecasted in 2029 - 2030.
Low-rise Toren van Oud project: continue with the development of the Medical Centre
and Gym & Fitness facilities, in order to create space in the HQ for the implementation
of the MTHS.
Alternative Temporary Housing: progress on establishing alternative temporary
workplaces and meeting spaces to support organisational growth and new business
demands until the delivery of HQ2.
Costs include consultancy fees, both for facilities and ICT, one-time investment costs, security
personnel and network connectivity for workspaces and meeting rooms.
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2.3.
Risk considerations
As outlined in the Europol Programming Document 2024-2026
39
, the identified corporate risks
in terms of threats to Europol’s objectives
40
are expected to impinge on the organisation’s
development and performance in 2025
41
. All five high priority development initiatives listed
in this section are therefore assessed to be affected by Europol’s identified corporate risks.
While the estimates presented for 2025 onwards have been developed in a prudent manner,
these hold several elements of uncertainty
42
, influenced by:
external developments, including with regard to emerging technical evolution and
innovation (Artificial Intelligence (AI) data science etc.); the
ability to acquire and availability of the needed competencies and skills, in particular
with respect to externally contracted services; the
delivery of the 2024 ICT Work Plan, which itself carries a significant resource gap
43
risk
to achieve the full scope of envisaged activities, implying potential further delivery
knock-on effects into 2025;
dependencies with regard to Member States and (operational) cooperation partners,
the Host State as well as collaboration with private parties; the
development of ongoing legislative and regulatory initiatives, as well as the related
scope, complexity and modalities of their translation into technical requirements for
the corresponding solution design (to inform detailed project planning prior to
implementation and deployment).
From an overall perspective, the five high priority development initiatives outlined in this
section will be subject to continuous re-assessment and are expected to extend (beyond the
planning cycle of the current PD 2025-2027) well into 2028, therefore resulting in further
anticipated investment need for the next Multiannual Financial Framework (MFF).
2.4. Resource programming for the years 2025 - 2027
The text in this section focuses on the resource programming for 2025, which forms the
Agency’s input to the budgetary procedure for the EU Budget 2025. Indicative programming
figures are also provided for the years 2026 and 2027.
HUMAN RESOURCES
Temporary agents
Starting from the 2024 Establishment Plan of 754 posts, the net number of posts in 2025 is
envisaged to increase by 77 Temporary Agent (TA) posts, including: 19 posts stemming from
the amended Europol Regulation, 3 posts from the new legislative proposal to prevent and
fight migrant smuggling and an additional 55 posts to adequately perform new tasks as
presented in section 2.2.
The following allocation of grades is envisaged for the new posts, based on the approach of
having most resources dedicated to non-managerial tasks:
EDOC-#1258316-Europol Programming Document 2024-2026, Annex XIV Corporate Risks 2024 (pages 182-186),
adopted by the Management Board (MB) on 28 November 2023.
40
Europol’s corporate risks were informed by the annual peer risk review conducted in Q4 2023 with all EU Agencies
related to the Directorate General (DG) Migration and Home Affairs of the European Commission.
41
The PD 2024-2026 comprises 5 corporate risks, i.e. 4 threats: 1. Geo-political developments and/or security
threats; 2. Mandate, operational delivery demand and expectations not met; 3. Insufficient resources, in particular
staff and building related facilities; 4. Dependency on stakeholders' capabilities; next to 1 opportunity (enhanced
public awareness on the added value of Europol in times of crises).
42
Europol is satisfied that the resource estimates are the result of a conservative and robust assessment process
across the organisation; however, a fairly high degree of uncertainty is inherent to the process.
43
Estimated at 8.5 Million Euros (5.6 Million Euros for externally contracted services, next to 2.9 Million Euros for
ICT activities concerning the Strategic Housing Roadmap (SHR)) in 2024.
37
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2025
AD7
AD6
Total
14
63
77
2026
5
72
77
2027
1
47
48
Contract Agents
In line with the new legislative proposal to prevent and fight migrant smuggling and the
Agency’s request, the number of CAs in 2025 is envisaged to rise by 25
44
posts, to a total
number of 280.
Seconded National Experts
The number of Seconded National Experts (SNEs) in 2025 is foreseen to increase to 134, with
additional 11 from the new legislative proposal to prevent and fight migrant smuggling and
two for the Interoperability programme.
For detailed data and numbers per staff category, see Annex IV.
Staff financed with Grant Agreements / Contribution Agreements / Service Legal
Agreements (SLAs)
For 2025 Europol will continue having a number of Contract Agents (CAs) and SNEs directly
funded via grants, contributions or service legal agreements. For detailed information and
numbers per agreement and staff category, see Annex XI.
FINANCIAL RESOURCES
Revenue:
The main financial source of Europol is the regular Community subsidy. The envisaged
revenue for 2025 is € 269.3M, including the resources foreseen in the LFS of the legislative
proposal to prevent and fight migrant smuggling and the Agency’s request, as detailed in
section 2.2.
Revenue
2023
207,176,212
1,030,000
4,719,597
212,925,809
218,227,705
Revenue
2024
218,227,705
Draft
estimate
2025
269,328,074
P.M
P.M
P.M
269,328,074
Envisaged
2026
289,957,763
P.M
P.M
P.M
289,957,763
Envisaged
2027
298,341,531
P.M
P.M
P.M
298,341,531
Item
9000
9010
9101
9200
Heading
Regular subsidy from the
Community
Other subsidies and grants
Denmark contribution
Other revenue
Total Revenue
Expenditure:
The budget structure for Europol consists of administrative and operational appropriations.
The appropriations are split into commitment and payment appropriations:
Commitment appropriations (CA) – cover the total cost of the legal obligations entered
into for the current financial year.
Payment appropriations (PA) – cover expenditure arising from commitments entered
into in the current and/or earlier financial years
44
5 CAs from the
LFS of COM(2023)754 and 20CAs as detailed in section 2.2.
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Apart from one budget chapter (Chapter 39 – Grants), all other appropriations are non-
differentiated (NDA), meaning that the commitment and the payment appropriations are of
the same amount. Non-differentiated appropriations are used to finance operations of an
annual nature (principle of annuality). Chapter 39 – Grants includes multiannual activities
that are usually committed in the year they are decided and paid over several years, therefore
it is defined as differentiated appropriations (DA) with different commitment and payments
appropriations.
Commitment Appropriations (CA)
Title
1
2
3
Staff
Other Administrative Expenditure
Operational Activities
Total expenditure
Heading
Outturn 2023
114,234,450
15,310,202
77,176,709
206,721,361
Budget 2024
117,817,323
15,105,338
85,305,044
218,227,705
Draft
estimate
2025 (CA)
146,564,978
17,198,399
105,564,697
269,328,074
Diff
2025/2024
28,747,655
2,093,061
20,259,653
51,100,369
% of
the
budget
54.4%
6.4%
39.2%
100.0%
Payment Appropriations (PA)
Title
1
2
3
Heading
Staff
Other Administrative Expenditure
Operational Activities
Total expenditure
Outturn 2023
114,234,450
15,310,202
75,085,605
204,630,257
Budget 2024
117,817,323
15,105,338
82,796,844
215,719,505
Draft estimate
2025 (PA)
146,564,978
17,198,399
101,082,197
264,845,574
Title 1 – Staff expenditure:
Staff related expenditure in 2025 amounts to € 146.6M and represents 54.4% of the total
draft estimate 2025. It reflects an increase of € 28.7M or 24.4% compared to the 2024
budget.
The budget for Staff in active employment (Chapter 11) comes to € 131.3M, which is € 24.9M
or 23.3% above 2024 budget, and it is related to the additional posts, salary adjustments and
to other “staff and salary related allowances” (e.g. recruitment expenditure, relocation
allowances, shift work and other staff allowances) for TAs and CAs.
The draft estimate 2025 foresees an expenditure related to an overall 831 TAs and 280 CAs,
including the Agency’s additional resource request of 55 TAs and 20 CAs
45
. The 2025 draft
estimate also considers the full year financial effect of new staff in 2024 (+38 TAs and +20
CAs), as well as the indexation and weighting coefficient for The Netherlands related to the
2024 adjustments as well as the assumptions for salary adjustments included in the Budget
Circular 2025
46
.
The budget for Socio-medical infrastructure such as catering, medical service and social &
sport activities (Chapter 13) and training for personal development (Chapter 14) is € 1.8M,
which is € 0.4M or 22.3% above 2024, mainly due to increased catering costs. The budget
for other staff related expenditure (Chapter 15) is envisaged to reach € 13.4M, which is an
45
The two additional SNEs foreseen to adequately perform new tasks related to Interoperability are not included
under this budget title and therefore not included in this section.
46
Salary adjustments consider a 2% salary increase plus the weighting coefficient for The Netherlands at the same
level as 2023 (111.8).With regards to salary expenditure, the latest estimate reported by the Budget Circular received
on 20 December 2023, indicated a salary update of +5.3% to be applied as from 1 July 2024, an increase of +0.6%
to be applied as from 1 April 2025 and an additional increase of +3.7% to be applied as from 1 July 2025.
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increase of € 3.5M or 35.5% compared to budget 2024. The increase is foreseen for additional
external security officers and consultancy services, required for the new developments of the
Strategic Housing Roadmap (SHR) (€ 2.6M), as well as for Temporary interim workers (€
0.6M) and the European School (€ 0.3M). The estimations related to Entertainment and
representation expenses (Chapter 16) remains at the same level as 2024 (€ 0.1M), which
was in turn slightly lower than the 2023 expenditure.
Title 1 remains non-differentiated and, as such, there is no change between commitment and
payment appropriations.
Title 2 – Other Administrative Expenditure:
The budget for other administrative activities comes to a total of € 17.2M and represents
6.4% of the total draft estimate 2025. This is € 2.1M or 13.9% above the 2024 budget.
The total draft estimate for 2025 for the rental of buildings and associated costs (Chapter 20)
comes to € 13.1M, which is an increase of € 2M or 18.1% compared to the 2024 budget.
Beside the regular running costs
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for the Headquarters (HQ), the first and the second
Temporary Satellite Building (TSB1 and TSB2), the additional budget is foreseen for additional
works and services as part of the SHR program, new investments in the HQ related to the
Long Term Replacement Plan (LTRP), as well as higher running costs of electricity and gas
due to the latest price developments on the market.
The draft estimate 2025 for administrative ICT expenses (Chapter 21) remains at € 1.3M, the
same level as 2024, and it is envisaged mainly for ICT costs such as administrative purchase
and maintenance of hardware and software, licenses management and administrative ICT
consultancies.
The draft estimate 2025 for other governance and, administrative expenditure (Chapters 22
– 24) comes to € 1.8M, which is an increase of € 0.1M or 5.1% versus the budget 2024. This
budget is foreseen for the continuation of regular business activities such as open source and
database subscriptions, legal services, administrative expertise services, uniforms, furniture,
car fleet, office supplies, postal and courier services.
For the activities of the Management Board (MB) and its Working Groups (WGs)
48
, the draft
estimate 2025 included under Chapter 25 reaches a total of € 1M, which is at the same level
of the 2024 budget. This budget is foreseen to cover four physical and two virtual (topical)
MB meetings, as well as four physical meetings per year of the two MBWGs.
Title 2 remains non-differentiated and, as such, there is no change between commitment and
payment appropriations.
Title 3 – Operational activities:
The draft estimate 2025 for operational activities under Title 3 comes to € 105.6M and
represents 39.2% of the total draft estimate 2025. Compared to the budget 2024, the
expenditure in this area increases by € 20.3M or 23.7%, mainly due to the increased
resources needed in the ICT area to adequately support the new tasks referred to in section
2.2.
The draft estimate 2025 for Operations (Chapter 30) comes to € 16.2M, which is € 1.2M or
7.8% higher than the budget 2024. This budget is foreseen for operational support and
strategic meetings, conferences, staff missions and deployments of guest officers, providing
training for 3
rd
parties and investing in external operational expertise. € 0.8M are foreseen for
the additional operational support related to the new legislative proposal to prevent and fight
Preventive and corrective maintenance, electricity, water, cleaning, rents, insurance and other building related
investments.
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Corporate Matters Working Group (CMWG) and Information Management Working Group (IMWG).
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migrant smuggling. Moreover, also included in this area, are the costs for operational WEB
campaigns, audio-visuals services, operational equipment and operational training. The
increase compared to the 2024 budget is mainly related to the missions area, to take into
consideration the higher market prices as well as for the additional support to the Operational
Task Force (Guest Experts) activities.
The draft estimate 2025 for operational ICT services and programmes (Chapters 31 and 32
together) comes to a total of € 63.3M, which is an increase of € 17.5M or 26.8% compared
to the budget 2024. The increase is mainly due to the additional ICT resources needed to
adequately perform the new tasks related to the Digital Services Act (DSA), the new Data
Centre, the Interoperability project and the Information Exchange Directive (IED), as well as
in order to further support the continuation of the SHR program.
With respect to the Seconded National Experts (Chapter 33), the draft estimate 2025 foresees
an expenditure of € 8.5M, which is € 0.8M or 9.7% above the budget 2024. This budget is
foreseen to cover allowances for 71 Seconded National Experts (€ 4.5M) and 50 Guest Experts
for the dedicated support to MS investigations for the Operational Task Forces (OTF) (€ 3.3M).
Moreover, also included in this area is a € 0.6M increase related to the additional 11 SNEs
from the new legislative proposal to prevent and fight migrant smuggling and 2 requested for
the Interoperability programme.
The draft estimate 2025 for high-level external stakeholder meetings, Heads of Europol
National Units (HENUs), and events such as the Europol Police Chiefs Convention (EPCC)
(Chapters 34 and 35), come to a budget of € 0.4M, which is in line with the budget 2024.
The draft estimate 2025 for the Decryption platform (Chapter 38) is € 1M and is envisaged to
cover operational running costs of the platform, mainly electricity as well as other
maintenance and security services and it is in line with previous years.
The draft estimate 2025 included in the new Grants Chapter (Chapter 39) added in 2023 to
centralise all grants budget activities in view of the implementation of a different accounting
methodology (Differentiated Appropriations - DAs), foresees commitment appropriations for
a total of € 14.4M necessary to cover the total legal obligations related to operations to be
carried out over more than one financial year. This budget includes € 6M for ATLAS grants, €
6M for Operational task forces grants, € 2M for EMPACT and € 0.4M for the Innovation grants.
The activities related to the other grants are supported, during 2025, by the expenditure set
aside during 2024 under the DAs scheme.
Payment appropriations related to Grants amount to € 9.9M
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, which represent the actual
payments to beneficiaries planned during the 2025 financial year and refers to € 3.6M for
ATLAS, € 3.1M for OTF Grants, 2.9M for EMPACT, € 0.19 for Innovation Grants and € 0.12M
for support against EURO counterfeiting grants.
Estimate 2025 (CA)
B3-920
B3-930
B3-940
B3-950
B3-960
Total
EMPACT grants
SA Euro CF Grants
OTF Grants
ATLAS Grants
Innovation Grants
2,000,000
0
6,000,000
6,000,000
350,000
14,350,000
Estimate 2025 (PA)
2,862,500
120,000
3,100,000
3,600,000
185,000
9,867,500
2.5. Efficiency gains
Initiatives and practices that are used to achieve efficiency gains include:
This includes EUR 4 000 000 preliminarily allocated in the LFS of COM(2023)754 for grants, i.e. EUR 2 000 000
for EMPACT, and EUR 2 000 000 for OTF.
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Proactive budget management, robust monitoring of budget implementation and regular
forecast exercises to ensure the most efficient use of financial resources, together with
the implementation of new automated reporting tools for a faster data analysis as well as
enhanced cost allocation capabilities;
Establishment of an “Initiative Reserve List”, including purchases which can be
compliantly brought forward from the year N+1 as to ensure highest implementation of
the yearly budget at year end;
A dedicated ICT Business stream, encompassing a set of administrative ICT solutions
such as e-procurement, e-signature, etc.;
Shared procurement procedures with other agencies and introduction of the ABAC legal
commitments module (LCK) bringing added control on Europol spending and contractual
ceilings;
Use of video conferencing capabilities, limiting increases to the mission and meeting
budgets;
Close monitoring of the vacancy rate in an effort to maximise the use of resources made
available to the Agency;
Implementation of the HR Strategy 2020+, incl. digitalisation of services, work-life
balance through teleworking/smart working and ensuring the right skills for Europol’s
workforce, utilising e-recruitment and appropriate training and development
programmes;
Green energy and long-term replacement plan reducing cost for maintenance and risk of
equipment failure.
2.6. Negative priorities/decrease of existing tasks
No substantial negative priorities or decrease of existing tasks is foreseen. On the contrary,
the Agency’s tasks are expected to increase beyond the level of the resources currently
available. Consequently, the Agency is requesting additional resources to fund adequately a
number of initiatives and tasks, as detailed above.
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SECTION III - Work Programme 2025
Actions on a white background are recurrent actions i.e. the business-as-usual tasks of
Europol.
Actions on a grey background are non-recurrent actions i.e. new or specific actions which
indicate a change, a new initiative or a specific undertaking in 2025, or a project of limited
duration.
Activities
Development of information technology
information management capabilities
and
Overview
As the European criminal information hub, and in order to provide operational
support to MS investigations, Europol makes a continuous effort to evolve its
information management and information technology capabilities following a
business-driven approach in line with the renewed Europol Strategy 2020+.
Europol’s Information Management (IM) Strategy developed in 2020 will guide
the streamlining and development of information management at Europol in the coming years.
In 2025, the ICT Business Streams will continue to enhance existing capabilities and develop
new ones, including those related to the implementation of the amended Europol Regulation.
The work on EU Interoperability will also continue in line with the European Commission
planning and in close cooperation with eu-LISA. The Europol Roadmap on EU Interoperability
(endorsed by the MB) and subsequent implementation plan will be regularly reviewed and, as
required, adjusted following new developments, such as adoption of new legal instruments,
adoption of new implementing acts or re-planning of activities by the European Commission
and/or eu-LISA. Also, Europol will pursue further analysis and implementation of the
provisions of the Directive on Information Exchange, which are foreseen to bring changes to
SIENA and potentially other ICT capabilities, and Europol’s business processes.
In line with the renewed Europol Strategy 2020+, Europol seeks to be at the forefront of law
enforcement innovation and research. The Innovation Lab will facilitate innovation in the wider
law enforcement community and will support Member States in addressing the risks and
opportunities of emerging technologies. Via the European Clearing Board (EuCB), the Europol
TechWatch Forum, and the Europol Pool of Experts, and in cooperation with the Operations
Directorate, the Innovation Lab will coordinate the regular collection of MS and Europol’s
needs for tools based on new technologies and will identify and suggest potential solutions
from existing research projects and innovation networks. As part of the implementation of
the amended Europol Regulation, the Lab will provide a sandbox environment for Europol and
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MS to develop, train and validate models and tools using operational data. The Lab will further
develop an innovation pipeline so that proofs of concept and prototypes can be developed
into fully-fledged solutions to support Europol and MS investigations. The Innovation Lab will
continue to act as the secretariat for the EU Innovation Hub for Internal Security and lead the
Hub Team in collaboration with other JHA agencies to implement the tasks and functions
adopted by COSI in 2020 and following the Hub’s multi-annual planning.
Europol Research and Innovation projects will develop AI tools, trained with data provided by
MS for that purpose, to facilitate investigations.
Other innovation priorities include the further establishment of Europol’s role in Horizon
Europe to help ensure that investments result in benefits for frontline law enforcement work;
the proactive alignment of Europol processes with the future requirements of the EU AI Act;
developing capabilities to facilitate technology scanning, monitoring, and foresight activities;
and to continue strengthening cooperation with academia.
A dedicated Business Stream will continue working to renovate the way the agency operates
in the administration domain. The target is to rationalise the diverse application landscape by
streamlining the corporate processes and (subject to availability of resources) explore the
possibilities of their further automation, and by leveraging and integrating in a coherent
manner EU Commission-developed, in-house and cloud solutions. The pace of the Stream is
dictated by the availability of resources, in light of major developments in the operational
domain, which remain the agency’s highest priority.
The implementation of all initiatives will duly incorporate data protection safeguards as
prescribed in the Europol Regulation. Any work on interoperability and connectivity with
information management systems at EU level will build on the provisions for protection of
fundamental rights and freedoms of natural persons in the legal instruments of the respective
systems and other relevant EU law (e.g. on data protection, privacy, non-discrimination, etc.).
Milestones for all Business Streams will be further refined before the final adoption of Europol’s
programming Document 2025-2027, taking into account the work done in 2024.
2025 Objectives
Information Management Strategy
Objectives and actions
A.1.1 Continue with the implementation of the Information Management
Strategy
50
.
o
o
o
o
Coordinate and manage information management products and services in accordance
with the business demand and organisational strategy.
Further develop and enforce information management standards and a single
information management governance for Europol.
Continue aligning the Catalogue of Products & Services and underlying information
such as process landscape, data flows, and performance reporting.
Further connect Law Enforcement experts communities through specialised tools and
platforms, in particular by advocating the EPE as the central inventory of skills
available across the MS Law Enforcement communities and gateway to (national) Law
Enforcement specialist databases.
Continue efforts to promote best practices in relation to Member States’ information
management capabilities and strategies.
o
Strategic objectives 1 and 2 of the Information Management Strategy are implemented through the initiatives
under the Work Programme’s annual objectives A.1.2, A.1.3 and A.1.4.
44
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o
Maintain one comprehensive multiannual business capabilities roadmap and a business
roadmap for every business capability, while ensuring evolution in alignment with
Europol’s strategy and needs.
Continue monitoring the roles and interactions of stakeholder bodies & streamlining
reporting and consultations, in agreement with Member States.
Continue integrating relevant changes stemming from the amended Europol
Regulation and the renewed Strategy in the Information Management Strategy of
Europol and the ICT planning.
Further develop benefits management within IM/ICT planning and prioritisation, in
order to support strategic alignment of initiatives.
Continue strengthening the overall management coordination for information
management at Europol and improving the coordination of operational demand for
information management capabilities.
Core Business Systems and the Member States receive a reliable and
secure service with minimal interruptions.
Business needs are met in an appropriate and coordinated manner, in
line with the amended Europol Regulation and the renewed Strategy.
Operational users at Europol and in the Member States benefit from
improved information management capabilities, for use in criminal
investigations and related information exchange and analysis.
Europol contributes to the objectives of relevant EU policies.
o
o
o
o
Expected results:
Develop Europol’s ICT capabilities – Analysis Capability and Specialised
Capabilities
Objectives and actions
A.1.2 Further develop ICT capabilities for Europol’s operations.
Analysis Capability
Analysis is one of the core services that Europol provides to the Member States. In 2025,
Europol will:
o
o
Develop further the Visualisation
developments from 2024.
Analysis
Toolbox
based
on
analysis
and
Ensure that developments are in line with security and accreditation rules, DPF, EDPS
feedback and relevant provisions of the amended Europol Regulation.
Further consolidate the implementation of a Data Quality Framework, following the
outcomes from 2024.
Further enhance the Data Analysis Portal, following the outcomes from 2024.
Transit to a next phase of the Case Management and Joint Analysis capabilities based
on the outcome from 2024; further develop the Search module, in line with business
needs.
Develop additional functionalities in line with the needs of the investigations supported
at that time.
Enhance existing and develop new smart capabilities, in line with business needs.
Data Management Capability
o
o
o
o
SMART Capabilities
o
Specialised Capabilities
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o
Support the required technical developments for the implementation of relevant
provisions of the DSA Regulation, taking into account the recommendations of the DSA
Focus Group and the final decision on the matter (to the extent possible given the
availability of resources).
Continue working on the Cryptoportal in line with the business needs and outcomes
from 2024.
Continue with the integration of the Internet Facing Operations Environment (IFOE)
capabilities within the ICT landscape, in line with the business needs and the outcomes
from 2024.
Continue working on the development of the EU Firearms Intelligence Hub in line with
the outcomes from 2024.
Further enhance the NFE capabilities, aiming at a full accreditation to operate and
delivering better forensic extraction and reconstruction capabilities.
Provide ad-hoc support capabilities to support law enforcement operational needs, incl.
design, engineering and deploying of ad-hoc processing environments and software
solutions (proof of concept level applications, data pre-processing, etc.).
Continue enabling and promoting cloud experimentation to enhance operational
capabilities by resource provisioning.
An improved set of capabilities to maximise the value of data.
Enhancement of analysis products.
Improved investigation collaboration and support to Member States.
o
o
o
New Forensics Environment and capabilities
o
Operations support capabilities
o
o
Expected results:
Develop Europol’s ICT capabilities MS-facing core operational ICT capabilities
Objectives and actions
A.1.3 Implement improvements to core MS-facing operational capabilities.
Secure communication, information exchange and knowledge sharing – SIENA,
LFE, EPE, ONEP, VCP and VCOP
o
o
o
Support the roll-out of SIENA to more law enforcement communities and competent
authorities such as Police Customs Cooperation Centres (PCCCs).
Connect more authorities to SIENA, including at SIENA BPL, Restricted and Confidential
levels via system-to-system integration (web services) or web application.
Ensure support to Member States for implementing relevant provisions of the Directive
on Information Exchange, and assess and implement potential changes to Europol’s
data processing workflows (to the extent possible given the availability of resources).
Maintain SIENA’s high level of performance and support to the data intake and data
processing operations of Europol.
Continue improving the SIENA user experience, for example by user interface changes,
or better use of structured information.
Maintain alignment of the SIENA training and production environments.
Finalise the development effort to establish Large File Exchange (LFE) interoperability
with SIENA and continue establishing the interoperability of SIENA with other Europol
capabilities.
o
o
o
o
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o
Continue automating immediate follow-up processes through SIENA for successful
searches and hits resulting from cross-checks against Europol data and between
Member States.
Ensure that the Europol Platform for Experts (EPE) and its counterpart in the
Operations Network (ONEP) develop in line with business needs as formulated by the
platform managers, for example by adding new capabilities or enhancing existing ones.
Ensure the EPE and ONEP solutions remain secure and relevant.
Utilise EPE and ONEP as a gateway to (national) Law Enforcement specialist databases.
Further mature the VCP-Connect solution in line with business needs.
Continue enhancing Video Conferencing for Operational Purposes (VCOP) in line with
business demand and keep the VCOP ecosystem up-to-date with latest technological
developments.
Continue supporting improvement of the Universal Message Format UMF standard
through participation in UMF related initiatives. Increase the use of structured data by
Europol and further facilitate the provision of structured data by MS by using UMF in
line with the Commission implementing decision 2023/220.
Advance with redesigning the EIS from a technical perspective as a future component
of the Europol Data Sharing Capability in accordance with the new ICT environment.
Continue improving the interoperability between EIS and QUEST.
Continue working on the integration of biometric searching capability with the (new)
EIS.
Revise and expand automated data loading services. Further proceed with the
development of a new generation dataloader, and continue the support to MS/TP with
implementation of data loader solutions.
Dependent on the outcome of the analysis carried out in 2024, implement the in-take
of data into the EIS from SIENA contributions or other channels.
Continue improving data quality in the EIS including by implementing automated data
compliance checks.
Analyse and – depending on the outcome - initiate the development of a new service
extending the capacity for the direct loading of EIS data by third parties.
Continue supporting rollout of QUEST (BPL and EU-RESTRICTED) in all MS, including
the rollout of access to Europol’s Analysis Projects on a hit/no hit basis.
Maintain alignment of the EIS training and production environments.
o
o
o
o
o
o
Search, cross checking & (self-)data management – EIS, QUEST
o
o
o
o
o
o
o
o
o
o
Continue improving the search mechanism of QUEST/QUEST+ according to MS and
Europol business needs, including extending QUEST with searches on additional
objects as required.
o
Subject to the outcome of the feasibility study from 2023, enable biometric searching
capability with QUEST (QUEST BIO), in particular in order to fulfil the requirements of
PRÜM II Regulation.
o
Enhance the business intelligence capability for QUEST.
o
Subject to relevant developments in 2024, support the implementation of hit/no-hit
access to Europol data for EPPO, Eurojust
51
and OLAF, within the legal provisions of
their mandates and the Europol Regulation (dependent on the outcome of the inter-
Agency work carried out exploring the best way forward and technical maturity of the
connecting EUIBAs).
Information management enablers - IAM and secure lines
Europol and Eurojust have agreed to a streamlined manual process to this end while waiting for the technical
integration to be implemented (subject to the further development of Eurojust technical capabilities and the
developments in the EU Interoperability programme). A pilot project is currently ongoing and is expected to be
evaluated in 2024.
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o
o
o
Harmonise further the IAM landscape of Europol by integrating more systems with IAM
and taking further steps towards establishing single enterprise identity.
Continue improving IAM functional capabilities, providing more flexibility in IAM
workflows and enhance further implementation of attribute based access control.
Further implement secure lines to allow new partners to gain access to the Europol
secure network and the applications and services that Europol provides through these
lines (e.g. SIENA and IAM).
Enable MS’ and TPs’ connectivity to all Europol web applications available to MS/TP not
only over EU-R connections but also over BPL and EU-C infrastructure based on
business needs while respecting the rules of security.
An improved secure communication service to Member States and
other partners.
A re-designed and robust data sharing capability fit for future use with
new search services.
Increased efficiency of compliance checks on data.
A streamlined way for users to access Europol’s systems.
Europol contributes to the objectives of relevant EU policies.
o
Expected results:
Develop Europol’s ICT capabilities - Europol Roadmap on EU Interoperability and
biometric capabilities
Objectives and actions
A.1.4 Advance interoperability and connectivity with information management
systems at EU level to enhance information exchange.
In close cooperation with the European Commission and eu-LISA and in line with the
timeline set by the Justice and Home Affairs Council, in 2025 Europol will:
o
Contribute to the work on interoperability and connectivity of IM systems at EU level
by participating in relevant committees, advisory groups, product management fora
and project boards, e.g. IXIM, SIS, VIS, EURODAC, EES, ETIAS, ECRIS-TCN, UMF and
EPRIS. Provide technical advice on initiatives related to the implementation of the EU
Interoperability Agenda.
Finalise the work and launch into operation the systematic check of all travel
authorisation applications from ETIAS against Europol Regulation Article 18.2(a) data,
and ensure readiness for the entry into operation of ETIAS: participate in formal
testing, conduct business testing and end-user training, develop the Europol internal
solutions supporting the ETIAS processes, including automated searches against
Europol data, automated notifications in relation to hits against certain data sets,
manual processing of hits and providing Europol opinion, and Europol access to ETIAS
data for law enforcement purpose. Participate in ETIAS Screening Board under the lead
of Frontex.
Continue the work enabling the systematic check of all visa applications against
Europol Regulation Article 18.2(a) data, including biometric data and ensure readiness
for the entry into operation of VIS Recast: participate in formal testing, conduct
business testing and end user training. Launch into operation the Europol internal
solutions supporting the VIS processes, including automated searches against Europol
data, automated notifications in relation to hits against certain data sets, manual
processing of hits and providing Europol opinion, and upgrade Europol access to VIS
data for law enforcement purpose. Participate in VIS Screening Board under the lead
of Frontex.
48
o
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Europol Unclassified – Basic Protection Level
o
Further enhance Europol’s capabilities related to biometrics, in particular fingerprints,
facial recognition and DNA to meet the business needs and technical requirements in
the context of the EU Interoperability framework and Europol’s core tasks.
Launch the work on Europol’s connection to and use of the European Search Portal to
access SIS, VIS, and EES data.
Finalise the work and launch into operation Europol access to ECRIS-TCN.
Finalise the work and launch into operation Europol access to Common Identity
Repository for the purpose of 2-step law enforcement access.
Finalise the implementation and launch into operation QUEST allowing MS and Eurojust
to query Europol data via the ESP for law enforcement purposes.
In line with the outcome of negotiations of Eurodac Recast, initiate the implementation
of Europol’s access to Eurodac to replace current access via Member State’s Access
Point.
In line with the outcome of negotiations of Screening Regulation, initiate the
implementation of security checks of the applicants for international protection and
irregular migrants via ESP against Europol data and the provision of appropriate follow
up action.
In line with the outcome of the negotiations on the legislative proposal on the revision
of the Prüm Regulation, proceed with the implementation of: 1) MS access to biometric
data provided to Europol by Third Parties and the development of QUEST-BIO, 2)
Europol’s access to MS databases to cross-check data received from third countries
and 3) develop and implement EPRIS to support the search of police records.
Ensure support to and implement relevant improvements in business processes and
technical solutions supporting Europol’s tasks in relation to SIS, ETIAS, EES, and VIS.
Upon delivery of the building by the Host State, finalise the implementation of the new
Europol Data Centre in support of the ETIAS and VIS solutions (to the extent possible
given the availability of resources).
Support CEPOL in the work of CEPOL Knowledge Centre (CKC) on Interoperability,
Information Exchange and Law Enforcement Cooperation, and eu-LISA and Frontex in
EU interoperability and large-scale EU systems’ related training activities.
Europol is a fully integrated part of the European security architecture
in accordance with respective EU legislation.
The Member States’ needs in terms of efficient access to information
are better met.
Interoperability and complementarity of Europol systems and tools
with other EU information management systems leads to increased
and more efficient exchange of information.
Enhanced Europol contribution to relevant EU policies.
o
o
o
o
o
o
o
o
o
o
Expected results:
Innovation Lab
Objectives and actions
A.1.5 Further implement Europol’s Innovation Strategy.
o
Further develop the functionalities of the Research and Innovation Sandbox (RIS) (i.e.
a separate, isolated and protected data processing environment within Europol for the
sole purpose of carrying out and supporting research and innovation projects),
especially to secure remote connectivity for designated Member State authorities.
Identify and receive datasets for the explicit purpose of pursuing research and
innovation projects.
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Europol Unclassified – Basic Protection Level
o
Develop further the Research and Innovation Pipeline so that proofs of concept and
prototypes can be developed into fully-fledged solutions to support Europol and MS
investigations.
Factor in fundamental rights compliance throughout the innovation process, in
cooperation with the Fundamental Rights Officer.
Further develop the foresight and horizon scanning activities of the EU Observatory for
innovation. Deliver relevant input to strategic analysis and produce regular reports on
trends and foresight.
Continue experimenting with virtual online meeting environments for the hosting of
non-operational Europol events, with a view to establishing a clear business case.
Act as the secretariat for the EU Innovation Hub for Internal Security and lead the Hub
Team in collaboration with other JHA agencies, and implement the tasks and functions
adopted by COSI on 15 May 2020
52
and in the Multi-Annual Plan endorsed by COSI in
February 2023
53
.
Ensure that the AP4AI online tool for AI compliance with the AI Act is migrated from
the host organisation (CENTRIC) to a Europol environment.
Act as the secretariat of the European Clearing Board (EuCB), a coordination and
prioritisation structure composed of EU Member States’ representatives. The EuCB
channels Member States’ needs and operational requirements to the Lab, discusses
the creation of core groups and decides on priorities.
Expand the work of the Project function of the Innovation Lab by supporting an
increasing number of initiatives. Establish corresponding Core Groups with
participation of MS to contribute to the project implementation. Foster the co-creation
of innovative tools with Member States.
Contribute to R&I activities by implementing the Innovation Low Value Grants scheme
launched in 2023, in order to provide targeted financial support from the EU Innovation
Lab budget to Member States in their efforts to co-create innovative tools.
Continue to promote the Europol Tool Repository (ETR) as the primary platform for
the sharing of innovation tools by, and for, Member States, in line with the Europol’s
task to disseminate the results of the R&I activities of the Member States and of the
EU-funded projects.
and Europol and ensure synergies with the Europol analysis toolbox.
o
o
o
o
o
o
o
o
o
o
Continue to feed the ETR with innovative tools developed by EU MS, external partners
o
o
o
Manage the Europol Code Repository (ECR) in support of Core Group projects and
Europol’s projects.
Further develop networks of relevant partners in the industry and academia and
organise Industry Days in partnership with existing LEA and industry networks.
Subject to the developments from 2024, establish an administrative framework for the
temporary embedment of academic experts within innovation projects to swiftly enable
their participation. Continue to explore new resourcing models, for example, the
temporary insourcing of skillsets and the clarification of intellectual property rights
(IPR) when co-creating new solutions.
Assist the European Commission in identifying key research themes, drawing up and
implementing the Union framework programmes for research and innovation that are
relevant to Europol’s objectives. Contribute to the development of solutions by
facilitating their operational testing and validation.
o
EU Innovation Hub for Internal Security main principles for establishment, Council Secretariat reference 7829/20
LIMITE COSI 77 ENFOPOL 109 CYBERE 69 JAI 341.
53
Multi-annual work plan 2023-2026 of the EU Innovation Hub for Internal Security, Brussels, 16 February 2023,
5603/23, COSI 21, ENFOPOL 60, CYBER 28, JAI 146
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Europol Unclassified – Basic Protection Level
o
Act as a liaison between EU-funded research projects, DG Home and European law
enforcement community (represented by the EuCB) by monitoring and assessing the
continued relevance of EU-funded research projects related to Europol’s mandate.
Coordinate the implementation of Project STARLIGHT, a Horizon 2020 project which
aims to deliver a set of AI tools for LEA purposes. The Innovation Lab will coordinate
the input of the 15 LEAs involved in the research project.
Maintain dedicated Innovation EPEs (Lab, Hub, Core Groups, Observatory, etc.).
Facilitate the training of law enforcement in the field of innovation in close cooperation
with CEPOL.
Ensure that Europol can identify and adopt innovative and novel technologies, to
improve the efficiency and added value of Europol’s services to the EU MS LEAs.
Based on the work of the European Clearing Board, Core Groups and Europol
Innovation Lab, facilitate the rapid embedment of emerging technology solutions in
Europol’s overall information management landscape in line with architecture and
compliance standards.
Europol contributes to the development of artificial intelligence and
machine learning tools, and other research and innovation projects
based on datasets provided by Member States.
A substantiated overview of the risks, threats and opportunities of
emerging technologies.
Coordinated efforts in research and development leading to greater
realisation of common projects and technical solutions.
Alignment of Europol’s innovation activities with MS law enforcement
needs and priorities. Alignment of EU funding for security research
with the needs of law enforcement.
Europol contributes to the objectives of relevant EU policies.
o
o
o
o
o
Expected results:
Corporate information management
Objectives and actions
A.1.6 Further improve corporate
administrative ICT capabilities.
o
information
management
and
related
Improve IM for non-operational information as well as the underlying IM capabilities
to increase the efficiency of documents management (DM), records management (RM)
and archiving.
Manage and enhance corporate IM capabilities and collaboration tools for non-
operational information including end-user support and training.
Progress in establishing IM capabilities that enable electronic workflows, electronic
approval and e-Signature.
Progress further with the Records Management Programme, including by developing a
File Plan and reviewing the Retention schedule for prioritised areas).
Continue the transition to a new electronic Document, Records and Workflow
management platform.
Progress with the Archiving Programme: maintain the central archive of official
documents and corporate records in hard copy and electronic format; progress with
the restructuring of the corporate archive facilities and the implementation of a historic
archive (EU Archive Regulation 2015/496 amending Council Regulation 354/1983).
o
o
o
o
o
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Europol Unclassified – Basic Protection Level
o
Maintain the overall organisational structure and support business stakeholders when
defining and implementing organisational change; coordinate the implementation of
organisational changes in IM capabilities to guarantee consistent information
ownership and information security.
Advance Europol’s Process Landscape and ensure its alignment with the renewed
Europol strategy; facilitate the development, analysis, improvement and automation
of business processes in prioritised areas of organisational development in line with
the amended Europol Regulation.
Enhance business process management at Europol. Ensure that processes and
protocols for new initiatives are in place to guarantee the methodological consistency
of the work and compliance with internal and external requirements.
Implement improvements to the corporate risk management, internal audit, enterprise
architecture and business process management tool.
Progress with the development and implementation of a corporate analytics and
reporting capability.
Implement improvements to the tools for business continuity management; initiate
the implementation of a security incident management tool.
Subject to European Commission’s project team confirmation, implement new modules
in SYSPER.
Progress with planning, design and procurement activities for ICT components in line
with the strategic housing roadmap.
Effective processes, systems and tooling are in place to ensure proper
corporate risk, internal audit and business process management.
Reduced bureaucracy and time spent on document and records
management and reporting while ensuring the availability of reliable
information on decision-making, corporate performance and level of
compliance.
Rationalisation of the application landscape by streamlining corporate
processes and leveraging and integrating in a coherent manner EU
Commission-developed, in-house and cloud solutions.
o
o
o
o
o
o
o
Expected results:
Provide and maintain ICT capabilities
Objectives and actions
A.1.7 Develop and maintain reliable and secure ICT capabilities.
o
o
Develop a timely, comprehensive ICT portfolio work plan on a yearly basis, including
demand management and resource allocation, and monitor its implementation.
Design, build, maintain and manage the product lifecycles of Business applications,
their processes and their evolution in alignment with the relevant stakeholders and
strategies, legal, security and data protection requirements.
Create enabling technology roadmaps, including retirement / replacement of obsolete
solutions and identification of technology-driven innovation opportunities, with
attention to integration, interoperability and data management.
Develop and maintain the Business, Solution, and Information architecture, as well as
the portfolio of ICT capabilities, to enable deliberate decision-making and ensuring
evolution in alignment with Europol’s strategy, business needs, and compliance
standards.
o
o
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Europol Unclassified – Basic Protection Level
o
Guided by ICT Architecture, procure new ICT capabilities or develop new solutions
according to agile practices and Secure Coding techniques while applying high
standards of Quality and Assurance.
Continue optimisation of ICT costs, including license spending, right-size security
measures, capacity and availability of Systems and Services.
Assure uptime and availability according to the set SLA’s with the stakeholders.
Provide workplace-related services and customer service and support to users of all
Europol ICT capabilities, in-house, in MS and Third Partners. Maintain an up-to-date
Service Catalogue.
Member States, Partners and Europol staff receive reliable and secure
systems and services that enable the achievement of Europol’s
renewed strategy.
o
o
o
Expected results:
Indicators
Core Business Project Delivery
Operational Stability - Uptime of Core systems
Number of Searches through EIS and QUEST
Number of SIENA Messages exchanged
Number of SIENA Cases initiated
% of Active Users on the EPE
Core Business Project Delivery
Latest result
(Q2 2024)
Target 2025
54
A number of indicators throughout the Work Programme also depend on MS demand for Europol’s products and
services. All indicators and their targets are reviewed annually, on the basis of actual performance data, as part of
the final version of the Programming Document.
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Europol Unclassified – Basic Protection Level
Operational Coordination
Overview
Europol’s Operational and Analysis Centre is responsible for handling all
incoming information and for managing the workflow of non-prioritised cases
in terms of data processing, data handling and hit reporting. The Centre
provides support to specific operations and action days both from the Europol
headquarters and on the spot. In case of serious incidents, it initiates
emergency procedures and coordinates Europol’s immediate response.
Internally, the Operational and Analysis Centre presents up-to-date business intelligence to
Europol’s management, enabling decision making on a permanent 24/7 basis and assures the
continuity of the operational business outside office hours.
For its part, the new Integrated Operational Services Unit of the Operational Centre is
responsible for the SIRENE Office of Europol. In this capacity – among other tasks – it acts
as a single point of contact for SIRENE Bureaux, managing communications with them and all
criminal information exchanged through the SIRENE communications infrastructure in line
with the SIS regulations. The Unit has also assumed the handling and comparison of the
biometric data received across the different cases (prioritised and non-prioritised), and the
management of the existing dedicated databases for fingerprints (ABIS), face recognition and
DNA.
An increasingly important and considerable part of the work conducted by the Integrated
Operational Services Unit is the implementation of Europol's role in relation to the EU large-
scale information management systems. In particular, with the ETIAS and VIS-recast
mechanisms becoming operational in 2025 and 2026 respectively, Europol is expected to build
up a 24/7 service providing swift follow-up and reasoned opinion on hits of visa or travel
authorisation applications against Europol data.
In parallel, the Operational centre at Europol offers specialist law enforcement techniques
(Special Tactics) assisting MS investigations in any of the three priority areas of serious and
organised crime, terrorism and cybercrime. Whilst remaining open to new developments, the
following areas of knowledge and expertise are being currently supported: covert human
intelligence sources, covert surveillance, covert entry, counter-kidnapping and -extortion,
hostage negotiation, specialist intervention, witness protection and fugitive active search.
Finally, the Deployment Management Team provides horizontal support to Europol’s
operational centres by dealing with Europol's large scale/long term deployments, as well as
deployments linked to first responses or specific expertise requested by MS and partner
countries. Currently, one of the main tasks of the team is to manage the training and
deployment aspects of the Guest Officer project with deployments to migration hotspots
(Greece, Italy, Cyprus and Malta), but also to other areas at the request of the MSs and the
European Commission, such as countries bordering Ukraine and Belarus.
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Europol Unclassified – Basic Protection Level
2025 Objectives
Operational Centre
Objectives and actions
A.2.1 Ensure the effective functioning of the Operational Centre in managing the
intake of operational information.
o
o
o
o
o
o
o
o
o
Monitor operational data on 24/7 basis as the single point of entry for any incoming
information from stakeholders.
Decide on the acceptance of information into Europol’s databases.
Process and handle urgent messages in priority cases, in close cooperation with
competent analysis projects.
Handle non-priority cases and manage hits on related information including evaluation
and reporting of matches.
Accommodate the growing task of following-up hits with Europol’s analysis data once
MS obtain hit/no hit access to the Analysis Projects via QUEST.
Provide permanent monitoring and reporting of Open Source information about
incidents related to the mandate of Europol.
Manage EIS operational data including the insertion of data on behalf of third parties
and hit management.
Manage operational information exchange with third parties.
Prepare daily situation and weekly criminal intelligence briefing reports to inform
internally about main operations, trends and patterns. Host the daily briefing of
operational heads of units (TOT meeting).
Contribute to the preparations for data intake and related operational procedures,
required for the implementation of the Directive on information exchange (to the
extent possible given the availability of resources).
Continuously develop, maintain and deliver the 2-month induction training for newly
recruited analysts. Contribute to the delivery of the criminal analysis, EIS and SIENA
trainings.
Increased quality and completeness of Europol’s criminal intelligence
picture allows for more effective response to MS operational cases and
crisis situations.
o
o
Expected results:
Operational Centre
Objectives and actions
A.2.2 Provide support to operations and crisis management.
o
Act as 24/7 contact point for urgent operational requests from MS Liaison bureaux/
Europol National Units/competent authorities and for officers’ reporting during on-the-
spot deployment.
Initiate the emergency procedures and crisis response steps in case of operational
emergencies / terrorist attacks within the EU or affecting the security of the EU.
Ensure a coordinated application of the crisis response mechanism and the different
protocols in the cybercrime, counter-terrorism and migrant smuggling areas.
Coordinate Europol’s immediate response together with other relevant units and
stakeholders.
55
o
o
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Europol Unclassified – Basic Protection Level
o
In close cooperation with the Special Tactics team and other Centres, guarantee 24/7
access to expertise and specialised operational knowledge, such as the European
Tracking Solution.
Liaise with Europol’s partners (MS and third parties) affected/involved.
Provide remote support to on-going actions/operations/major events/on-the-spot
deployments.
Fulfil the role of business product manager of the mobile office solution. Manage the
overview of mobile offices and other operational equipment.
Support the coordination of operations and joint actions.
Member States’ operations and emergency cases and crisis response
receive quality operational support.
o
o
o
o
Expected results:
Integrated Operational Services
Objectives and actions
A.2.3 Build-up Europol’s operational services to comply with the legal obligations
stemming from ETIAS, VIS and other EU information management systems.
o
Following the initiation of ETIAS operations, ensure the implementation of Europol’s
tasks (to the extent possible given the availability of resources)
55
, which include:
-
24/7 availability to process the hits of ETIAS applications against Europol data and
provision of reasoned opinion within 60 hours;
-
Participation in the ETIAS Screening Board hosted by Frontex; contribution to the
definition of ETIAS screening rules and security related risk indicators and
management of Europol’s entries in the ETIAS Watchlist;
Making (justified) searches in the data stored in the ETIAS Central System.
-
o
Prepare for the initiation of VIS Recast operations, ensuring readiness for the execution
of Europol’s tasks (to the extent possible given the availability of resources), which
include:
-
24/7 availability to process the hits of visa applications against Europol data
(including biometrics) and provision of reasoned opinion within 60 hours;
-
-
Participation in the VIS Screening Board hosted by Frontex; contribution to the
definition of security related risk indicators;
Making (justified) searches in the data stored in VIS.
o
Continue preparations for Prüm II, the Screening Regulation and the Directive on
Information Exchange and any other relevant information management legislative
frameworks (to the extent possible given the availability of resources).
Full operational
capabilities.
implementation
of
Europol’s
ETIAS
and
VIS
Expected results:
Europol’s compliance with its new tasks in the framework of the
implementation of EU large-scale systems.
Increased quality and completeness of Europol’s criminal intelligence
picture with regards to the identification and movement of persons,
including travel information and biometric data.
LFS of ETIAS Regulation, LFS for Interoperability and LFS for Europol Regulation Recast did not foresee additional
resources for Europol for ETIAS purposes. Subsequently an agreement was reached for a temporary transfer of 25
posts from Frontex, which covers partially the estimated resource gap.
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Europol Unclassified – Basic Protection Level
Integrated Operational Services
Objectives and actions
A.2.4 Ensure the provision of efficient services by Europol’s SIRENE Office.
o
o
o
o
o
o
Act as the single point of contact for MS’ SIRENE Bureaux and carry out the activities
stemming from the SIS regulations.
Process, store and crosscheck the communicated hits on alerts related to terrorism
sent to Europol by SIRENE Bureaux.
Conduct the data review of information sent by SIRENE Bureaux in full respect of the
Europol regulation and the specific SIS data review requirements.
Report through the SIRENE communications infrastructure matches triggered in SIS.
Exchange supplementary information and other relevant messages with SIRENE
Bureaux through the SIRENE communications infrastructure.
Execute a specific workflow for Europol to propose to MSs the creation in SIS of
information alerts in the interest of the EU following the new provisions of the Europol
Regulation Recast.
Deliver training and awareness sessions on SIS/SIRENE related matters; provide
advice and support to Europol’s Analysis Projects.
Maintain and further enhanced the Europol SIRENE operator manual.
Maintain fruitful, effective and efficient cooperation with SIRENE Bureaux and other
external stakeholders.
Full operational implementation of the capabilities of Europol’s SIRENE
Office.
Increased quality and completeness of Europol’s criminal intelligence
picture with regards to SIS alerts related to terrorism.
o
o
o
Expected results:
Integrated Operational Services
Objectives and actions
A.2.5 Build-up Europol’s biometric capabilities and services.
o
Process, compare and analyse biometric data received at Europol including
dactyloscopic data, facial images and DNA profiles, maintaining quality and procedural
standards throughout the process.
Perform biometric data searches against EU information management systems, such
as SIS, VIS, EES and ECRIS-TCN, in full respect of the respective legal framework.
Compare and analyse matches triggered with biometric data in the context of
automated searches launched from VIS or depending on the outcome of legislative
negotiations, in the context of the future Prüm II or Screening regulation frameworks.
Maintain and review the data stored in Europol biometric databases, ensuring that it
complies with Europol data processing rules and data retention policies.
Provide expertise, training and support on the use of biometric technologies and their
application to investigations.
Provide operational input and feedback to the ICT business and technical requirements
on the performance and further development of biometric identification systems.
Collaborate with MS, EU agencies and other relevant cooperation partners in the area
of biometric data exchange and standardisation.
o
o
o
o
o
o
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Europol Unclassified – Basic Protection Level
Expected results:
Increased quality and completeness of Europol’s criminal intelligence
picture with biometric data.
Member States’ investigations receive the required support for the
processing of biometric data and the results of such processing
through Europol’s operational products.
Integrated Operational Services
Objectives and actions
A.2.6 Provide support to MS investigations with travel intelligence.
o
Act as the single point of contact for MSs’ Passenger Information Units (PIUs) and
carry out the activities stemming from the EU PNR directive and the Advance
Passenger Information (API) Regulation.
Handle PNR data submitted to Europol by PIUs.
Enrich the analytical activities of Europol’s Analysis Projects with relevant PNR data
and data obtained from EU information management systems; develop a granular data
access model to regulate the access to the different systems.
Exploit opportunities in the use of PNR and ETIAS watchlists to collect specific travel
information and to flag threats and possible risks.
Contribute, as required, to the creation of PNR Rule Based Targeting (RBT), as well as
ETIAS screening rules.
Search against Europol data information sent by MSs in the framework of travel
monitoring activities or in operations to detect high risk passengers.
Search operational data provided by third partners in the EU information management
systems and include the relevant information retrieved in the operational outputs.
Prepare to utilise the additional API data on intra-EU flights for countering serious
crime and terrorism following the adoption and operationalisation of the new API
Directive.
Contribute to the coordination and delivery of dedicated training for the analysis of
travel related information in partnership with CEPOL.
Exercise the functions of secretariat of the Informal Working Group on PNR and support
the organisation of IWG-PNR events.
Increased quality and completeness of Europol’s criminal intelligence
picture with regards to the identification and movement of persons.
Member States’ investigations receive the required support for the
processing of travel data and the results of such processing through
Europol’s operational products.
o
o
o
o
o
o
o
o
o
Expected results:
Special tactics
Objectives and actions
A.2.7 Provide support to Member States in the area of special tactics.
o
o
Act as the EU knowledge and expertise broker on specialist law enforcement
techniques supporting MS investigations in the area of SOC, terrorism and cybercrime.
Continue developing and maintaining expertise on covert human intelligence sources,
covert surveillance and controlled delivery, covert entry, counter-kidnapping and -
extortion, fugitive active search, specialist intervention, witness protection and
undercover policing.
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Europol Unclassified – Basic Protection Level
o
o
o
Develop and maintain expertise about all counter measures used by OCGs to defeat
police operations in general and special tactics policing operations in particular.
Develop in-house expertise on crowd-sourcing tools and special tactics open source
intelligence.
Support the drafting and implementation of OAPs through the involvement in joint
investigations, large-scale operations, on the spot deployments and/or joint action
days.
Manage the EU Most Wanted List containing high-profile internationally wanted
criminals. Deliver operational support in fugitive search cases by using Europol’s core
capabilities. Organise an annual public awareness campaign. Update the EU Most
Wanted website.
Manage the High Risk Informant Database (HRIDB) - a coded database allowing a
more accurate risk assessment when working with foreign informants.
Manage and monitor the European Tracking Solution (ETS). Ensure the operational
availability at large and aim to connect all interested MS and third parties.
Manage the Virtual Command Post tool for live information exchange during special
tactics operations. Initiate the upgrade of the tool if operational needs arise.
Act as the EU Single Point of Contact for all Remotely Piloted Aircraft System (drones)
related matters, including MS requests for information and analysis.
Facilitate the availability of geospatial images and other space assets for law
enforcement by:
-
-
-
Sharing with MS the use of Europol’s access to Integrated Maritime Services Portal
at the European Maritime Safety Agency (EMSA);
Providing a central point of access for LEA to use the European Commission’s
Copernicus services; and for obtaining services from EUSATCEN; and
Supporting the informal network of experts on the use of geospatial images for law
enforcement purposes.
o
o
o
o
o
o
o
o
o
o
o
o
Explore new areas of special tactics support which Europol could potentially provide.
Implement the Guest Experts (GE) concept to create a pool of experts in the area of
special tactics.
Support the work and strengthen the implementation of the newly established EU wide
informal expert network on covert surveillance.
Manage additional EPE networks under the sosXnet
56
umbrella and give guidance to
the related networks.
Organise strategic expert meetings, training, awareness raising and prevention
activities in the area of knowledge management and in support of specialist networks.
Contribute to the delivery of training by CEPOL, e.g. on Witness Protection and
Informant Handling.
Member States’ investigations receive quality special tactics support.
Expected results:
Deployment management and support
Objectives and actions
A.2.8 Manage and support deployments, incl. Europol’s Guest Officers and Guest
Experts capabilities.
o
Manage and support medium to long-term deployments by Europol, as well as
deployments linked to first responses requested by Member States or partners, such
as deployments to hotspots and other EU security-related incident areas.
56
Specialist Operational Support Exchange Network
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Europol Unclassified – Basic Protection Level
o
Coordinate, manage and support the guest officer (GO) deployments, including:
-
Maintaining a pool of GOs ready for deployment;
-
-
-
-
-
-
-
Managing ongoing deployments of GOs;
Delivering the GO training programme on Europol systems and the mobile office,
as well as modalities for operating under Europol’s aegis;
Providing input to the development and common training materials of the Migration
Management Support Teams (MMST) together with FRONTEX and EUAA;
Further implementing the mobile team arrangements and rapid deployments upon
operational needs (subject to availability of resources);
Extending the network of national contact points to ensure that more
disembarkation points/areas of interest have a designated national contact point;
Maintaining and updating operational plans with the host MS/partner states in
areas where Europol is deploying GOs;
Liaising with and raising awareness amongst seconding states so as to ensure a
sustainable level of secondments to the GO deployment pool.
o
Maintain and maximise the use of the Guest Expert (GE) pool with short-term costed
SNEs for future deployments requiring specific expertise and remaining on stand-by
after recruitment to be activated when necessary.
Support Europol’s operational centres in utilising the Guest expert concept in line with
the Member States’ operational needs and Europol’s priorities.
Provide basic training to selected GEs according to the specific operational purposes.
Provision of efficient support to deployments in response to migration
management developments, and smooth collaboration with the
authorities in host and seconding countries.
Enhanced exchange of expertise and specialised support according to
MS operational needs and Europol’s priorities.
o
o
Expected results:
Indicators
Speed of first-line response to MS requests
Number of Accepted SIENA contributions by OAC
57
Number of deployments of Guest Officers
Latest result
(Q2 2024)
Target 2025
The responsibility for this indicator is shared by Europol and its partners (MS, TP). As such, the target is
indicative and used to monitor the trend of accepted contributions.
57
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Europol Unclassified – Basic Protection Level
Combating Serious and Organised Crime
Overview
The work of Europol in the fight against serious and organised crime is delivered through the
European Serious and Organised Crime Centre (ESOCC). The centre aims at providing the
most effective operational support to priority cases and this encompasses criminal intelligence
analysis, on-the-spot and real time information exchange and expertise, and operational
capabilities support to Member States.
The ESOCC’s primary goal is to deliver operational support to MS priority cases
and High Value Target investigations focusing on individuals and poly-criminal
networks posing the highest risk of serious and organised crime to the EU. This
is achieved by implementing a case prioritisation mechanism and a High Value
Target (HVT)/Operational Task Force (OTF) concept, ensuring a standardised
application of operational services on the basis of case categories, improving internal and
external coordination, allocating resources in a flexible manner and using a Task Force/project
based working method with horizontal support from other centres to respond to emerging
threats.
Europol has embedded the principles of criminal intelligence-led policing in its structure,
processes and resources. The agency is currently supporting and facilitating EMPACT 2022-
2025, which will be again a key driver for the operational support provided by Europol to MS
competent authorities in 2025.
In 2025, ESOCC will continue targeting high-risk and cross-border Organised Crime Groups
(OCGs) active in the areas of drugs, weapons and explosives, property crime and
environmental crime, migrant smuggling, trafficking in human beings and different forms of
human exploitation. Within each crime group the Analysis Projects (APs) are clustered and
aligned to the EMPACT priorities. In addition, the agency has assumed the coordinator’s
function for the EMPACT Common Horizontal Strategic Goal on Investigations and judicial
response, with a specific focus on high-risk criminal networks (HRCN) and key individuals and
thus ensures the overall coherence of actions targeting key criminal structures and individuals
(HRCN/HVT).
Europol is following closely EU policy developments and in 2025 it will be contributing to the
implementation of, among others, the EU Strategy to tackle Organised Crime 2021-2025, the
EU Strategy and Action Plan on Drugs 2021-2025, the EU Action Plan on Firearms Trafficking
2020-2025, the EU Strategy on Combatting Trafficking in Human Beings 2021-2025, the New
Pact on Migration and Asylum, and the renewed EU Action Plan against migrant smuggling
2021-2025.
2025 Objectives
European Serious and Organised Crime Centre (ESOCC)
Objectives and actions
A.3.1 Ensure the effective functioning of the ESOCC in providing strategic and
operational support to EU MS’ investigations on SOC.
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Europol Unclassified – Basic Protection Level
o
o
Handle ESOCC information; monitor information flows; coordinate ESOCC operations.
Support MS with operational capabilities and expertise that are not available widely at
national level to enhance cost-effectiveness; the focus should be on developing actions
bringing high operational added value to the investigations.
Ensure collaboration with front-line investigators by providing real-time operational
analysis, operational coordination, information exchange and tactical expertise,
including short and longer-term deployments of Europol experts.
Use data from real-time investigations supported by the ESOCC to maintain an
intelligence picture on SOC.
Support the implementation of Operational Action Plans (OAP) under EMPACT priority
threats.
Ensure the provision of support to Member States in identifying High Value Targets
(HVT) - individuals and criminal organisations constituting the highest risk of organised
and serious crime.
Support Member States in establishing and operating Operational Task Forces (OTF)
facilitating complex and high profile resource-intensive investigations against HVTs,
taking into account, where appropriate, the regional approach and the requirements
for specialised skills and expertise in multiple domains, including seizure and
confiscation of criminal assets.
Provide management, administrative and logistical support to the OTFs. Ensure the
timely exchange of information within the OTF, in particular regarding the analysis of
the OTF findings.
Provide Member States with regular structured updates on established/intended OTFs.
Manage the dedicated OTF grant to finance the application of special investigative
techniques and other resource demanding activities in MS. Ensure the
complementarity of the grant mechanism to the EMPACT funding provided by Europol.
Utilise, where appropriate and subject to checking potential and actual conflicts of
interest as well as checking available capacities, funding opportunities in relation to
calls within Europol’s remit for which the agency is eligible to apply together with MS.
Depending on the call eligibility rules this may include the Asylum, Migration and
Integration Fund (AMIF), the Instrument for Financial Support for Border Management
and Visa Policy (BMVI) and the Internal Security Fund (ISF).
Support MS participation in OTFs including by promoting the recruitment of short-term
SNEs and deployment of national investigators to reinforce the operational support for
HVT cases.
Utilise new opportunities enabling joint operational analysis between Europol and
Member States when conducting specific investigations (in line with corresponding
technical advancement).
Develop the capacity of the ESOCC in financial investigations and the tracing of
proceeds of crime with the support of the EFECC.
Develop the capacity of the ESOCC in open source and social media monitoring with
the support of the ECTC/EU IRU.
Support development and implementation of tools, including the related funding
opportunities, enabling fast operational support (e.g. money drops).
Support the preparation of prevention materials and campaigns.
Member States’ investigations receive
operational support related to SOC.
quality
analytical
and
o
o
o
o
o
o
o
o
o
o
o
o
o
o
o
Expected results:
Enhanced law enforcement coordination of actions and operational
cooperation in the EU against organised crime groups constituting the
highest risk for the internal security.
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Europol Unclassified – Basic Protection Level
Europol contributes to the objectives of relevant EU policies.
Arrests of High Value Targets, identification and seizures of criminal
assets, and disruption/dismantling of criminal networks.
Operations on Drugs
Disrupt the Organised Crime Groups (OCGs) involved in the illicit trafficking of cocaine,
heroin, cannabis and synthetic drugs, as well as the illegal supply of logistical support,
precursors and other services.
Objectives and actions
A.3.2 Provide support to EU Member States’ investigations on drug production
and trafficking.
o
Identify HVT(s) active in the field of drug production and trafficking, set up operational
meetings and proactively support the coordination and the conduct of investigations
by applying the HVT/OTF concept.
Support the implementation of the EMPACT Operational Action Plans on cannabis,
cocaine and heroin, and on synthetic drugs and new psychoactive substances.
Support the activities of the Programme Board on drug supply reduction. Contribute
to the implementation of the EU Drugs Strategy and Action Plan 2021-2025, and the
EU Roadmap to fight Drug Trafficking and Organised Crime.
Perform data processing, criminal intelligence analysis and support MS with
operational capabilities and expertise, including on-the-spot support.
Support the implementation of special tactics targeting the drug logistical facilitators
involved in the production, transportation or financing of the drug related illicit
activities.
Support MS in identifying, tracking and dismantling illicit drug producing facilities in
the EU, including by targeting precursors and designer precursors, by improving and
making better use of forensic investigations, criminal intelligence and by developing
and expanding detection techniques. Provide a training on Illicit laboratory dismantling
together with CEPOL.
Support investigations targeting criminally dedicated encrypted communications used
by organised crime groups. Further develop Europol's capacity to address encrypted
communication and other new technology-related methods used by organised crime
groups to protect criminal activities and to conceal related communications.
Operate the drug intelligence fusion platform within Europol that includes MS
representatives, and has contact points with secured information exchange capacities
in third countries and regions constituting drug trafficking hubs. Facilitate the
exchange of intelligence in real time, analysis and support to live operations targeting
international drug trafficking organised crime groups affecting the EU.
In cooperation with the European Monitoring Centre for Drugs and Drug Addiction
(EMCDDA) support the EU Early Warning System on new psychoactive substances.
Exploit opportunities for expanding the cooperation with the new European Union
Drugs Agency (EUDA) replacing EMCDDA following the new mandate of the
organisation becoming applicable in July 2024.
Exploit the operational use of the new tool for monitoring and analysis of drug activity
on Dark Web markets developed jointly with EMCDDA and JRC.
Reinforce cooperation with the Maritime Analysis and Operations Centre – Narcotics
(MAOC-N) by promoting awareness sessions, workshops and joint operations in order
to improve effectiveness of information flow and operational collaboration.
Target concrete crime hubs, hotspots (such as main harbours) or key enablers, for
which specific measures, addressing the specific crime-enabling factors or facilitating
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o
o
o
o
o
o
o
o
o
o
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Europol Unclassified – Basic Protection Level
targeted regional coordination of interventions, can be set up in consultation with the
main MS/TP concerned.
o
Participate in the European Ports Alliance to be launched in 2024 by the European
Commission with that aim to bring together all relevant public and private actors into
a public-private partnership.
Utilise new opportunities stemming from the Europol Regulation enabling more
effective cooperation with private parties and foster the setting-up of public-private
partnerships such as with relevant EU courier/parcel post companies, aviation and
maritime authorities concerning trafficking of drugs or precursors; or with relevant
chemical and pharmaceutical industries concerning suspicious orders or purchases.
Prioritise cooperation with high-risk countries
58
from a drug production and smuggling
perspective in order to support MS investigations, and trace and identify drugs-related
criminal proceeds. Contribute to potential EU regional intervention tackling trafficking
corridors and hubs in West Africa
59
.
Support EU dialogues on drugs that focus on specific drug trafficking routes, involving
producer, transit and consumer markets
60
.
Support MS investigations against environmental crime related to illicit drug
production and trafficking.
Organise and fund the annual Drug Conference.
Arrests of High Value Targets, identification and seizures of criminal
assets, and disruption/dismantling of criminal networks.
Reduction of the drug supply by facilitating arrest and prosecution of
its main criminal actors.
Enhanced law enforcement coordination and efficiency of action in the
EU in the area of drug supply reduction.
o
o
o
o
o
Expected results:
Operations on Weapons & Explosives
Disrupt illicit trafficking in firearms and explosives.
Objectives and actions
A.3.3 Provide support to EU Member States’ investigations on weapons and
explosives.
o
Identify HVT(s) active in the field of weapons and explosives trafficking, set up
operational meetings and proactively support the coordination and the conduct of
investigations by applying the HVT/OTF concept.
Support the implementation of the EMPACT Operational Action Plan on Firearms
trafficking.
Support the implementation of the EU action plan on firearms trafficking 2020-2025.
Perform data processing, criminal intelligence analysis and support MS with
operational capabilities and expertise, including on-the-spot support.
Further develop a Firearms Intelligence Hub at ESOCC to facilitate the cross-border
exchange and processing of ballistics and weapons identification information by:
-
setting up a Ballistic Intelligence Network integrating at Europol the two main
Ballistic Identification Systems in the EU and providing an interoperability solution,
and
o
o
o
o
Colombia, Brazil, Mexico, UAE, Morocco and China.
As put forward in the EU Roadmap to fight Drug Trafficking and Organised Crime.
60
Regular EU dialogues should be conducted with the Western Balkan region and countries, Eastern Partnership
countries, Central Asia region and countries, Colombia, China, USA, Latin America and the Caribbean regions and
countries.
58
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Europol Unclassified – Basic Protection Level
-
o
o
o
establishing a common weapons identification system and database at Europol to
support the storage and comparison of such data at EU level.
Support MS investigations countering the diversion of firearms and explosives and
illicit trafficking of precursors, weapon parts and pyrotechnic products.
Conduct proactive criminal intelligence gathering on (dark web) online weapons and
explosives trade, with the support of EC3’s DarkWeb team.
Support the implementation of special tactics targeting the weapon/explosives
production and trafficking logistical facilitators (defined as facilitators involved in the
production, transportation or financing of weapons-related illicit activities).
Develop capacities for weapons and explosives tracing and utilise the access to CAR’s
iTRACE and Interpol’s iARMs. Resume discussions with the US ATF’s eTRACE
61
in view
of establishing access.
Focus on trafficking of weapons through postal and fast parcels.
Focus on the analysis of open source intelligence to identify and analyse patterns of
firearms-related violence and firearms trafficking by utilising horizontal support from
the EU IRU.
Develop, in cooperation with the European Commission, common reporting on firearms
seizures to create conditions towards establishing a standard EU statistical data
collection procedure, and an EU-level tool to track in real-time firearms-related
incidents and seizures.
Contribute to the Frontex Firearms Handbook for Border Guard and Customs updates
and regional versions.
Member States’ investigations receive quality analytical
operational support related to illicit trafficking weapons
explosives.
and
and
o
o
o
o
o
Expected results:
Arrests of High Value Targets, identification and seizures of criminal
assets, and disruption/dismantling of criminal networks.
Operations on High Risk Organised Crime Groups (OCG) and criminal networks
Disrupt structures of high risk OCGs and criminal networks.
Combat Organised Crime related violence (e.g. murders).
Disrupt the capacity of Organised Crime facilitators and enablers.
Objectives and actions
A.3.4 Provide support to EU Member States’ investigations on high risk OCGs and
criminal networks.
o
Support investigations on high risk OCGs and criminal networks in accordance with the
new mandate of AP High Risk OCGs, especially those criminal activities involving
extensive money laundering, extreme violence (murders, kidnap and torture) and
corruption.
Support umbrella investigations against organised criminal groups offering facilitation
services to other OCGs, criminal networks or individual criminals.
Maintain Europol’s expertise in the organised crime networks targeted by the previous
Analysis Projects merged into AP High Risk OCGs (i.e. mafia-structured OCGs
originating in Italy, Ethnic Albanian and Eastern European Organised Crime Networks,
and Outlaw Motorcycle Gangs).
o
o
61
CAR - Conflict and Armament Research; iARMs - Illicit Arms Records and tracing Management System; US ATF -
US Bureau of Alcohol, Tobacco, Firearms and Explosives
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Europol Unclassified – Basic Protection Level
o
Identify HVT(s) active in the field of high risk OCGs and criminal networks, set up
operational meetings and proactively support the coordination and the conduct of
investigations by applying the HVT/OTF concept.
Perform data processing, criminal intelligence analysis and support MS with operational
capabilities and expertise, including on-the-spot support.
Support as a coordinator the implementation of the Common Horizontal Strategic Goal
and as a co-driver the Operational Action Plan under the EMPACT priority High Risk
Criminal Networks (HRCN).
Ensure the overall coherence of actions targeting key criminal structures and
individuals (HRCN and HVT). Inform regularly the EMPACT community about the
strategic implications of the implementation of the OTF concept.
Support the implementation of the EU Strategy on Organised Crime 2021-2025.
Contribute to the development of innovative tools (e.g. machine learning tools) in view
of facilitating data processing and analysis in support of HVT and priority cases.
Further develop Europol's capacity to address encrypted communication and other new
technology-related methods used by organised crime groups to protect criminal
activities and to conceal related communications.
Support the implementation of special tactics targeting the illicit activities of the
members of high risk OCGs, including their money laundering operations.
Organise and fund the Annual Plenary Meeting and other dedicated meetings, as
needed.
Establish cooperation with relevant EU-financed projects, which seek to support MS in
identifying international organised crime groups and criminal networks through
intelligence-led actions, centralised analysis and effective use of forensic tools, and
promote the use of Europol’s services in achieving the objectives of such projects.
Member States’ investigations receive quality analytical and
operational support related to high risk OCGs and criminal networks.
Arrests of High Value Targets, identification and seizures of criminal
assets, and disruption/dismantling of criminal networks.
o
o
o
o
o
o
o
o
o
Expected results:
Operations on Organised Property Crime
Combat organised property crime committed by Mobile Organised Crime Groups.
Objectives and actions
A.3.5 Provide support to EU Member States’ investigations on organised property
crime.
o
Identify HVT(s) active in the field of organised property crime, including cultural goods,
set up operational meetings and proactively support the coordination and the conduct
of investigations by applying HVT/OTF concept.
Support the implementation of the EMPACT Operational Action Plan on Organised
Property Crime.
Perform data processing, criminal intelligence analysis and support MS with
operational capabilities and expertise, including on-the-spot support.
Prioritise investigations and promote the establishment of OTFs to counter property
crime featuring extreme violence, high frequency and/or extensive illicit proceeds
(such as attacks on ATMs).
Contribute to the implementation of the EU Action Plan tackling trafficking in cultural
goods by supporting investigations. Provide expertise to the Core Group on the
trafficking of cultural goods established within the EU Clearing Board for Innovation.
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o
o
o
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Europol Unclassified – Basic Protection Level
o
Enhance the collaboration with the EU CULTNET through the newly established contact
point at Europol who will streamline initiatives, explore new opportunities for
cooperation, facilitate the interaction between Europol and the network and promote
the implementation of the EU action plan.
Organise and fund a Plenary Meeting to present developments in the property crime
domain and Europol’s tools and services.
Member States’ investigations receive quality analytical
operational support related to organised property crime.
and
o
Expected results:
Arrests of High Value Targets, identification and seizures of criminal
assets, and disruption/dismantling of criminal networks.
Operations on Environmental crime
Disrupt the capacity of OCGs involved in environmental crime.
Objectives and actions
A.3.6 Provide support to EU Member States’ investigations on environmental
crime.
o
Identify HVT(s) active in the field of environmental crime, set up operational meetings
and proactively support the coordination and the conduct of investigations by applying
the HVT/OTF concept.
Support the implementation of the EMPACT Operational Action Plan on Environmental
crime.
Perform data processing, criminal intelligence analysis and support MS with
operational capabilities and expertise, including on-the-spot support.
Support MS investigations in cross border waste and pollution crime and cases of
infiltration of criminal networks in the respective legal business structures.
Focus on trafficking of fluorinated greenhouse gases (F-gases) and ozone depleting
substances and in particular on cases that include infiltration of legal business
structures and internet enabled activities.
Focus on the illicit management of Electronic and Electric Equipment Waste, especially
the export to third countries.
Conduct mapping of the specialised public or private technical support resources (such
as accredited laboratories, sampling companies, etc.) in the EU which could be used
to address concrete operational needs of MS investigations on environmental crimes.
Boost partnerships for the combating of Environmental Crime through dedicated
alliances, including relevant private parties, to strengthen targeted operational
cooperation, addressing intelligence gaps, sharing of expertise, innovation, capacity
building and joint constraint resolution.
Respond to the impact of the revised Environmental Crime Directive, once it becomes
applicable.
Provide support to the EnviCrimeNet Secretariat and the activities of the network.
Organise and fund a Plenary Meeting.
Member States’ investigations receive quality technical, analytical and
operational support related to environmental crimes.
Arrests of High Value Targets, identification and seizures of criminal
assets, and disruption/dismantling of criminal networks.
o
o
o
o
o
o
o
o
o
o
Expected results:
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Europol Unclassified – Basic Protection Level
European Migrant Smuggling Centre
Migrant Smuggling:
Disrupt OCGs and criminal networks involved in the facilitation of
illegal immigration into and within the EU Member States.
Objectives and actions
A.3.7. Provide support to EU Member States’ investigations on organised crime
related to migrant smuggling.
o
Support large scale investigations into criminal networks involved in migrant
smuggling by consolidating cooperation with source, transit and destination countries
as well as EU Agencies and International Organisations.
Identify HVT(s) active in migrant smuggling and related document fraud, set up
operational meetings and proactively support the coordination and the conduct of
investigations by applying the HVT/OTF concept.
Perform data processing, criminal intelligence analysis and support MS with
operational capabilities and expertise, including on-the-spot support.
Support the implementation of the EMPACT Operational Action Plan on Migrant
smuggling.
Fight organised crime in the main migratory routes and hubs at EU external borders;
identify links between migrant smuggling and other crime areas and terrorism.
Contribute to the objectives of the renewed EU Action Plan against Migrant Smuggling
2021-2025, in the area of dismantling migrant-smuggling networks, including the
cooperation with third countries, in particular with the Western Balkans.
Contribute to the implementation of the European Commission’s 10-Point Plan for
Lampedusa.
Contribute to the implementation of the new EU legislation to prevent and fight migrant
smuggling (subject to adoption and to the extent possible given the availability of
resources).
Contribute to the EU Migration Preparedness and Crisis Management Mechanism
Network and support the implementation of the Migration Preparedness and Crisis
Blueprint.
In consultation with the Management Board, contribute to the “Situational Awareness,
Early Warning and Forecasting Capacity Development Project” of the European
Commission, which is building an EU wide IT Toolbox capable of providing better
analytical situational overviews, timely identification and comprehensive
understanding of emerging migratory trends.
Support the Joint Liaison Task Force on migrant smuggling and THB embedded within
the EMSC and composed of a permanent operational team of MS, third countries liaison
officers and Eurojust representatives.
Maintain the Information Clearing House (ICH) with the participation of EUNAVFOR
MED, Frontex and Interpol representatives.
Collaborate with Frontex to utilise the synergies in the work of the two agencies with
regards to migrant smuggling counteraction and THB, including operational personal
data processing (once the new working arrangement is concluded and the
requirements for the data exchange are met).
Promote, with the support of the EU Commission, cooperation with Anti-Smuggling
Operational Partnerships, Immigration Liaison Officers Networks, CSDP missions and
relevant EU funded projects and initiatives in the third countries, which are considered
to be the source and transit countries for migrant smuggling.
Review the solutions and tactics deployed and the partnerships with relevant
counterparts at national and international level, including Frontex, Member States’ LOs
deployed in the regions concerned and relevant EEAS networks.
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o
o
o
o
o
o
o
o
o
o
o
o
o
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Europol Unclassified – Basic Protection Level
o
Actively participate in different types of cooperation with relevant multi-actor
platforms, acting as an intelligence collection hub, such as possible Joint Investigative
Cells or any controlled centres, if established.
Enhance information sharing, incl. by coordinating social media monitoring, especially
on migrant smuggling routes and networks.
Support the investigative and referral work in the area of social media, which are
frequently abused by criminal groups by selling stolen or lost travel documents by
utilising support by the EU IRU.
Intensify the financial investigation angle of the support provided to investigations of
migrant smuggling criminal networks, in close cooperation with the EFECC.
Support, through a co-ordinated and multi-disciplinary approach, the law enforcement
response against criminal groups producing and distributing fraudulent documents to
facilitate migrant smuggling. Enhance the criminal intelligence picture regarding the
use of identity and document fraud.
Europol is able to base its operational support functions on real time
information and to respond swiftly on changing organised migrant
smuggling trends.
Member States’ investigations receive quality analytical and
operational support in relation to dismantling of organised crime
groups active in migrant smuggling.
Arrests of High Value Targets, identification and seizures of criminal
assets, and disruption/dismantling of criminal networks.
o
o
o
o
Expected results:
European Migrant Smuggling Centre
Trafficking in Human Beings:
Disrupt OCGs and criminal networks involved in intra-EU
human trafficking and human trafficking from the most prevalent external source
countries for the purposes of any form of exploitation (e.g. sexual, labour, forced begging,
forced criminality, organ removal etc.), targeting their leadership, operations, facilitators
and financial structures.
Objectives and actions
A.3.8 Provide support to EU Member States’ investigations on trafficking in
human beings.
o
Support Member States and operational partner’s investigations concerning trafficking
in human beings affecting EU for the purpose of any form of exploitation (e.g. sexual,
labour, forced begging, forced criminality, organ removal etc.).
Identify HVT(s) active in THB, set up operational meetings and proactively support the
coordination and the conduct of investigations on these individuals by applying the
HVT/OTF concept.
Perform data processing, criminal intelligence analysis and support MS with
operational capabilities and expertise, including on-the-spot support.
Support the implementation of the EMPACT Operational Action Plan on Trafficking in
human beings.
In cooperation with MS, enhance the collection and exchange of operational and
strategic information on trafficking in human beings by increasing the quantity and
improving the quality of the contributions.
Develop knowledge on key organised criminal groups involved in THB in the EU.
Support the implementation of the EU Strategy on Combatting Trafficking in Human
Beings 2021-2025.
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o
o
o
o
o
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Europol Unclassified – Basic Protection Level
o
Improve the use of PNR data in THB investigations to identify victims and suspects
and further develop effective targeting rules for red-flagging aviation-related
trafficking situations.
Member States’ investigations receive
operational support related to THB.
quality
analytical
and
Expected results:
Arrests of High Value Targets, identification and seizures of criminal
assets, and disruption/dismantling of criminal networks.
Indicators
Number of Accepted contributions by ESOCC
62
Number of Operations supported by ESOCC
Number of Operational Task Forces supported by
ESOCC (where ESOCC is in the lead)
Number of Operational Reports delivered by
ESOCC
Number of Action Days coordinated/supported by
ESOCC
Satisfaction with Operational Support and Analysis
provided by ESOCC
Number of Operational Reports delivered by EMSC
Number of Operations supported by EMSC
Number of Action Days coordinated/supported by
EMSC
Satisfaction with Operational Support and Analysis
provided by EMSC
Latest result
(Q2 2024)
Target 2025
The responsibility for this indicator is shared by Europol and its partners (MS, TP). As such, the target is
indicative and used to monitor the trend of accepted contributions.
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Europol Unclassified – Basic Protection Level
Combating Cyber Crime
Overview
The European Cybercrime Centre (EC3) is devoted to combating cybercrime by
delivering operational and investigation support to the services in the Member
States competent to fight organised crime and terrorism. The Centre is tasked
to focus on three main areas, namely:
Cybercrimes committed by organised groups, particularly those generating
large criminal profits such as online fraud,
Cybercrimes which cause serious harm to their victims, such as online child sexual
exploitation and
Cybercrimes (including cyber-attacks) affecting critical infrastructure and information
systems in the European Union.
EC3 supports the EU Member States in preventing and combating different forms of cyber
criminality affecting critical infrastructure and information systems, such as malware,
ransomware, hacking, phishing, intrusion, identity theft and internet related fraud. The
support provided to MS extends also to tackling criminality on the Dark Web and alternative
platforms.
EC3 works towards preventing and combating all forms of criminality associated with the
sexual exploitation and abuse of children. It provides assistance and expertise in combatting
the creation and distribution of online child abuse material as well as tackling forms of criminal
online behaviour against children, such as grooming, self-generated indecent material, sexual
extortion and live child abuse.
Another area of focus for the EC3 services is international payment fraud investigations. The
aim is to respond effectively to new threats and target the criminal networks that affect
electronic payments and ensure customers' security and trust in electronic and online
payments inside a fast-growing digital payments market.
The EC3 Digital Forensics provides on-the-spot and in-house forensics support, computer
forensic support services, including decryption, live forensics, vehicle forensics, mobile device
and counterfeit banknote analysis. It delivers agile research and development of new digital
forensic tools in response to operational requests. Gathering forensic data is of utmost
importance for collecting evidence for investigations, and for the better understanding of
cybercriminals' tools and methods, thus providing valuable knowledge for use in prevention.
Cybercriminals have strongly professionalised their capabilities to hide their tracks. For Law
Enforcement to respond effectively, it is increasingly important to combine different and
complex datasets, both seized within investigations as well as from other sources. In order to
support this, EC3’s Cybercrime Intelligence acts as a gateway focusing on the streams of
cyber threat intelligence namely on actors, tactics, techniques, and procedures, malware and
criminal services (enablers), as well as on cyber financial intelligence (cryptocurrency) tracing
and blockchain analysis. The priority is set on the latest data sciences approaches from legal,
technical and organisational perspectives, to ensure that data is available, enriched and
actionable through the data and intelligence full cycles.
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Europol Unclassified – Basic Protection Level
The secondary goal is to expand the intelligence picture on cybercrime across Europe in order
to be more proactive or rapidly identify emerging trends and threats, and update the
stakeholders accordingly.
EC3 hosts the Joint Cybercrime Action Taskforce (J-CAT) which is composed of liaison officers
from various EU Member States, non-EU law enforcement partners and EC3. The Taskforce
members propose, select and work in a collaborative manner on high-profile cases for
investigation.
Research and Development (R&D) and innovation are key for the evolution of combating
cybercrime. In this context, EC3 has established a forum to consult digital forensics experts
from the EU Member States to understand their needs and/or to provide expertise to them
when required. Also, EC3 actively contributes to R&D developments and projects related to
cybercrime, such as projects funded under the European Commission's Programme Horizon
2020 or Internal Security Fund (ISF) Police programme.
2025 Objectives
European Cybercrime Centre (EC3)
Objectives and actions
A.4.1 Ensure the effective functioning of EC3 in providing strategic and
operational support to EU Member States’ investigations on cybercrime.
o
Serve as the EU law enforcement hub for collecting, processing, analysing and
exchanging information and criminal intelligence of relevance for cybercrime and
cyber-enabled investigations.
Provide cross-checking, operational analysis, support, coordination and de-confliction
to MS cybercrime investigations in the areas of cyber-dependent crimes, payment
fraud and online fraud schemes, child sexual exploitation, Dark Web and cross-cutting
crime enablers.
Provide an on-the-spot service by deploying cyber analysts and/or specialists to
support ongoing operations.
Provide 24/7 support to MS for immediate reactions to urgent cyber cases and cyber
crises situation via stand-by duty and the EU Law Enforcement Emergency Response
Protocol (EU LE ERP).
Support the implementation of Operational Action Plans under EMPACT priority threats.
Strengthen the support to Member States on Operational Taskforces, the effective
prioritisation of HVTs and identification of optimal follow-up response measures.
Focus on obtaining and processing datasets such as lawfully intercepted and decrypted
communications of criminal networks, as well as seized Darknet servers used for
criminal trade and the dissemination of child abuse material.
Increase the focus on collection, processing and production of cyber threat intelligence,
and the delivery of tactical analyses identifying and prioritising the most important
cybercriminal data hubs and services (such as crime facilitating VPNs, Hosting
Services, Communication Platforms, Dark Markets and Sharing forums and Counter
Antivirus Services).
Explore the opportunities offered by the Guest Experts concept for deploying short-
term costed SNEs to MS requiring specific expertise in the cybercrime domain.
Serve as the voice of EU law enforcement within the framework of the EU-wide
Coordinated Response to Large-Scale Cybersecurity Incidents and Crises (EU
Blueprint) and the EU Cyber Crisis Taskforce.
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o
o
o
o
o
o
o
o
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Europol Unclassified – Basic Protection Level
o
Facilitate the multi-disciplinary interaction between partners and stakeholders,
including Advisory Groups, Governance network, Eurojust and the European Judicial
Cybercrime Network, ENISA, Europol Financial Coalition, EUCTF and academia for the
purposes of establishing cooperation and information-sharing.
Develop new thematic cooperation in the EC3 Advisory groups and working-subgroups,
to foster information exchange on trends and criminal new modus operandi.
Coordinate and support efforts to strengthen operational cooperation of law
enforcement with Computer Security Incident Response Teams (CSIRT) community
and in particular with the CSIRTs Network.
Interact with law enforcement representatives in the EU, industry and academia to
develop and present collective views in the global discussion on Internet Governance,
in forums such as the Internet Cooperation for Assigning Names and Numbers (ICANN)
and the Réseaux IP Européens Network Coordination Centre (RIPE NCC), and in
relation to the EU policy making and legislative process.
Chair and facilitate the work of the European Group of Heads of Lawful Interception
Units and the European Working Group on Standardisation on Internal Security. Ensure
the representation of the law enforcement interests related to lawful interception at
the EU level.
Participate and contribute in the discussions of the High Level expert Working Group
on access to data for effective law enforcement and its working groups.
Participate in the discussions on the establishment of the EU Joint Cyber Unit put
forward by the EU's Cybersecurity Strategy for the Digital Decade.
Contribute from an operational perspective to the overall monitoring of developments
of new policy/legislative initiatives and their potential impact on Europol, such as the
Regulation laying down rules to prevent and combat child sexual abuse, the Digital
Services Act, the Cyber Resilience Act and the Artificial Intelligence Package.
Contribute with expertise to the elaboration of the DNS4EU - European Commission’s
initiative to develop a public European Domain Name System (DNS) resolver service,
as an alternative European service for accessing the global Internet.
Organise flagship events, such as the annual cybercrime conference of EC3, to foster
synergies, promote EC3 capacities and achievements and identify new cooperation
opportunities with the private sector and other communities involved in Cybersecurity
or E-governance.
Contribute to the preparation and delivery of standardised prevention and awareness
campaigns and activities in the cybercrime-mandated areas as detailed in the EC3
Cybercrime Prevention and Awareness Programme 2025. Facilitate the interaction and
cooperation with partners such as the Cybercrime Prevention Network.
Increase the focus on promoting and scaling up successful national prevention
initiatives or other types of projects/approaches among the rest of the Member States
through Europol channels.
Coordinate and support the demand, development and delivery of comprehensive
cybercrime training under the umbrella of a Training Governance Model or Cybercrime
Capacity Building Strategy at EU level, including the CEPOL Cybercrime Academy.
Promote the EC3 Secure Platform for Accredited Cybercrime Experts (SPACE) as a
centre of excellence where relevant experts exchange strategic information and best
practices.
Continue to use the EC3 Twitter Account as a fast dissemination channel for EC3’s
products and services, as well as to engage with the relevant external stakeholders.
Member States’ investigations receive quality
operational support related to cyber-crime.
analytical
and
o
o
o
o
o
o
o
o
o
o
o
o
o
o
Expected results:
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Europol Unclassified – Basic Protection Level
Enhanced joint operational activities with public and private partners
of relevance.
More effective levels of cooperation leading to better coordination and
increased operational and strategic results.
Europol contributes to the objectives of relevant EU policies.
Digital Support Services - Digital Forensics
Deliver digital operational support services to MS investigations across all crime areas.
Objectives and actions
A.4.2 Provide digital forensics support to EU Member States’ investigations.
o
Deliver digital operational support services, such as criminal infrastructure oriented
cyber forensics to tackle encrypted communication networks (in close cooperation with
Cyber Intelligence) and ransomware infrastructure.
Strengthen and prioritise the support to MS on Operational Task Forces targeting High
Value Targets and priority investigations.
Provide decryption services using Europol Decryption Platform to effectively decrypt
data from criminal IT infrastructure and devices seized during the course of a criminal
investigations.
Continuously monitor new trends and actively support MS in overcoming the technical
challenges to their cyber and cyber-facilitated investigations, by identifying suitable
tactics, performing agile research, developing digital forensic tools and sharing best
practices to respond to the emerging operational needs.
Support the further improvement of the New Forensic Environment. Utilise the NFE to
provide and develop better and faster forensic extraction and reconstruction services.
Collaborate closely with the Joint Research Centre of the European Commission to
identify and develop new tools for law enforcement at the Europol–JRC common
activity laboratory. Further create a set of forensic data extraction tools to enable data
acquisition from vehicles with different hardware/software specificities.
Increase R&D activities of the EC3 Forensics Lab in the area of decryption to maximise
practical output of the Decryption Platform. In cooperation with MS and partner LE
agencies further develop new decryption tools, and alternative decryption and live
forensic methods and share them on Europol Code Repository.
Design the further evolution of the Decryption Platform on the basis of previous
experience and developments of new technologies.
Improve capabilities to perform in-depth hardware analysis and reverse engineering,
to increase capacity to tackle encrypted communication networks, to extract data from
mobile devices, portable encrypted devices, cryptocurrency wallets, as well as Internet
of Things (IoT) devices.
Establish capacity to use custom data extraction methods from mobile devices, not
supported by commercial forensic tools.
Establish capacity to provide blockchain forensic services.
Develop and implement a Rapid Response model for Digital Evidence collection for
prioritised investigations.
Maintain and support Forums and communities on EPE in relevant forensic areas such
as digital forensics, vehicle forensics, decryption, etc. Organise annual meetings of the
Forensic Expert Forum, Vehicle Forensic Experts, Law enforcement password recovery
(LEPReCon) and Decryption Experts Network.
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o
o
o
o
o
o
o
o
o
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o
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Europol Unclassified – Basic Protection Level
o
Contribute to the implementation of the EU Forensic Science Area 2.0 Action Plan, in
particular in the areas of biometrics, artificial intelligence, digitalisation and emerging
technologies.
Provide highly specialised training on decryption in cooperation with ECTEG. Support
ECTEG in the development of other training courses on encryption.
Support CEPOL in delivering trainings in the area of Forensic Support Team expertise.
Member States’ investigations receive quality digital forensics support
and enhanced access to criminal evidence.
Increased
platform.
capacity
and
functionalities
of
Europol’s
Decryption
o
o
Expected results:
Continuously developed expertise of the EC3 Forensic Lab to be in the
forefront of R&D and in tackling technical challenges.
Digital Support Services - Document Forensics
Objectives and actions
A.4.3 Provide document forensics support to EU Member States’ investigations.
o
o
o
o
o
o
o
o
Support MS investigations concerning false documents, counterfeit currency and
printing devices.
Provide forensic services, reports and examinations, including forensics services
accredited to ISO17020:2012.
Maintain ISO17020:2012 accreditation concerning forensics examinations on Euro
counterfeited banknotes.
Assist in the dismantling of clandestine print shops.
Support the implementation of the EMPACT cross-cutting threat and common
horizontal strategic goal on document fraud and related investigations.
Support the implementation of the EMPACT OAP on Intellectual Property (IP) Crime,
counterfeiting of goods and currencies.
Share the expertise and provide training in false document and currency identification.
Explore new areas of R&D in the domain of Document Forensics to prepare tackling
emerging challenges such as criminal abuse of AI and machine learning techniques in
the area of biometrics e.g. face, fingerprints and iris manipulation , which will become
increasingly a cross cutting factor in many crime areas.
Member States’ investigations receive quality document forensics
support.
Continuously developed expertise of the EC3 Forensic Lab to be in the
forefront of R&D and in tackling technical challenges.
Expected results:
Cyber Intelligence
Objectives and actions
A.4.4 Provide cyber intelligence support to EU Member States’ investigations.
o
o
Collect information on cybercrime and cyber-facilitated crime threats and trends from
a wide array of public, private and open sources.
Provide knowledge products with regard to technology and new criminal modi operandi
online.
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Europol Unclassified – Basic Protection Level
o
Improve the criminal intelligence position of EC3 and the Member States by proactively
identifying significant cybercriminal facilitators and other HVT involved in the most
prominent cyber threats.
Provide data extraction, transformation and loading services for the large datasets
contributed by the EU MS to EC3 and other Europol’s crime centres, given the
availability of resources, in line with the provisions of the amended Europol Regulation.
Enhance the operational and technical support to crypto-currency-related MS
investigations through the implementation of the CryptoPortal and the upgrade of the
tool for tracking and attribution of Bitcoin and other cryptocurrencies. Implement
workflows to flag suspicious transactions reported by law enforcement to exchangers
and for receiving HIT/NO HIT notifications from exchangers on crypto assets of interest
for law enforcement.
Support EU MS with Open Source Intelligence (OSINT) collection, analysis, production
of intelligence products and expertise, and the development of national cyber
intelligence models.
Further develop the network of points of contact with expertise within the cyber
intelligence domain, including threat intelligence, cryptocurrency and data science with
solid focus on advanced operational support.
Provide a dedicated, secure and automated malware analysis platform to MS through
the Europol Malware Analysis Solution (EMAS). Enhance EMAS technical and analysis
capabilities.
Utilise the MISP Threat Sharing platform (MISP)
63
at Europol to further strengthen the
operational collaboration between cyber law enforcement and cyber security/network,
and information security community.
Establish a platform for operational data enrichment to the data contributed by MS
with information coming from private partners, relevant EU bodies and OSINT through
the implementation of MISP and other pipelines related to the NFE project and transfer
of information to OPS environment.
Maintain and support forums and communities on EPE in relevant Cybercrime
intelligence areas such as cryptocurrency and block chain technologies, cyber threat
intelligence/OSINT, malware (EMAS) data science, encrypted communication, etc.
Organise the annual meeting of the Cybercrime Intelligence Network, and the
conference on Cryptocurrency, as well as tactical training workshops on malware
(EMAS) and cryptocurrency.
Member States’ investigations receive quality cyber intelligence
support and benefit from improved criminal intelligence picture.
o
o
o
o
o
o
o
o
o
Expected results:
Operations on Cyber-Dependent Crimes
Disrupt criminal networks involved in cyber-dependent crimes associated with internet
and ICT (Information and Communication Technology).
Objectives and actions
A.4.5 Provide support to EU Member States’ investigations on cyber-dependent
crimes.
o
Provide operational coordination and support to Member States’ investigations with
regards to cyber-dependent crimes of greatest concern.
The original Malware Information Sharing Platform (MISP) was extended to cover threat intelligence, financial fraud
information, vulnerability information and counter-terrorism information.
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Europol Unclassified – Basic Protection Level
o
o
Focus on preventing and combating cyber criminality affecting critical infrastructure
and network and information systems.
Focus on investigating, targeting and disrupting cybercrimes associated with organised
groups and /or most prolific cybercriminal facilitators generating greatest harm or
large criminal profits, and cybercrime-as-a-service schemes.
Provide technical support and in-depth analysis on top malware in light of the
proliferation of the threat and the exponential increase of requests for technical and
financial investigative support by MS.
Contribute to the implementation of the EMPACT Operational Action Plan on Cyber
Attacks.
Strengthen the support to the MS on Operational Taskforces, effective prioritisation of
HVTs and identification of optimal follow-up response measures.
Expand the new International Law Enforcement Ransomware Response Model (IRRM),
which was developed jointly with the J-CAT, in view of reinforcing the operational
response to ransomware.
Contribute to the US-EU Ransomware Working Group and other pertinent international
fora in order to enhance international collaboration.
Further implement the No More Ransom project.
Pro-actively share technical expertise and support tools on analytics of large data sets
(e.g. EC3 Search Box) with MS and participate in collaborative international efforts to
standardise and further develop tools and procedures (e.g. Cygnus development and
Tools4LEAs).
Member States’ investigations on cyber-dependent crimes receive
quality analytical and operational support.
o
o
o
o
o
o
o
Expected results:
Operations on Child Sexual Exploitation
Disrupt criminal networks involved in sexual exploitation of children, including the
production of child abuse images and online dissemination.
Objectives and actions
A.4.6 Provide support to EU Member States’ investigations on child sexual
exploitation.
o
Support the MS in tackling forms of criminal online behaviour against children, such
as grooming, self-generated indecent material, sexual extortion and coercion, and web
live streaming.
Fight distribution of child sexual exploitation material including preventing,
intercepting and stopping the sharing through peer-to-peer networks, commercial
platforms, and the Dark Web, as well as addressing the commercial sexual exploitation
of children.
Tackle the phenomenon of transnational child sex offenders by supporting the EU MS
in detecting and intercepting travelling child sexual offenders.
Support the implementation of the EMPACT Operational Action Plan on Child sexual
exploitation (CSE).
Strengthen the support to the MS on Operational Taskforces, effective prioritisation of
HVTs and facilitating criminal platforms and identification of optimal follow-up
response measures.
Identify a High Value Targets, both abusers and their facilitating platforms, among the
Dark Web’s most prolific perpetrators and set up an annually recurrent OTF to
coordinate and de-conflict operations.
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o
o
o
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Europol Unclassified – Basic Protection Level
o
Develop a more pro-active approach to identify investigation possibilities for MS.
Provide packages with necessary analysis and information to successfully start
investigations.
Prepare to implement effectively the EU Regulation laying down rules to prevent and
combat child sexual abuse. Assess EC3 data collection modalities and the possibilities
for establishing a data warehouse to ensure effective handling of the expected increase
in data contributions. Support MS in case coordination and prioritisation for the
anticipated growing number of investigations.
Contribute to the setting up of the EU Centre to prevent and counter child sexual abuse
to the extent possible given the availability of resources
64
.
Continue hosting the Victim Identification Taskforce to foster cooperation and pooling
of expertise from different police agencies and Interpol.
Deliver expertise within initiatives dealing with victim identification, such as Victim
Identification Taskforces, investigational sprints and/or OTF’s undertaken by and with
partners.
Enhance the support provided to the MS in the area of victim identification by further
developing the existing Image and Video Analysis Solution (IVAS) with AI
functionalities and the internal expertise.
Update regularly MS experts on criminal intelligence relating to online platforms being
set up, maintained or abused for the purpose of child sexual exploitation.
Utilise the benefits from the newly set up automated referral system, the European
Union Child Abuse Referral Service (EU-CARES), facilitating the receiving, processing
and disseminating of information on suspected child sexual exploitation online from
pertinent non-law enforcement actors to the relevant competent authorities in the EU
MS, and the automatic cross check of data against EAS and IVAS.
Provide expertise, evidence and data, including trends and statistics, to the various
studies that will be carried out in the framework of the different EU policy initiatives.
In particular, contribute to the identification of areas of improvement at EU and
national level where strengthening of law enforcement efforts in the fight against child
sexual abuse will be required.
Build on existing structures such as the EU Financial Cybercrime Coalition and relations
with partners through EC3 Advisory Groups and the EFECC to ensure effective
cooperation and collaboration with private sector partners and NGOs in countering
CSE, including in terms of receiving intelligence and information for operational and
strategic purposes (in line with the provisions of Europol Regulation).
Continue providing support to the Virtual Global Taskforce, to deliver innovative and
global strategies for all, ensuring the use of the most relevant tools to counter CSE.
Deliver and support training courses on Victim Identification (in cooperation with
CEPOL) and Combating Online Sexual Exploitation of Children.
Member States’ investigations receive quality analytical
operational support related to child sexual exploitation.
and
o
o
o
o
o
o
o
o
o
o
o
Expected results:
Operations on Payment Fraud and Online Fraud Schemes
Disrupt criminal networks involved in payment fraud and online fraud schemes.
Objectives and actions
A.4.7 Provide support to EU Member States’ investigations on payment fraud and
online fraud schemes.
64
This initiative has not been yet adopted at the time of the writing of this document.
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Europol Unclassified – Basic Protection Level
o
Support the MS in combating forms of payment fraud such as skimming (duplication
of a card’s magnetic strip often through devices hidden within compromised ATMs and
Point-Of-Sale terminals), banking phishing and online fraud (cyber-enabled fraud)
schemes, incl. payment process compromise (business e-mail compromise BEC).
Support the implementation of the EMPACT Operational Action Plan on Online fraud
schemes.
Strengthen the support to MS on Operational Taskforces, the effective prioritisation of
HVTs and identification of optimal follow-up response measures.
Target and identify online marketplaces offering illegal services using compromised
credit card information, including illegal services (transport, accommodation, game
tickets, etc.) offered on the occasion of large events.
Coordinate and execute a coordinated joint action against digital skimming or other
new forms of digital payment frauds, in cooperation with the Computer Security
Incident Response Teams (CSIRT) community and private partners.
Execute joint operational actions against telecom fraud, including International
Revenue Share Fraud, vishing, spoofing caller ID, SIM swapping or smishing
65
, in
collaboration with law enforcement, judiciary and relevant private partners.
Coordinate the detection, identification, dismantling, prosecution and prevention of
money mules networks, together with private industry (banking sector, Fintechs, etc.).
Support the MS in addressing emerging threats and new criminal Modi Operandi (e.g.,
digital skimming, Account Takeover, ATM malware, Black Box attacks, compromise of
Near Field Communication transactions, etc.).
Facilitate cooperation among LEAs, the private sector and regulators (the European
Central Bank at the European level and National Banks at a domestic level).
Actively engage with priority regions to address payment fraud migration. In
particular, continue expanding the operational and strategic collaboration on payment
fraud migration and card-not-present fraud.
Deliver the annual
Investigations.
training
course
on
Payment
Card
Fraud
Forensics
and
o
o
o
o
o
o
o
o
o
o
o
Explore platform/framework options to enable bi-directional communication on non-
cash payment fraud cases and online fraud and exchange of crime-relevant
information with key private sector partners, by utilising new opportunities for
cooperation with private parties stemming from the Europol Regulation.
Member States’ investigations receive quality analytical
operational support related to non-cash payment fraud.
and
Expected results:
Operations on Criminal Online Trade and Use of Online Environments
Disrupt OCG and HVTs involved in the criminal online trade and the use of online
environments for criminal purposes.
Objectives and actions
A.4.8 Provide support to EU Member States’ investigations on the criminal online
trade and use of online environments for criminal purposes
o
Support the MS and Europol’s Analysis Projects in combating criminal networks
involved in the administration and moderation of Dark Web related activities, the
related commodity-based vendors and buyers, as well as alternative communication
platforms.
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Smishing is a phishing cybersecurity attack carried out over mobile text messaging, also known as SMS phishing.
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Europol Unclassified – Basic Protection Level
o
Coordinate, plan and execute joint technical, investigative and prevention actions to
maximise impact and reduce crime on the Dark Web and alternative communication
platforms.
Strengthen the support to the MS on Operational Taskforces, effective prioritisation of
HVTs and identification of optimal follow-up response measures.
Provide in-depth operational analysis on Dark Web data repositories to enhance the
data enrichment and the identification of High-Value Targets involved in crime on the
Dark Web and alternative platforms.
Support the implementation of the EMPACT Common Horizontal Strategic Goal on
Coordinated controls and operations targeting the online and offline trade in illicit
goods & services, assuming the coordinator’s functions (for the online component).
Maintain the strategic criminal intelligence picture for the online trade in illicit goods
and services, in particular on the Dark Web and alternative platforms for threat
intelligence and trend scenario purpose. Collaborate with private sector partners
through EC3 Advisory Groups to enrich the intelligence picture.
Maintain knowledge and expertise on tools, tactics and techniques for conducting Dark
Web investigations and the misuse of cryptocurrencies.
Further develop knowledge, expertise and the EU tools-box for the technical aspects
related to the gathering and exploitation of data on Dark Web investigations in
particular those that focus on dismantling the technical and operational criminal
infrastructure.
Acquire and integrate on premise solutions for the collection and scraping (data
extraction) of information related to the criminal use of the Dark Web, in coordination
with JRC.
Provide an annual platform for experts to share knowledge and expertise on
developments and investigations on the Dark Web.
Support the delivery of training related to Dark Web investigations.
Member States’ Dark Web investigations receive quality analytical and
operational support.
o
o
o
o
o
o
o
o
o
Expected results:
Joint Cybercrime Action Taskforce (J-CAT)
Objectives and actions
A.4.9 Provide support and operational coordination to the J-CAT operations and
activities.
o
Host and support the work of the Joint Cybercrime Action Taskforce (J-CAT) composed
of Cyber Liaison Officers from closely involved Member States, non-EU law
enforcement partners and EC3.
Stimulate and facilitate the joint identification, prioritisation, preparation, initiation and
execution of cross-border investigations and operations by the J-CAT partners.
Expand the utilisation of the International Law Enforcement Ransomware Response
Model (IRRM), in view of reinforcing the operational and tactical response to
ransomware.
Continue the support provided by EC3 to cases prioritised by the J-CAT in order to
process the increasing amount of data contributed within the framework of the
taskforce in a swift manner and address the growing amount of submitted cases.
De-conflict and identify synergies for joint operational activities with the other global
cybercrime taskforces and key cyber operational centres (e.g. NCFTA and Interpol)
towards optimising resources and the effectiveness of operations.
80
o
o
o
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Europol Unclassified – Basic Protection Level
o
o
o
Facilitate the collaboration and operational engagement with Eurojust on cybercrime
cases via the dedicated Eurojust liaison officer.
Continue to engage with non-Taskforce members from relevant law enforcement
agencies on cases affecting two or more J-CAT existing members.
Continue to collaborate with key industry partners including those of EC3 Advisory
groups to enable the undertaking of joint initiatives between J-CAT, EC3 and the
private sector.
Organise the annual J-CAT Board meeting.
J-CAT investigations receive
support.
quality analytical
and
operational
o
Expected results:
Improved joint operational activities with public and private partners
of relevance.
Research & Development
Objectives and actions
A.4.10 Proactively develop expertise and solutions related to challenges in
cybercriminal investigations.
o
o
o
Collect, analyse and manage strategic criminal intelligence, and further develop
expertise with a view to supporting pro-active and innovative approaches.
Develop capacities to apply the latest data sciences approaches from legal, technical
and organisational perspectives.
Support the interaction and cooperation with partners, including academia and other
expert networks and EU entities, to facilitate cooperation in the development and
delivery of strategic analysis, detailed analysis of law enforcement needs and of
existing gaps, threat intelligence and forward-looking products including Europol’s
contribution to the Observatory Report on Encryption. Identify common challenges to
combating cybercrime with Eurojust.
Coordinate the demand and development of new technical solutions, including R&D
with the Forensic Experts Forum and other relevant networks and platforms. Provide
advice to R&D priorities at national and EU level and support the uptake of relevant
project results, particularly in relation to EU funding programs, if and where
appropriate.
In coordination with Europol’s Innovation Lab and other relevant stakeholders (e.g.
JRC), organise a Cyber Innovation Forum for Law Enforcement to exchange best
practices in combating cybercrime and cyber-enabled crime by employing innovative
tools, tactics and techniques.
In coordination with Europol’s Innovation Lab and other relevant stakeholders (e.g.
JRC), further develop expertise on technological innovation such as 5G, AI, encryption,
anonymisation services and any other relevant developments.
Re-assess the possible role of Europol (in the context of the Europol Regulation Recast)
to facilitate access to WHOIS data for MS law enforcement authorities.
In coordination with Europol’s Innovation Lab, broaden and continue to implement the
technology watch function to pro-actively inform about criminal abuse of new
technology while ensuring the consideration of the law enforcement angle in the
process of development and innovation.
Coordinated efforts in research and development lead to greater
realisation of common projects and technical solutions in the
cybercrime area.
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o
o
o
o
o
Expected results:
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Europol Unclassified – Basic Protection Level
Member States’ investigations receive up-to-date technical support in
the cyber domain.
Indicators
Number of Accepted contributions by EC3
66
Number of Operations supported by EC3
Number of Operational Task Forces supported by
EC3 (where EC3 is in the lead)
Number of Operational Reports delivered by EC3
Number of Action Days coordinated/supported by
EC3
Number of Decryption platform successes
Satisfaction with Operational Support and Analysis
provided by EC3
Latest result
(Q2 2024)
Target 2025
The responsibility for this indicator is shared by Europol and its partners (MS, TP). As such, the target is indicative
and used to monitor the trend of accepted contributions.
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Europol Unclassified – Basic Protection Level
Counter-Terrorism
Overview
The European Counter-Terrorism Centre (ECTC) works towards the
maximisation of operational, technical and overall information exchange
capabilities in the area of counter-terrorism and aims to ensure added value
for EU Member States, as well as third party cooperation partners, namely by
providing:
An information hub for counter terrorism, with unique information and criminal intelligence
sharing capabilities for law enforcement authorities in EU Member States and beyond.
Effective operational support, coordination and expertise for Member States’
investigations, by developing and deploying a comprehensive portfolio of support services.
Proactive mitigation of the use of social media for radicalisation purposes through terrorist
and violent extremist online content, as well as cyber-terrorist attack scenarios and
support to operational analysis.
A central strategic support capability, to identify European wide counter-terrorism
implications and promote outreach with relevant (international) partners.
The ECTC also prevents and combats terrorism by supporting Member States with terrorism-
related financial information. The Centre provides the information processing means by which
the Agreement between the European Union and the United States of America on the
Processing and Transfer of Financial Messaging Data from the EU to the US for the purposes
of the Terrorist Finance Tracking Program (TFTP) is implemented.
Furthermore, the ECTC holds Europol’s expertise in the area of Chemical, Biological,
Radiological, Nuclear & Explosives (CBRN/E) and provides support to EU Member States’
investigations on war crimes, genocide, crimes against humanity.
The EU Internet Referral Unit (EU IRU) of the ECTC coordinates and shares the identification
tasks of terrorist and violent extremism online content with relevant competent authorities;
carries out and facilitates referrals in an effective manner in close cooperation with the
industry; and supports Member States’ internet-based investigations and technical requests.
The Unit is at the forefront of the development of PERCI, a collaborative tool facilitating EU-
wide coordination and transmission of removal orders resulting from the TCO Regulation.
The EU IRU acts as a knowledge hub for Europol and the EU Member States in the field of
cross-border access to e-evidence. The internet investigation field is a fast evolving
environment where methodologies and tools get rapidly outdated. Market research activities,
trends and upcoming milestones in the e-evidence field are key to delivering excellence and
cutting edge products to Member States.
The EU IRU also acts as a centre of excellence for Europol and the EU Member States in the
field of new technologies that could potentially be abused by criminals as regards online
content, and in identifying and leveraging new technologies to support law enforcement leads.
Since 2019, the ATLAS Network of Special Intervention Units has been affiliated with Europol.
The ECTC holds the ATLAS Support Office (ASO), which connects the ATLAS Network and
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Europol Unclassified – Basic Protection Level
Europol’s counter-terrorism and serious and organised crime communities by facilitating the
exchange of strategic and operational expertise and practices.
2025 Objectives
The European Counter-Terrorism Centre (ECTC)
Objectives and actions
A.5.1 Ensure the effective functioning of the ECTC in providing strategic and
operational support to EU Member States’ investigations related to counter-
terrorism.
o
Serve as the EU law enforcement hub for collecting, processing, analysing and
exchanging information and criminal intelligence of relevance for a wide range of
terrorism-related areas, including the response to major terrorist crises.
Provide cross-checking, operational analysis, coordination and de-confliction to MS
counter-terrorism investigations. Provide technical/forensic support and operational
support to MS on-the-spot.
Identify new terrorist Modi Operandi, emerging threats and developments. Detect links
between terrorism and organised crime and follow, in particular, the evolution of hybrid
threats with the terrorism dimension.
Provide tailored newsfeeds and contribute to strategic reports, including trend
analysis, early warnings, the 6-month high profile Outlook on developments in
terrorism, and the annual high profile TE-SAT report.
Administer and support the CT Program Board (CTPB) as the MS steering governance
tool of the ECTC. Ensure the ECTC involvement and coordination of the implementation
of the CTPB work plan.
Manage the Counter Terrorism Joint Liaison Team (CT-JLT) operational platform and
ensure its performance as an effective mechanism for accelerating exchange of
information and coordination.
Enhance the establishment of OTFs targeting HVT individuals who represent an
immediate threat to EU security and aiming to dismantle terrorist/violent extremist
organisations.
Take actions to meet the exponentially growing need for de-confliction of CT-related
data with national CT units. Contribute to the development of a de-confliction solution
at EU level by utilising PERCI for this purpose.
Evaluate information on third-country nationals suspected to be jihadist terrorists
received from TP or MS for possible processing in the SIS and support the voluntary
process (coordinated approach) established by the Terrorism Working Party (TWP).
Propose the insertion of the new information alerts on third-country nationals in the
interest of the Union, once this new alert category is implemented in the Schengen
Information System, following the provisions of the amended Europol Regulation.
Increase the exploitation of SIS information on terrorist alerts obtained through the
Europol SIRENE Office.
Scope out opportunities and establish direct interaction with priority non-EU competent
CT services to obtain dynamically updated FTF lists.
Foster the complementarity between CT strategic work, operations and online
investigations within the ECTC in view of maximising the response to right-wing violent
extremism and terrorism.
o
o
o
o
o
o
o
o
o
o
o
o
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Europol Unclassified – Basic Protection Level
o
Aim to increase cooperation between the Counter Terrorism Group (CTG) members
and Europol in areas of common interest, where appropriate, while fully respecting the
sole responsibility of Member States for national security.
Embed guest experts from the CT units or other experts from EU bodies/agencies into
the ECTC, and similarly ECTC staff members into CT units for short-term operational
or strategic analysis joint projects.
Scope out opportunities for deploying ECTC staff members on a temporary basis in
operational cases into Crime Information Cells (within CSDP missions/operations) or
other fusion cells and platforms dealing with specific CT related subjects, with the aim
to increase information sharing and enhance (pan-) European coordination.
Oversee the establishment of CT-related cooperation with EU institutions and agencies,
international organisations, law enforcement, academia and private sector entities
with a particular focus on stakeholders at policy level.
Explore opportunities for potential joint thematic trend reporting with agencies that
hold relevant information on the topic concerned. Specific thematic trends to be
identified and linked to current or emerging trends.
In line with the External Strategy, contribute from an operational perspective to the
development and increase of the strategic cooperation with the United Nations
(UNCTED, UNOCT, UNODC), EU institutions and bodies (EEAS CSDP missions,
CT/Security experts in EU delegations, the EU Institute for Security Studies), NATO,
etc. or regional agencies active in the CT field and exchange strategic outputs and
products in consultation with Member States.
Continue enhancing cooperation with the Western Balkan countries on the basis of the
operational agreements and the Western Balkan CT Action Plan.
Continue enhancing cooperation with the MENA countries and Türkiye:
1) Through CT dialogues and by supporting CT/security experts deployed by MS to
EU Delegations and CSDP-missions/operations;
2) By participating in capacity building initiatives offered by CEPOL and EU-funded
programmes, such as the CT JUST
67
or CEPOL INFLOW
68
;
3) By participating in the Working Group on FTF and returnees of the EU-MENA
Information Sharing and Analysis Network (EMISA); and
4) By identifying strategic/technical partners for the establishment of a common
product or specific strategic initiative.
o
o
o
o
o
o
o
o
Conduct targeted scoping and outreach with other non-EU CT units active in areas of
possible interest for the EU internal security, in particular in the Caucasus and West
Africa.
Organise stakeholder events, including the ECTC Advisory Network on Terrorism and
Propaganda meetings and the annual conference.
Contribute to and support the delivery of training by CEPOL Knowledge Centre on
Counter-Terrorism (CKC CT).
Member States’ counter-terrorism investigations receive quality
analytical and operational support.
Improved joint operational activities with EU institutions, bodies and
agencies, as well as with public and private partners of relevance.
More effective levels of cooperation leading to better coordination and
increased operational and strategic results.
Europol contributes to the objectives of relevant EU policies.
o
o
Expected results:
67
68
CT JUST Project: Counter Terrorism in the MENA region, West Africa & the Horn of Africa
Counter-Terrorism Information Exchange and Criminal Justice Responses (CT INFLOW)
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Europol Unclassified – Basic Protection Level
Operations on terrorist activities
Identify activities of terrorist groups listed by the Council of the European Union as posing
a serious threat to the security of the EU and Member States, and any associate criminal
activities within Europol's mandate uncovered in the course of the investigations into these
terrorist networks (including ethno-nationalist and separatist terrorism, left-wing and
anarchist terrorism, right wing and single-issue terrorism).
Prevent and combat crimes committed or likely to be committed in the course of terrorist
activities against life, limb, personal freedom or property, and related criminal offences
associated with terrorism perpetrated by individuals, groups, networks or organisations
networks or organisations that evoke religiously inspired justification for their actions.
Prevent or combat terrorism by sharing analysis on related travel activities to terrorist
hotspots, e.g. conflict zones and training venues.
Objectives and actions
A.5.2 Provide support to EU Member States’ counter-terrorism investigations.
o
o
Perform criminal intelligence analysis and support Member States with operational
capabilities and expertise, including on-the-spot support.
Continue performing secondary security checks through the deployment of Guest
Officers in Italy, Greece, Cyprus and Malta, and wherever needed. Manage CT-related
operational information received from the secondary security checks.
Support an increased number of operations of the Terrorist Identification Task Force
(TITF) targeting CT suspects for whom there is not enough evidence for opening
prosecutions. Organise four TITF sessions per year focusing on the most significant
and threatening terrorist phenomena. Assess the results of operations and present the
assessment to Member States via all appropriate channels.
Provide support to an increased number of Operational Task Forces (OTFs) following
the adjusted concept for establishing OTFs in the CT area.
Perform priority actions related to right-wing terrorism and violent extremism, aiming
at identifying targets (Organisations/Individuals) in high profile cases.
Following the continued increase in MS’ and TP’ operational contributions related to
right wing terrorism and violent extremism, develop and facilitate a coordination
mechanism, by means of clustering countries based on common targeting and tailored
activity, for the effective disruption of networks and organisations.
Contribute to the update of Frontex’s Common Risk Indicators to enhance rules-based
screening and risk identification.
Make effective use of the new face recognition tool.
Contribute to the collection of intelligence, analysis and reporting on used/seized
terrorist weapons.
Explore opportunities to enhance Europol’s capabilities to support MS through
acquiring additional translators for Arabic, as well as Farsi, Urdu, Pashto and Kurdish.
Member States CT investigations receive quality analytical and
operational support.
o
o
o
o
o
o
o
o
Expected results:
Operations on War Crimes, Genocide, Crimes against Humanity
Support Member States in the fight against impunity of War Crimes, Genocide, Crimes
against Humanity.
Objectives and actions
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Europol Unclassified – Basic Protection Level
A.5.3 Provide support to EU Member States’ investigations on war crimes,
genocide, crimes against humanity.
o
o
o
o
Streamline the gathering and processing of information at EU level for selected priority
cases of war crimes, genocide and crimes against humanity.
Perform criminal intelligence analysis and support Member States with operational
capabilities and expertise, including on-the-spot support.
Provide support to the Operational Task Force and Joint Investigation Team established
in the area of war crimes, genocide and crimes against humanity.
Streamline the gathering of information and the exploitation of the available tools to
assist investigations on war crimes committed in Ukraine. Manage the dedicated OSINT
taskforce comprised of OSINT experts from different MS providing targeted support to
ongoing investigations.
Utilise new opportunities stemming from the amended Europol Regulation regarding
cooperation with private parties in terms of collecting data from new sources (NGOs,
UN, ICC, military, private, etc.).
Initiate the development of sustainable practices for the pro-active detection of
witnesses to atrocities. Explore modalities for appealing to witnesses to atrocities to
come forward and provide information on perpetrators.
Develop a joint cooperation platform with Eurojust to ensure judicial guidance in the
prioritisation process of investigations with the highest prosecutorial potential.
Member States’ investigations on war crimes, genocide, crimes
against humanity receive analytical and operational support within the
framework of available resources.
o
o
o
Expected results:
Counter Terrorism Financing
Prevent and combat terrorism by supporting Member States with terrorism-related
financial information.
Prevent and combat terrorism and its financing by providing the information processing
means by which Europol can fulfil its obligations in respect of the Agreement between the
European Union and the United States of America on the Processing and Transfer of
Financial Messaging Data from the EU to the US for the purposes of the Terrorist Finance
Tracking Program (TFTP).
Objectives and actions
A.5.4 Provide support to EU Member States’ CT investigations with terrorism-
related financial information.
o
o
o
o
o
o
o
Support MS’ investigations targeting networks that are facilitating the financing of
terrorist actions or organisations.
Provide support, including information on financial transactional data, to all operations
where there is a link to terrorism.
Deal with MS requests for data on financial payments linked to terrorism including in
accordance with the EU-US Terrorist Finance Tracking Programme Agreement (TFTP).
Verify the link to terrorism in requests for data on financial payments.
Enrich the leads that are received when appropriate. Disseminate other leads received
from the US Treasury (Article 9).
Actively promote awareness of the Terrorist Finance Tracking Program and provide
training to MS on the possibility to request searches in financial payments data.
Provide feedback to the US Treasury on the effectiveness of the TFTP. Explore mutually
the potential to maintain a dynamic, accurate and result-oriented TFTP protocol.
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Europol Unclassified – Basic Protection Level
o
Liaise with Europol’s Financial and Economic Crime Centre (EFECC) and with the
competent ESOCC and EC3 units to close information gaps and receive specialised
support for complex cases. In particular, increase the interaction with EC3 on the use
of cryptocurrency by a wide range of terrorist groups.
Support the Europol Financial Intelligence Public Private Partnership (EFIPPP).
Progress with the establishment of collaboration with national customs authorities
competent in the area of CT and terrorism financing in view of setting up a network
engaging at EU level to generate operational actions and investigations.
Member States’ investigations receive quality analytical and
operational support with regards to terrorism-related financial
information.
o
o
Expected results:
Chemical, Biological, Radiological, Nuclear & Explosives Support (CBRN/E)
Objectives and actions
A.5.5 Provide CBRN/E support to EU Member States’ investigations.
o
o
Provide support and expertise to Member States on CBRN/E security.
Manage and administer the Europol Platform for Experts (EPE) pages:
- EPE/EBDS (European Bomb Data System);
- EPE/EEODN (European Ordnance Disposal Units Network).
o
o
Ensure the permanent secretariat and the continuity of the activities of EEODN.
Support the ISF project on EEODN aiming to reinforce activities in explosives and CBRN
areas of expertise, in order to further develop technical skills of the bomb technicians
and the CBRN experts from MS competent authorities.
Support the exchange of information and best practices on explosives and/or CBRN
cases among Member States.
Organise a conference/seminar for the EEODN and deliver a training for EEODN
experts.
Liaise with AP Weapons and Explosives to track possible new threats, trends and
modus operandi involving CBRN materials and Explosives.
Prepare strategic and technical reports on CBRN and Explosives, including reporting
on trends and statistics to policy-makers.
Provide support to Member States’ prevention programmes.
Contribute to capacity-building initiatives, in particular trainings, for Member States
on CBRN and Explosives.
Provide input to the European Commission’s policy initiatives and contribute to the
work of the different Working Groups, e.g. the CBRN Advisory Group, Standing
Committee of Precursors, Chemical Detection Group, Civil Explosives WG, etc.
Liaise and cooperate with other relevant partners in the area of CBRN/E.
Member States’ investigations
operational CBRN/E support.
receive
quality
analytical
and
o
o
o
o
o
o
o
o
Expected results:
Alignment of Member States operational needs and European
Commission’s policy initiatives.
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Europol Unclassified – Basic Protection Level
ATLAS Support Office (ASO)
Objectives and actions
A.5.6 Provide support to the ATLAS Network.
o
Serve as the main interface of the ATLAS Network for Europol’s CT and SOC
communities and support the establishment of links with other relevant law
enforcement expert networks supported by Europol.
Facilitate the exchange of strategic and operational expertise and practices with ATLAS
in accordance with the applicable rules.
Provide administrative and logistical support to the implementation of the ATLAS Multi
Annual Work Programme.
Further develop and manage the ATLAS connectivity initiative (EPE, ONEP-EPE, SIENA,
NEOS, Pooling & Sharing, etc.).
Support New Operations System (NEOS) training activities and further the
development of operational communication systems.
Continue the development of Pooling & Sharing programmes for specialised equipment
as well as joint training facilities.
Organise the annual ATLAS Points of Contact meeting.
Conduct the ATLAS MB and ATLAS Commanders Forum every six months in
cooperation with the ATLAS Executive Bureaux.
Initiate and implement seminars on the use of the EPE and on financial rules for ATLAS
network members.
Act as a full member of the ATLAS Forum C4 (Command, Control, Communication,
Coordination).
Stable a more efficient administration of ATLAS through the use of
Europol’s existing structures and tools.
Utilisation of links and synergies in terms of strategic and operational
expertise between ATLAS, Europol and law enforcement networks.
Aligning EU standards through best practice findings, standard
operational procedures, Manuals of Guidance and sharing outcomes
across the ATLAS network members.
o
o
o
o
o
o
o
o
o
Expected results:
EU IRU Prevention and Crisis Response
Objectives and actions
A.5.7 Provide quality internet referral services.
o
Perform the scanning of the cyber environment, including the decentralised web,
gaming and adjacent platforms and terrorist operated websites, within the framework
of prioritised areas (jihadist and right-wing terrorism) or act upon Member States’
specific requests (terrorism, migrant smuggling).
Coordinate and share the identification tasks (flagging) of online terrorist and violent
extremist content with a network of national counterparts.
Reinforce and streamline the ECTC expertise on the abuse of the Internet by right-
wing terrorist and violent extremist networks.
Gradually align monitoring capabilities, referral processes and analytical procedures in
the area of violent left wing extremism and violent anarchism with the other online
terrorist and violent extremist areas.
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o
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Europol Unclassified – Basic Protection Level
o
Increase the operational resources for referral and monitoring of channels related to
migrants smuggling and reinforce the operational and analytical support provided to
the EMSC in this area.
Play a central role in the coordination of the emergency responses in the event of a
terrorist attack with a significant online component following the EU Crisis Protocol
(EUCP). Deliver an annual Table Top Exercise to test the protocol. Review the
effectiveness of the EUCP after activation.
Deliver operational and strategic products.
Organise and coordinate Referral Joint Action Days in cooperation with experts from
MS and online service providers (OSPs), targeting terrorist content online, as well as
online migrant smuggling.
Support the activities of the EU Internet Forum's (EUIF) Action Plan. Maintain a close
dialogue with the internet industry in the framework of the Forum.
Contribute to the updating of the Commissions’ Knowledge Package for the EU Internet
Forum on violent extremist groups by supplying content and expert assessment.
Engage with the Global Internet Forum to Counter Terrorism (GIFCT) and other
initiatives that focus on Crisis Response.
Engage with relevant OSPs, also outside the scope of GIFCT and the EU Internet
Forum, in the context of referrals and content moderation.
Expand the EU IRU capabilities to the extent possible to meet the increasing workload
from managing the PERCI platform, supporting Member States in using PERCI and
utilising the crime intelligence emerging from the flagging of content.
Contribute to the development of the new Check-the-Web Portal as the e-Library to
store and analyse terrorist content online.
Support capacity building in IRU work in MS and prioritised Third parties (Western
Balkans, MENA region) in the field of Internet-based monitoring and electronic
evidence investigations.
The referral process is managed efficiently.
Cooperation with the private sector on content detection and referrals
is growing.
Increased number of online terrorist and violent extremist content and
content promoting illegal immigration services is taken down.
Countries and online service providers are provided with crisis
response mechanism enabling them to respond rapidly, effectively and
in a coordinated manner to the dissemination of terrorist or violent
extremist content following a terrorist event.
o
o
o
o
o
o
o
o
o
o
Expected results:
EU IRU Prevention and Crisis Response
Objectives and actions
A.5.8 Ensure the efficient functioning of the EU platform to tackle illegal content
online (PERCI) as a communication and coordination tool for referrals and
removal orders within the EU.
o
Following the launch of PERCI in 2023, maintain and fine-tune its functionalities as a
cooperation platform to implement the Terrorist Content Online (TCO) Regulation and
as a collaborative tool connecting, in real time, MS competent authorities, Europol's
Internet Referral Unit and Hosting Service Providers (HSPs), including:
-
the issuing of referrals and transmission of removal orders for terrorist content
online;
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Europol Unclassified – Basic Protection Level
-
-
-
-
-
-
o
de-confliction and coordination of action among EU MS;
the status check of content one hour after the transmission of the removal order;
the possibility for HSPs to update the status of referrals and removal orders;
the possibility for HSPs to report content that presents an imminent threat to life;
the possibility for MS to work on the scrutiny process of cross-border removal
orders; and
transparency reporting.
Subject to a final decision on the way ahead and the following technical developments,
ensure effective handling, through PERCI or an alternative channel, of notifications of
imminent threat to life stemming from illegal online content involving all crime areas
covered by the Digital Services Act (to the extent possible given the availability of
resources.
Manage the PERCI Focus Group enrolling MS in support of the technical and operational
development of the platform, and afterwards annual PERCI-meetings.
Organise tailored trainings for MS competent authorities’ use of PERCI.
Use PERCI platform as the operational platform for EUCP crisis mechanism to enable
the 24/7 real time crisis response and knowledge sharing across sectors.
Based on the consultation of Member States within the framework of the dedicated
working group, further improve of the Whitelist functionality in PERCI to reinforce the
protection of content put under de-confliction.
Explore the potential of Artificial Intelligence (AI) within the context of PERCI
ecosystem. Identify the potential business opportunities of AI to enrich the existing
dataset, improve the data quality and identify trends on online illegal content
dissemination.
Advance with the automation of data extraction, ingestion and real time crosschecks
with Europol Databases.
Enhance the search experience in the existing dataset as well as the provision of
detailed statistics.
Support the monitoring and evaluation of the TCO Regulation to enable the
Commission to report on the application and the evaluation of the regulation.
Utilise new opportunities stemming from the Europol Regulation with regards to
receiving personal data from private parties in view of ensuring the efficient use of
PERCI as a toolbox of data processing in emergency cases.
Coordination and de-confliction of the EU fight against terrorist
content online.
Increased efficiency of the work of the Member States’ IRUs and
increased performance of the response from the HSPs on taking down
illegal content.
o
o
o
o
o
o
o
o
o
Expected results:
EU IRU - Internet Investigations
Prevent and combat terrorism by sharing analysis regarding the use of the Internet by
terrorist organisations.
Objectives and actions
A.5.9 Provide support to EU Member States’ CT internet-based investigations.
o
Provide operational
investigations.
support
and
facilitate
coordination
of
CT
internet-based
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Europol Unclassified – Basic Protection Level
o
Act as a knowledge hub within Europol in regards to internet-based investigations and
provide support to other crime areas. In particular, contribute to the ESOCC’s HVT
cases of trafficking in firearms and human beings, and migrant smuggling.
Perform open source investigations using latest OSINT techniques and tools to swiftly
provide relevant and actionable intelligence.
Keep abreast MS and TP on a regular basis of the latest OSINT techniques and tools
relevant for the CT area.
Enhance OSINT capabilities in investigation on gaming platforms and Metaverse to
retrieve actionable intelligence.
Perform big data analysis on open source information to deliver actionable intelligence
in support of CT cases.
Deliver strategic assessments and draw up the online profile of targets using OSINT
and information related to terrorist propaganda collected by the EU IRU.
Provide social network analysis of information extracted from social media platforms
to identify relevant users and key players in support of CT cases.
Support Europol’s operational centres with the development of capacity in open source
investigations and social media monitoring.
Improve capacities on crypto-currencies investigations and develop the tracing of
decentralised assets within the frame of CT cases.
Participate as expert to EU Core groups and EU project related to the use of AI and
machine learning for big data analysis.
Member States’ CT internet-based investigations receive quality
analytical and operational support.
o
o
o
o
o
o
o
o
o
Expected results:
EU IRU – Advanced Technical Solutions
Objectives and actions
A.5.10 Provide technical support to CT internet-based investigations and
referrals.
o
o
o
o
o
o
Explore leading technologies and perform market researches with a clear focus on the
ones affecting the CT field.
Assess, select and initiate the purchase of technical solutions that can support EU IRU’s
mandate.
Provide advanced technical support to the EU IRU.
Develop or purchase innovative OSINT tools in coordination with MS/TP to remain up
to speed in the dynamic internet evolution.
Develop methodologies and tools to investigate decentralised platforms and web 3.0
(Web3) based on blockchain technologies in coordination with MS/TP.
Implement the use of tools enabling Artificial Intelligence (AI) and Machine Learning
(ML) to quickly analyse and assess open source information to identify possible risks
and threats linked to terrorism, in compliance with the European legal framework
related to the use of Artificial Intelligence by Law Enforcement.
Explore the possibilities to develop software solutions for countering fake news and
trolls-driven communication within the realm of counter terrorism.
In coordination with Europol’s Innovation Lab explore new technologies to find suitable
solutions for the operational needs, including engagement with relevant private sector
stakeholders and setting up point of contacts with the industry on specific matters.
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Europol Unclassified – Basic Protection Level
Expected results:
CT internet-based investigations and referrals receive adequate
technical support.
EU IRU’s toolset remains at the forefront of the available technology.
Better cooperation with external partners on technical research and
development.
EU IRU – Cross-border access to electronic evidence
Objectives and actions
A.5.11 Provide support to Member States on acquiring cross-border access to
electronic evidence.
o
o
Support Member States in connecting with service providers (SPs) and analysing the
digital footprint of a target in CT investigations through the SIRIUS capability.
Continue improving the knowledge of Member States’ law enforcement and judicial
authorities on access to digital data from SPs, via general and targeted resources
published on the SIRIUS platform on the EPE, co-created with Eurojust.
Build the capacities of MS law enforcement and judiciary authorities to produce quality
information requests to SPs.
Facilitate the sharing of best practices and lessons learned among the Single Point of
Contacts (SPoCs) in EU LEAs and/or officers in charge when a SPoC is not in place.
Strengthen and speed up voluntary cooperation between EU LEAs and SPs for access
to e-evidence through targeted exchange of practical experience and guidelines, as
well as through training activities.
Follow closely legislative developments impacting EU Law Enforcement, e.g. the EU E-
evidence package and the Second Additional protocol to Convention on Cybercrime, to
effectively prepare and train LEAs on new rules or channels for data disclosure orders.
Expand the geographical scope of SIRIUS, as a central hub for knowledge sharing on
electronic evidence, to different regions and partners and support EU efforts in
promoting EU standards and international legal instruments.
Lay the basis for setting up SIRIUS as a permanent team in the EU IRU to ensure the
continuation of its services to MS.
Improved Europol’s capabilities in the area of digital cross border
investigations which leads to better and extended support to MS.
Increased MS capacity to prepare effective digital data requests to SPs
and obtain electronic evidence.
Increased mutual trust and understanding between MS and SPs.
o
o
o
o
o
o
Expected results:
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Europol Unclassified – Basic Protection Level
Indicators
Number of Accepted contributions by ECTC
69
Number of Operations supported by ECTC
Number of Operational Task Forces supported by
ECTC (where ECTC is in the lead)
Number of Operational Reports delivered by ECTC
Number of Action Days coordinated/supported by
ECTC
Satisfaction with Operational Support and Analysis
provided by ECTC
Volume of content assessed by EU IRU related to
terrorism and violent extremism
Latest result
(Q2 2024)
Target 2025
The responsibility for this indicator is shared by Europol and its partners (MS, TP). As such, the target is
indicative and used to monitor the trend of accepted contributions.
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Europol Unclassified – Basic Protection Level
Combating Financial and Economic Crime
Overview
The European Financial and Economic Crime Centre (EFECC) is dedicated to
maximising Europol’s responsiveness and operational performance in the
areas of fraud, money laundering, asset recovery, corruption and
counterfeiting.
The EFECC strives to achieve the following goals:
Reinforced operational effectiveness: by concentrating all financial intelligence and
economic crime capabilities under one coordinated entity developing synergies between
MS demands for vertical support (stand-alone investigations in money laundering cases)
and requirements for horizontal operational support to other investigations with regards
to financial intelligence as referred to in EMPACT;
Increased operational visibility: by bringing a higher degree of organisational clarity,
facilitating for both internal and external stakeholders the identification of the main
sources of knowledge, expertise and operational support and a better understanding of
the allocation of responsibilities; and
Enhanced stakeholder management and funding opportunities: the Centre offers a single
point of contact and is a reference for key operational stakeholders in the Member States
(Financial Intelligence Units), as well as relevant institutional partners in the EU and
private sector.
The EFECC follows closely the constant evolution of financial and economic crimes and its
emerging threats in the EU and beyond. It provides specialised operational support to law
enforcement and relevant public authorities in their international financial investigations and
act as the EU law enforcement hub for collecting, processing, analysing and exchanging
information and criminal intelligence on financial and economic crime. At the same time, the
Centre strives to support joint operations with the other Europol’s centres based on the
relevance of the financial related aspects of their criminal investigations.
In the area of fraud, the EFECC provides strategic and operational support in the fight against
organised crime groups involved in serious and complex fraud, excise fraud and Missing
Trader Intra Community (MTIC) fraud. The Centre also supports Member States in relation to
fraud targeting the NextGEN EU Funds, in cooperation with OLAF, EPPO and the EU ‘Recovery
and Resilience’ Task force.
The EFECC provides strategic and operational support in money laundering and criminal
finances investigations and strives to identify High Value Targets and set up Operational Task
Forces (OTFs) specific to targeting money laundering. In 2025, Europol will establish
cooperation with the new Anti-Money Laundering Authority (AMLA), which will become a key
partner following the adoption of the AMLA Regulation.
In the area of asset recovery, the EFECC is the main contact point for the national Asset
Recovery Offices (AROs) and hosts the secretariat of the Camden Asset Recovery Inter-
Agency Network (CARIN). Europol is also part of the ‘Freeze and Seize’ Task Force established
by the European Commission to coordinate MS enforcement of the adopted sanctions against
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Europol Unclassified – Basic Protection Level
Russian and Belarusian individuals and companies in the context of the war of aggression
against Ukraine, in coordination with other EU agencies and bodies.
The Centre provides criminal intelligence, strategic and operational support, including on-the-
spot support to investigations in all forms of corruption, including public and private corruption,
and sports corruption. Europol follows closely the negotiations on the new anti-corruption
legislative framework, and will contribute to its implementation.
Finally, in the area of counterfeiting, the EFECC supports Member States by providing criminal
intelligence, expertise, strategic and operational support to disrupt OCGs involved in the
production and distribution of counterfeit goods. In this respect, Europol continues to manage
the Intellectual Property Crime Coordination Coalition (IPC³) established in cooperation with
EUIPO.
2025 Objectives
European Financial and Economic Crime Centre (EFECC)
Objectives and actions
A.6.1 Ensure the effective functioning of the EFECC in providing strategic and
operational support to EU Member States’ investigations on financial and
economic crime.
o
Serve as the EU law enforcement hub for collecting, processing, analysing and
exchanging information and criminal intelligence of relevance for financial and
economic crime. Provide operational support, expertise and stakeholder management
in the field of fraud, money laundering, asset recovery, corruption and counterfeiting.
Promote the systematic use of financial investigations as an investigative technique
into organised crime and forge alliances with public and private entities in order to
trace, seize and confiscate criminal assets in the EU and beyond.
Increase the support to High Value Targets investigations of Member States and the
work of the Operational Task Forces.
Support the implementation of the EMPACT priorities on MTIC, excise fraud,
counterfeiting, criminal finances, money laundering and asset recovery. Furthermore,
contribute to the priority online fraud and migrant smuggling.
Provide horizontal operational support in financial investigations to the other Europol
centres, prioritising joint operations (to the extent possible given the availability of
resources). In particular, strive to enhance the support to EMSC, encouraging the
launch of financial and asset recovery investigations on migrant smuggling cases.
Following the legal clarity stemming from the amended Europol Regulation in regards
to processing of bulk data, increase the number of contributions (containing Suspicion
Transaction Reports, Currency Transaction Reports, cash seizures or any information
gathered under administrative powers) in particular from FIUs, Customs and Tax
Agencies.
Manage all EPEs relating to financial intelligence (FCIC, ALEFA, AMON, anti-corruption
portal, Bank statements O.A.3.6, CARIN, EFIPPP) and handle their growth.
Contribute to dedicated risk and threat assessments, strategic and situation reports in
the areas of EFECC competence. Contribute to the drafting of a biannual flagship report
on economic and financial crime.
Further extend and manage the Joint Financial Intelligence Group (JFIG) at Europol to
improve communication and cooperation between Europol Liaison Bureaux and EFECC
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o
o
o
o
o
o
o
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Europol Unclassified – Basic Protection Level
Analysis Projects in order to better align investigative priorities and effectiveness of
pursued cases.
o
Maintain the Customs cooperation function within the EFECC including the cooperation
with the Commission Service competent for customs matters. Host and support the J-
Customs Task Force.
Encourage the active participation of MS customs authorities in the relevant EMPACT
OAPs and the Europol Analysis Projects.
Utilise the established connection between the Customs Information System (CIS) and
Europol’s databases, enabling automated cross-checking.
Follow closely the developments related to the Customs Reform with respect to
Europol’s mandate.
Prepare for taking up any potential new task arising from the establishment of the new
Customs Authority, in particular concerning the role of a central customs interlocutor
for non-customs authorities (e.g. law enforcement authorities, including Europol).
Foster the established cooperation with the European Public Prosecutor Office (EPPO)
in line with the requirements of the amended Europol Regulation. Support an
increasing number of EPPO operations.
Enhance operational cooperation and exchange of strategic and technical information
with OLAF by making extensive use of the established SIENA connection and dedicated
OLAF Liaison Officer posted within the EFECC.
Develop strategic cooperation with the European Banking Authority and the European
Investment Bank as key partners of the EFECC.
Increase the outreach towards the most relevant third countries in the field of EU
related economic and financial crime, including China, UAE, Türkiye, Brazil and
Morocco.
Enhance the quantity and quality of EFECC external communication and visibility.
Enhance Europol’s capabilities in providing a swift feedback to stakeholders concerning
tracing and analysis of virtual assets taking into account the high number of cases
contributed to the EFECC.
Contribute to policy development such as drafting of guidelines or revision of standards
when requested by the Commission.
Member States’ investigations receive better and extended analytical
and operational support related to financial and economic crime.
Improved cooperation and joint undertakings with stakeholders and
financial institutions leading to an increased operational impact.
Europol contributes to the objectives of relevant EU policies.
o
o
o
o
o
o
o
o
o
o
o
Expected results:
Operations on Fraud
Disrupt the capacity of OCGs involved in serious and complex fraud.
Disrupt the capacity of OCGs and specialists involved in excise fraud.
Disrupt the capacity of OCGs and specialists involved in Missing Trader Intra Community
(MTIC) fraud.
Objectives and actions
A.6.2 Provide support to EU Member States’ investigations on fraud.
o
Perform criminal intelligence analysis, support MS and EPPO with operational
capabilities and expertise, including on-the-spot support.
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Europol Unclassified – Basic Protection Level
o
o
o
Set up operational meetings and support priority- and HVT investigations.
Support the implementation of EMPACT Operational Action Plans on Excise Fraud and
MTIC fraud.
Support at least one joint operation (Week of Action, Joint Action Day, etc.) developed
in the frame of the EMPACT OAP Excise Fraud, also involving other EU bodies or
agencies (OLAF, FRONTEX, etc.).
Contribute to at least one operation in the framework of EMPACT priority Online Fraud.
Support the Member States in close cooperation with EPPO, OLAF and the EU Task
Force Recover to protect the financial interests of the EU, with particular emphasis on
countering attempts of serious and organised crime to target the NextGeneration EU
recovery fund.
Organise a public/private partnership conference on tobacco excise fraud, combined
with the annual plenary meeting on excise fraud.
Organise a workshop on VAT fraud with the participation of relevant stakeholders such
as Eurofisc, OLAF, EPPO and the European Commission.
Continue implementing the Service Level Agreement with the EUIPO on acquisition
fraud targeting IP Offices and Trademarks/Registered Community Designs users by
producing operational and tactical analysis, and one annual strategic report.
Organise a multi-stakeholder meeting on a selected fraud phenomenon involving
specialised national agencies, EU agencies and private sector.
Support to the extent possible strategic activities, including policy developments,
relating to serious and complex fraud.
Organise and fund the Annual Plenary Meetings on serious and complex fraud, excise
fraud and MTIC Fraud.
Member States’ investigations receive quality analytical and
operational support related to fraud. Cooperation between Europol and
other EU bodies and agencies is strengthened.
o
o
o
o
o
o
o
o
Expected results:
Operations on Money Laundering
Disrupt the capacity of OCGs involved in money laundering.
Objectives and actions
A.6.3 Provide support to EU Member States’ investigations on money laundering.
o
o
o
o
o
Perform criminal intelligence analysis and support MS with operational capabilities and
expertise, including on-the-spot support.
Provide analytical and operational support to the ESOCC, EC3 and the ECTC (with
regards to terrorist financing) in joint operations.
Support the implementation of EMPACT Operational Action Plan on criminal finances,
money laundering and asset recovery.
Perform the role of coordinator of the EMPACT Common Horizontal Strategic Goal of
criminal finances, money laundering and asset recovery.
Identify High Value Targets - individuals or entities - facilitating money laundering.
Promote the proactive setting up of Operational Task Forces (OTFs) targeting money
laundering criminal syndicates.
Enhance operational support cooperation in the EU against organised crime groups
and professionals providing money laundering services to other criminal groups (crime
as a service).
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Europol Unclassified – Basic Protection Level
o
o
o
o
Improve operational support by enhancing virtual assets expertise and provide tracing
and analysis support to financial investigations involving virtual assets.
Support the strategic and operational information exchange between the Member
States’ Financial Investigators.
Detect novel money laundering methods, vulnerabilities, and risks that aid and support
organised crime.
Contribute to the development of the Supra-National Risk Assessment and high-risk
third countries assessment on money laundering and terrorist financing in the
framework of the Expert group on Money Laundering and Terrorist Financing.
Support and host the secretariats for the Anti-Money Laundering Operational Network
(AMON) and the Association of Law Enforcement Forensic Accountants (ALEFA).
Support the Joint Working Group on criminal finances and cryptocurrencies (co-host
the secretariat jointly with the Basel Institute on Governance).
Promote and support the Europol Financial Intelligence Public Private Partnership
(EFIPPP).
Continue engaging with the Financial Action Task Force (FATF) and Egmont group in
view of developing global cooperation on money laundering and terrorist financing.
Support targeted FATF projects when operational needs are identified.
Take up any potential new task arising from the anti-money laundering legislation for
a comprehensive Union policy on preventing money laundering and terrorism
financing
70
.
Foster a well-functioning working relation with the new EU Anti-Money Laundering
Authority (AMLA), if operational in 2025. Undertake preparations for setting up secure
channels of communication (i.e. SIENA and FIU.net), participation in the Joint Analysis
Teams, and a mutual hit- no hit access to data (if applicable).
Contribute to developments in the field of Countering Financing of Terrorism (CTF) and
its links to AML, in particular by leading or supporting strategic CFT projects.
Support the Counter Terrorism Financial Investigators Network, which facilitates the
exchange of investigation techniques and experiences on CT financial investigations.
Organise the Annual Plenary Meeting on money laundering.
Enhanced law enforcement capacity to combat organised crime by
disrupting their financial structures and dismantling the networks that
fund criminal activities for others or provide money laundering
services (crime as a service).
Investigations on organised crime and terrorism benefit better from
synergies between financial and criminal intelligence.
o
o
o
o
o
o
o
o
o
Expected results:
Operations on Money Laundering
Objectives and actions
A.6.4 Increase cooperation with FIUs.
o
Work towards the improvement of the cooperation with the FIUs and increase the
number of countries contributing financial intelligence to Europol (Suspicious
Transactions Reports (STRs), Suspicious Activity Reports (SARs) and cash
declarations).
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C(2020) 2800 final, published by the European Commission on 7 May 2020.
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Europol Unclassified – Basic Protection Level
o
Prepare the grounds for establishing close cooperation with the future Cooperation and
Support Mechanism (CSM) for the FIUs, including possible secondment of liaison
officers, SIENA connection, use of FIU.net, etc.
Negotiate an SLA regarding the “Europol node” when the CSM/ new Authority takes
over the FIU.net as a channel of operational communication with EU FIUs and FIU
Norway.
Provide information sessions on the use and benefits of matching technologies to APs.
Identify which FIUs would be interested in having/reactivating a/their SIENA
connection/mailbox. Support technically the connection/reactivation of interested FIUs
in SIENA.
Set-up a system to collect and report transparent and unambiguous statistical data on
AML/CFT information received and activities executed.
Set-up a feedback system on the usefulness of STR-related information received by
Europol to improve the data quality.
Evaluate the effectiveness of Europol’s implementation of the Directive (EU)
2019/1153
71
, in particular the possibility for Europol to request financial information
from FIUs and information held in the national centralised bank account registries.
Improved cooperation and joint undertakings with stakeholders and
financial institutions leading to an increased operational impact.
Improved cooperation with FIUs and increased contribution of financial
intelligence to Europol via FIUs.
Member States’ operations receive better and extended financial
investigation support.
o
o
o
o
o
o
Expected results:
Asset Recovery
Support investigations in order to identify the criminals involved, disrupt their associates,
recover and confiscate the proceeds of their crimes.
Objectives and actions
A.6.5 Provide support to EU Member States’ investigations in identifying and
tracing proceeds of crime.
o
o
Perform criminal intelligence analysis and support MS with operational capabilities and
expertise, including on-the-spot support.
Set up operational meetings and support priority- and HVT investigations. Provide
analytical and operational support to joint OTFs with the other Europol crime centers
to the extent possible given the availability of resources.
Support the implementation of EMPACT Operational Action Plan on Criminal finances,
money laundering and asset recovery.
Support the European Commission in the peer-reviews of the EU Asset Recovery
Offices (ARO).
Co-chair with the European Commission the ARO platform meetings. Host the meeting
of the ARO platform. Liaise with each Asset Recovery Office within the Member States
to increase visibility of the EFECC’s work.
Support and host the secretariat of the Camden Asset Recovery Inter-Agency Network
(CARIN).
o
o
o
o
Directive (EU) 2019/1153 of 20 June 2019 laying down rules facilitating the use of financial and other information
for the prevention, detection, investigation or prosecution of certain criminal offences.
100
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Europol Unclassified – Basic Protection Level
o
Connect to Siena EU Asset Recovery Offices that are not directly connected yet (if not
finalised in 2024) and strengthen MS AROs partnership with the EFECC resulting in an
increase of their contribution level.
Contribute to the work of the Task Force ‘Freeze and Seize’
72
established by the
European Commission to coordinate MS enforcement of the adopted sanctions against
Russian and Belarusian individuals and companies in the context of the war of
aggression against Ukraine, in coordination with other EU agencies and bodies, such
as Eurojust.
Improve operational support by enhancing virtual assets expertise and provide tracing
and analysis support to ARO and the MS investigators involving virtual assets.
Exploit the opportunities provided by the EU Directive 2019/1153 to request from
Member States bank account information and financial information and intelligence.
Follow the adoption and implementation of the new Directive on Asset Recovery and
Confiscation. Facilitate the mandatory use of SIENA for all communications among
AROs under this Directive.
Promote and utilise the Guest Expert concept in terms of receiving additional expertise
from MS in the area of asset recovery.
Organise the Annual Plenary Meeting on asset recovery.
Member States’ investigations receive quality analytical
operational support related to asset tracing and recovery.
Improved asset recovery rate within criminal investigations.
and
o
o
o
o
o
o
Expected results:
Operations on Corruption
Disrupt the capacity of OCGs and specialists involved in all forms of corruption (public and
private corruption, sports corruption, grand corruption, business corruption, political
corruption and administrative corruption - including corruption in central or local
governments, judiciary and law enforcement).
Objectives and actions
A.6.6 Provide support to EU Member States’ investigations on corruption.
o
o
o
o
o
o
o
o
Perform corruption-related criminal intelligence analysis and support MS with
operational capabilities and expertise, including on-the-spot support.
Set up operational meetings and support priority investigations.
Support the operational actions related to corruption stemming from the relevant
EMPACT OAPs.
Organise and fund the AP Corruption Annual Plenary Meeting.
Organise a major event (conference) on corruption.
Support strategic activities and policy developments, relating to sports corruption,
including relevant activities of the Council of Europe such as the MARS Network
73
.
Prepare the drafting of a strategic product in the field of corruption.
Support operationally and strategically the implementation of the Commission’s Anti-
Corruption package. Contribute to the work of the new EU Network against
Corruption
74
.
72
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If still existing in 2025.
Network of Magistrates / Prosecutors dedicated to corruption in sport
Envisaged in the Communication on the fight against corruption in the EU from 3 May 2023.
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Europol Unclassified – Basic Protection Level
o
Promote the use of the dedicated Corruption-SIENA for the information exchange
between anti-corruption authorities and Europol/AP Corruption following its technical
implementation in 2023.
Implement joint actions or cooperation activities with external partners from the
private sector that Europol has a MoU with, such as the International Olympic
Committee (IOC), World Anti-Doping Agency (WADA), Union of European Football
Association (UEFA), International Tennis Integrity Agency (ITIA), Sportradar and
United Lotteries for Integrity in Sports (ULIS).
Promote the cooperation with the UN GLOBe network (Anti-corruption Network for Law
enforcement practitioners) following the formal acceptance of Europol to the Network
as an Observer in 2022.
Contribute to the work of the European Anti-Corruption Network (EACN) and the
European Partners Against Corruption (EPAC) network.
Contribute to the work of the Internal Criminal Investigations Network (ICIN), for
activities that are directly associated and relevant to corruption.
Further strengthen the engagement with relevant stakeholders active in combating
corruption through nurturing (new) partnerships and dedicated alliances, including
with private parties.
Member States’ investigations receive qualitative analytical and
operational support related to corruption.
o
o
o
o
o
Expected results:
Operations on Counterfeiting
Disrupt the OCGs involved in the production and distribution of counterfeit goods violating
health, safety and food regulations, and those producing sub-standard goods.
Objectives and actions
A.6.7 Provide support to EU Member States’ investigations on the production and
distribution of counterfeit goods.
o
o
o
o
o
o
o
o
Perform criminal intelligence analysis and support MS with operational capabilities and
expertise, including on-the-spot support.
Support the implementation of the EMPACT priority on Intellectual property (IP) crime,
counterfeiting of goods and currencies.
Coordinate operational actions in the area of counterfeit and illicit foods and
beverages.
Coordinate operational actions in the area of falsified medicines.
Coordinate operational actions in the area of counterfeit toys.
Coordinate operational actions in the area of counterfeit cosmetics and perfumes that
are traded illegally on online platforms and on physical markets.
Coordinate operational actions in the area of counterfeit electronics and electronic
accessories.
Continue to improve cooperation with OLAF in the fight against Intellectual Property
Rights infringement, in particular through OLAF’s participation to Europol operations
on fake medicines, toys, pesticides, food and beverages, etc.
Continue to improve operational actions to fight against illegal Internet Protocol
Television (IPTV) being an increasing concern for intellectual property rights holders
.
Contribute to the development of the EU Toolbox against counterfeiting under the lead
of the European Commission.
o
o
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Europol Unclassified – Basic Protection Level
o
o
Support and host the secretariat of the IP Crime Network of the intellectual property
crime experts from specialised LEAs.
Manage the Intellectual Property Crime Coordination Coalition (IPC³) established in
cooperation with the European Union Intellectual Property Office (EUIPO), and
undertake work according to the amended SLA for 2024-2027.
Gather information and monitor relevant trends in the field of counterfeiting and piracy
with particular emphasis on online IPR infringement. Collaborate with EUIPO to prepare
reports intended to inform policy makers, law enforcement authorities and other
relevant stakeholders.
Raise awareness on instruments which Europol and EUIPO offers to assist in the fight
against IPR infringements. Develop and publicise crime prevention and other
communication materials on intellectual property crime.
Organise and financially support meetings, training, seminars and a conference at
Europol and/or in the Member States on intellectual property crime.
Organise the IP Crime Units network meeting.
Member States’ investigations receive quality
operational support related to counterfeiting.
analytical
and
o
o
o
o
Expected results:
Operations on Counterfeiting
Disrupt the OCGs involved in Euro counterfeiting.
Objectives and actions
A.6.8 Provide
counterfeiting.
o
o
o
o
o
o
support
to
EU
Member
States’
investigations
on
Euro
Perform criminal intelligence analysis and support MS with operational capabilities and
expertise, including on-the-spot support.
Support the implementation of the EMPACT priority on Intellectual property (IP) crime,
counterfeiting of goods and currencies.
Provide financial support to Member States’ Euro counterfeiting operations.
Provide to Member States technical-tactical training on Euro counterfeiting.
Support strategic
counterfeiting.
activities,
including
policy
developments,
relating
to
Euro
Promote the establishment a connection to SIENA for the European Central Bank
through which Europol can receive information with respect to (online) distribution of
counterfeit banknotes and coins.
Member States’ investigations receive quality
operational support related to Euro counterfeiting.
analytical
and
Expected results:
Member States’ investigations in relation to Euro counterfeiting are
initiated based on Europol’s analysis.
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Indicators
Number of Accepted contributions by EFECC
75
Number of Operations supported by EFECC
Number of Operational Task Forces supported by
EFECC (where EFECC is in the lead)
Number of Operational Reports delivered by EFECC
Number of Action Days coordinated/supported by
EFECC
Satisfaction with Operational Support and Analysis
provided by EFECC
Latest result
(Q2 2024)
Target 2025
The responsibility for this indicator is shared by Europol and its partners (MS, TP). As such, the target is
indicative and used to monitor the trend of accepted contributions.
75
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Strategic and Analysis Coordination
Overview
Criminal analysis remains at the core of Europol’s business and it continues being
a service that is highly demanded by the law enforcement agencies in Member
States. Europol has a considerable wealth of knowledge, capabilities and expertise
in this area, which the agency strives to further strengthen through enhanced
coordination and attention to quality output and control, standardisation, training,
specialised analysis and a more efficient and flexible reassignment of resources.
The area of data quality coordination, data analysis deployment and support is growing in
importance and significance within the work of Europol, mainly due to the introduction of a
new technical environment for the data handling and data processing for the purpose of
strategic and operational analysis, and the increase of supervision from the European Data
Protection Supervisor. The amended Europol Regulation has strengthened the focus on data
protection by design and by default, pushing the work of data quality coordination to the front
line.
Strategic analysis in the context of law enforcement aims at informing decision makers on
current and emerging trends in serious crime and terrorism landscapes and helps with the
identification of critical areas for prioritisation and policy development. The use of strategic
intelligence analysis is one of the pillars of the EMPACT, as it promotes an intelligence-led
approach to fight international serious and organised crime in a cooperative fashion among
the EU law enforcement authorities, JHA agencies and external partners. The strategic
analysis produced by Europol provides guidance also to the agency's management and the
work of the Operational Analysis Projects (APs).
The Analysis Training coordination function at Europol has two aspects: 1) internal – which
comprises the responsibility to assess in-house skills, training needs and requirements; and
to develop and provide in-house analysis trainings; and 2) external – which includes reviewing
and responding to Member States’ analysis training needs in collaboration with CEPOL. The
team in charge is also assessing the possibilities for accreditation of analysis training at
Europol and organises the Europol Summer School. Within the renewed Europol Strategy
“Delivering Security in Partnership”, it is foreseen that a new analysis training and coaching
program for Europol staff and Europol partners will be developed with the aim to satisfy the
needs for state-of-the-art analytical competences.
Europol support to the European Multidisciplinary Platform Against Criminal Threats (EMPACT)
is also essential for ensuring operational and strategic coordination of MS efforts to fight
organised crime at the EU level. The EMPACT team facilitates the development, monitoring
and reporting of the EMPACT operational action plans (OAP) and supports their
implementation. With dedicated funds, the agency is in a position to financially support actions
of the OAPs in the form of EMPACT grants. EMPACT is an essential part of the actionable
operational mechanism for EU MSs to react to major security crises, as demonstrated through
the EMPACT drivers’ response during the Ukraine war to adjust OAPs according to the
emerging operational needs.
Facilitating the cooperation among all competent law enforcement authorities, including
Customs and Counter-Terrorism services in the Member States, is a crucial element of
Europol’s work and mandate. The agency supports the Liaison Bureaux of Member States and
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Europol Unclassified – Basic Protection Level
other cooperation partners at Europol and maintains Europol liaison offices in other countries
and organisations.
In view of the global challenges facing the EU, effective investigations depend often on
information exchange with third countries and private partners. In the past years, Europol
succeeded in establishing cooperation with key external partners and it will continue working
on the implementation of the different cooperation agreements. The agency aims at increasing
its outreach to other priority partners, in line with its new External Strategy.
At the same time, Europol pursues the further strengthening of its partnership with Interpol,
the EU Institutions and relevant EU agencies, in particular those active in the area of Justice
and Home affairs, in order to ensure complementarity and maximum benefit from possible
synergies. The implementation of the new strategy for cooperation with private parties will
also remain among Europol’s priorities in 2025.
2025 Objectives
Analysis coordination
Objectives and actions
A.7.1 Reinforce criminal analysis coordination and expertise at Europol to ensure
provision of quality analysis support to EU Member States’ investigations.
o
Expand the support to the work on criminal analysis at Europol by:
-
-
-
o
o
o
o
o
o
Further developing the Visualisation and Analysis Toolbox, including a tool for
OSINT;
Enhancing the Data Analysis Portal (DAP), including discovering potential new AI
solutions for improving its functionalities; and
Establishing a pool of analysts specialised in technical analysis and specialised
methods and tools to support all Europol’s Centres with expertise.
Act a single point of contact for new tools for data handling, processing and analysis.
Continue the development and improvement of the case management system and the
Joint Analysis Platform.
Further invest in the development of handling and processing complex datasets.
Develop mechanisms, based on data science to increase efficiency in monitoring and
detecting trends in crime and terrorism data.
Further automate data quality control and review via the Data Review Module in the
DAP.
Act as a central contact point for the Operations Directorate for business intelligence,
and provide statistics and reports on operational data in relation to the Europol
Regulation.
Ensure that the Deputy Executive Director Operations can fully fulfil his responsibilities
as Data Controller.
Further foster the efficient functioning of the Data Quality Control Office under the lead
of the Data Quality Control Coordinator.
Ensure the implementation of the current data review mechanism and that data
processing is performed in line with Europol’s legal framework.
Further implement a systematic review of all APs, including data quality reviews on
biometric and travel related data.
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A.7.2 Ensure data and analysis quality control at Europol.
o
o
o
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Europol Unclassified – Basic Protection Level
o
Strengthen the focus on data protection by design and by default throughout all data
management tools and processes by further fine-tuning the Data Review module within
the Data Analysis Portal.
Work in close cooperation with the DPF and ensure compliance with the data protection
rules.
Report internally on regular basis on the enhanced data review activities; Provide
progress reports to DPF.
Provide guidance and training to improve the quality of analytical reporting.
Compliance with the legal requirements for data processing.
Increased efficiency of handling, processing, analysing and monitoring
of data.
Increased standardisation and quality of products.
Enhanced quality of Europol’s operational analysis support to Member
States.
o
o
o
Expected results:
Analysis coordination
Objectives and actions
A.7.3 Reinforce analysis training capabilities at Europol.
o
o
Maintain a centralised overview of in-house analytical competencies and knowledge.
Provide regularly in-house analysis training. Further develop the new Europol criminal
intelligence training curriculum. Train all relevant staff on the new features of the
analysis environment for Operations, the Data Analysis Portal and related tools.
Further develop the analysis training environment and a learning management solution
for assessing the impact of training on quality.
Review and respond to Member States’ analysis training needs in collaboration with
CEPOL. Coordinate Europol’s contribution to CEPOL’s training activities (e.g. content
development, expert presentations, moderation, etc.).
Provide regular trainings to MS on specific topics such as Data Subject Categorisation
(DSC) and the Joint Analysis Platform.
Roll out a new Analysis Training and Coaching program to satisfy the need for state-
of-the-art analytical competence at Europol and the national competent authorities.
Manage the online Intelligence Analysis Platform CONAN.
Organise the annual EU Crime Analysis Conference.
Organise the Europol Summer School.
Provision of effective and up-to-date operational and strategic analysis
training for Europol’s analysts leading to increased quality of Europol’s
analysis support to Member States.
Fully trained criminal intelligence analysts at Europol.
More efficient and faster processing and analysing of data.
Increased standardisation and quality of products.
o
o
o
o
o
o
o
Expected results:
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Strategic analysis
Objectives and actions
A.7.4 Deliver quality strategic reports.
o
Deliver Flagship reports on serious and organised crime, cybercrime or terrorism that
have a key importance for Europol, such as:
-
SOCTA 2025
-
EU Terrorism Situation and Trend Report (TE-SAT)
-
Threat assessment on financial and economic crimes
Deliver Threat Assessments on current or future threat by one or more crime areas
(e.g. drug trafficking, migrant smuggling) or types of terrorism and by criminal
networks.
Deliver Early warning notifications giving rapid alert on new and emerging threats and
modi operandi.
Deliver Intelligence notifications identifying intelligence gaps, recommendations or key
areas to target, and present a basis for decision making.
Deliver Joint reports with EU agencies/national authorities, such as:
-
Joint analysis with Frontex, Joint analysis with Frontex and EUAA on secondary
movements, Joint analysis with EUIPO, Joint analysis with EMCDDA (European
Drug Markets reports modules)
Deliver Crisis response reports on crisis situations (geo-political crises or crisis events).
Deliver ad-hoc reports requested by COSI or in the framework of VISA and Schengen
evaluations, and risk assessments requested by the Council and Commission.
Maintain a common, consistent and holistic approach towards strategic analysis across
the Operations Directorate.
Enhance networking with experts (e.g. SOCTA, TE-SAT Advisory Group) to advance
methodologies, increase access to information and improve the quality of reports.
Support as a coordinator the implementation of the EMPACT Common Horizontal
Strategic Goal on Criminal intelligence picture.
Support strategic analysis in the MENA region by contributing to the EU funded project
Euromed Police V.
Support strategic analysis in the Eastern Partnership (EaP) region by contributing to
the relevant EU-funded projects.
Provision of timely and quality strategic reports.
Enhanced analytical capacities of the EU Neighbourhood countries to
perform threat assessments and other strategic analysis.
Strengthened strategic cooperation between national law enforcement
authorities, as well as between the EU Neighbourhood countries and
the EU MS and EU agencies.
o
o
o
o
o
o
o
o
o
o
o
Expected results:
EMPACT support
Objectives and actions
A.7.5 Provide support and funding opportunities to EMPACT priorities and
actions.
o
Contribute to the identification of key issues and good practices related to EMPACT and
provide input to the Council’s Standing Committee on Operational Cooperation on
Internal Security (COSI).
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Europol Unclassified – Basic Protection Level
o
Provide methodological, administrative and logistical support to the drafting of the
Operational Action Plans (OAPs) and facilitate communication and collaboration
between the crime priorities and horizontal goals. Provide support to the
implementation of the operational actions.
Facilitate the activation of the EMPACT community as an essential part of the
actionable operational mechanism for EU MSs to react to major security crises by
supporting EMPACT drivers to adjust/reshape OAPs accordingly and by providing the
pertinent intelligence picture.
Manage the EMPACT Grant scheme and inform MS systematically about funding
opportunities.
Coordinate and support the planning of Joint Action Days.
Monitor the implementation of the Operational Action Plans.
Support the utilisation and the further improvement of the Online EMPACT tool
(EMPACT Goes Green).
In cooperation with CEPOL, contribute to the delivery of EMPACT-related training
seminars and webinars to MS.
In cooperation with CEPOL, contribute to the delivery of training to the Western Balkan
countries on EMPACT priorities within the framework of the EU funded project WB
Partnership against Crime and Terrorism (WBPaCT) (if extended beyond 2023).
Continue implementing the funding mechanism
76
earmarked for (Member-States-led)
EMPACT-related projects for the benefit of the law enforcement authorities of the EU
Eastern Neighbourhood countries.
Member States receive efficient support for the implementation of
their OAPs, including the activation of EMPACT community as
emergency mechanism.
Administrative aspects of EMPACT are improved in efficiency due to
digitalisation.
Europol’s support to EMPACT increasingly contributes to operational
and strategic outcomes in the Member States.
Strengthened partner countries’ institutional knowledge of and
criminal intelligence capacity in the EMPACT priority crime areas.
Enhanced operational and strategic cooperation of partner countries
with EU Member States and agencies.
o
o
o
o
o
o
o
o
Expected results:
Cooperation with Member States
Objectives and actions
A.7.6 Manage cooperation with EU Member States.
o
o
o
Manage strategic cooperation of Europol with Member States’ competent authorities
including Law Enforcement, Counter-Terrorism services and Customs.
Ensure appropriate intake of Member State’s needs and priorities across all relevant
areas of Europol’s work.
Coordinate Europol contribution to the Management Board/MB Working Groups
ensuring submission of the relevant documentation according to the established
deadlines, and follow up to MB decisions.
Coordinate and prepare meetings of the Heads of Europol National Units (HENUs).
o
76
Funded through a grant from the European Neighbourhood East Instrument and based on an agreement with the
European Commission on concrete priorities to be pursued by the programme.
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Europol Unclassified – Basic Protection Level
o
o
Support the implementation of the operational agreement with Denmark.
Support the liaison officers’ community based at Europol, including by facilitating the
regular meetings of the Heads of Liaison Bureaux (LB) and the newly established
informal Consultation Group.
Provide information to MS on agency’s wide operational activities via Operational
Meeting updates.
Support Member States’ cooperation on matters outside Europol’s mandate by offering
a specific EPE platform dedicated for such communication and exchanges of
information.
Effective involvement of Member States’ competent authorities in the
consultations and decision-making on Europol matters.
Enhanced cooperation with and between LBs, their respective national
authorities and related stakeholders for the additional benefit in the
operational area.
o
o
Expected results:
Cooperation with third countries
Objectives and actions
A.7.7 Manage cooperation with third countries.
o
Support the implementation of the operational agreements with Albania, Australia,
Bosnia and Herzegovina, Canada, Colombia, Georgia, Iceland, Liechtenstein, Moldova,
Monaco, Montenegro, North Macedonia, Norway, Serbia, Switzerland, Ukraine and the
United States, and the working arrangements with Andorra, Armenia, Chile, Israel,
Japan, Kosovo
77
, Mexico, New Zealand, Qatar, San Marino, South Korea and the United
Kingdom.
Support the implementation of the strategic agreements with Brazil, China, Türkiye
and the United Arab Emirates.
Monitor the implementation of cooperation agreements and the fulfilment of
obligations and commitments.
Manage Europol’s Liaison Office in Washington.
Support the establishment of new Partner Liaison Bureaux and their Liaison Officers at
Europol.
Initiate the implementation of the new Europol External Strategy and establish or
reinforce cooperation with selected third countries in line with the updated external
relations priorities.
Contribute to the next iteration of the EU funded project Western Balkan Partnership
against Crime and Terrorism (WBPaCT), if confirmed, and monitor the future
development of an EU funding scheme to support the operational cooperation in the
region.
Further develop Europol’s relations with relevant countries from the Eastern
Neighbourhood region and contribute to relevant EU-funded projects.
Further develop Europol’s relations with the countries from the MENA region building
on the progress made in 2024. Continue contributing to the EU funded project
Euromed V.
Depending on a needs assessment, prepare a strategic review of the cooperation with
the Schengen Associated Countries.
o
o
o
o
o
o
o
o
o
This designation is without prejudice to positions on status, and is in line with UNSCR 1244/99 and the ICJ Opinion
on the Kosovo declaration of independence.
110
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Europol Unclassified – Basic Protection Level
o
o
Assist the European Commission, where required and requested, in the negotiation of
international agreements according to Art.218 TFEU.
Take appropriate actions to implement any concluded international agreements
between the EU and third countries, in particular the upcoming agreements with the
Latin America countries, with regards to the exchange of personal data between
Europol and the national competent authorities.
Elaborate legal advice on new possibilities for case by case cooperation with any third
country, in the absence of an agreement or adequacy decision.
Provide legal advice as regards the possibilities stemming from the amended Europol
Regulation concerning the exchange of personal data with third countries.
Increased involvement of Europol in information exchange with third
countries and better access to criminal intelligence from abroad.
Enhanced cooperation and joint undertakings with third countries
leading to an increased operational impact.
o
o
Expected results:
Cooperation with EU institutions, agencies or bodies
Objectives and actions
A.7.8 Manage cooperation with EU institutions, agencies or bodies.
o
o
Manage strategic cooperation of Europol with EU institutions, agencies or bodies,
including EU CSDP missions and operations; manage the Liaison Office in Brussels.
Manage and coordinate the interaction with the European Commission, the External
Action Service (EEAS), including the EU Intelligence and Situation Centre (EU INTCEN),
and EU Council and Parliamentary committees, including the Joint Parliamentary
Scrutiny Group (JPSG).
Provide (technical) advice and contribute to the preparation of new EU policy and
legislative initiatives.
Follow closely relevant EU policies and initiatives
78
for emerging tasks falling within
Europol’s mandate. In particular, monitor and contribute, where requested, to the
upcoming evaluation and revision of key EU strategies, such as the Strategy to tackle
Organised Crime (2021-2025), the EU Cybersecurity Strategy, the Counter-Terrorism
Agenda for the EU (2020-2025), the EU Action Plan on Firearms Trafficking (2020-
2025), the EU Strategy on Combatting Trafficking in Human Beings (2021-2025) and
the EU Drug strategy (2021-2025).
Contribute to the annual Schengen Cycle, which provides a new governance model for
the Schengen area. Support activities regarding Schengen evaluations on police
cooperation, such as evaluations, on-site visits to Schengen countries and training.
Support the implementation of the operational agreements with Eurojust and Frontex.
Facilitate the exchange of Liaison officers with Frontex and the liaising of Eurojust SNEs
with Europol’s crime centres.
Support the implementation of the strategic agreements, MoUs and administrative and
working arrangements with CEPOL, ECB, ECDC, EIB, EEAS, EMCDDA, EMSA, ENISA,
EPPO, EUIPO, EU-LISA, the European Commission, FRA and OLAF.
Continue the reinforced cooperation between the Eurojust Contact Points and Europol’s
Analysis Projects with regard to exchange of information, identification of HVT and
Eurojust’s participation in EMPACT. Support the coordination of the annual networking
meeting.
o
o
o
o
o
o
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The strategies, policies and legislative initiatives mentioned in Section I – General Context.
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Europol Unclassified – Basic Protection Level
o
o
o
o
Support the Joint Investigation Teams (JIT) of the Member States in cooperation with
Eurojust and OLAF including the provision of complementary funding and training.
Enhance the cooperation with Frontex based on the new working arrangement,
including exchange of personal data.
Enhance the cooperation with the European Union Agency for Asylum (EUAA) based
on the new working arrangement.
Develop cooperation with new bodies established by the EU involved in crime areas
covered by Europol’s mandate, i.e. the new EU Anti-Money Laundering Authority and
the European centre to prevent and counter child sexual abuse.
Contribute to the work of the JHA Agencies Network.
Progress with embedding the law enforcement component into CSDP missions and
operations, in line with the Civilian CSDP Compact, as endorsed in May 2023. Establish
structured cooperation based on operational needs with selected CSDP missions.
Follow the implementation of Strategic Compass for Security and Defence, in particular
the actions planned for strengthening the EU's security and defence policy by 2030
regarding cyber attacks and terrorism as key threats against the EU.
Explore the establishment of links with EU defence structures and relevant bodies
including the European Defence Agency (EDA), countering hybrid threats in order to
enrich the intelligence picture with strategic information from military sources, while
fully respecting the mandate of INTCEN and the mandate of national security and
intelligence services.
Utilisation of synergies, optimisation of information flow and alignment
of actions between Europol and other EU institutions, agencies and
bodies leading to better operational impact.
o
o
o
o
Expected results:
Cooperation with organisations
Objectives and actions
A.7.9 Manage cooperation with international and regional organisations.
o
Support the implementation of the operational agreement with Interpol or any other
Administrative or Working Arrangement concluded as a follow-up to the new EU-
Interpol agreement. Manage Europol’s Liaison Office at Interpol.
Support the implementation of the strategic agreements with the United Nations Office
on Drugs and Crime (UNODC) and the World Customs Organisation (WCO). Continue
to build relations with relevant UN offices for establishing of cooperation in line with
Europol’s operational needs.
Support the implementation of the working arrangement with the International
Criminal Court (ICC).
Continue to enhance cooperation with the Organisation for Security and Co-operation
in Europe (OSCE), in areas of mutual interest.
Monitor developments in relevant regional organisations and collaboration platforms
such as the Baltic Sea Task Force, Danube River Strategy group, the Western Balkan
regional initiatives, SELEC, MAOC-N, and EUMed, Afripol, GCCPOL, the Western Africa
Platforms, Aseanapol and Ameripol, and identify areas of collaboration depending on
operational needs.
Establish cooperation agreement
framework allows for it.
with AMERIPOL, provided AMERIPOL’s legal
o
o
o
o
o
o
Provide legal advice related to Europol's negotiation and conclusion of working
arrangements with international organisations.
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Europol Unclassified – Basic Protection Level
Expected results:
Cooperation with international and regional organisations brings
forward better criminal intelligence picture and operational results.
Cooperation with private parties
Objectives and actions
A.7.10 Advance with the implementation of the new strategy for managing and
enhancing cooperation with private parties.
o
Assess opportunities and reach out to the private sector following the established
priorities through the new Strategy for the steering and coordination of Private Party
cooperation.
Assess the possibility to increase effectiveness of prevention outreach, through the
involvement of relevant companies and NGOs.
Provide legal advice as regards the new possibilities stemming from the Europol
Regulation concerning the exchange of personal data with private parties.
Enhance the intake of relevant information from the private sector enriching the
criminal intelligence picture.
Cooperation with private parties improves in effectiveness and
reduces information gaps.
o
o
o
Expected results:
Indicators
Number of Strategic Analysis Reports
Satisfaction with Strategic Analysis Reports
Satisfaction with Operational Analysis
Satisfaction with Operational Training delivered to
MS/TP
Number of SIENA messages exchanged by Third
Parties
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Latest result
(Q2 2024)
Target 2025
The responsibility for this indicator is shared by Europol and its partners (MS, TP). As such, the target is indicative
and used to monitor the trend of accepted contributions.
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Governance, support and administration
Overview
As provided for in Article 32 of the Europol Financial Rules, the Europol Internal
Control Framework (ICF), adopted by the Europol MB in December 2018,
represents the overall strategy on the organisational and internal control
approach, as well as for Europol’s ethics, compliance, corporate risk
management and anti-fraud related components. The ICF is monitored through a set of
control indicators that are integrated in Europol’s corporate performance monitoring. The
Code of Conduct, Europol’s cornerstone for the organisational ethics, was put in force in an
updated version at the end of 2019, including based on a review of staff from across the
organisation. The Code of Conduct gives an essence statement for each of the 6 Europol
Values (Service, Integrity, Accountability, Initiative, Partnership and Diversity), underlining a
zero tolerance to fraud and the requirement to perform duties impartially and without
favouring any particular individual, group, organisation or country, for preventing any
potential conflict between personal and work related interests.
Europol strives for full compliance with principles of sound financial management, security,
data protection, fundamental rights protection and internal control standards, as
demonstrated by the overall positive findings resulting from the internal and external audit
mechanisms. In the spirit of ensuring clear accountability towards its stakeholders, Europol
also applies robust document and records management procedures, and adheres to a
systematic performance monitoring and reporting practice.
In 2024, work will continue to implement organisational initiatives or changes identified
through the renewed Europol Strategy and the new External Strategy, while the Agency will
continue making progress in promoting workforce diversity and inclusion, in line with Europol’s
Diversity and Inclusion Strategy.
The HR and Finance Strategies will continue to guide and ensure the efficient and effective
management of budget and resources.
The agency aims at maintaining effective communication to both external partners and
stakeholders, and internally to staff. Increasing the awareness of the general public and the
law enforcement community of Europol’s work is continuously pursued. The broader
awareness of Europol’s products and services among MS’ competent authorities is a
prerequisite for their full and effective utilisation, and for bringing forward better operational
results. Transparent communication towards staff is an important factor to ensure
engagement and motivation.
The growth of the agency led to the establishment of the Strategic Housing Roadmap, which
comprises the relocation of part of Europol’s staff to temporary satellite buildings in the short
to mid-term and the arrangement of second permanent headquarters in the longer term.
Work on a second Data Centre should also start to ensure Europol’s business continuity. At
the same time, existing workspace is regularly re-organised to ensure optimal utilisation and
compliance with the new governmental standards. These activities require a major effort and
ultimately an expansion of the necessary facilities, ICT, security and administrative services
for the years ahead.
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Objectives 2025
Corporate affairs and services
Objectives and actions
A.8.1 Continue optimising Europol’s corporate functions.
o
o
o
o
Coordinate and oversee the implementation of organisational initiatives and changes
in line with the renewed Europol Strategy and the new External Strategy.
Support and promote the implementation of the Diversity & Inclusion Strategy.
Provide policy, technical and expert advice, and prepare related policy documents;
Identify key strategic opportunities for Europol's growth in priority areas.
Consolidate further the implementation of the compliance management framework at
Europol, to effectively implement (internally and externally driven) change across the
organisation, including regulatory changes impacting the agency, such as the amended
Europol Regulation, and interoperability.
Support the implementation of a new internal control and compliance management
tool.
Coordinate all audit activities and Europol’s response to audit activities and findings.
Ensure monitoring and annual assessment of the effectiveness of the internal control
system, based on a dedicated list of internal control indicators.
Monitor Europol's corporate risks. Continue implementing the risk management policy
and enhance awareness, through training and communication measures.
Contribute to the annual risk peer review exercise of the EU Agencies Network,
requested by the European Commission.
Prepare Europol’s multi-annual and annual business planning documents, and
quarterly, bi-annual and annual corporate performance reporting.
Streamline the use of corporate analytics and reporting to ensure high quality and
accurate corporate performance measurement and reporting.
Maintain and further develop the User Survey.
Provide legal advice on the implementation of Europol’s legal framework and data
protection rules. Advise on legality and compatibility of new Europol initiatives with EU
law, as well as on new EU initiatives having an impact on Europol.
Coordinate strategic, legal and internal data protection aspects, including operational
elements, in matters related to the interaction with the EDPS.
Develop and maintain Europol’s legal framework for finance, procurement, grants and
facilities. Review the financial model decisions, based on the expected implementation
of the new accounting system.
Provide internally legal support on contracts, service level agreements, licenses, grant
agreements, etc. Handle contract related complaints and court cases.
Develop and maintain the HR legal framework and implementing rules to the EU Staff
Regulations. Handle staff related complaints, requests and court cases.
Manage public access to Europol’s documents.
Europol progresses along the strategic priorities; areas for further
development are identified and utilised.
Transparency and accountability of the organisation's strategic
planning and performance. Increased benefits to Europol's
stakeholders.
Legal frameworks, implementing rules and corporate processes are
up-to-date and compliant.
115
o
o
o
o
o
o
o
o
o
o
o
o
o
o
Expected results:
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Europol Unclassified – Basic Protection Level
Fundamental Rights Officer (FRO)
Objectives and actions
A.8.2 Ensure fundamental rights compliance in all internal and external
operational and administrative processes.
o
o
o
Continue monitoring Europol internal and external operational processes, including
deployments, and ensure their compliance with fundamental rights.
Advise on fundamental rights compliance in the innovation domain, including on AI.
Promote Europol’s respect of fundamental rights in the performance of its tasks and
activities, including by regularly organising targeted training activities for staff and
senior management.
Continue the assessment of cooperation agreements with Third Parties and on the
strategy for cooperation with private parties, with a view to ensure fundamental rights
compliance.
Network and ensure coordination with the fundamental rights officers of FRA and
CEPOL, including via the network of FROs.
Fundamental rights compliance in all Europol’s operational and
administrative processes.
o
o
Expected results:
Corporate communications
Objectives and actions
A.8.3 Ensure efficient internal and external communication.
o
o
o
Maintain and further develop media, press and public relations; develop and coordinate
external and internal communication networks and coordinate external publications.
Manage, maintain and continuously develop Europol’s website. Maintain the EU Most
Wanted website.
Continue mapping and documenting processes and workflows in the area of digital
communication. Continue evaluating external communication campaigns, including by
further developing an impact-based approach to (digital) communication evaluation.
Further explore and develop actions to engage with MS on awareness and preventions
activities, based on the principle of joint responsibility between Europol and MS.
Provide corporate audio-visual productions and campaigns targeting awareness raising
of Europol’s products and services. Optimise internal AV production capacity, including
by setting up an AV production studio.
Provide user support and training on the use of Open Source (OS) tools and databases
and implement newly identified OS/OSINT solutions. Produce OS reports and
contribute to country reports to support governance activities.
Deliver the annual Europol Excellence Award in Innovation.
Deliver effective media monitoring, crisis monitoring and media impact products and
services.
Maintain and develop Europol’s intranet as the main internal communication tool.
Continue work towards the implementation of an upgraded internal communication
platform.
o
o
o
o
o
o
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Expected results:
Europol maintains effective communication to external partners and
stakeholders. Europol and its brand identity are well positioned among
media.
A wider group of MS’ law enforcement officers are aware of Europol’s
products and services and of the benefits of international law
enforcement cooperation.
Effective media monitoring and open sources tools are in place and
broadly used.
Europol maintains effective internal communication.
Administration of Human resources
Objectives and actions
A.8.4 Ensure efficient human resource management.
o
Coordinate the implementation of the HR Strategy and relevant actions stemming from
the renewed Europol Strategy, as well as other organisational changes across Europol
as approved by the MB.
Plan and monitor the implementation of the establishment plan.
Ensure the coordination of talent acquisition, learning and development, appraisal,
probation and reclassification, on boarding and personnel administration for staff
(TA/CAs), SNEs, interns, law enforcement trainees and interim workers.
Develop and update HR related policies, implementing rules and processes.
Coordinate and monitor the implementation of the Diversity & Inclusion Strategy, in
line with the approved D&I Implementation Plan, which includes key actions, tasks and
responsibilities addressing i.a. gender balance.
Ensure the implementation of the Europol Health & Wellbeing (H&W) Policy, in line
with the HR Strategy.
Manage the salary administration and payment of allowances to staff and SNEs.
Manage the HR Management System (SYSPER) and coordinate the implementation of
additional modules and functionalities. Review HR related processes in view of the
implementation of new SYSPER modules.
Coordinate training of Europol staff. Further implement the Leadership and
Management Development Program.
Deliver health and wellbeing-related services.
Ensure the quality of the services after the insourcing of the medical service covering
both Europol and Eurojust (if progress achieved in 2024).
Increased HR efficiency, effectiveness and customer service delivery.
o
o
o
o
o
o
o
o
o
o
Expected results:
Financial and budget management
Objectives and actions
A.8.5 Ensure efficient financial and budget management.
o
o
Plan and monitor the implementation of the budget.
Develop and update finance related policies, implementing rules and processes.
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Europol Unclassified – Basic Protection Level
o
o
Monitor and further develop activity based budgeting and costing.
Execute financial initiation of revenue and expenditure; Perform ex-ante and ex-post
financial verification of all financial operations while advancing towards the full ex-ante
model as per Finance Unit Strategy, subject to available resources.
Manage tender planning and procedures in line with annual business and budget
planning.
Further review the contract management, budget planning and reporting, and financial
and grant administration activities performed by Europol, and assess the need for
further centralisation, in accordance with the Finance Unit Strategy.
Further improve sustainable procurement by integrating social consideration elements,
stemming from the Diversity & Inclusion Strategy.
Expand financial reporting via the new automated reporting solution.
Maintain the Travel Management System.
Finalise preparations for the replacement of the current accounting system ABAC at
Europol and explore interoperability possibilities with other systems.
Manage the administration and coordination of grants, including EMPACT, OTF/HVT,
ATLAS, EaP, Euro counterfeiting and Innovation.
Assess and utilise, where appropriate and subject to checking potential and actual
conflicts of interest as well as confirming availability of capacities, funding
opportunities in relation to calls within Europol’s remit for which the agency is eligible.
Ensured reliability and accuracy of Europol’s budget management.
Increased efficiency and effectiveness of financial processes and client
satisfaction.
o
o
o
o
o
o
o
o
Expected results:
Physical, personnel and information security
Objectives and actions
A.8.6 Ensure the necessary level of physical, personal and information security
at Europol.
o
Ensure the physical security of Europol’s buildings. Execute protective security
operations for the Executive Director, staff and participants at high-level meetings and
events.
Continuously strengthen operational effectiveness, improve incident response and
security compliance capabilities, enhance the security posture and foster cross-
departmental cooperation.
Ensure that security requirements concerning the expansion of Europol to a third
temporary satellite building are fulfilled.
Continue supporting the preparations for acquiring Europol’s second permanent
headquarters in terms of security requirements.
Continue upgrading the Security Control Room to cope with expanding security tasks
(e.g. monitoring of the satellite buildings).
Upgrade the security infrastructure of the Agency.
Identify innovative ways to communicate security awareness to Europol users.
Continue providing awareness and risk assessment for Europol staff deployed in
mission.
Ensure timely accreditation of information systems to ensure Information Security;
assess information security risks and provide risk treatment options.
118
o
o
o
o
o
o
o
o
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Europol Unclassified – Basic Protection Level
o
o
Perform technical security assessments of Europol’s ICT systems and propose
appropriate actions.
Implement necessary changes to Europol’s information security rules and procedures
in line with the requirements of the new Regulation laying down measures for a high
common level of cybersecurity, and the new Regulation on information security in the
institutions, bodies, offices and agencies of the Union.
Develop, implement and validate the business continuity framework.
Coordinate Europol's overall crisis management capability and Disaster Recovery
activities. Review and revise the current recovery strategies and develop alternative
ones.
Implement the revised Europol Anti-Fraud Strategy.
Implement the overall Business Continuity Strategy.
Implement new logbook or workflow application for physical security shift controllers,
to optimise and modernise the process, following the increase of the number of
buildings under Europol’s responsibility.
Improved safety and security for Europol’s buildings, staff and visitors.
Europol fulfils its obligations in terms of confidentiality and information
security.
o
o
o
o
o
Expected results:
Facilities services and environmental management
Objectives and actions
A.8.7 Progress towards the rationalisation and expansion of Europol’s facilities
services and enhanced environmental management.
o
o
o
o
o
o
o
Develop, maintain and implement the policies, guidelines and processes related to
services and products.
Develop, maintain and implement the budget, contracts and agreements related to
services and products.
Manage the non-ICT related assets and ensure compliance with the financial processes
and insurance scope.
Develop, maintain and implement digital workflows and self-service functionalities via
the Facilities Management Information System (FMIS).
Provide integrated, cross-horizontal services, with a focus on prioritising sustainability.
Support high-level visits and organise high-level events, such as the European Police
Chiefs Convention (EPCC).
Manage and improve Europol’s environmental management system and maintain the
registration of the EU Eco-Management and Audit Scheme (EMAS).
Undertake initiatives to improve the environmental performance of the organisation in
terms of sustainable procurement, carbon footprint, paper and water consumption,
and waste management and separation, in line with the Environmental Vision 2030
and the Environmental Objectives and Action Plan for the period 2023 – 2025.
Effective processes and tooling are in place to ensure optimal facilities
services and proper corporate environmental management.
o
Expected results:
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Europol Unclassified – Basic Protection Level
Strategic Housing Roadmap
Objectives and actions
A.8.8 Steer and coordinate the implementation of the Strategic Housing
Roadmap.
o
Advance with the implementation of the Mid-Term Housing Solution (MTHS) project in
the HQ to increase workplace capacity, provide additional meeting rooms and other
related facilities, and strengthen the building according to the applicable governmental
building regulations.
Temporary Satellite Building 1 (TSB 1) project: decommission the building and return
it to the Host State.
Temporary Satellite Building 2 (TSB 2) project: create additional workplaces, meeting
rooms and other related facilities to support the implementation of the MTHS in the
HQ and cover organisational growth and new business demands until the delivery of
HQ2 in 2029 - 2030. Building delivered and operational for use.
Temporary Satellite Building 3 (TSB 3) project: create additional workplaces additional
workplaces, meeting rooms and other related facilities to support organisational
growth and new business demands, until the delivery of HQ2 in 2029 – 2030. The first
stage of the building completed and operational for use.
Long-Term Housing Measures (LTHM) project:
headquarters (HQ2) forecasted in 2029 - 2030.
deliver
a
second
permanent
o
o
o
o
o
o
o
Hot Data Centre (HDC) project: develop the HDC for the establishment of a second
Data Centre in the Netherlands in order to ensure Europol’s business continuity, in
accordance with business requirements.
Low-rise Toren van Oud project: continue with the development of the Medical Centre
and Gym & Fitness facilities, in order to create space in the HQ for the implementation
of the MTHS.
Alternative Temporary Housing: progress on establishing alternative temporary
workplaces and meeting spaces to support organisational growth and new business
demands until the delivery of HQ2, forecasted 2029 - 2030.
The existing and new workplaces, meeting rooms and other related
facilities are used in an efficient and effective manner to support
organisational growth, new business demands and establish a
pleasant work environment.
Expected results:
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Europol Unclassified – Basic Protection Level
Indicators
% of pending critical/very important audit
recommendations implemented within the timeline
committed to by Europol and agreed with the
auditing body
Total number of News Articles mentioning Europol
(high-impact web-based media)
User Satisfaction
Vacancy rate
% of Female Staff
Budget Outturn Rate
Budget Commitment Rate
Budget Payment Rate
% of Late Payments (in value)
Emissions (tonnes CO2)
Latest result
(Q2 2024)
Target 2025
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Europol Unclassified – Basic Protection Level
Management Board Functions
Accountancy Unit (ACCU)
The Accountancy Unit is an independent unit within Europol with its Accounting Officer
appointed by/reportable directly to Europol’s Management Board (MB). Its main tasks and
responsibilities are to:
o
o
o
o
o
Implement all payments (including salaries and allowances);
Collect revenue and recovering amounts established as being receivable;
Implement the accounting rules and chart of accounts in accordance with the provisions
adopted by the European Commission;
Keep, prepare and present the annual accounts of Europol (financial statements and
reports on the implementation of the budget);
Lay down and validating the accounting systems; Manage the Treasury.
Data Protection Function (DPF)
The DPF is an integral part of Europol and the initial point of contact for all data protection
matters. The Data Protection Officer who acts as the Head of DPF is appointed by the MB
in accordance with Article 41 ER. DPF main tasks and responsibilities are to:
o
Ensure lawfulness and compliance in regards to data protection (e.g. compliance
reviews, annual activity report, written record of the transmission of data, register of
processing operations, handling of data subject request, handling of inquiries etc.);
Provide consultation in relation to legal and technical-organisational data protection
safeguards;
Provide training and awareness program for staff handling personal data;
Perform as the main contact point to external data protection supervisors (e.g. Europol
Data Protection Supervisor / National Data Protection Authorities).
Following the amended Europol Regulation, establish in timely manner new data
protection safeguards in order to ensure compliance with the amended rules.
o
o
o
o
Internal Audit Capability (IAC)
The IAC’s mission is to enhance Europol’s organisational value, by providing risk-based and
objective assurance, advice and insight. Its main tasks and responsibilities are to:
o
o
o
o
o
o
Evaluate the appropriateness of Europol's risk identification and management system,
and the effectiveness of the Internal Control Framework;
Review the arrangements established to ensure compliance with applicable legislation,
policies, plans and procedures;
Review the reliability and integrity of significant operating and financial information and
the means used to identify, measure, classify and report such information;
Evaluate the economy and efficiency with which resources are employed;
Review programs or operations to ascertain whether results are consistent with
established plans and objectives, and determine whether goals have been achieved;
Monitor and report on the implementation of audit recommendations issued by IAC.
Management Board Secretariat (MBS)
MBS is responsible for supporting the Chairperson of the Management Board in compliance
with the Europol Regulation. Its main tasks and responsibilities are to:
o
o
Support the coordination of the MB's work and ensure its coherence;
Organise activities and meetings of the MB and its Working Groups on Corporate matters
(legal, financial and personnel issues) and on Information Management, as well as ad
hoc meetings and working groups established by the Board;
Provide the MB with the necessary administrative support;
o
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Europol Unclassified – Basic Protection Level
o
Support oversight and policy-making activities regarding matters such as the
appointment of Executive Directors and Deputy Executive Directors, corporate
governance, human resources and external relations.
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Europol Unclassified – Basic Protection Level
ANNEXES
Annex I:
Organisational chart
Annex II:
Resource allocation per Activity 2025-2027
Annex III:
Financial Resources 2025-2027
Table 1 – Revenue
Table 2 – Expenditure
Table 3 – Budget outturn and cancellation of appropriations
Annex IV:
Human resources - quantitative
Table 1 – Staff population and its evolution; Overview of all categories of staff
Table 2 – Multi-annual staff policy plan year 2025-2027
Table 3 – Recruitment forecasts 2025
Annex V: Human resources qualitative
A. Recruitment policy
B. Appraisal of performance and reclassification/promotions
C. Gender representation
D. Geographical balance
E. Schooling
Annex VI:
Environment management
Annex VII:
Building policy
Annex VIII:
Privileges and immunities
Annex IX:
Evaluations
Annex X:
Strategy for the organisational management and internal control systems
Annex XI:
Grants
Annex XII:
Strategy for cooperation with third countries and/or international organisations
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Europol Unclassified – Basic Protection Level
Annex I: Organisational chart of the Agency for year 2025
80
35
Executive Director
TA 2*
CAB Corporate
Affairs Bureau
TA 19
CA 13
SNE 1
617
137
322
Operations (O) Directorate
TA 7
Operational Centre
TA 41;CA 3;SNE 5
Analysis & Strategic
Coordination
TA 37;CA 5;SNE 3
Integrated Operational
Services
TA 20;CA 20;SNE 2
EU Drugs Unit
Governance (G) Directorate
TA 3
CA 1
Capabilities (C) Directorate
TA 2
O1 Operational &
Analysis Centre
(OAC)
TA 1
CA 1
ICT Strategy &
Execution Coordination
G2 Institutional &
Legal Affairs
TA 12
CA 4
TA 27; CA 1
Strategy & External
Relations
TA 19; CA 7
C1 ICT
ICT Solutions Delivery
TA 42; CA 23
TA 1
CA 1
ICT Operations
TA 63; CA 24
O2 European
Serious &
Organised Crime
Centre (ESOCC)
TA
CA
3
2
TA 36;CA 1;SNE 19
EU Organised Crime Unit
TA 30;CA 1;SNE 37
European Migrant
Smuggling Centre (EMSC)
TA 40;CA 1;SNE 12
EC3 Operations
TA 43;SNE 10
Security Operations
Finance
G5 Corporate
Security
TA 2
CA 3
TA 3; CA 48
Security Risk
Management &
Services
TA 16; CA 19
C2 Administration
TA 1
CA 1
TA 31; CA 22
Human Resources
TA 20; CA 25
O3 European
Cyber Crime
Centre (EC3)
TA
CA
1
1
EC3 Expertise &
Stakeholder Mgmt
TA 13;CA 6;SNE 1
Digital Support Unit
TA 25;CA 1;SNE 4
ECTC Expertise &
Stakeholder Mgmt
TA 14;CA 1;SNE 2
Information
Management Unit
TA 32;CA 5;SNE 1
Liaison Bureaux
O4 European
Counter Terrorism
Centre (ECTC)
TA 2
CA 2
SNE 1
CT Operations
TA 41;CA 1;SNE 2
EU Internet Referral Unit
(IRU)
TA 31;CA 5;SNE 9
EFECC Operations
TA 48;CA 1;SNE 12
Management Board Functions
Management Board
Secretariat (MBS)
Data Protection
Function (DPF)
19
Accountancy
Unit (ACCU)
Internal Audit
Capability (IAC)
O5 European
Financial &
Economic Crime
Centre (EFECC)
TA
CA
1
1
TA 3; CA 1
TA 7; CA 2
Level:
Directorate
Level:
Department
TA 3
TA 2; CA 1
EFECC Expertise &
Stakeholder Mgmt
TA 10;CA 1
Level:
Unit
* Including the Fundamental Rights Officer
80
In line with the most updated allocation of posts for 2024.
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Europol Unclassified – Basic Protection Level
Annex II: Resources allocation per activity 2025 – 2027
Year 2024
CA &
SNE
(FTE)
A.1. Development of
operational ICT and IM
capabilities
A.2. Operational
Coordination
A.3. Combating Serious and
Organised Crime
A.4. Combating Cyber Crime
A.5. Counter-Terrorism
A.6. Combating Financial and
Economic Crime
A.7. Strategic and Analysis
Coordination
Total Operational Activities
A.8. Governance, support
and administration (incl.
MBF)
INITIATIVES 2025-2027
Anti-migrant smuggling (LFS)
Digital Services Act (DSA)
Interoperability (I/O)
Second Data Centre
Information Exchange Directive
Strategic Housing Roadmap
Governance and Administration
Correction for synergies Anti-
migrant smuggling
83
(LFS)
Total Additional Resources
Total
81
Year 2025
Resource estimates
TA
CA &
SNE
(FTE)
168
75
111
84
90
61
52
641
132
55
34
78
23
23
10
9
Budget
allocated
82,074,000
20,183,900
29,241,200
17,893,500
23,571,000
11,526,200
10,130,700
TA
Year 2026
81
Resource estimates
CA &
SNE
(FTE)
167
76
113
85
91
62
53
647
133
55
34
78
23
23
10
9
232
144
Budget
allocated
83,980,900
20,214,700
30,646,300
18,816,900
17,610,700
13,084,700
10,215,000
194,569,200
41,079,499
TA
Year 2027
2
Resource estimates
CA &
SNE
(FTE)
168
76
114
86
92
63
53
652
133
55
34
78
23
23
10
9
232
144
Budget
allocated
83,183,500
20,164,300
29,765,000
17,628,700
23,391,700
11,500,600
10,079,300
195,713,100
41,213,211
TA
Budget
allocated
77,966,300
16,802,300
30,457,700
16,955,800
18,333,200
11,643,400
8,979,300
181,138,000
37,089,705
165
73
109
83
88
59
50
627
127
55
34
78
23
23
10
10
233
143
232 194,620,500
82
144
42,094,197
4
3
8
23
1
12
4
7
16
2
15,758,000
3,424,000
3,570,000
72,000
9,460,000
7
13
60
3
26
6
13
31
4
19,679,000
5,055,840
11,226,440
7,736,000
6,632,960
10
15
74
3
47
6
16
40
6
13,456,000
5,245,318
13,591,407
8,072,112
9,767,491
20
9,727,377
504,000
- 9,902,000
20
13,381,024
1,468,800
- 10,871,000
20
13,358,537
2,172,355
- 4,248,000
58
754
376
218,227,705
831
38
414
32,613,377
269,328,074
128
908
55
431
54,309,064
289,957,763
171
956
66
442
61,415,220
298,341,531
Figures for 2026 and 2027 are indicative.
The estimates for 2025 include an additional request of EUR 13.1 to cover the inflation effects affecting mainly staff costs, as estimated in the COM’s Budget Circular 2025.
83
The total budget allocated in the LFS of COM(2023)754 is: 2025: 15,758,000; 2026:19,679,000; 2027:13,456,000. The correction in the table indicate the synergies identified between
the funds allocated in COM(2023)754 with other initiatives, in particular Interoperability (Biometrics) and the Information Exchange Directive.
82
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Europol Unclassified – Basic Protection Level
Annex III: Financial Resources 2025 – 2027
Table 1 - Revenue
General revenues
REVENUES
2024
Revenues estimated by the
agency
EU contribution
Other revenue
TOTAL REVENUES
218,227,705
269,328,074
General revenues
REVENUES
Executed
2023
1 REVENUE FROM FEES AND
CHARGES
2 EU CONTRIBUTION
- Of which assigned revenues deriving
from previous years' surpluses
3 THIRD COUNTRIES
CONTRIBUTION (incl. EEA/EFTA and
candidate countries)
- Of which EEA/EFTA (excl. Switzerland)
- Of which candidate countries
4 OTHER CONTRIBUTIONS
5 ADMINISTRATIVE OPERATIONS
- Of which interest generated by funds
paid by the Commission by way of the
EU contribution (FFR Art. 58)
6 REVENUES FROM SERVICES
RENDERED AGAINST PAYMENT
7 CORRECTION OF BUDGETARY
IMBALANCES
TOTAL
207,176,212
218,227,705
269,328,074
1.23
289,957,763
298,341,531
5,098,619
10,314,092
4,206,597
207,176,212
Estimated
by the
agency
2024
218,227,705
2025
Agency
request
269,328,074
Budget
forecast
VAR
2025/
2024
(%)
1.23
Envisaged
2026
Envisaged
2027
218,227,705
2025
Budget forecast
269,328,074
289,957,763
298,341,531
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Europol Unclassified – Basic Protection Level
Additional EU funding: grant, contribution and service-level agreements
REVENUES
2024
Revenues estimated by the agency
TOTAL REVENUES
2,009,712
2025
Budget forecast
Additional EU funding: grant, contribution and service-level agreements
REVENUES
Executed
2023
ADDITIONAL EU FUNDING STEMMING
FROM GRANTS (FFR Art.7)
ADDITIONAL EU FUNDING STEMMING
FROM CONTRIBUTION AGREEMENTS
(FFR Art.7)
ADDITIONAL EU FUNDING STEMMING
FROM SERVICE LEVEL AGREEMENTS
(FFR Art. 43.2)
TOTAL
787,881
1,688,942
Estimated by
the agency
2024
222,800
656,912
2025
Agency
request
167,100
-
Budget
forecast
VAR
2025/2024
(%)
0.75
-
Envisaged
2026
Envisaged
2027
-
-
-
-
1,062,144
3,538,967
1,130,000
2,009,712
1,030,000
1,197,100
0.91
0.60
1,030,000
1,030,000
1,030,000
1,030,000
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Europol Unclassified – Basic Protection Level
Table 2 - Expenditure
Expenditure
Commitment
appropriations
Title 1 - Staff expenditure
Title 2 - Infrastructure and
operating expenditure
Title 3 - Operational expenditure
TOTAL EXPENDITURE
117,817,323
15,105,338
85,305,044
218,227,705
2024
Payment
appropriations
117,817,323
15,105,338
82,796,844
215,719,505
Commitment
appropriations
146,564,978
17,198,399
105,564,697
269,328,074
2025
Payment
appropriations
146,564,978
17,198,399
101,082,197
264,845,574
Commitment appropriations
EXPENDITURE
Executed Budget
2023
Budget
2024
Draft Budget 2025
Agency request
Budget forecast
VAR
2025/2024
(%)
Envisaged
2026
Envisaged
2027
Title 1 Staff Expenditure
11 Salaries & allowances
- of which establishment plan posts
- of which external personnel
13 Socio-medical infrastructure
14 Training
15 Other staff-related expenditure
16 Entertainment and representation expenses
Title 2 Other administrative expenditure
20 Rental of buildings and associated costs
21 Administrative information technology
22 Movable property and associated costs
23 Current administrative expenditure
24 Postal charges and telecommunications
25 Statutory expenditure
Title 3 Operational activities
114,234,450
105,395,153
87,964,759
17,430,394
878,665
135,000
7,704,910
120,722
15,310,202
10,487,653
1,919,781
643,909
391,968
1,009,196
857,695
77,176,709
117,817,323
106,471,800
88,718,800
17,753,000
1,074,318
292,500
9,867,205
111,500
15,105,338
11,061,114
1,339,000
1,082,888
540,036
70,300
1,012,000
85,305,044
146,564,978
131,324,000
108,484,000
22,840,000
1,460,197
298,000
13,371,581
111,200
17,198,399
13,060,616
1,339,000
1,146,230
568,847
71,706
1,012,000
105,564,697
1.24
1.23
1.22
1.29
1.36
1.02
1.36
1.00
1.14
1.18
1.00
1.06
1.05
1.02
1.00
1.24
151,864,565
136,554,768
114,291,980
22,262,788
1,489,401
303,960
13,403,012
113,424
23,039,067
18,818,528
1,365,780
1,169,155
580,224
73,140
1,032,240
115,054,131
163,230,527
147,621,034
124,832,833
22,788,201
1,519,189
310,039
13,664,572
115,692
22,102,848
17,797,899
1,393,096
1,192,538
591,828
74,603
1,052,885
113,008,156
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Europol Unclassified – Basic Protection Level
Commitment appropriations
EXPENDITURE
Executed Budget
2023
30 Operations
31 Operational information technology
32 Telecommunication costs for operational
activities
33 Seconded National Experts (Operational)
84
34 EPCC
35 Heads of Europol National Units
38 Decryption Platform
39 Grants
85
TOTAL EXPENDITURE
Budget
2024
Draft Budget 2025
Agency request
VAR
2025/2024
Budget forecast
(%)
Envisaged
2026
Envisaged
2027
16,090,786
40,692,851
606,210
6,508,092
251,499
127,016
1,128,308
11,771,947
206,721,361
15,012,475
45,845,456
1,803,113
7,739,000
270,000
160,000
1,000,000
13,475,000
218,227,705
16,180,562
63,312,022
1,803,113
8,489,000
270,000
160,000
1,000,000
14,350,000
269,328,074
1.08
1.38
1.00
1.10
1.00
1.00
1.00
1.06
1.23
17,841,859
71,465,496
1,839,175
9,149,000
275,400
163,200
1,020,000
13,300,000
289,957,763
15,849,939
67,845,963
1,875,959
9,662,522
280,908
166,464
1,040,400
16,286,000
298,341,531
Payment appropriations
EXPENDITURE
Executed Budget
2023
Title 1 Staff Expenditure
11 Salaries & allowances
- of which establishment plan posts
- of which external personnel
13 Sociomedical infrastructure
14 Training
15 Other staff-related expenditure
16 Entertainment and representation expenses
Budget
2024
Draft Budget 2025
Agency request
Budget forecast
VAR
2025/2024
(%)
Envisaged
2026
Envisaged
2027
114,234,450
105,395,153
87,964,759
17,430,394
878,665
135,000
7,704,910
120,722
117,817,323
106,471,800
88,718,800
17,753,000
1,074,318
292,500
9,867,205
111,500
146,564,978
131,324,000
108,484,000
22,840,000
1,460,197
298,000
13,371,581
111,200
1.24
1.23
1.22
1.29
1.36
1.02
1.36
1.00
151,864,565
136,554,768
114,291,980
22,262,788
1,489,401
303,960
13,403,012
113,424
163,230,527
147,621,034
124,832,833
22,788,201
1,519,189
310,039
13,664,572
115,692
Including for 2025 EUR 3.3M for Short-term SNEs.
Including for 2025 differentiated appropriations amounting to EUR 14,350,000 (EUR 2 000 000 for EMPACT, EUR 6 000 000 for OTF, EUR 6 000 000 for ATLAS and EUR 350 000 for
Innovation grants). This includes EUR 4 000 000 preliminarily allocated in the LFS of COM(2023)754 for grants, i.e. EUR 2 000 000 for EMPACT, and EUR 2 000 000 for OTF.
84
85
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Europol Unclassified – Basic Protection Level
Payment appropriations
EXPENDITURE
Executed Budget
2023
Budget
2024
Draft Budget 2025
Agency request
Budget forecast
VAR
2025/2024
(%)
Envisaged
2026
Envisaged
2027
Title 2 Other administrative expenditure
20 Rental of buildings and associated costs
21 Administrative information technology
22 Movable property and associated costs
23 Current administrative expenditure
24 Postal charges and telecommunications
25 Statutory expenditure
Title 3 Operational activities
30 Operations
31 Operational information technology
32 Telecommunication costs for operational
activities
33 Seconded National Experts (Operational)
86
34 EPCC
35 Heads of Europol National Units
38 Decryption Platform
39 Grants
87
TOTAL EXPENDITURE
15,310,202
10,487,653
1,919,781
643,909
391,968
1,009,196
857,695
75,085,605
16,090,786
40,692,851
606,210
6,508,092
251,499
127,016
1,128,308
9,680,843
204,630,257
15,105,338
11,061,114
1,339,000
1,082,888
540,036
70,300
1,012,000
82,796,844
15,012,475
45,845,456
1,803,113
7,739,000
270,000
160,000
1,000,000
10,966,800
215,719,505
17,198,399
13,060,616
1,339,000
1,146,230
568,847
71,706
1,012,000
101,082,197
16,180,562
63,312,022
1,803,113
8,489,000
270,000
160,000
1,000,000
9,867,500
264,845,574
1.14
1.18
1.00
1.06
1.05
1.02
1.00
1.22
1.08
1.38
1.00
1.10
1.00
1.00
1.00
0.90
1.23
23,039,067
18,818,528
1,365,780
1,169,155
580,224
73,140
1,032,240
115,321,631
17,841,859
71,465,496
1,839,175
9,149,000
275,400
163,200
1,020,000
13,567,500
290,225,263
22,102,848
17,797,899
1,393,096
1,192,538
591,828
74,603
1,052,885
111,742,156
15,849,939
67,845,963
1,875,959
9,662,522
280,908
166,464
1,040,400
15,020,000
297,075,531
Table 3 Budget outturn and cancellation of appropriations 2020-2023 (N-4 – N-2)
Budget outturn
Revenue actually received (+)
Payments made (-)
2020
160,660,117
(132,636,293)
2021
177,370,336
(148,871,757)
2022
201,325,849
(165,414,326)
2023
217,166,022
(191,340,681)
Including for 2025 EUR 3.3M for Short-term SNEs.
Including for 2025, among others, differentiated payments appropriations amounting to EUR 9 867 500 (EUR 2 862 500 for EMPACT, EUR 120 000 for fighting EURO
counterfeiting, EUR 3 100 000 for OTF, EUR 3 600 000 for ATLAS and EUR 185 000 for Innovation grants).
86
87
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Europol Unclassified – Basic Protection Level
Carry-over of appropriations (-)
Cancellation of appropriations carried over (+)
Adjustment for carry-over of assigned revenue
appropriations from previous year (+)
Exchange rate differences (+/-)
Total
(32,201,626)
2,471,557
5,056,138
(424)
3,349,469
(37,028,367)
2,926,585
10,702,251
(428)
5,098,619
(40,478,220)
3,802,497
11,078,105
186
10,314,092
(30,754,730)
3,737,470
7,475,344
(28)
6,283,397
Descriptive information and justification on:
Budget outturn
The overall budget result for the financial year 2023 comes to EUR 6 283 397. This includes the following:
-
An amount of EUR 454 662 of not committed and lapsed commitment appropriations for non differentiated appropriations;
-
An amount of EUR 14 493 of not paid payment appropriations for differentiated appropriations;
-
An amount of EUR 3 737 470 of not used payment appropriations carried forward from 2022 to 2023;
-
An amount of EUR 2 076 800 cashed for the differentiated appropriations which was not used for the payment appropriations;
-
The exchange rate difference in 2023 was EUR 28 (loss).
Cancellation of payment appropriations carried forward
The carry forward to 2023 came to a total of EUR 33 002 876 to cover existing commitments. The final implementation rate of the carry
forward was 88.7% at the end of the year. A total of EUR 3 737 470 was not used and is thus incorporated in the final budget outturn.
EUR 202 640 relates to Title 1, which is 19.1% of the carried forward amount under Title 1 (EUR 1 059 629);
EUR 534 966 relates to Title 2, which is 13.1% of the carried forward amount under Title 2 (EUR 4 078 648); and
EUR 2 999 864 relates to Title 3, which is 10.8% of the carried forward amount under Title 3 (EUR 27 864 599).
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Europol Unclassified – Basic Protection Level
Annex IV: Human resources quantitative
Table 1: Staff population and its evolution; Overview of all categories of staff
A.
Statutory staff and SNE
Staff
Year 2023
Authorised Budget
693
23
Actually filled as
of 31/12/2023
682
22
Occupancy
rate %
98.4%
95.7%
Year 2024
Authorised
staff
731
23
Year 2025
Envisaged staff
808
23
Year 2026
Year 2027
ESTABLISHMENT PLAN POSTS
Administrators (AD)
Assistants (AST)
Assistants/Secretaries (AST/SC)
TOTAL ESTABLISHMENT PLAN
POSTS
Envisaged staff Envisaged staff
885
23
933
23
716
FTE
corresponding
to the
authorised
budget
235
121
356
1072
704
Executed
FTE as of
31/12/2023
88
98.3%
754
Headcount
as of
31/12/2023
223
89
312
831
FTE
corresponding
to the
authorised
budget
280
134
414
908
956
EXTERNAL STAFF
Execution
rate %
Envisaged
FTE
Envisage
d FTE
Contract Agents (CA)
Seconded National Experts (SNE)
TOTAL EXTERNAL STAFF
TOTAL STAFF
218.4
94.3
312.7
1016.7
92.9%
77.9%
87.8%
94.8%
289
142
431
295
147
442
CA financed from the EU contribution: 223 Headcount (218.4 Annual average FTE); CA financed from other sources: 17 Headcount (18.7 Annual average FTE). SNE financed from the
EU contribution at 31/12/2023: 55 Headcount (55.7 Annual average FTE) and Short-term costed SNE: 34 Headcount (38.5 Annual average FTE). SNE financed from other sources: 7
Headcount (5.8 Annual average FTE). Cost free SNE: 26 Headcount (26.3 Annual average FTE); SNE Guest Officers: 63 Headcount (75.6 Annual average FTE).
88
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Europol Unclassified – Basic Protection Level
B. Additional external staff expected to be financed from grant, contribution or service-level agreements
Human Resources
Contract Agents (CA)
Seconded National Experts (SNE)
TOTAL
Year 2024
Year 2025
Year 2026
Year 2027
Envisaged FTE Envisaged FTE Envisaged FTE Envisaged FTE
16
8
24
5
8
13
2
8
10
2
8
10
C. Other Human Resources
Structural service providers
89
Actually in place as at
31/12/2023
IT
Facilities
Security
Other
TOTAL
197
48
22
4
271
Interim workers
Total FTEs in year
2023
Number
N/A
Service providers are contracted by a private company and carry out specialised outsourced tasks of a horizontal/support nature. At the EU Commission, following general criteria
should be fulfilled: 1) no individual contract with the EU Commission 2) on the EU Commission premises, usually with a PC and desk 3) administratively followed by the EU Commission
(badge, etc.) and 4) contributing to the added value of the EU Commission. Similarly, Europol reports on the number of contractors with IT access.
89
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Europol Unclassified – Basic Protection Level
Table 2 – Multi-annual staff policy plan 2025 - 2027
and grade
Function
group
Year 2023
Authorised budget
Permanent
posts
Temporary
posts
1
3
2
11
10
21
47
92
216
282
8
693
14
4
20
46
79
225
281
9
682
Actually filled as of 31/12
Permanent
posts
Temporary
posts
1
1
2
Year 2024
90
Authorised budget
Perm.
posts
Temp.
posts
1
1
2
3
11
11
24
51
105
239
276
7
731
Year 2025
Envisaged
Perm.
posts
Temp.
posts
1
1
2
4
11
15
29
62
133
255
288
7
808
Year 2026
Envisaged
Perm.
Posts
Temp.
posts
1
1
2
5
13
18
35
77
157
267
303
6
885
Perm.
posts
Year 2027
Envisaged
Temp.
posts
1
1
2
8
14
21
43
78
194
276
290
5
933
AD 16
AD 15
AD 14
AD 13
AD 12
AD 11
AD 10
AD 9
AD 8
AD 7
AD 6
AD 5
AD TOTAL
AST 11
AST 10
AST 9
AST 8
AST 7
AST 6
AST 5
AST 4
AST 3
AST 2
1
2
5
4
3
2
6
1
1
5
4
3
3
5
1
3
5
3
3
3
5
1
3
6
2
3
4
4
1
3
6
2
3
4
4
2
3
5
3
3
4
3
90
In accordance with Article 38, paragraph 1, of the Decision of the Europol Management Board on the adoption of the Financial Regulation applicable to Europol (EDOC#1032027v6),
the Management Board hereby agrees with a modification of the establishment plan, should the interest of the service so require (e.g. in the context of the reclassification exercise), by
up to 10% of posts authorised subject to the following conditions:
a)
the volume of staff appropriations corresponding to a full financial year is not affected;
b)
the limit of the total number of posts authorised by the establishment plan is not exceeded;
c)
Europol has taken part in a benchmarking exercise with other Union bodies as initiated by the Commission’s staff screening exercise.
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Europol Unclassified – Basic Protection Level
and grade
Function
group
Year 2023
Authorised budget
Permanent
posts
Temporary
posts
Actually filled as of 31/12
Permanent
posts
Temporary
posts
Year 2024
90
Authorised budget
Perm.
posts
Temp.
posts
23
Year 2025
Envisaged
Perm.
posts
Temp.
posts
23
Year 2026
Envisaged
Perm.
Posts
Temp.
posts
23
Perm.
posts
Year 2027
Envisaged
Temp.
posts
23
AST 1
AST TOTAL
AST/SC 6
AST/SC 5
AST/SC 4
AST/SC 3
AST/SC 2
AST/SC 1
AST/SC TOTAL
TOTAL
GRAND TOTAL
716
716
704
704
754
754
831
831
908
908
956
956
23
22
External personnel
Contract Agents
Contract agents
FTE
Executed FTE as Headcount as of
FTE
corresponding to of 31/12/2023
31/12/2023 corresponding to
the authorised
the authorised
budget 2023
budget 2024
59
118
58
235
57.3
106.8
54.3
218.4
62
109
52
223
79
118
58
255
FTE envisaged
2025
FTE envisaged
2026
FTE envisaged
2027
Function Group IV
Function Group III
Function Group II
Function Group I
TOTAL
89
122
69
280
98
122
69
289
104
122
69
295
Seconded National Experts
Seconded National Experts
FTE
Executed FTE as Headcount as of
FTE
corresponding to of 31/12/2023
31/12/2023 corresponding to
the authorised
the authorised
budget 2023
budget 2024
121
94.3
89
121
FTE envisaged
2025
FTE envisaged
2026
FTE envisaged
2027
TOTAL
134
142
147
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Europol Unclassified – Basic Protection Level
Table 3 - Recruitment forecasts 2025 following retirement/mobility or new requested posts
(information on the entry level for each type of posts: indicative table)
Job title in the Agency
Type of contract
(Official, TA or CA)
TA/Official
Function group/grade of recruitment
internal (brackets) and external (single
grade) foreseen for publication*
New posts requested due
to additional tasks
77 TA posts (including 19
stemming
from
amended
Europol Regulation, 3 from
legislative proposal to prevent
and fight migrant smuggling
COM(2023) 754 final and 61 as
agency request to fulfil tasks for
Interoperability
(incl.
establishing a second data
centre), Digital Services Act,
Information Exchange Directive
and to implement the Strategic
Housing Roadmap).
25 CA posts (including 5
stemming from the legislative
proposal to prevent and fight
migrant smuggling COM(2023)
754 final and 20 as agency
request
to
implement
the
Strategic Housing Roadmap).
CA
Recruitment
Function
Group (I,
II, III or
IV)
Due to foreseen
retirement/mobility
Allocation of new posts /
replacement of staff
members due to resignation
/ contract expiry and
definition of profiles will be
done in line with Europol’s
mandate and business
priorities and on the basis of
the MASPP.
Number of anticipated
compulsory retirements:
5 (2 TAs and 3 CAs)
End of 2
nd
contracts:
-
TA contracts: 16
(restricted) + 21
potentially (non-
restricted – pending
outcome of different
indefinite contract
procedures)
-
CA contracts: 15 (5
FGII, 7 FGIII and 3
FGIV)
Internal (brackets)
Will be updated once
the final budget is
adopted; however most
internal recruitments
will be in the brackets
AD5-AD12 and AD7-
AD12
External (brackets)
Will be updated once
the final budget is
adopted; however
most recruitments will
be AD6/Specialist or
AD7/Senior Specialist
No significant
change
expected vis-
à-vis current
CAs.
*Indication of both is required
Number of inter-agency mobility Year 2024 from and to the Agency:
To be filled in in final PD 2025-2027
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Europol Unclassified – Basic Protection Level
Annex V: Human resources qualitative
A. Recruitment policy
Implementing rules in place:
Yes
Engagement of CA
Model Decision C(2019)3016
x
Decision of the Management Board of
Europol of 28 February 2019 laying down
general implementing provisions on the
procedures governing the engagement and
use of temporary staff under Article 2(f) of
the Conditions of Employment of Other
Servants of the European Union
Decision of the Management Board of
Europol of 04 October 2019 on middle
management staff
No
If no, which other implementing rules are in
place
Engagement of TA
Model Decision C(2015)1509
x
Middle
management
Type of posts
Model decision C(2018)2542
x
Model Decision C(2018)8800
x
Decision of the Management Bard of
Europol of 23 May 2019 concerning the
function of adviser
Function of Adviser
Model Decision C(2018) 2209
x
Decision of the Management Board of
Europol of 28 June 2022 defining the
Europol posts that can be filled only by staff
engaged from the competent authorities of
the Member States (“restricted posts”)
Others
Decision of the Management Board of
Europol of 21 March 2023 laying down rules
on the secondment of national experts to
Europol
Rules for the selection, extension of the
term of office and removal from office of
the Executive Director and Deputy
Executive Directors (adopted by the MB)
B. Appraisal and reclassification/promotions
Implementing rules in place:
Yes
Reclassification of
TA
Reclassification of
CA
Model Decision C(2015)9560
Model Decision C(2015)9561
X
X
No
If no, which other implementing rules are in
place
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Appraisal of TA
Model Decision C(2015) 1513
X
Automatic
entry
into force
of
Commission Decision C(2013)8985
C(2016) 7270
the
and
Appraisal of CA
Others
Model Decision C(2015) 1456
X
Management Board Decision of 3 December
2014 adopting the Commission Decision
C(2014)2226 by analogy
Decision of the Management Board of
Europol on the appraisal, probationary
period and management trial period of the
Executive Director and Deputy Executive
Directors.
Table 1 - Reclassification of TA/promotion of officials
Average seniority in the grade among reclassified staff
Grades
AD05
AD06
AD07
AD08
AD09
AD10
AD11
AD12
AD13
AST1
AST2
AST3
AST4
AST5
AST6
AST7
AST8
AST9
AST10
(Senior
assistant)
AST/SC1
AST/SC2
AST/SC3
AST/SC4
AST/SC5
8.0
2.3
3.4
5.71
6.8
4.4
9.0
3.25
Year
2020
4.0
5.0
5.2
5.8
7.2
4.8
5.2
7.1
8.2
6.8
5.3
5.3
5.8
3.9
7
5.5
Year
2021
Year
2022
Year
2023
5.3
5.0
5.0
7.3
3.9
10
6.8
Year
2024
Actual
average over
5 years
Average over 5
years
(According to Decision
C(2015)9563)
2.8
2.8
2.8
3
4
4
4
6.7
6.7
3
3
3
3
4
4
4
4
N/A
5
4
5
5.9
6.7
8.3
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Table 2 -Reclassification of contract staff
Function
Group
Grade
Staff in activity
at 1.01.2022
How many
staff members
were
reclassified in
Year 2023
Average
number of
years in grade
of reclassified
staff members
Average number of
years in grade of
reclassified staff
members according to
decision C(2015)9561
N.A
2
5
3.6
3.4
Between 5 and 7 years
Between 4 and 6 years
Between 3 and 5 years
Between 3 and 5 years
N.A
6
2
5
5.6
5.4
4.4
Between 6 and 10 years
Between 5 and 7 years
Between 4 and 6 years
Between 3 and 5 years
N.A
2
6
1
5.6
4.8
3.5
Between 6 and 10 years
Between 5 and 7 years
Between 3 and 5 years
Between 6 and 10 years
Between 3 and 5 years
CA IV
17
16
15
14
13
1
13
7
39
9
9
31
28
36
6
2
12
34
3
CA III
12
11
10
9
8
CA II
7
6
5
4
CA I
2
1
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C. Gender representation
Table 1 - Data on 31/12/2023 - statutory staff (only officials, TA and CA)
Official
Staff
Administrator
level
Female
Assistant
level (AST &
AST/SC)
Total
Administrator
level
Male
Assistant
level (AST &
AST/SC)
Total
Grand
Total
%
Temporary
Staff
184
17
201
465
5
470
671
%
92%
8%
30%
99%
1%
70%
100%
116
240
48%
100%
586
911
64%
100%
124
52%
325
36%
Contract
Agents
Staff
%
Grand Total
Staff
%
Table 2 - Data regarding gender evolution over 5 years of Middle and Senior
management
91
2019
Number
Female Managers
Male Managers
5
27
%
16%
84%
Number
8
28
2023
%
22%
78%
91
Staff defined as middle manager by the applicable General Implementing provisions on middle management.
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D. Geographical Balance
Explanatory figures to highlight nationalities of staff (split per Administrator/CA FG IV and
Assistant /CA FG I, II, III)
Table 1 - Table on 31/12/2023 - statutory staff only (officials, AD and CA)
Nationality
AD + CA FG IV
Number
% of total
staff
members
in AD and
FG IV
categories
1%
5%
3%
2%
1%
1%
0%
1%
2%
7%
7%
10%
2%
2%
10%
0%
2%
0%
0%
9%
4%
4%
12%
1%
1%
12%
2%
0%
100%
AST/SC- AST + CA
FGI/CA FGII/CA FGIII
Number
% of total
staff
members in
AST SC/AST
and FG I, II
and III
categories
0
0%
4
2%
8
4%
2
1%
0
0%
2
1%
0
0%
0
0%
2
1%
3
2%
4
2%
12
6%
9
5%
3
2%
13
7%
2
1%
7
4%
1
1%
0
0%
57
30%
4
2%
8
4%
27
14%
1
1%
2
1%
16
9%
1
1%
0
0%
188
100%
TOTAL
Number
% of
total
staff
Austria
Belgium
Bulgaria
Croatia
Cyprus
Czech Republic
Denmark
Estonia
Finland
France
Germany
Greece
Hungary
Ireland
Italy
Latvia
Lithuania
Luxembourg
Malta
Netherlands
Poland
Portugal
Romania
Slovakia
Slovenia
Spain
Sweden
United Kingdom
TOTAL
8
39
21
16
7
6
0
5
13
47
48
71
17
11
69
3
13
0
2
65
29
32
84
6
10
86
12
3
723
8
43
29
18
7
8
0
5
15
50
52
83
26
14
82
5
20
1
2
122
33
40
111
7
12
102
13
3
911
0.9%
4.7%
3.2%
2.0%
0.8%
0.9%
0.0%
0.5%
1.6%
5.5%
5.7%
9.1%
2.9%
1.5%
9.0%
0.5%
2.2%
0.1%
0.2%
13.4%
3.6%
4.4%
12.2%
0.8%
1.3%
11.2%
1.4%
0.3%
100%
Table 2 - Evolution over 5 years of the most represented nationality in the Agency
Most represented nationality
The Netherlands
2019
Number
99
%
13%
Number
122
2023
%
13%
In case of significant continuous imbalance, please explain and detail action plan implemented in the
agency: N/A
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E. Schooling
Agreement in place with the European School(s) of The Hague
Contribution agreements signed with the EC on type I European
schools
Contribution agreements
92
signed with the EC on type II
European schools
Number of service contracts in place with international schools:
Description of any other solutions or actions in place:
N/A
Yes
Yes
N/A
X
No
No
X
A
Contribution Agreement
was concluded between the European Commission and Stichting Het Rijnlands Lyceum
to define the conditions for payment of the
EU Contribution
for pupils of Europol staff enrolled in the European School
in The Hague. A
Mandate and Service Agreement
was concluded between Europol and the European Commission to
define the collaboration with respect to the implementation of the aforementioned
EU Contribution.
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Annex VI: Environment management
1. Context of the Agency and its environmental management strategy
Europol recognises its responsibility for making a positive contribution to
sustainable development and commits itself to protect the environment by
limiting the environmental impact of its activities and to continuously improve
its environmental performance.
2. Overview of the agency's Environmental Management System
Europol uses and maintains an Environmental Management System (EMS), implemented in
line with the requirements of EMAS and ISO 14001:2015. Its components, scope,
responsibilities, activities of yearly cycle, processes and related EMS documentation are
documented in the
Environmental Management System Manual
(Europol internal document).
The EMAS process descriptions are integrated in the Europol process landscape.
The implementation of EMAS directly supports Europol’s Strategy "Delivering Security in
Partnership", and in particular, the strategic priority number 6, which is to ‘be the model EU
organisation for law enforcement cooperation’. EMAS also supports Europol in its commitment
to contribute to the EU Green Deal’s main objective of a climate neutral Europe by 2050.
3. Environmental areas, indicators and targets
Europol’s activities, products and services have both direct and indirect impacts on the
environment. Under EMAS, Europol monitors those activities and significant environmental
aspects that influence Europol’s carbon footprint and impact for environment. In particular,
the
environmental areas
defined in the EMS and implemented at Europol, are the following:
Carbon footprint
Energy efficiency
Water consumption
Waste management (separation and generation)
Paper consumption
Sustainable procurement (green public procurement)
Biodiversity
Europol’s
Environmental Vision 2030
was finalised and approved by Europol management
and the Management Board in July 2023. The Vision establishes the organisational long-term
ambitions and objectives and also addresses a set of short to mid-term measures that support
the new EMAS perspective 2023- 2025.
The agency has committed to reducing its emissions by 55% by 2030 compared to 2018.
Since the vast majority of Europol’s emissions (more than 95%) are related to business travel,
in particular flights, rationalising the carbon emissions management policy is treated as a
priority.
This strategy is intended to contribute to the goals of the EU Green Deal and to guide Europol’s
development with respect to the environment by taking into account the need to reduce
greenhouse gas emissions (GHG) due to the climate change.
The main pillars of the strategy are the following:
- Sustainable business travel;
- Sustainable meetings and events;
- Zero-emission vehicle fleet;
- Efficient use of the building.
For each pillar, specific initiatives and measures have been defined that will ultimately support
the sustainable development of the Agency and help achieve its environmental vision.
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Europol will publish in the beginning of 2024 its third updated environmental statement
demonstrating the implementation of EMAS at Europol and the Agency’s environmental
performance for 2022. Europol has succeeded in achieving almost all the targets set for 2022.
In most cases, the performance exceeds the targeted values, while only the waste separation
rate was slightly below the assumed level. However, while the core environmental
performance indicators in 2022 demonstrate that the targets are significantly exceeded in
most cases, it should be taken into account that the year 2022 was to some extent still
affected by the constraints related to the COVID-19 pandemic.
4. Actions to improve and communicate environmental performance
Europol has an action plan in place, which defines three areas for sustainable and
environmental improvement:
Structural environmental management and compliance;
relates to the periodic
activities pertaining to environmental management, including communication, which
are necessary for the EMS maintenance;
Sustainable operations;
is the overall reduction of the carbon footprint and improved
environmental performance by implementing organisational measures to reduce
water, energy and paper consumption, waste generation and improved waste
separation, reduce CO2 impact of business related travel, as well as employing
sustainable procurement processes and awareness raising activities e.g. on promoting
virtual meetings;
Social responsibility;
includes initiatives to small-scale nature
possibilities in the direct surrounding of Europol’s accommodation.
development
The aim is to implement environmentally friendly measures to improve the environmental
performance of the organisation and organise the involved processes in a sustainable manner,
with the support of EMAS and implemented EMS tools.
Integral elements of the actions for improving environmental performance are the following:
Development and implementation of a new carbon emissions management policy
ensuring that the annual emission target for business travels and missions is being
achieved. The policy will introduce a carbon emissions budget as a means to monitor
the organisation business travel and therefore our carbon emissions.
In cooperation with the Central Government Real Estate Agency (CGREA) of the Host
State, implement various actions significantly improving environmental aspects
pertaining to the operation of Europol’s building such as energy and gas efficiency,
water and waste management.
Furthermore, Europol will continue to include and consider EMAS and organisations’
environmental requirements in the development process of Strategic Housing
Roadmap (referred to in Annex VII).
Lastly, in line with the EMAS regulation, Europol intends to continue publishing
annually its Environmental Statement, reporting on its environmental performance.
Maintaining of EMAS certification:
o
Implement the annual Plan-Do-Check-Act cycle (PDCA);
o
Conduct annual internal and external audits (surveillance and re-certification);
o
Conduct a legal compliance audit and update of the legal register;
o
Prepare and publish annually the Environmental Statements demonstrating the
implementation of EMAS at Europol and the Agency’s environmental
performance for the previous year.
Implementing its
Environmental Vision 2030,
particularly by implementing the
supporting actions of its short to mid-term action plan (2023-2025).
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Annex VII: Buildings – year 2025
#
Building
Name and
type
Location
SURFACE AREA
(in m²)
Office non- Total
RENT
space office
(€/year)
Duration
of the
contract
RENTAL CONTRACT
Type
Breakout
Conditions
clause attached to the
breakout clause
Y/N
(if applicable)
1
Headquarters Eisenhowerlaan
73,
2517 KK,
The Hague
Netherlands
2
Temporary Jan Willem
Satellite
Frisolaan 13,
Building I
2517 JS
The Hague
32,500
N/A
20 years Lease
agreement
Host State support by
providing and maintaining
the accommodation
regarding the owner
related elements.
Host State support by
providing and maintaining
the accommodation
regarding the owner and
user related elements. The
preparation of the lease
extension from 1 January
2024 until 31 December
2025 is in progress.
Host country (grant or
support)
2,700
N/A
4 years
Lease
agreement
TOTAL
Building projects in planning phase:
Strategic Housing Roadmap (SHR)
In 2011, the Host State delivered the Headquarters (HQ1) with 850 workplaces and 750 conference and training seats.
Since then, the capacity of the HQ1 was optimised into 1,025 workplaces to cover the organisational growth and new
business demands.
In 2016, the Host State and Europol established a Strategic Housing Roadmap (SHR) Programme
93
to be implemented
during the period 2016 – 2031. The main objective of the SHR is to proactively align Europol’s growth and new business
demands with the housing needs of the organisation, enabling timely planning and development of the necessary housing
solutions. The SHR enables the necessary updating and planning of real estate developments covering a larger time span
until 2045.
In line with the recommendations of the ECA report
“Office
accommodation of EU institutions
– Some good management practices but also various weaknesses”
of 2018, the Host
State and Europol will maintain a strong SHR Programme governance structure, including a formalised cost demarcation.
93
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The provision of 500 temporary workplaces, additional meeting rooms and other related
facilities is of high importance until the implementation of the Long-Term Housing
Measures, which is the delivery of a second headquarters forecasted in 2030. This provision
is essential for supporting organisational growth and new business demands and making
the construction works of the Mid-Term Housing Solution in the HQ1 possible.
An overall minimum capacity of 2,100 permanent workplaces (WP) is essential, for up to
2,500 users until 2045, taking into account the flex ratio of 0.8 (1 FTE : 0.8 WP). In 2023,
Europol implemented this flex ratio of 0.8 in the office environment by applying a flexible
office concept in combination with hybrid working.
Mid-Term Housing Solution (HQ1)
Via the Mid-Term Housing Solution - MTHS (HQ1), the spaces (m
2
/m
3
) in the building will
be further optimised to increase workplace capacity, meeting spaces and other supporting
spatial functions. This will help accommodate organisational growth, support new working
arrangements, as well as provide agile and hybrid workplace solutions (physical workplaces
in combination with teleworking solutions).
The total number of physical workplaces foreseen to be realised in the office environment
is 1,077 functional workplaces, including 48 silent workplaces and 30 meeting rooms, with
a total capacity of 144 seats.
Additionally, 58 workplaces will be created via a new Operational Collaborative Centre,
including 2 meeting rooms, with a capacity of 10 seats each, while the number of meeting
seats in the conference and restaurant area will be increased, aligned to the overall new
capacity of the building and the number of daily users. The Host State foresees the
construction works to be executed during the period mid 2025 – 2028.
In the aftermath of the parking building partial collapse at the Eindhoven Airport, the Host
State implemented a national review procedure for all buildings where the same Plank Floor
Slabs (PFS) have been used. The Headquarters underwent the procedure and the outcome
is the Host State’s recommendation to Europol for safe usage measures to be adopted as
a first step, by reducing the floor load, where appropriate. In 2021, the Host State
reiterated this advice towards Europol, based on a subsequent analysis. In 2023, the Host
State implemented a new risk control instrument to monitor more closely the actual live
load in the building to guarantee a safe usage of the building. Beyond these mitigating
measures, precautionary remedial measures will be carried out in the building, by
strengthening the floors, as part of the Mid-Term Housing Solution.
Temporary Satellite Building 1
The Host State established a Temporary Satellite Building 1 in The Hague in 2019 due to
Europol’s organisational growth and capacity reduction of workplaces in the Headquarters
because of the Plank Floor Slabs issues. The usage of the building is necessary for the
implementation of the Mid-Term Housing Solution (HQ1) and until the completion of the
Long-Term Housing Measures (HQ2), the delivery of a HQ2 in the close vicinity of HQ1.
The Host State is negotiating the extension of the lease of Temporary Satellite Building 1,
which expires on 31 December 2023 and should be prolonged until 31 December 2025.
The establishment of an alternative Temporary Satellite Building 3 by the Host State is in
preparation.
Temporary Satellite Building 2
The Host State was successful in establishing a lease agreement for an office building, to
fulfil the function of Temporary Satellite Building 2, in close proximity to the Headquarters.
The building is located in the green neighbourhood district “Zorgvliet”, in the city centre
and International Zone of The Hague, easily accessible to/from the Headquarters. The
building’s quality location offers the opportunity to implement the security requirements in
the public surroundings, inside the building and on its premises.
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The net rentable floor space is 2,275 m
2
; the building consists of 5 storeys and supports
the accommodation of 150 workplaces. The distance from the Headquarters is 700 metres.
The building is in very good condition and certified with energy label A+.
The final design process is in progress to convert Europol’s Programme of Requirements in
the development plans to be implemented in the building and its premises. The building is
forecasted to be operational for use in Q1/2025.
Temporary Satellite Building 3
Due to the expiration of the lease of TSB1, an alternative office building is required for the
implementation of the MTHS in HQ1, as well as covering organisational growth and
supporting new business demands until the delivery of HQ2.
The Host State was effective in establishing a lease agreement for an office building in the
close vicinity of the HQ. The building is located in the green neighbourhood district
“Statenkwartier”, in the city centre and linked to the International Zone of The Hague. It
is easily accessible to/from the HQ.
The construction of the building took place in 1989, was renovated in 2009 and can provide
280 workplaces and meeting facilities. It is in very good condition and certified with energy
label A+.
The building should be developed in a short timeframe by following an agile development
process, via a two stage project approach. The first stage, one part of the building, to be
ready for operational usage in Q1/2025 and the second part of the building in Q1/2026.
The design process of stage 1 is in progress.
Long-Term Housing Measures (HQ2)
In 2019, the Host State completed its acquisition of an additional HQ2 office building, within
the International Zone.As further optimisation of the spatial needs (m
2
) in the current
Headquarters (HQ1) is limited, this permanent expansion is therefore necessary to
accommodate Europol’s growth and its supporting spatial needs for the period 2031-2045.
The office building will be developed by the Host State for single usage of Europol as HQ2
via the Long-Term Housing Measures (LTHM).
Europol completed its user Spatial-, Functional- and Technical Programme of Requirements
in 2021. Following-up on this, the Host State and Europol are conducting two studies. The
first study focuses on the implementation of the security requirements in the building and
its public surroundings, taking into account the Urban Zoning Plan of the “Zorgvliet”
neighbourhood, and the building’s historical and architectural value. The second study
focuses on examining the maximum number of workplaces that can be realised, taking into
account possible extensions to increase the building volume. Both studies are still in
progress due to the complexity of the building and surrounding area. Another study has
been launched by the Host State on how the cultural heritage of the current user can be
conserved. The outcome of these studies are important elements for the establishment of
the overall development scope of the project.
Toren van Oud, Low-rise building
The low-rise building of the Toren van Oud (TvO) is an adjacent building to HQ1 and rented
by the Host State in 2023. The building will be used to relocate spatial supporting functions
from HQ1, in order to make space available for new operational supporting functions, which
will be implemented via the MTHS. The importance of acquiring the low-rise building was
two-fold: from a security perspective, to have control of the building and its surroundings,
and from a spatial perspective, in regard to the implementation of the MTHS (HQ1) and
LTHM (HQ2) projects. The relocation of these spatial supporting functions from HQ1, were
originally foreseen to be implemented in HQ2. By relocating these spatial functions, more
space will become available in HQ2 to create additional workplaces. The feasibility study
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and completion of Europol’s Programme of Requirements in the low-rise building and its
public surroundings by the Host State and Europol is finalised in 2023.
Hot Data Centre (HDC)
Europol’s Programme of Requirements of the Long-Term Housing Measures includes a
second
high-availability
“(Hot) Data Centre”. As both buildings HQ1 and HQ2 are connected
to the same electricity grid in The Hague, Europol requested the Host State to establish
this data centre at a different, highly secure location within the Netherlands.
In 2023, two proposed locations offered by the Host State were assessed against Europol’s
Programme of Requirements. The interim findings on both locations were shared and the
list with possible HDC locations was extended from two into three, as a new location
became available in July 2023. The completion of the assessment to determine the best
possible HDC location, followed by the selection process on the preferred location will take
place in Q1/2024.
The establishment of a (Hot) Data Centre is of key importance for the agency, in order to
ensure business continuity of the current information systems towards the Member States
and Third Parties.
Data Recovery Site Austria
Europol’s Data Recovery Site is hosted at a location owned by the Republic of Austria. The
lease agreement has been renewed in 2021 by an Addendum, for a period of 5 years,
starting as of 1 August 2021 until 31 July 2026. The Data Recovery Site is used to
continuously store a backup of Europol’s data and is therefore important for Europol’s ICT
business continuity.
Brussels Office
Due to the increased interaction with EU institutions and other EU agencies, a Europol office
in Brussels was established in 2019. The office is located within the Council building. The
administrative Arrangement with the General Secretariat of the Council was signed in 2018,
and is extended tacitly, unless terminated by a party with six months written notice.
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Annex VIII: Privileges and immunities
Privileges granted to staff
Agency privileges
According to Article
63(1) Europol
Regulation the
Protocol on Privileges
and Immunities of the
European Union
(“Protocol No. 7”
94
to
the Treaty on
European Union and
the Treaty on the
Functioning of the
European Union)
applies to Europol.
The Protocol is
supplemented by the
Agreement of 15
October 1998
between the Kingdom
of the Netherlands
and Europol
concerning the
Headquarters of
Europol (see
Art. 70
Europol Regulation).
Protocol of privileges and immunities /
diplomatic status
According to Article 63(1) Europol
Regulation the following legal acts apply
to Europol’s staff (including the
Executive Director and the Deputy
Executive Directors):
- Protocol on Privileges and
Immunities of the European Union
(“Protocol No. 7” to the Treaty on
European Union and the Treaty on
the Functioning of the EU)
- Regulation (Euratom, ECSC, EEC)
No. 549/69 of 25 March 1969
determining the categories of
officials and other servants of the
European Communities to whom the
provisions of Article 12, the second
paragraph of Article 13 and Article
14 of the Protocol on the Privileges
and Immunities of the Communities
apply (as last amended by
Regulation (EC) No. 371/2009 of 27
November 2008)
Protocol and Regulation are
supplemented by the Agreement of 15
October 1998 between the Kingdom of
the Netherlands and Europol concerning
the Headquarters of Europol (see
Art.
70 Europol Regulation),
which is itself
supplemented regarding staff privileges
and immunities by a number of
Notes
Verbales
some specific to Europol and
others directed towards all international
and EU organisations in The
Netherlands. The most significant of
these is an exchange of
Notes Verbales
of 25 October 2007.
Education / day
care
Europol staff
members are
eligible to receive
national childcare
and education
allowances
provided that they
satisfy the criteria
imposed by the
applicable Dutch
laws and
regulations.
Please note: Protocol No. 7 has been renumbered, compared to the Protocol on Privileges and Immunities of the
European Communities. Its Article 15 empowers the European Parliament and the Council to determine acting by
means of regulations the categories of officials and other servants of the Union to whom the provisions of Article 11,
the second paragraph of Article 12, and Article 13 of this Protocol shall apply, in whole or in part. -Regulation No.
549/69 (see above) has not been amended following the entry into force of the new Protocol No. 7 (1 Dec. 2009),
thus still contains the references to the old numbering.
150
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Annex IX: Evaluations
From an overall perspective, evaluation activities are an integral part of Europol’s governance
set-up. Europol assesses the recommendations, observations and opportunities for
improvement put forward during internal and external audits, inspections and other review or
supervisory activities, which are facilitated by the Agency. The implementation of
corresponding action plans is monitored and reported upon, including in the CAAR.
Internal monitoring & evaluation
Europol management monitors the implementation status of all planned actions, projects and
indicators on a quarterly basis, to assess the overall progress and to take corrective actions
where needed.
The
Consolidated Annual Activity Report (CAAR)
is submitted on behalf of the Executive
Director of Europol to the Management Board (MB) and presents the activities performed to
implement the annual Work Programme. The document provides an overview of the extent
to which the annual objectives were achieved, information about the budget implementation,
human resources, risk management activities, efficiency and effectiveness of the internal
control system and audit results. All building blocks of assurance are also included in the
report. An analysis and assessment of the CAAR is made by the MB.
Internal Audit Capability (IAC)
The function and role of the IAC are enshrined in Article 78 of the Financial Regulation
applicable to Europol and defined further in the IAC Charter. The mission of the IAC is to
enhance and protect Europol’s organisational value, by providing risk-based and objective
assurance, advice and insight. The IAC helps Europol in accomplishing its objectives by
bringing a systematic and disciplined approach to evaluate the effectiveness of risk
management, control, and governance processes, and by issuing recommendations for their
improvement, thereby promoting a culture of efficient and effective management within
Europol.
As part of its audit work, the IAC issues recommendations and opportunities for improvement.
Europol has a system in place to develop and monitor the implementation of actions to
address the risks identified by the IAC and reports in the CAAR on the progress achieved in
implementing the audit recommendations.
Data Protection Function (DPF)
The tasks of the Data Protection Officer (DPO) are provided in Article 41 of the Europol
Regulation and the related MB Implementing Rules. The DPO and Head of the Data Protection
Function (DPF) is accountable to the MB and has to ensure, in an independent manner, that
the processing of personal data by Europol, including personal data relating to staff members,
is done in a way that is both lawful and in compliance with the provisions set out in the Europol
Regulation. According to his mission the DPO provides objective assurance and consultation,
which is designed to add value to and improve Europol’s data processing operations. In the
performance of his duties the DPO is supported by the DPF.
The protection of personal data remains a key factor that enables Europol to successfully fulfil
its mission. Europol’s tailor-made data protection framework is widely recognised as adhering
to the highest standards of data protection in law enforcement. It is designed to serve the
needs of the operational units in preventing and combating serious and organised crime and
terrorism, while simultaneously protecting the personal data processed in Europol’s systems.
In addition to law enforcement data, the DPO also ensures the protection of Europol staff data
as determined by Regulation (EC) No 2018/1725
95
.
Regulation (EC) 2018/1725 of the European Parliament and of the Council of 23 October 2018 on the protection
of natural persons with regard to the processing of personal data by the Union institutions, bodies, offices and
agencies and on the free movement of such data.
151
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External monitoring & evaluation
The
Internal Audit Service (IAS),
supported by the IAC and Europol, regularly performs a
risk assessment on Europol’s governance, administrative and support process areas, with a
view to identifying the overall risk profile of these processes outside the core business area.
On the basis of the IAS risk assessment concerning Europol’s governance, administrative and
support processes, the Europol MB endorses a multi-annual IAS Strategic Internal Audit Plan
(SIAP) for Europol, subsequently implemented by corresponding IAS audit engagements at
Europol. The latest risk assessment was initiated in 2021 and the resulting SIAP 2022-2024
for Europol outlines three prospective audit topics, namely: (1) coordination and working
arrangements in the Directorate General (DG) Migration and Home Affairs (DG HOME) with
EU decentralised agencies CEPOL, EUAA, EMCDDA, Europol and eu-LISA (completed in 2023),
(2) Europol’s information management strategy – design of key controls (initiated in 2023),
and (3) Innovation lab. The next risk assessment and SIAP is envisaged in 2025.
The
European Data Protection Supervisor (EDPS)
exercises continuous inspection and
oversight activities at Europol which also involve the Data Protection Function (DPF) of
Europol.
The
European Court of Auditors (ECA)
conducts in particular annual audits on the accounts
of Europol to issue a statement of assurance on the reliability of the annual accounts, and the
legality of regularity of the underlying transactions. In addition to the examination of the
annual accounts, the ECA examines topics of horizontal nature across EU Agencies. The ECA
also conducts performance and ad-hoc audit engagements with respect to the mandate of
Europol.
An
independent external auditor
also verifies that the annual accounts of Europol present
fairly, in all materials aspects, the revenue, expenditure and financial position of Europol at
the end of the respective financial year, in line with Article 104 of the Financial Regulation
(FR) applicable to Europol. The findings and related audit opinion of the external audit inform
the statement of assurance in the annual report of the ECA.
Ad-hoc evaluations
In the area of the Finance Unit, evaluation related tasks are envisaged by independent
external review with the aim to improve efficiency, effectiveness and to adjust financial
management related roles and responsibilities at Europol.
Other evaluations planned for a specific year are referred to in the Annual Work Programme.
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Annex X: Strategy for the organisational management and internal control
systems
The renewed Europol Strategy sets out the strategic direction for Europol and the six strategic
priorities. Europol’s
Internal Control System (ICS)
is a key component to help deliver the
renewed Europol Strategy and achieve the corresponding objectives for Europol.
Organisational management
The Executive Director is responsible for the implementation of the tasks assigned to Europol
and puts in place the necessary organisational structure and the ICS. The Executive Director
is supported in the design and implementation of internal controls by the Deputy Executive
Director in charge of the Governance Directorate, as the directorate member in charge of risk
management and internal control, senior management, the Internal Control Coordinator
(ICC), (IT) security, financial actors and the planning and performance and process
management functions. The Management Board and independent functions have a distinct
role in Europol’s administrative and management structure.
Organisational management is designed in line with the applicable regulatory framework and
integrates the Three Lines of Defence model with a dedicated risk management and
compliance function, a Fundamental Rights Officer (FRO), an Internal Audit Capability (IAC),
an Accounting Officer (ACCO) and a Data Protection Officer (DPO).
Internal Control System (ICS)
The
ICS
translates the
Europol Internal Control Framework (ICF),
adopted by the
Management Board, and which was developed in line with the COSO Integrated Internal
Control Framework and the ICF of the European Commission. Europol’s ICS represents the
system of controls including the regulatory instruments, delegations, processes, resources
(technical and human) and organisational structure to enable Europol to achieve its strategy
and objectives.
The ICS aims at providing reasonable assurance regarding the achievement of the elements
of internal control, as set out in the FR applicable to Europol, with regard to the
implementation of the budget, namely:
a.
b.
c.
d.
e.
effectiveness, efficiency and economy of operations;
reliability of reporting;
safeguarding of assets and information;
prevention, detection, correction and follow-up of fraud and irregularities;
adequate management of the risks relating to the legality and regularity of the underlying
transactions, taking into account the (multi-) annual character of programmes as well as
the nature of the payments concerned.
The Europol ICF consists of five components
96
and seventeen principles - underpinned by
fifty-eight so-called ‘Points of Focus’
97
- to achieve the operational, reporting and compliance
objectives.
Europol continuously monitors, using both quantitative and qualitative measurements
including a set of internal control indicators and an annual assessment, the functioning of the
ICS to determine whether each of the five components of internal control, including the
underlying principles, is present and functioning and whether the components operate in an
integrated manner and effectively reduce, to an acceptable level, the risk of not achieving the
(multi-) annual objectives - relating to the operations, reporting, and compliance. Europol
(1) Control environment, (2) Risk assessment, (3) Control activities, (4) Information and communication, (5)
Monitoring activities
97
Important characteristics of the internal control principles
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also assesses the costs and benefits of control. Improvements identified in the annual
assessment of the ICS set the strategy for the further development of the existing internal
controls on an annual basis. Dedicated tooling for the management of internal controls, risks,
compliance and internal audits will be further developed and deployed in 2025.
Further to the control environment, control activities, management of information and
communication as well as monitoring activities, a
corporate risk management
process
aggregates and assesses risks (including the related responses) at organisational level. Risk
management is expanded from a vertical (e.g. in departments or programmes/projects) to a
horizontal perspective (corporate, organisational wide view) in line with the four principles
and related points of focus of the risk assessment component, and Europol’s risk management
policy and process, whereby corporate risks are considered internally by Europol at regular
intervals throughout the year and on an immediate ad hoc basis in the event of the
identification of corporate risks which are of a time-critical or high impact nature.
Measures to prevent cases of conflict of interest, irregularities and fraud include a robust
ethics framework and dedicated rules and guidance, including mechanisms to report issues,
management supervision and delegations - observing the segregation of duties and sound
financial management principles, monitoring and regular reporting, ex-ante and ex-post
controls and anti-fraud risk assessment and specific actions. Europol has an Internal
Investigations Service (IIS) to investigate suspected breaches of professional obligations.
Anti-Fraud Strategy
In March 2022, the Management Board adopted the revised Anti-Fraud Strategy for the period
2022-2024. The Anti-Fraud Strategy reflects the principles, an evaluation of the
implementation of the previous strategy 2017 to 2020, a fraud risk assessment including the
fourteen common fraud risk scenarios as defined by OLAF, anti-fraud objectives and actions.
The three Anti-Fraud Strategy objectives are to:
Maintain and expand anti-fraud culture and awareness;
Manage sensitive positions;
Manage fraud risk scenario process improvements.
Based on the fraud risk assessment and to achieve the three objectives, Europol defined
thirteen detailed actions, calling for cross-departmental cooperation to provide required
deliverables and meet predefined performance indicators. The actions refer to, in particular,
anti-fraud awareness and training, management of sensitive staff positions, and process
improvements in the area of human resources management, conflict of interest management,
and procurement and contract management.
The implementation of the defined actions is regularly assessed. A next revision of the Anti-
Fraud Strategy will be initiated in 2024.
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Annex XI: Grants
A. Grant, Contribution and Service-level Agreements resulting in revenue and additional budget
Date of signature
Grant agreements
6. H2020 - STARLIGHT
05/05/2021
101021797 - part of
(starting date
consortium coordinated by
1/10/2021)
CEA, FR
Total grant agreements
Total amount
General information
Duration
Counterpart
European
Commission
Research Executive
Agency
Short description
Sustainable Autonomy and
Resilience for LEAs using
AI against High priority
Threats
Amount
Number of CAs
Number of SNEs
Amount
Number of CAs
Number of SNEs
CA
222,800
3
0
N-1 (2024)
CA
222,800
3
0
PA
222,800
CA
167,100
3
0
PA
222,800
Financial and HR impacts
N (2025)
N+1 (2026)
CA
167,100
3
0
PA
167,100
CA
-
0
0
PA
167,100
CA
-
0
0
PA
-
CA
-
0
0
PA
-
CA
-
0
0
PA
-
N+2 (2027)
PA
-
17,000,000 for
the consortium of
which 891,200 for
Europol
48 months
Contribution agreements
1. EaP EMPACT
ENI/2020 / 416-376
11/06/2020
(starting date
1/7/2020)
21/12/2020
(starting date
1/1/2021)
European
Commission
DG Near
European
Commission
Service for Foreign
Policy Instruments
Amount
Fighting organised crime in
the EaP region
Number of CAs
Number of SNEs
Amount
International Digital
Cooperation - Cross border
access to electronic evidence
Number of CAs
Number of SNEs
Amount
Total contribution agreements
Number of CAs
Number of SNEs
CA
656,912
9
0
CA
344,412
7
0
PA
656,912
CA
-
0
0
CA
312,500
2
0
PA
344,412
CA
-
0
0
PA
-
CA
-
0
0
PA
312,500
CA
-
0
0
PA
-
CA
-
0
0
PA
-
CA
-
0
0
PA
-
CA
-
0
0
PA
-
CA
-
0
0
PA
-
PA
-
CA
-
0
0
PA
-
PA
-
2. SIRIUS phase 2
New Agreement
2,500,000
3,491,891.50
(2,226,456
Europol,
1,265,435.50
Eurojust)
48 months
42 months
(staff for year 1
still in SIRIUS I)
Service-level agreements
1. EUIPO - IP Crime and
Fraud
maximum
4,120,000
(1,030,000 per
year)
To support law enforcement
The European Union authorities preventing crime
Intellectual Property and fraud related to
Office (EUIPO)
Intellectual Property Rights
Amount
Number of CAs
Number of SNEs
CA
1,030,000
2
8
PA
1,030,000
CA
1,030,000
2
8
PA
1,030,000
CA
1,030,000
2
8
PA
1,030,000
CA
1,030,000
2
8
PA
1,030,000
26/07/2023
(starting date
1/1/2024)
48 months
2. The European Union
Agency for Law
Enforcement Training
(funded via Contribution
Agreement with DG Near)
05/08/2020
Total service-level agreements
Maximum
duration until
850,000 30/9/2024
EUROMED POLICE V (Contract
Amount
No. ENI/2020/414-940),
The European Union WB PaCT (Contract No. 2019/
Agency for Law
413-822)
Enforcement
and TOPCOP (Contract No.
Number of CAs
Training
ENI/2020/415-941) projects
Number of SNEs
Amount
Number of CAs
Number of SNEs
Amount
CA
100,000
2
0
CA
1,130,000
4
8
CA
2,009,712
16
8
PA
100,000
CA
-
0
0
PA
-
CA
-
0
0
PA
-
CA
-
0
0
PA
-
PA
1,130,000
CA
1,030,000
2
8
PA
1,030,000
CA
1,030,000
2
8
PA
1,030,000
CA
1,030,000
2
8
PA
1,030,000
TOTAL AGREEMENTS
PA
2,009,712
CA
1,197,100
5
8
PA
1,197,100
CA
1,030,000
2
8
PA
1,030,000
CA
1,030,000
2
8
PA
1,030,000
Number of CAs
Number of SNEs
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B. Grants to be awarded
In 2023, Europol modified its financial management system in order to create differentiated
appropriations which allow Europol to award grants on multi-annual basis.
The reasoning behind this change was threefold:
-
From an internal perspective, running grant schemes under strictly annual budgets
(“non-differentiated appropriations”) was causing more and more challenges, especially
because grants must be closed before the end of year N+1 and the peaks in workload
are difficult to manage with limited staff resources.
Publishing invitations for two years will enable the organisation to re-use the unspent
funds in a more systematic way and will consequently decrease the lapsed budget in the
grant area.
From an external perspective, Europol’s beneficiaries, mainly the EU MS law-
enforcement community (law-enforcement public bodies such as police, criminal
investigation offices, gendarmerie, border guards, customs, etc.) were seeking
possibilities for multi-annual funding and planning. As an example, for EMPACT, the
Council requested Europol to introduce grants that run over multiple years, in support
of the development of multi-annual Operation Action Plans (OAP) and similar signals are
received from the ATLAS community.
-
-
From 2024 onwards, Europol uses the opportunity created by the differentiated appropriations
to incrementally publish multi annual calls and invitations. It is expected that from 2025 all
Europol grant schemes will be published on a multi-annual basis.
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1.
Second year of Restricted call for proposals to support the implementation of
activities identified by the Council – EMPACT High Value Grants 2024/2025
Legal basis
Article 4 and Article 61 of the REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE
COUNCIL on the European Union Agency for Law Enforcement Cooperation (Europol) and
replacing and repealing Council Decisions 2009/371/JHA, 2009/934/JHA, 2009/935/JHA,
2009/936/JHA and 2009/968/JHA.
Council conclusions on setting the EU’s Priorities for the fight against organised and serious
international crime between 2022 and 2025, doc. 8665/21 COSI 90 of 12 May 2021.
Budget line
3920 EMPACT Grants
Priorities of the years, objectives pursued and expected results
Enhancing the fight against serious and organised international crime during the last year of
implementation of EMPACT activities 2022-2025.
The call is restricted to EMPACT participants, while all relevant documents are published on the
Europol Platform for Experts – a communication tool with EMPACT participants used to reach
all potential applicants. In accordance with the Europol legal basis, the Europol National Unit
(ENU) shall be the liaison body between Europol and the competent authorities of the Member
States. Thus, the applications must always be submitted via the ENU of the Lead Applicant.
The objective of the call is to provide support to Operational Actions laid down in the fifteen
Operational Action Plans (OAPs) as adopted by the Council. EMPACT 2022-2025 addresses the
following crime areas: High-risk criminal networks; Cyber-attacks; Trafficking in Human Beings
(THB); Child sexual exploitation; Migrant smuggling; Drugs trafficking: (i) the production,
trafficking and distribution of cannabis, cocaine and heroin, (ii) the production, trafficking and
distribution of synthetic drugs and new psychoactive substances (NPS); Fraud, economic and
financial crimes: (i) online fraud schemes, (ii) excise fraud; (iii) MTIC fraud, (iv) intellectual
property (IP) crime, counterfeiting of goods and currencies, (v) Criminal Finances, Money
Laundering and Asset Recovery; Organised Property Crime; Environmental crime; and Firearms
trafficking.
It is expected that the support will provide for improved cooperation between Member States
law enforcement agencies, EU Institutions, EU Agencies and relevant third parties, while
delivering coherent actions targeting the most pressing criminal threats facing the EU.
Description of the activities to be funded under the call for proposals
Transnational operational and non-operational activities addressing in each of the EMPACT
Priorities at least one of the following objectives: awareness raising and exchange of best
practices; improving data gathering and intelligence sharing, providing strategic support for
current or proposed operational activities; enhancing operational support and cross-border
cooperation.
Grants may not be awarded for activities that are funded under another EU programme or from
Europol’s budget. In this respect, it is noted that Europol is active in an environment which has
undergone a proliferation of EU funding sources. A statement to ensure respect for the principle
of no double funding from EU sources must be made by applicant(s) in the Application form.
Europol is entitled to perform checks in this respect, including by liaising with external partners
(e.g. DG HOME, Eurojust).
Calls will be designed with the aim of promoting one or more of the following outcomes which
projects applications should aim at achieving:
- fostering communication and coordination amongst participants of OAPs;
- sharing of experiences and best practices between EU Member States;
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-
-
-
-
-
improving intelligence gathering and analyses;
expanding data sharing with Europol information systems and prioritising the use of
SIENA (secure line) as an operational communication tool;
establishing support frameworks to implement operational activities, including where
relevant with third countries or the private sector;
enhancing cross-border/transnational operational cooperation between EU Member
States and, where relevant, with third countries or the private sector;
establishing joint investigations, joint operations or joint action days.
To take into account the specificities of the law enforcement operations, Europol may allow use
of contingency budget for unplanned actions (“red-envelope procedure”) in addition to planned
actions (“blue envelope”). This is justified based on the need for law enforcement to respond
quickly to opportunities and challenges and is further specified in the Call documentation.
Europol may award using simplified cost options provided that a decision by the Executive
Director has been adopted.
Essential eligibility, selection and award criteria
Eligibility criteria:
I. In order to be eligible the Applicant must be a public body established in an EU Member State
participating in the OAP in question (i.e. the particular EMPACT crime priority) and in the law-
enforcement cooperation under Europol Regulation.
No differentiation is made in Europol’s constituent act between different Member States.
However, the opt-in structure used for JHA under the TFEU creates a varying degree of
participation of Member States. Europol pays due regard to the status of EU Member States
with regard to the Europol Regulation and/or Justice and Home Affairs matters as regards
eligibility to be a (lead) Applicant.
II. The Co-Applicants must be:
• An entity explicitly mentioned as a participant in the OAP;
• If the entity is not explicitly mentioned in the OAP, any of the following entities may be Co-
Applicants, provided their participation is justified by the nature of the action:
- A public body established in an EU Member State or in a third country OR
- A profit or non-profit-oriented organisation established in an EU Member State or in a
third country, OR
- An International Organisation.
As regards co-applicants, even non-opting-in Member States could be eligible as co-applicants
on the same basis as third countries and third parties provided that their participation is justified
by the nature of the action. Their meaningful participation has however to be possible having
due regard to Europol’s legal obligations on exchange of information with third countries.
III. Applications must involve at least two (2) public bodies established in two (2) different EU
Member States.
Law Enforcement applicants may involve non-LE entities for the purpose of managing a grant
provided that the manner and degree of their involvement satisfies security and confidentiality
concerns. Costs incurred by other types of bodies could be eligible, provided that these can be
justified by the aims of the action and respect the principle of sound financial management.
IV. The proposed activities must be mentioned in the respective OAPs as approved by COSI
Council decisions.
Selection criteria:
In accordance with Article 198 of the Financial Regulation, proposals for action shall be
evaluated on the basis of the following selection criteria:
- Financial capacity - Applicants and co-applicants must have stable and sufficient sources of
funding to maintain their activity throughout the period during which the activity is being carried
out and to participate in its funding.
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- Operational capacity - Applicants and co-applicants must have the professional resources,
competences and qualifications required to complete the proposed action.
The verification of the financial and operational capacity shall not apply to public bodies and
international organisations in accordance with Article 198(5) and (6) of the Financial Regulation.
Award criteria:
In accordance with Article 199 of the Financial Regulation, proposals for an action shall be
evaluated on the basis of the quality and expected results and cost-effectiveness of the
proposed action. Applications will also be assessed with regard to their impact on the
implementation of the OAPs concerned, European added value and involvement of Europol.
Ex-post publicity for award of grants (in particular their publication in accordance with Article
189 of Regulation (EU, Euratom) 2018/1046) and the financial verification of the payment
requests, including the required supporting documentation, shall take into account the
confidentiality and security of the operational and classified information.
Indicative timetable and indicative amount of the call for proposals
Date
Publication: Q4 2023
Award of grants: Q1 2024
Implementing period : April 2024 –
March 2026
Amount
EUR 4,500,000 (as integrated in the 2024
budget)
Maximum possible rate of co-financing of the total eligible costs
95%
2.
Second year of Ad-hoc low-value grants invitation in support of operational
activities as laid down in the Operational Action Plans implementing the EMPACT
Priorities.
Legal basis
Article 4 and Article 61(3) of the REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE
COUNCIL on the European Union Agency for Law Enforcement Cooperation (Europol) and
replacing and repealing Council Decisions 2009/371/JHA, 2009/934/JHA, 2009/935/JHA,
2009/936/JHA and 2009/968/JHA.
Council conclusions on setting the EU’s Priorities for the fight against organised and serious
international crime between 2022 and 2025, doc. 8665/21 COSI 90 of 12 May 2021.
Budget line
3920 EMPACT Grants
Priorities of the years, objectives pursued and expected results
Enhancing the fight against serious and organised international crime during the last year of
the implementation of EMPACT activities 2022-2025. These grants are focussed on supporting
Member States’ cross-border operations and investigations as well as joint investigation teams
as per Europol’s tasks under Article 4(1)(h) of the Europol Regulation. Applications from eligible
applicants can be submitted throughout the period indicated below rather than on any fixed
deadline(s).
The objective of the low-value grants is to provide support tailored to operational activities
within the fifteen Operational Action Plans (OAPs) adopted by the Council. They target activities
that are developed on an ad-hoc basis rather than as a result of a long-term planning, due to
their investigative nature or other quickly changing aspects of crime phenomena and crime-
countering measures. EMPACT 2022-2025 addresses the following crime areas: High-risk
criminal networks; Cyber-attacks; Trafficking in Human Beings (THB); Child sexual exploitation;
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Migrant smuggling; Drugs trafficking: (i) the production, trafficking and distribution of cannabis,
cocaine and heroin, (ii) the production, trafficking and distribution of synthetic drugs and new
psychoactive substances (NPS); Fraud, economic and financial crimes: (i) online fraud schemes,
(ii) excise fraud; (iii) MTIC fraud, (iv) intellectual property (IP) crime, counterfeiting of goods
and currencies, (v) Criminal Finances, Money Laundering and Asset Recovery; Organised
Property Crime; Environmental crime; and Firearms trafficking.
It is expected that the support will provide for effective cooperation between Member States
law enforcement agencies, EU Institutions, EU Agencies and relevant third parties while
delivering coherent operational actions targeting the most pressing criminal threats facing the
EU. The funded measures should achieve concrete, quantifiable / measurable operational
results. This scheme shall take due consideration of the existence of a separate grant scheme
supporting actions against euro-counterfeiting.
Description of the activities to be funded through low-value grants
Transnational short-term operational and/or investigative activities within the EMPACT
Priorities, with a budget not exceeding 60,000 EUR (in line with the threshold defined in the EU
Financial Regulation), aiming to enhance operational cross-border cooperation, establish joint
investigations, joint operations or joint action days.
Grants awarded under this Article have a maximum duration of 9 months with possibility to
extend at Europol’s discretion for an additional period of 3 months, if justified operationally.
Europol may use simplified cost options provided that a decision by the Executive Director has
been adopted.
Essential eligibility, selection and award criteria
Eligibility criteria:
I. In order to be eligible the Applicant must be a public body established in an EU Member state
participating in the OAP in question (i.e. the particular EMPACT crime priority) and in the law-
enforcement cooperation under the Europol Regulation.
No differentiation is made in Europol’s constituent act between different Member States.
However the opt-in structure used for JHA under the TFEU creates a varying degree of
participation of Member States. Europol pays due regard to the status of EU Member States
with regard to the Europol Regulation and/or Justice and Home Affairs matters as regards
eligibility to be a (lead) Applicant.
II. The Co-Applicants must be:
• An entity explicitly mentioned as a participant in the OAP;
• If the entity is not explicitly mentioned in the OAP, any of the following entities may be Co-
Applicants, provided their participation is justified by the nature of the action:
- A public body established in an EU Member State or in a third country OR
- A profit or non-profit-oriented organisation established in an EU Member State or in a
third country, OR
- An International Organisation.
As regards co-applicants even non-opting-in Member States could be eligible as co-applicants
on the same basis as third countries and third parties provided that their participation is justified
by the nature of the action. Their meaningful participation has however to be possible having
due regard to Europol’s legal obligations on exchange of information with third countries.
III. Applications must involve at least two (2) public bodies established in two (2) different EU
Member States.
IV. The proposed activities must be mentioned in the respective OAPs as approved by COSI
Council decisions.
V. The requested grant cannot be higher than 60,000 EUR, or in line with the current threshold
for low-value grants established by the EU Financial Regulation.
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Selection criteria:
In accordance with Article 198 of the Financial Regulation, proposals for action shall be
evaluated on the basis of the following selection criteria:
- Financial capacity - Applicants and co-applicants must have stable and sufficient sources of
funding to maintain their activity throughout the period during which the activity is being carried
out and to participate in its funding.
- Operational capacity - Applicants and co-applicants must have the professional resources,
competences and qualifications required to complete the proposed action.
- The verification of the financial and operational capacity shall not apply to public bodies and
international organisations in accordance with Article 198(5) & (6) of the Financial Regulation.
To ensure that the operational needs are met, a pool of evaluators shall be duly appointed by
the responsible authorising officer. In each evaluation at least 2 evaluators from that list (with
complementary expertise in law enforcement and finance) shall perform the evaluation (without
a separate ad hoc appointment).
To allow for fast processing, applicants must use the templates to apply and reply within
maximum 24 hours to any questions raised during evaluation.
Award criteria:
In accordance with Article 199 of the Financial Regulation, proposals for an action shall be
evaluated on the basis of the quality and expected results and cost-effectiveness of the
proposed action. Applications will also be assessed with regard to their impact on the
implementation of the OAPs concerned, European added value and involvement of Europol.
Ex-post publicity for award of grants (in particular their publication in accordance with Article
189 of Regulation (EU, Euratom) 2018/1046) and the financial verification of the payment
requests, including the required supporting documentation, shall take into account the
confidentiality and security of the operational and classified information.
Indicative timetable and indicative amount
Date
Publication: Q1 2024Award of grants:
Q1 2024-Q4 /2025
Amount
EUR 3,500,000 (as integrated in the 2024
budget), divided as follows : 1
st
instalment
of EUR 1,750,000 available in 2024 and 2
nd
instalment of EUR 1,750,000 available in
2025) + internal assigned revenue
98
+ 2,000,000 in 2025 from the legislative
proposal to prevent and fight migrant
smuggling
99
Maximum possible rate of co-financing of the total eligible costs
95%
3.
Support for combatting Euro-counterfeiting
Legal basis
Article 4(4) and Article 61(3) of the REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE
COUNCIL on the European Union Agency for Law Enforcement Cooperation (Europol) and
replacing and repealing Council Decisions 2009/371/JHA, 2009/934/JHA, 2009/935/JHA,
2009/936/JHA and 2009/968/JHA.
Budget line
98
If operationally justified, the authorising officer may decide to increase the maximum amount for this scheme,
subject to Europol budget availability.
99
COM(2023) 754 final. Subject to adoption of the proposal and to the relevant funds becoming available.
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3930 Support against Euro Counterfeiting Grants
Priorities of the year, objectives pursued and expected results
Operational actions and support for coordination activities within the guidelines approved by
the Europol Management Board with the objective of protecting the euro currency from
counterfeiting activities.
Description of the activities to be funded through low-value grants
Applications from eligible applicants can be submitted throughout the period indicated below
rather than on any fixed deadline(s). Applications submitted must involve at least one of the
following activities, all designed with the objective of protecting the integrity of the Euro
currency:
- Investigations into or related to euro counterfeiting. This means inquiries related to counterfeit
euro banknotes and counterfeit euro coins, as well as the production and the distribution of
them;
- Technical investigations using forensic and/or scientific analysis to identify, sites, raw
materials and technical equipment used for the production of counterfeit euro notes and coins
as well as measures to locate technical equipment used;
- Investigative measures carried out in compliance with the applicable national law and in
accordance with these guidelines;
- Operational or technical investigations into euro counterfeiting involving cooperation with third
countries.
In addition, the applicant must commit to a degree of involvement of Europol:
- as a minimum to ensure the role of Europol as the Central Office, the law enforcement
information, including samples of any counterfeit currency recovered, must be shared with
Europol via the appropriate channels;
- on the spot support where an application involves a production site(s).
Essential eligibility, selection and award criteria
This is not a general advertised call due to the restricted pool of potential beneficiaries. The
possibility and funds available shall be made known to the entities foreseen under the Europol
Management Board approved rules. Any ex post publicity will also take this into account
excluding operational, strategic and classified information.
Eligible applicants:
a)
A law enforcement public body established in an EU Member State;
b)
A law enforcement public body in a third country, where foreseen by Europol legal
framework.
To ensure that the operational needs are met, a pool of evaluators shall be duly appointed by
the responsible authorising officer. Considering the low value of individual awards made, a
single evaluator shall evaluate based on objective criteria established to assess the award
criteria. These criteria include: anticipated Quality of the Counterfeits, impact of proposed
operational measure, involvement of Europol, value for money and involvement of National
Central Office. To allow for fast processing, applicants must use the templates to apply and
reply within maximum 24 hours to any questions raised during evaluation.
Indicative amount available
Date
Q1 2024-Q4 2025
Amount
EUR 300,000 (as integrated in the 2024
budget divided as follows : 1
st
instalment of EUR 150,000 available in
2024 and 2
nd
instalment of EUR 150,000
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available in 2025 ) + internal assigned
revenue
100
Maximum possible rate of co-financing of the total eligible costs
100% maximum
4. ATLAS Network grant
Legal basis
Article 4(1)(h) and (i) and Article 61(3) of the REGULATION OF THE EUROPEAN PARLIAMENT
AND OF THE COUNCIL on the European Union Agency for Law Enforcement Cooperation
(Europol) and replacing and repealing Council Decisions 2009/371/JHA, 2009/934/JHA,
2009/935/JHA, 2009/936/JHA and 2009/968/JHA. Terms of Reference signed between Europol,
Atlas Chair and Austrian Ministry of Interior and entering into force on 10 October 2018.
Budget line
3950 ATLAS Grants
Priorities of the year, objectives pursued and expected results
The ATLAS Network is a cooperation structure between 38 Special Intervention Units (SIUs)
that includes and supports different training platforms and sharing of best practices in terms of
proficiency and tactics.
The main priority for the year 2025 is the execution of cross border operations and the
implementation of trainings, workshops and exercises. These priorities as well as the overall
ATLAS strategy are influenced amongst others by the tailor-made strategic document of the
European Counter Terrorism Centre - “ECTC Outlook for ATLAS Commanders”. The identified
challenges need special attention and preparation on all levels and areas of competence:
intervention in urban, rural and maritime areas; transport means and buildings are focal points
as well as drone handling/robotics, sniper, communication, negotiation skills and others. In
addition, the capability to render medical first aid during field operations needs to be trained,
developed and improved.
Joint trainings, workshops, courses and project groups are the systematic approach to increase
the readiness of involved units to handle possible terrorist attacks and/or incidents.
Another priority is the development of Common Training Centres, acting as “Centres of
Excellence” (CoE). These structures serve as dedicated facilities to provide standardised training
and knowledge transfer to the ATLAS member units. Thus, the quality of the delivered training
can be kept consistently on the highest level. At the same time, the amount of the target
groups/participants can be increased. Along with this structure, a dedicated programme for
“Pooling and Sharing” of special equipment will be further developed.
Description of the activities to be funded
The allocation of funds will cover numerous activities which allow the different specialised
groups to increase its operational proficiency and to aid in carrying out various training/tactical
response building exercises and workshops.
The activities, dependent on budget availability, are:
- fostering communication and coordination amongst SIUs;
- delivery and/or design of training on:
o
entry techniques
o
silent techniques
o
rural mountain operations
o
buildings (assault tactics and knowledge)
100
As mentioned in the guidelines EDOC #878276.
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-
-
-
-
-
-
-
-
Rigid Hulled Inflatable Boats
naval targets
Unmanned Aerial Vehicles (UAVs)
sniper techniques
urban rappelling
first aid
(
intervening in cases of most serious crimes with a high risk of life
threatening and/or mass injuries)
o
specialised parachute use: „Silent Approach Tactics“
o
K9 techniques: interventions with specialised dogs’ assistance
sharing of experiences and best practices between EU MS and third countries;
further development of the secure information exchange tools;
maintenance of the mock-ups set up as part of the Common Training Centre “Centres of
Excellence” Aircraft;
establishing support frameworks to implement operational activities;
enhancing cross-border/transnational operational cooperation between EU Member
States in the areas of competence of SIUs;
establishing joint training and preparation for challenges impacting on several activities
focussed on evaluation of training and cooperation results;
exploring further development of secure communication tools;
fostering cooperation with third countries: Police Special Intervention Units Conference
(POLSPEC).
o
o
o
o
o
o
Europol may award using simplified cost options, provided that a decision by the Executive
Director has been adopted.
Justification Direct Grant
Under Article 61(3) of the Europol Regulation, the grant may be awarded without a call for
proposals where the grant action is supporting specific tasks referred to in points (h) and (i) of
Article 4(1) of the Europol Regulation. This grant provides support to the Atlas network that
represents the Member States’ special intervention units (via the legal entity of the country
chairing Atlas on behalf of the network).
Indicative timetable and indicative amount of the grant
If the overall budget allows for it Europol intends to introduce differentiated appropriations
with a multi-annual direct invitation to apply for the ATLAs grant from 2025 onwards.
Date
Q1 2025
Expected implementing period : 2025-
2026
Amount
EUR TBC
Maximum possible rate of co-financing of the total eligible costs
95%
5. OTF grants
Legal basis
Article 4(1)(h) and (i) and Article 61(3) of the REGULATION OF THE EUROPEAN PARLIAMENT
AND OF THE COUNCIL on the European Union Agency for Law Enforcement Cooperation
(Europol) and replacing and repealing Council Decisions 2009/371/JHA, 2009/934/JHA,
2009/935/JHA, 2009/936/JHA and 2009/968/JHA.
Standard Operating Procedure - Standard Operating Procedure on the Selection of High Value
Targets and Establishment of Operational Task Forces within O2-ESOCC, EDOC #901933v18A.
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Budget line
3940 OTF Grants
Priorities of the year, objectives pursued and expected results
Priority: Europol will focus on the identification of High-Value Targets and the establishment of
Operational Task Forces addressing the individuals and organised crime groups posing the
highest serious and organised crime risk for the MS.
Objective: Creation and support of an environment for multi-disciplinary teams and
transnational investigations aiming at having a stronger impact in destabilising activities of high
risk organised crime groups and disrupting criminal markets.
Expected results: deliver qualitative operational support to OTFs, which are focusing on poly-
criminal networks and their leaders posing the highest risk of serious and organised crime.
Description of the activities to be funded
Operational and/or investigative activities (e.g. travel and accommodation for operational
meetings outside Europol HQ, direct operational costs such as informant rewards,
buying/renting operational technical and forensic equipment, interpretation or deployments,
etc.) implemented by the Operational Task Forces, established in accordance with the SOP with
a budget not exceeding 60,000 EUR (in line with the threshold defined in the EU Financial
Regulation), aiming to support MS investigations against individuals and criminal organisations
constituting highest serious and organised crime risks to more than one MS and to intensify
asset tracing and increase the rate of confiscation of criminal proceeds.
Each application, within the limit of 60,000 EUR, could cover a particular stage of the ongoing
investigation. The operational stages will be pre-defined within the Operational Plan of an
established OTF in accordance with the Standard Operating Procedure in place. If operationally
justified, several subsequent applications could be submitted, enabling Member States to apply
for funding throughout the lifetime of the operation.
Europol may use simplified cost options provided that a decision by the Executive Director has
been adopted. The duration of grants will be 9 months extendable for a period of 3 months, if
operationally justified.
Essential eligibility, selection and award criteria
Eligibility criteria:
I. In order to be eligible the Applicant must be a public body established in an EU Member State
and in the law-enforcement cooperation under Europol Regulation. In addition, the Applicant
must be a member of established Operational Task Force applying Standard Operating
Procedure on the Selection of High Value Targets and Establishment of Operational Task Forces.
No differentiation is made in Europol’s constituent act between different Member States.
However, the opt-in structure used for JHA under the TFEU creates a varying degree of
participation of Member States. Europol pays due regard to the status of EU Member States
with regard to the Europol Regulation and/or Justice and Home Affairs matters as regards
eligibility to be a (lead) Applicant.
II. The Co-Applicants must be members of established Operational Task Force:
- a public body established in an EU Member State or in a third country OR
- an International Organisation.
As regards co-applicants, even non-opting-in Member States could be eligible as co-applicants
on the same basis as third countries and third parties provided that their participation is justified
by the nature of the action. Their meaningful participation has, however, to be possible having
due regard to Europol’s legal obligations on exchange of information with third countries.
III. Applications must involve at least two (2) public bodies established in two (2) different EU
Member States.
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IV. The proposed actions must be related to activities of established Operational Task Force,
which carry out intelligence and investigative activities against selected HVT as defined within
the Standard Operating Procedure
101
on Selection of High Value Targets and Establishment of
Operational Task Forces.
V. The requested grant cannot be higher than 60,000 EUR, or in line with the current threshold
for low-value grants established by the EU Financial Regulation.
Selection criteria:
In accordance with Article 198 of the EU Financial Regulation, proposals for action shall be
evaluated on the basis of the following selection criteria:
- Financial capacity - Applicants and co-applicants must have stable and sufficient sources of
funding to maintain their activity throughout the period during which the activity is being carried
out and to participate in its funding.
- Operational capacity - Applicants and co-applicants must have the professional resources,
competences and qualifications required to complete the proposed action.
- The verification of the financial and operational capacity shall not apply to public bodies and
international organisations in accordance with Article 198 of the EU Financial Regulation.
To ensure that the operational needs are met, a pool of evaluators shall be duly appointed by
the responsible authorising officer. In each evaluation at least 2 evaluators from that list (with
complementary expertise in law enforcement and finance) shall perform the evaluation (without
a separate ad hoc appointment).
To allow for fast processing, applicants must use the templates to apply and reply within
maximum 24 hours to any questions raised during evaluation.
Award criteria:
In accordance with Article 199 of the EU Financial Regulation proposals for an action shall be
evaluated on the basis of the relevance, quality, cost-effectiveness and European added value
of the proposed action.
Ex-post publicity for award of grants (in particular their annual publication in accordance with
Article 189 of EU Financial Regulation (EU, Euratom) 2018/1046) and the financial verification
of the payment requests, including the required supporting documentation, shall take into
account the confidentiality and security of the operational and classified information.
Information for Applicants
The Invitation to submit applications shall be restricted to OTF participants only. Once an OTF
is established, the Invitation, accompanied by the application package, shall be circulated to
the targeted audience only. All OTF participants shall receive the information simultaneously,
in accordance with the principle of equal treatment.
Indicative timetable for the direct award and indicative amount of the grant
If the overall budget allows for it Europol intends to introduce differentiated appropriations
with a multi-annual invitation to apply for the OTF Grant scheme from 2025 onwards.
Date
Publication Q1 2025
Award of Grants: Q1 2025-Q4 2026
Amount
EUR TBC
102
+ 2,000,000 in 2025 from the legislative
proposal for a Regulation to prevent and fight
migrant smuggling
103
.
EDOC #901933 v13 “Standard Operating Procedure - Selection of High Value Targets and establishment of
Operational Task Forces within O2-ESOCC”.
102
If operationally justified, the authorising officer may decide to increase the maximum amount for this scheme,
subject to Europol budget availability.
103
COM(2023) 754 final. Subject to adoption of the proposal and to the relevant funds becoming available.
166
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Maximum possible rate of co-financing of the total eligible costs
95%
6. Ad-hoc low-value grants in support of Innovation
Legal basis
Article 4(1)(h) and (i) and Article 61(3) of the REGULATION OF THE EUROPEAN PARLIAMENT
AND OF THE COUNCIL on the European Union Agency for Law Enforcement Cooperation
(Europol) and replacing and repealing Council Decisions 2009/371/JHA, 2009/934/JHA,
2009/935/JHA, 2009/936/JHA and 2009/968/JHA.
Budget line
3960 Innovation Grants
Priorities of the year, objectives pursued and expected results
The objective of this scheme will be to support the cooperation in combating serious crime
affecting two or more MS, by facilitating the delivery of innovative solutions addressing common
security challenges.
Description of the activities to be funded
Operational and/or innovative activities (e.g. direct operational costs pertaining to Innovation
such as the acquisition of Software licenses, equipment and materials and hiring of
consultants).
Each application, within the limit of 60,000 EUR, could cover a particular stage of an innovation
project, as defined by the European Clearing Board (EuCB).
Europol may use simplified cost options provided that a decision by the Executive Director has
been adopted. The duration of grants will be 9 months extendable, if operationally justified.
Essential Criteria
The new Scheme should not only acknowledge, but also strengthen the central role of the
European Clearing Board (EuCB) for all matters related to research and innovation for law
enforcement.
The EuCB is composed of at least one representative per EU MS and per Schengen-associated
countries (larger countries have a larger delegation, the decision being taken at national level).
These representatives are named “Single Points of Contact” (SPoCs) and are responsible, at
national level, for disseminating and raising awareness about opportunities and benefits of
cooperation with other European LEAs and with Europol in the field of research and innovation.
In principle, a grant application should be considered to be within scope if:
•
The related project is taking place as part of an EuCB Core Group;
•
It has a clear innovation focus and a well defined scope;
•
The related result has a cross-border relevance, for example it addresses a need
identified by more than one MS.
The new Scheme should deliver low-value grants only to Law Enforcement Authorities of EU
Member States and Schengen-associated countries.
The grants should be presented by a partnership of LEAs, composed of at least two LEAs from
two different MS.
Indicative timetable and indicative amount
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If the overall budge tallows for it Europol intends to introduce differentiated appropriations
with a multi-annual invitation to apply for the Innovation Grant scheme from 2025 onwards.
Date
Publication: Q1 2025
Award of grants: Q1 2025-Q4 2026
Amount
EUR TBC
104
Maximum possible rate of co-financing of the total eligible costs
95%
7. Low-value grants for cooperation with Eastern Partnership countries
This is a P.M. section, conditional to a future contribution agreement with DG Near.
If operationally justified, the authorising officer may decide to increase the maximum amount for this scheme,
subject to Europol budget availability.
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Annex XII: Strategy for
international organisations
cooperation
with
third
countries
and/or
2024 is the last year covered by the current Europol External Strategy, as detailed below. A
new External Strategy will be prepared and presented to the Management Board in the course
of 2024. More information will be included in the final Programming Document 2025-2027.
Europol External Strategy 2021-2024
1. Framework of the Europol External Strategy 2021-2024
The External Strategy is part of Europol’s multiannual programming, in
accordance with Article 12 of the Europol Regulation (hereafter “Regulation”).
The provisions for Europol’s relations with partners are laid down in Chapter V
of the Regulation.
The political framework of the Europol External Strategy 2021-2024 includes the
European Council’s Strategic Agenda 2019-2024, the EU Global Strategy, the Political
Guidelines of the current Commission and the steps leading to the European Security Union,
to which Europol will continue to contribute.
The key analytical reports on crime in the EU, including Europol’s assessments, provide the
operational framework for Europol’s external relations and an indication of the operational
needs of the MS.
The Strategic priorities included in the Strategy 2020+ and, as of June 2023, in the renewed
Europol Strategy represent the internal framework within which Europol’s external relations
are set; these strategic priorities represent the basis for defining the objectives for the
External Strategy.
The objectives of the External Strategy 2021-2024 and the prioritised external partners reflect
the findings of the report on the implementation of the External Strategy 2017-2020, in
particular the chapter on Partners of this Strategy. Based on the experience gained during
the implementation of the Europol External Strategy 2017-2020 and taking into account the
guidance from the Management Board, Europol’s leading goals when approaching external
partners is to maximize the exchange of information between Law Enforcement Agencies and
Europol and to foster international operational cooperation. As a general principle, Europol‘s
engagement in the projects with external partners will not adversely influence the analytical
and operational support provided to the Member States.
Europol will address the Member States’ interests and their need for support by making a
clear prioritisation of its external relations.
The implementation of this External Strategy will strongly rely upon the availability of
necessary resources.
2. Goals
The External Strategy guides Europol’s cooperation with external partners and fulfils the
Agency’s objectives set by its Regulation, namely to support the competent authorities of the
Member States and their mutual cooperation in preventing and combating serious crime,
terrorism and other forms of crime affecting a common interest covered by a Union policy.
Europol performing as an integral part of the EU security architecture
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The protection of citizens and freedoms is one of the priorities of the Strategic Agenda 2019-
2024
105
. Europol has well-established tools in the area of EU internal security, which address
existing and emerging threats to the EU posed by an ever-changing security landscape.
Europol will further develop its relations with third countries, international organisations,
regional groups and other external partners. The Agency will maintain existing and establish
new strategic and operational cooperation with external partners, to enable the Member
States’ competent authorities to further strengthen the prevention and combat of all forms of
serious crime. Europol will actively respond to current and emerging EU security challenges,
thereby contributing to the European Security Union and the priorities stemming from the EU
strategic framework. Europol will further strengthen its cooperation with the Commission and
the European External Action Service (EEAS) in order to support the development of external
relations in the area of security, in line with the operational needs of the Member States. In
addition to existing priorities, the focus will be on developing further capabilities in the fight
against cybercrime, financial and economic crime and environmental crime to support the
implementation of the Commission’s Political Guidelines for 2019-2024. As part of this
endeavour, Europol will continue building effective partnerships with EU agencies, operations
and missions and other bodies in line with European law enforcement’s operational needs.
Europol’s external relations flexibly responding to the Member States operational needs
The goal of Europol’s external relations is to enhance operational cooperation with external
partners, mainly through the exchange of data.
Europol’s activities in the area of external relations will be driven by the operational needs of
Member States, as identified by key analytical reports on crime in the EU. While contributing
to and ensuring the proper implementation of the priorities set by the EMPACT, Europol will
pay particular attention to including third countries and other external partners in EMPACT
activities, where relevant, and to the support of High Value Targets related investigations.
Europol’s partnerships with external partners will continue to provide a secure and adaptive
environment for flexible and timely support of the Member States’ investigations, according
to the Europol legal basis.
In order to reach these goals, Europol will pursue several objectives: the Agency will further
enhance partnerships with external parties at both strategic and operational levels, with a
view to opening new channels for data exchange and increase the data flow through existing
ones. It will further develop its cooperation tools in the external relations domain to provide
agile operational support to Member States law enforcement authorities and will promote EU
policing solutions, innovation and research in its external relations.
3. Objectives
Europol’s goals in the area of external relations can be reached through objectives set by this
External Strategy. These objectives strongly correlate with the strategic priorities set by the
Europol Strategy 2020+ and, as of June 2023, by the renewed Strategy. The latter built
further on the five strategic priorities of the Strategy 2020+, with an additional priority
specifically aimed at addressing the increased complexity of law enforcement cooperation at
EU level, and strengthening the role of Europol in bringing relevant partners together for
international cooperation.
1. Be the EU criminal information hub, including for data acquisition.
The main priorities of the European Council in the area of protecting citizens and freedoms include amongst others,
the effective control of external borders; fighting illegal immigration and human trafficking through better cooperation
with countries of origin and transit; improving cooperation and information-sharing to fight terrorism and cross-
border crime and protecting our societies from malicious cyber activities, hybrid threats and disinformation.
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2.
3.
4.
5.
6.
Deliver agile real-time operational support.
Be the platform for European policing solutions.
Bring the relevant partners together for cross-border cooperation and joint action.
Be at the forefront of law enforcement innovation and research.
Be the model EU organisation for law enforcement cooperation
Bearing in mind these strategic priorities, Europol’s objectives in the external relations are:
Enhancing the partnerships with external parties at both strategic and operational levels.
This overarching objective is the major driver for the further development of effective
partnerships with external partners. Europol will also support the Commission in the
negotiations of new agreements allowing personal data exchange, which have achieved
limited results during the first years of implementation of the Regulation.
The list of priority partners with which Europol may conclude working arrangements adopted
by the Management Board, and the criteria for setting the priorities regarding the conclusion
of Working Arrangements, discussed by the Corporate Matters Working Group in 2019, guide
the implementation of the External Strategy.
Europol will use the tools provided by the European Union to enhance external partnerships,
such as Union-funded projects, EU operations and missions when relevant.
Using an extended network of partners to develop further the EU criminal information hub
Europol’s external relations will focus on the further development of its role as the EU criminal
information hub, in order to contribute to the preventive measures and to support the delivery
of operational results to fulfil the priorities set by the EU strategic orientation. Europol will
also contribute, within its legal mandate, to other Union endeavours, such as achieving a
more effective control of its external borders, ensuring the proper functioning of Schengen
and providing improved crisis management mechanisms. In addition, Europol will continue
exploring its possible role in countering hybrid threats and in the European Union crisis
management scheme.
Special attention will be paid to the further development of cooperation with private parties,
non-governmental actors and international organisations that could contribute to the work of
Europol, according to its legal basis.
Further developing Europol’s cooperation tools to provide agile operational support
Europol attracts external partners due to its unique and well-functioning environment for
cooperation. Europol will continue to cultivate this environment, which represents a potential
for further growth of new interested external partners.
The current security threats and ever-changing criminal environment require a complex
multidisciplinary approach of law enforcement. This is reflected in the community of liaison
officers hosted by Europol, which consists of police forces, customs representatives, members
of the intelligence services and other law enforcement authorities. Europol will further invest
to expand this multidisciplinary environment.
While Europol will continue to develop the community of liaison officers in order to ensure an
effective connection with Member States and third parties, the future deployment of Europol
liaison officers will take place as agreed by the Management Board.
Europol will further expand SIENA with all its functionalities and other platforms, such as the
Europol Platform of Experts, in order to ensure the desired flow of operational information.
Europol will develop its external relations with a focus on interoperability and interconnection
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of information (in line with and exploiting the ongoing implementation of the interoperability
of EU information systems) to address EU security threats in all their complexity.
Interconnection and synergies will be of the utmost importance in the external relations of
the Agency. Europol will explore possibilities to cooperate with EU bodies, such as agencies,
CSDP missions and operations: the ultimate goal of this cooperation will be to secure the
operational data needed to support the law enforcement authorities of Member States.
However, any form of cooperation with civilian CSDP mission must be assessed case-by-case,
taking into account the Europol’s operational needs, its alignment with the legal basis and the
availability of resources.
Promoting EU policing solutions, innovation and research
Europol has completed the phase of promoting its business model to potential external
partners: the business model has helped establish solid external cooperation relations in
almost all the continents. The continued threats call for new law enforcement approaches, in
particular in the areas of counterterrorism, illegal migration, drug trafficking, trafficking in
human beings, cybercrime, as well as emerging threats from environmental crime. Due to a
strong external element, tackling such criminality requires new forms and levels of external
cooperation. Consequently, Europol has stepped up its efforts towards some external
partners, for example via Union-funded projects.
Europol will continue to promote the model of the European Union law enforcement work with
the goal to establish well-functioning external partnerships according to the operational
needs. For example, the Innovation Lab will coordinate innovation and research activities for
the benefit of the EU Member States’ law enforcement agencies and other EU agencies and
bodies. The Innovation Lab will focus on developing its external outreach with the established
operational partners of Europol. Close cooperation with the Interpol Global Centre for
Innovation (IGCI) is being established to monitor emerging technologies relevant to law
enforcement work. In this context, cooperation with private parties will be further explored,
keeping in mind current limitations in Europol’s mandate.
In promoting EU policing solutions, Europol will focus on serving as a knowledge platform also
for external partners, on promoting EU criminal analysis standards, on mediating and
interconnecting expertise between the Member States, Europol and external partners.
4. Partners
Europol will continue to set priorities for engaging with external partners. The criteria for
setting Europol’s priorities regarding the conclusion of Working Arrangements, discussed by
the Corporate Matters Working Group in 2019, will be applied to identify new external
partners.
Europol will continue serving as a platform for EU Member States’ competent authorities to
interact with their counterparts from the partner countries in a coordinated way. Concerning
the general focus of Europol’s external relations led by the priority topics of organised crime,
counterterrorism and cybercrime, the following areas will be further developed: cooperation
on financial investigations, namely through the European Financial and Economic Crime
Centre, Europol’s travel intelligence function, innovation and forensics.
Third countries and regions
Europol has established cooperation with a number of external partners. The Agency will
maintain the relations stemming from the existing agreements and working arrangements.
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The Europol Strategy states that Europol is the EU criminal information hub and it will continue
to enhance the value of its network by providing Member States with access to a growing
number of partners and sources of information.
From the geographical point of view, the
EU neighbourhood
has particular importance for
Europol’s external cooperation.
One of the main goals of Europol’s external relations will be to establish an excellent
operational partnership with the
United Kingdom
following its exit from the European Union.
Cooperation with the United Kingdom is essential for all the crime areas falling under Europol’s
mandate.
Maintaining excellent relations with the
Schengen Associated Countries
106
is also
important. Furthermore, Europol will continue filling the gaps in cooperation with other
European countries, such as
Andorra
and
San Marino.
While cooperation takes place on a daily basis at both strategic and operational levels, the
Western Balkan region
remains a top priority for Europol in view of persisting security
threats, such as organised crime, terrorism and migrant smuggling. The Agency has
established operational cooperation with all the partners in the region and hosts a community
of liaison officers at its premises.
Europol’s effort will be the further enhancement of operational cooperation with the Western
Balkans, including involvement in EMPACT. The exchange of criminal information and
intelligence at regional level should be improved in order to enhance the intelligence picture,
also in the context of the EU accession process of the Western Balkans. Western Balkan
partners will be encouraged to share proactively crime information. Europol will support
building up analytical capacities in the region in line with its recognised standards and best
practices, and it will continue supporting Western Balkan regional initiatives when relevant to
operational cooperation.
Europol will also continue to engage with
Middle East and North African countries.
Persisting migration pressure accompanied by security threats require well-established
cooperation within the region. In order to approach the partners, Europol will seek support of
the Commission, the European External Action Service and EU agencies active in the region.
Europol will focus on building mutual trust with the law enforcement agencies in the region
that should pave the way to the future exchange of information, also by promoting EU policing
solutions. Further support to develop Regional Threat Assessment will be provided through
the Union-funded project. Particular attention should also be paid to cooperation with
Türkiye
since the finalisation of the draft operational agreement between the EU and Turkey on the
exchange of personal data between Europol and Turkish law enforcement authorities would
allow for a more structured cooperation.
The current level of security threats will keep the focus on the
Eastern Partnership
countries.
107
Similar to the Western Balkan and MENA regions, Europol will assist in the
establishment of regional network of analysts and through the participation in EMPACT
activities. Strengthening cooperation with
Ukraine
in the fight against cybercrime, financial
and economic crime will be further pursued. Active information sharing with the countries that
have established cooperation with Europol and promoting Europol’s model of cooperation to
potential partners will also be in the focus.
Maintaining and further developing cooperation with
the United States, Canada and
Australia
will remain another top priority. Europol will also strive to develop excellent
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Iceland, Liechtenstein, Norway, Switzerland
Armenia, Azerbaijan, Belarus, Georgia, Moldova, Ukraine. Activities with Belarus are temporarily suspended.
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cooperation with
New Zealand.
Crime areas such as serious organised crime, terrorism and
cybercrime will be in focus.
Asia
The need for additional cooperation might arise after the Covid-19 crisis in relation to Asian
countries. In particular, Europol recognises the importance of further engagement with
China,
within the framework of the strategic cooperation agreement, which should go hand in hand
with growing Chinese investments and expanding relations with some Member States.
Countering cybercrime, child sexual exploitation and cooperation on innovation will be high
on the agenda for future cooperation in the region.
Latin America
Growing demand for drugs, enhanced drug trafficking routes into the EU and the euro
counterfeiting justify the need for enhanced cooperation with
Latin American countries.
Europol will focus on further cooperation as well as new partnerships with the
Andean
community.
International organisations
Interpol
remains Europol’s key partner due to its global outreach, complimentary tools and
developed strategic dialogue between the respective management, as both organisations
support law enforcement cooperation. Cooperation with Interpol will continue and further
develop in line with the Regulation and the planned EU-Interpol cooperation agreement.
Regional police organisations such as the Police Community of the Americas
(AMERIPOL),
Association of Southeast Asian Nations National Police
(ASEANAPOL)
and African Union
Mechanism for Police Cooperation
(AFRIPOL)
and other viable African regional and pan-
African partners will also remain partners for further engagement.
Europol will continue its efforts to enhance cooperation with other international organisations,
such as the North Atlantic Treaty Organisation
(NATO),
World Customs Organisation
(WCO),
UN entities (UNODC, UNCTED, UNOCT, III-M and UNITAD)
and the Organisation for
Security and Cooperation in Europe
(OSCE)
with a focus on counter terrorism and hybrid
threats.
As the external dimension of the fight against economic and financial crimes becomes
increasingly prominent, Europol’s cooperation with international organisations and networks,
such as the Financial Action Task Force (FATF) and the Egmont Group, will be a key component
of the European Financial and Economic Crime Centre.
5. Oversight mechanism – the role of the Management Board
The Management Board receives regularly strategic reviews of cooperation with particular
partners or regions in order to provide guidance for further actions. Information on the
implementation of the External Strategy will be presented every year.
The list of priority partners with which Europol may conclude working arrangements based on
goals and objectives
as outlined in this external strategy are annually reviewed and
submitted to the Management Board.
The Management Board regularly discusses the developments and achievements obtained
through Europol’s external relations to the benefit of the operational interests of the Member
States in order to review the goals and objectives set out in this External Strategy. An interim
review of this strategy was discussed by the Management Board in March 2023.
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From:
To:
Cc:
Subject:
Date:
Attachments:
MB Secretariat
METSOLA Roberta, President
LIBE Secretariat; MB Secretariat
@EXT: Letter from the MB Chairperson transmitting the draft Programming Document 2025-2027
31 January 2024 18:50:53
EDOC-#1340002-v11B-Draft_Europol_Programming_Document_2025-2027.PDF
EDOC-#1367345-v1-_PD_-_DRAFT___2025-
2027__Letter_from_the_MB_Chairperson_transmitting_the_draft_PD_2025_-
_2027_to_the_European_Parliament.pdf
Dear President Metsola,
Please find enclosed a letter from Mr Peter De Buysscher, Chairperson of the
Management Board of Europol, transmitting the Agency’s draft Programming
Document 2025-2027:
•
•
Letter from the MB Chairperson
Europol draft Programming Document 2025-2027
Please be informed that the draft Programming Document has also been sent to
the Council of the European Union and the Commission.
With kind regards,
Monica Bogdan
Management Board Secretariat
Europol
Eisenhowerlaan 73, 2517 KK
The Hague, The Netherlands
Work phone:
+31703025033
Mobile phone: +31627233752
E-mail:
[email protected]