Toelichting bij COM(2025)550 - 'AgoraEU' programme for the period 2028-2034 - Hoofdinhoud
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| dossier | COM(2025)550 - 'AgoraEU' programme for the period 2028-2034. |
|---|---|
| bron | COM(2025)550  |
| datum | 16-07-2025 |
1. CONTEXT OF THE PROPOSAL
• Reasons for and objectives of the proposal
The EU is a community of values ingrained in Europe's history and identity and anchored in the EU Treaty. As set out in Article 2 of the Treaty on the European Union (TEU), these are common to all Member States and encompass democracy, respect for human rights, non-discrimination, equality, the rule of law, and pluralism, with cultural diversity, freedom of expression, including media and artistic freedom and pluralism, also being enshrined in the Charter of Fundamental Rights of the EU.
Citizens’ participation and engagement, transparency and accountability in decision-making, as well as respect for fundamental rights and the rule of law contribute to the vitality of European democracy. Media plays a crucial role in fostering public opinion and free debate. Audiovisual content and all other forms of artistic, cultural and creative expressions, including cultural heritage, are essential to Europe’s diversity and to forging societal resilience and mutual understanding. Beyond their intrinsic value and social impact, they are powerful drivers of sustainable economic growth and competitiveness, innovation and employment, and soft power, making them essential to Europe’s future.
The importance of an EU financial intervention in these areas lies in their ability to foster inclusive and participatory governance, facilitate informed and active citizenship, safeguard and promote fundamental rights, promote equality and non-discrimination, and celebrate cultural diversity and all types of artistic expressions. Europe’s thriving creative and media sectors, its audiovisual industry and the richness of its cultures and heritage are central to its identity. However, these policy areas face serious challenges that require a holistic Union response.
Union values are the object of internal and external pressures, such as challenges to the rule of law, inequalities, discrimination, violations of fundamental rights, declining trust in democratic institutions as well as weakened confidence in democratic processes. Structural inequalities persist as well as violence and discrimination on the grounds of sex, racial or ethnic origin, religion or belief, disability, age or sexual orientation, often shown in racism and other forms of intolerance. Meanwhile, the traditional role of independent civil society organisations in counterbalancing these trends is challenged by a weakening of financial and political support.
The European media industries are a beacon of quality and creativity, but today they compete with global online platforms for the attention of citizens and consumers. Circulation of EU audiovisual content continues to be fragmented along national lines, and non-EU players capture most of the box office and streaming subscriptions. While the video game industry has gained a strong foothold in contemporary digital culture (more than half of the EU population regularly plays video games), the Union’s video game market continues to be largely dominated by global competitors. Finally, the integrity of the information space is at risk through the spread of disinformation and the growth of foreign information manipulation and interference by hostile actors, such as Russia. Threats against media pluralism are compounded by phenomena such as concentration of media ownership. In parallel, news media experience declining advertising revenues and sales, as digital competitors have captured an increasing share of revenue and shaped consumption habits. As a result of all these factors, media viability is under pressure.
Culture and the cultural and creative sectors and industries in the Union are fragmented as well along national and linguistic lines, reflecting our rich diversity. This limits transnational artistic collaboration, audience reach, the development of innovative practices, as well as the sectors’ resilience and potential for competitiveness, and strengthening societal wellbeing. Culture and creative sectors’ professionals struggle to work across borders and to access new opportunities and markets, which exacerbates geographical imbalances and reduces the circulation of European cultural works. The limited cross-border mobility and cooperation hinders networking, economies of scale, pooling expertise, and co-creation, all that is crucial for sustaining careers and strong culture and creative sectors. Meanwhile, Europe’s rich cultural heritage faces threats from a combination of budgetary constraints, vulnerability to pollution, climate change and natural disasters, as well as misappropriation or destruction.
Finally, societal, creative, cultural and media sectors experience common technological dependencies and could benefit from common activities. They are impacted by financial weaknesses, obstacles to accessing finance, difficulties in using and uptaking applied innovation, lack of adaptation to new sets of skills and digital transformation. Meanwhile, non-EU tech giants increasingly influence the civic, media, and cultural landscape, shaping content consumption through algorithmic recommendations, automated distribution and AI-generated content.
These are challenges of a transnational nature that cannot be effectively addressed without joint EU-level solutions, coordination, steering and support. EU actions can help enable cooperation, capacity building, and mutual learning, as well as optimise and combine the potential of these sectors to contribute to economic growth, societal development and cultural diversity.
EU support to address challenges affecting culture, media, and equality, citizens, rights and Union values has been provided through different funding programmes over the years. In the 2021-2027 Multiannual Financial Framework (MFF), support to culture, the cultural and creative sectors and the audiovisual industries was addressed by Creative Europe, with the objectives of safeguarding, developing and promoting European cultural and linguistic diversity and heritage and contributing to the competitiveness of these sectors, notably the audiovisual sector. Meanwhile, the promotion and protection of rights and Union values as enshrined in the Treaties, the Charter and the applicable international human rights convention were primarily the object of the Citizens, Equality, Rights and Values (CERV) programme. CERV has supported civil society organisations working at European, national, regional and local levels, including grassroots, in their work to protect and promote Union values. The Union support in some areas, such as news media and countering disinformation, was fragmented across different programmes. The cross-sectoral strand of Creative Europe included specific actions on media pluralism, literacy, and media collaborations, while the Multimedia actions line supported the provision of information on EU topics. Tackling disinformation has so far been funded through Digital Europe.
The 2028-2034 MFF proposal aims at addressing ‘complexities, weaknesses and rigidities’ currently present in the EU’s budget, and provides a framework that is more focused, simpler, with fewer and more impactful programmes. For this reason, and to increase the budget’s flexibility and ability to respond to changing realities and emerging problems, this proposal seeks to streamline the EU intervention in the areas of culture, media and equality, citizens, rights and values, exploiting connections and synergies where relevant, while respecting the singularity and specific needs of each of these policy areas.
In the area of equality, citizens, rights and values, the proposal will contribute to upholding democracy and the rule of law, fundamental rights and equality, reducing discrimination and empowering civil society. The new Programme will contribute as well to fighting against gender-based violence, violence against children and other groups at risk. In addition, it will contribute to enhancing democratic resilience and participation.
Media is a driver of democratic values, cultural diversity and economic growth. The media sector encompasses inter alia content such as films, series, video games, news and information, immersive reality and multimedia, as well as services including theatrical exhibition, television and radio broadcasting, print and online publishing, online videos and podcasts. To be socially relevant, the audiovisual and media industries need to be resilient and competitive. The proposal will support a free, competitive and diverse media and audiovisual space. It will on one hand enhance the production, circulation, IP exploitation and consumption of audiovisual works and other forms of media content, such as gaming. On the other hand, it will contribute to protecting the viability and pluralism of the information market, notably by supporting news media and media independence including at regional and local levels. It will also contribute to tackling disinformation and foreign information manipulation and interference.
Culture and the cultural and creative sectors are great assets for Europe, projecting the image of a dynamic continent on the world stage. Encompassing inter alia performing arts, literature and book publishing, music and visual arts, tangible and intangible cultural heritage, architecture, archives, libraries and museums, artistic crafts and design, they produce meanings on various mediums and through multiple formats. The EU intervention in the field of culture will contribute to increasing cross-border cultural creation and cooperation, cultural participation and accessibility to a diversity of European cultural expressions and to protecting and preserving cultural heritage. The proposal will also help increase the circulation of a diversity of cultural works and the mobility of professionals, as well as promote inclusiveness and intergenerational fairness through culture. Finally, it will strengthen the social, economic and external dimensions of the cultural and creative sectors.
Finally, the EU should promote synergies among the media, culture, and civic spheres, bringing together public and private entities as well as promoting cross-sectoral cooperation, and innovation, to address common challenges and contribute to societal resilience and democratic participation.
On this basis, the EU financing intervention will be best equipped to enhance and scale up existing successful schemes, to better address transnational challenges, and to fill gaps impossible to address at Member States level. It will also provide wider coherence and better alignment between regulatory policy and funding instruments, as well as between internal and external policies. Therefore, the proposal will contribute to reinforcing Europe’s societies, media and culture, and foster Union values and democratic participation and help unlock the full potential of the Union as a source of progress, sustainable development and growth.
The policy areas covered by this legal proposal are firmly anchored in the EU Treaties, which provide the legal bases for EU action through Union funding programmes, and they contribute to the Union’s long-term objectives. The proposal provides for a date of application as of 1 January 2028.
• Consistency with existing policy provisions in the policy area
Inhoudsopgave
- Fundamental rights, EU values and democracy
- Media and audiovisual
- Consistency with policies supporting people, strengthening our societies and our social model
- Consistency with justice policies
- Consistency with policies for a global Europe
- The proposal complies with the principle of proportionality, in that it does not go beyond the minimum required to achieve the stated objectives at EU level and what is necessary for those purposes.
- see Annex
- A part of the Programme will be implemented by an Executive Agency under the supervision of the Commission services responsible for the Programme.
The proposal is fully in line with the Charter of Fundamental Rights of the European Union, and all relevant EU policy and legislative frameworks in the field of equality and non-discrimination. It also contributes to the Union of Equality strategy. A core ambition of the European Union is to ensure, through a multi stakeholder and intersectoral approach, that all people, regardless of gender, race, ethnicity, disability, sexual orientation, age, religion or belief, can live free from discrimination and participate fully in society.
The European Union’s commitment to equality is anchored in numerous key communications and action plans. The European Commission’s 2020 Strategy for the Equality of LGBTIQ People and the 2021 Gender Equality Strategy underscore the EU’s dedication to tackling discrimination and promoting equality across all aspects of society. Both strategies will be renewed, as the current ones end in 2025. These are complemented by the upcoming EU Anti-Racism Strategy 2026-2030, the EU Roma Strategic Framework for Equality, Inclusion and Participation (2020–2030), the Strategy for the Rights of Persons with Disabilities (2021–2030), and the EU Strategy on the Rights of the Child, the EU Strategy on combating antisemitism and fostering Jewish life (2021-2030) and the work strand on combatting anti-Muslim hatred. The upcoming Intergenerational Fairness Strategy is also of relevance in this context.
The first EU comprehensive framework on democracy has been developed through the 2020 European Democracy Action Plan, the 2021 package of measures to reinforce democracy and protect the integrity of elections and the 2023 Defence of Democracy Package in synergy with the External Action Plan on Human Rights and Democracy 2020-2027. The most recent legislation in this context includes the Regulation on transparency of political advertising, and the EU law protecting persons who engage in public participation from manifestly unfounded claims or abusive court proceedings ('strategic lawsuits against public participation').
The upcoming European Democracy Shield will seek to further protect and strengthen democracy and democratic resilience. It will seek to address the increasing threats to democratic institutions, systems and processes within the EU and to enhance citizens’ trust and participation in democracy. The upcoming EU Civil Society Strategy will seek to further protect and empower civil society, sending a strong signal of recognition to the work carried out by civil society and their contribution to EU policies.
This legal proposal also builds upon the EU media and audiovisual framework, where regulation, funding and policy effectively support each other, thereby facilitating democratic debate, enriching our culture, and driving the digital transformation with competitive EU media players.
It will accompany EU single market policies in the audiovisual and media sectors, and its design will complement and reinforce existing legislative instruments. The Audiovisual Media Services Directive (AVMSD) has laid down a common regulatory framework for audiovisual media services across the EU, including provisions such as the promotion of European and independent works, protection of minors, and regulation of audiovisual advertising. Together with AVMSD, the proposed Programme will strengthen the capacity of European audiovisual players to finance, produce and disseminate works that can be sufficiently visible on the different media available and are attractive to audiences in an increasingly open and competitive market within Europe and beyond.
The recently adopted European Media Freedom Act (EMFA) provides safeguards for media freedom and pluralism, including protections against political interference, enhanced transparency of media ownership, and obligations on the independence of public service media. The proposed Programme will complement EMFA by providing financial support to news media outlets and strengthening editorial independence.
It will also build on the Code of conduct on countering hate speech online, the 2018 Action Plan against disinformation, and the Code of Conduct on Disinformation recently integrated within the co-regulatory framework of the Digital Services Act (DSA), by enhancing media literacy and reinforcing situation awareness on the online information space across Member States.
Culture
Concerning culture, cultural heritage and the cultural and creative sectors, the initiative will accompany the upcoming Culture Compass for Europe, which is intended as a strategic policy approach aiming to embed culture and the CCS in the Union’s overarching policy goals and to guide and harness their multiple dimensions.
The initiative builds on several key policy initiatives, including the European Agenda for Culture, the Council’s Work Plans for Culture, the EU Strategy for International Cultural Relations, and the European Framework for Action on Cultural Heritage, which all plea for a stronger role for culture and the CCS in the further social, economic and international development of our Union. It aligns with European initiatives such as the New European Bauhaus, the European Capitals of Culture action and the European Heritage Label action. It is also in line with the Rome Declaration of March 2017, where the Member States and EU institutions envisioned a Union “where citizens have new opportunities for cultural and social development and economic growth [...]; a Union which preserves our cultural heritage and promotes cultural diversity”.
Furthermore, it is consistent with the Commission Communication on Strengthening European Identity through Education and Culture, which states that it is in the shared interest of all Member States “to harness the full potential of education and culture as drivers for jobs, economic growth, social fairness, active citizenship as well as a means to experience European identity in all its diversity”. The initiative is also in line with the 2005 UNESCO Convention on the Protection and Promotion of the Diversity of Cultural Expressions, to which the Union and its Member States are parties.
Finally, the initiative is to be seen in the context of the upcoming EU Strategy on sustainable Tourism, aiming among others to support visitors in discovering lesser-known cultural routes and heritage sites across Europe, thus fostering economic development and promoting local jobs.
• Consistency with other Union policies
The initiative is aligned with the overarching Commission’s 2024-2029 policy priorities, namely in terms of 1) Supporting people, strengthening our societies and our social model; 2) Protecting our democracy, upholding our values; 3) Europe’s sustainable prosperity and competitiveness; and 4) a global Europe.
In the context of the Multiannual Financial Framework (2028-2034), synergies will be fostered between media, culture, equality, rights and values initiatives and the future intervention in the fields of skills, education, social inclusion, solidarity, intergenerational fairness, youth and social and territorial cohesion. These synergies, such as in media literacy, digital skills, civic engagement and civic education and skills development and inclusion through creativity and the arts will be promoted in line with the objectives of the European Youth Strategy and the EU Citizenship Report. The initiative may also seek synergies and complementarities with future interventions under shared management aimed at strengthening social and territorial cohesion within the EU.
The initiative complements some initiatives promoting the principles of the European Pillar of Social Rights, including through employment and social policies, as well as of the European Child Guarantee. This includes promoting equal access to rights and fostering diversity, including at the regional and local level, as means to support social inclusion and fair labour markets, and to tackle child poverty. As key actors in shaping public discourse and fostering democratic engagement, culture and media are central to building inclusive, resilient societies. In the context of the Union of Skills, the initiative will actively contribute to the upskilling and reskilling of professionals in the cultural and creative industries (CCIs), supporting their adaptability in the face of digital and green transitions and labour market shifts. Furthermore, by reinforcing the competitiveness of cultural and creative sectors, the Programme favours the creation of jobs in these sectors. At the same time, the initiative will enhance capacity-building for civil society organisations (CSOs) working in the field of equality, rights and values.
In light of increasing risks linked to natural hazards, health emergencies, technological accidents, evolving security threats, and other disruptions, this initiative will enhance the resilience of vital societal functions, and build a more resilient, secure, and prepared Union, in line with the objectives of the EU Preparedness Union Strategy.
The alignment between justice policies and the rule of law creates a robust framework that ensures accountability, promotes legal coherence across and within Member States, and protects fundamental rights, thereby enhancing trust and cooperation within the Union. The relationship between fundamental rights and justice policies is key in shaping fair and equitable societies. Fundamental rights – ranging from the right to a fair trial, freedom from discrimination to the protection of privacy – define the essential standards that justice systems must uphold, and translate abstract principles into concrete legal measures and practices. For instance, anti-discrimination laws enforce the principle of equality before the law.
Thus, the synergy between fundamental rights and justice policies ensures that legal systems not only prevent abuses but also actively promote dignity, equality, and freedom. This synergy is essential for building public trust in legal institutions, fostering social cohesion, and ultimately ensuring that justice is accessible and meaningful for all individuals. To this end, in the context of the Multiannual Financial Framework (2028-2034), synergies will be fostered between this Programme and the future Justice programme.
Consistency with policies for the Single Market and competitiveness
By contributing to the competitiveness of media, audiovisual and the cultural and creative sectors, the initiative will complement the EU policy framework on industrial policy and economic competitiveness. Notably, it builds on the 2024 Single Market and Competitiveness Report, which adopts an ecosystem-based approach to strengthen the resilience and strategic autonomy of key industrial sectors, including cultural and creative industries. It also reflects the objectives of the Competitiveness Compass, which sets out clear benchmarks to improve the EU’s long-term productivity and resilience and promote innovation.
In addition, the initiative relates to the 2020 Commission Communication “An SME Strategy for a sustainable and digital Europe”, which aims to unleash the power of Europe’s SMEs to lead the twin transitions, based on three pillars: capacity-building and support; reducing regulatory burden and improving market access; and improving access to financing. The initiative also contributes to the European Commission’s new Savings and Investments Union Strategy, which aims to enhance financial opportunities for businesses.
Research and innovation are essential to developing inclusive, rights-based cultural, creative, and media systems. The initiative will strengthen synergies with the future Framework Programme for research and innovation and the future European Competitiveness Fund. The latter includes support for multidisciplinary research on a variety of topics, including democracy, values, equality, and disinformation, but also on digital and industrial topics closely linked to the culture and creative sectors and cultural heritage. Synergies and complementarities will need to be strengthened to reinforce the European research ecosystem, so that the cultural and creative sectors and civil society fully benefit from the advances of European research and innovation areas. The Programme will thus contribute to the take-up of the results of research and innovation actions funded under the Research Framework Programme.
Moreover, the proposal contributes to addressing Europe’s digital transformation, in line with the objectives of the Digital Decade 2030. It will complement it by supporting actions that promote digital preparedness, skills development and applied innovation in the societal, culture and media sectors, such as the AI Continent Action Plan and the Apply AI strategy. It will also accompany existing regulation, such as the Digital Services Act, the Digital Markets Act and the AI Act by increasing the audiovisual and media content access, strengthening media literacy, encouraging fair competition and platform-neutral access to audiences. Cross-border collaborations and availability of audiovisual content would also strengthen interoperability of digital products.
The proposed Programme will, once adopted, complement actions financed through the Union’s external actions. For instance, by promoting cultural exchanges and supporting Union creative industries, media and audiovisual content globally including through international collaborations, it will open new markets, attract global talent, enhance the EU’s influence and attractiveness on the world stage. The future intervention will include participation of third countries in the Programme and support for international collaborations, allowing for synergies with EU’s policies on external action.
2. LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY
• Legal basis
The proposal is based on Articles 19 i, 21 i, 24, 167(5), 168(5) and 173 i of the Treaty on the Functioning of the European Union (TFEU), to achieve the Programme’s general objectives in a comprehensive way.
Article 19 i TFEU provides for the adoption of incentive measures to support Member State action in combating discrimination based on sex, racial or ethnic origin, religion or belief, disability, age or sexual orientation.
Democratic engagement, civic participation and the fostering of civil society are essential building blocks of the notion of Union citizenship. They constitute crucial factors and facilitators of the right to move and reside freely in the Union.
Article 21 i TFEU provides for Union measures to facilitate the exercise of citizens’ rights to move and reside freely within the territory of the Member States. Actions to inform citizens and authorities about citizens voting rights when residing in another Member State can also be covered by this Article, since in practice they also facilitate the exercise of a citizen’s right to move and reside freely.
Article 24 TFEU obliges the European Parliament and the Council to adopt provisions for the procedures and conditions required for a citizens’ initiative within the meaning of Article 11 TEU. This has been done by adopting Regulation (EU) 2019/788 of the European Parliament and of the Council 1 . The Programme should support the financing of technical and organisational support for the implementation of that Regulation, thereby underpinning the exercise by citizens of the right to launch and support European citizens’ initiatives. Together with the other rights set out in Article 24 TFEU, that right ensures citizens’ direct participation in the democratic life of the Union.
Article 167(5) TFEU tasks the Union to adopt incentive measures to contribute to the flowering of the cultures of the Member States, while respecting their national and regional diversity and by bringing forward the common cultural heritage. The actions by the Union shall encourage co-operation between Member States and supplement their actions in areas such as improvement of the knowledge and dissemination of the culture and history of the European peoples and conservation and safeguarding of cultural heritage of European significance.
Article 168(5) TFEU provides a legal basis for the adoption of incentive measures designed to protect and improve human health. Violence, including against children and women, constitutes a danger to physical and mental health. Children are vulnerable citizens and need an increased level of protection against these dangers, which often include cross border threats. Violence against women also constitutes a serious threat to the physical and mental health of victims, who are in need of a high level of protection.
Article 173 i TFEU states that the Union may decide on specific measures in support of action taken in the Member States to ensure that the conditions necessary for the competitiveness of the Union's industry exist, including taking action to encourage an environment favourable to initiative and to the development of undertakings.
• Subsidiarity (for non-exclusive competence)
The promotion and protection of culture, media and Union values requires transnational cooperation and coordinated efforts that extend beyond national borders. These are areas where the complexity of the challenges makes it difficult for Member States to address them sufficiently on their own. Coordinated action at EU level allows for more coherent and impactful responses to address transnational and common challenges that slow down progress and allow systemic impact through the identification and the resolution of structural gaps not prioritised by Member States. The EU budget plays a key role in enabling these collective responses. Such an approach also ensures greater coherence between internal policies and the Union’s promotion of its values and international standards abroad.
By reason of the scale and effects of the proposed programme, a Union-level action brings added value, as these objectives cannot be sufficiently achieved by the Member States acting alone. For instance, it strengthens a sense of EU citizenship and mutual understanding by facilitating cross-border activities that foster civic engagement, solidarity, and wider participation in culture and media. It also ensures consistent and high standards across the EU and effective application of rights enshrined in EU law across Member States, which is essential for the protection of EU citizens. Moreover, EU action reinforces the Single Market by promoting fair access and mobility, while enabling more efficient delivery through coordinated frameworks and larger-scale joint projects. By addressing fragmentation, promoting collaboration across Member States and pooling resources at EU level, the initiative ensures that creative industries, audiovisual and media companies and creators can fully benefit from the Single Market. It improves access to diverse cultural and creative content, supports media pluralism, and increases the competitiveness of the European audiovisual industry.
The added value of EU funding in these policy areas was highlighted by a vast majority of respondents to the open public consultation carried out by the Commission for the new EU programmes (see below).
• Proportionality
The proposal complies with the principle of proportionality, in that it does not go beyond the minimum required to achieve the stated objectives at EU level and what is necessary for those purposes.
• Choice of the instrument
The new ‘AgoraEU’ Programme builds primarily on the Creative Europe Programme (2021-2027), the Citizens, Equality, Rights and Values (CERV) Programme (2021-2027) and existing prerogative lines, bringing together EU financial support to sustain culture, media and Union values. The new instrument takes into account the specific features of the different sectors, their different target groups, and particular needs, while ensuring synergies and complementarities.
3. RESULTS OF EX-POST EVALUATIONS, STAKEHOLDER CONSULTATIONS AND IMPACT ASSESSMENTS
• Ex-post evaluations/fitness checks of existing legislation
The Commission has taken into account the results of the final evaluation of the Creative Europe programme 2014-2020 and interim final evaluation of the Creative Europe programme 2021-2027, as well as the interim evaluation of the CERV programme and the final evaluations of the Europe for Citizens programme and the Rights, Equality and Citizens programmes, which were carried out over the period 2023-2025.
These evaluations assessed the performance of the programmes, based on their effectiveness, efficiency, relevance, coherence, sustainability and EU added value.
The results of these evaluations indicate that the existing programmes have largely delivered on their policy objectives and provided EU added value, while highlighting areas for improvement in terms of design.
The evaluation of Creative Europe underscores the contribution of the Programme to the general objective of supporting cultural and linguistic diversity and cultural heritage by increasing people’s access to a variety of content coming in particular from beyond national borders and to the objective of competitiveness by helping audiovisual and other creative and cultural operators to improve their skills and scale up at European level. It has a unique place as the only source of funding for transnational cooperation, exchange of good practices, circulation and mobility in these sectors.
The interim evaluation of the CERV programme confirmed that the programme occupies an otherwise largely empty space in the values and fundamental rights funding landscape, as the dedicated EU instrument to safeguard and promote fundamental rights, equality and non-discrimination, democracy and the rule of law in Europe. The evaluation also showed the key role played by the programme in supporting civil society organisations working on rights and values, including those at the grassroots level, who would often lack other funding sources and forms of support.
The evaluation of the Multimedia Actions line (2021-2023) confirms that it was effective in strengthening news coverage on EU affairs from a European perspective. The actions supported the production of a high volume of original content, achieving a notable audience reach.
• Stakeholder consultations
A public consultation informed the impact assessment for EU programmes in the domains of cross-border education, youth, culture, media, values and civil society under the post-2027 MFF. It was conducted between 12 February and 7 May 2025. In total, the consultation gathered 5,845 valid replies.
The responses revealed a clear affirmation of the EU’s continued role in fostering cross-border cooperation and supporting culture, media, democracy and fundamental rights. For example, the proportions of respondents finding it ‘very important’ or ‘important’ to ‘protect democracy and democratic standards’, to ‘promote respect of fundamental rights (including children’s and women’s rights)’, to ‘promote media independence and media pluralism, fight against disinformation’ and to ‘promote cultural and creative diversity’ were respectively at 91%, 88%, 85% and 78%.
The responses to the public consultation also confirmed that EU funding provided added value compared to funding at national, local or regional level in the areas it covered. For example, 66% of respondents considered that ‘Protecting democracy and promoting democratic standards’ is an area where EU funding provides significant added value. Nearly two thirds of respondents mentioned support to the audiovisual and media sectors as an “important” policy objective. Finally, approximately 80% of respondents see an added value in EU funding going to ‘Promote cultural and linguistic diversity’ and ‘Promote and preserve cultural heritage and European remembrance’ and 74% to ‘Ensure widespread access to culture and cultural heritage’.
Asked to evaluate the obstacles preventing the EU budget from fully delivering on its objectives in the policy areas, respondents generally welcomed the Commission’s focus on greater efficiency in funding, but not at the cost of “identity” and “trust”, preserving thematic clarity and stakeholder ownership.
Quantitative results show that the most frequently cited obstacles across all groups were administrative burden (identified by 51% of citizens and 56% of organisations) and complex, fund-specific compliance rules (49% of citizens and 52% of organisations). These issues reflect concerns not only with regulatory complexity but also with fragmentation between instruments and inefficiencies in delivery. Additional barriers included lack of flexibility to reallocate resources in response to emerging needs (45% of citizens and 50% of organisations), delays in programme implementation and funding disbursement, and insufficient communication or clarity about funding opportunities. Public authorities and NGOs in particular emphasised delays as a source of reduced impact and local credibility.
• Collection and use of expertise
The proposal has been informed by external reports and assessments.
The proposal has been informed by a wealth of studies and reports, such as from the European Parliament, the EU Agency for Fundamental Rights and the European Institute for Gender Equality, which point towards the growing and serious challenges testing fundamental rights and values in the EU as well as the resilience of our democratic institutions 2 .
In the field of media and audiovisual, it has relied on the conclusions of the 2023 European Media Industry Outlook 3 , which provided valuable insights into the structural challenges of the media and audiovisual industries (incl. gaming). Media companies in the EU are under increasing pressure from global competitors for users’ attention and revenue. Consumer spending and media consumption have stagnated since the COVID-19 pandemic, with digital platforms aggregating more content and capturing more ad revenue than traditional media. The sectors also struggle with high technology adoption costs, limited private investment, and heavy dependence on non-EU technologies. In addition, the report revealed that, in the EU, the circulation of audiovisual works across borders is limited, hindering the industry’s potential. Meanwhile, the viability of news media is increasingly at risk, with declining revenues, shrinking employment, and limited consumer trust.
In the field of culture and creative sectors, the proposal has been informed by thematic meetings, findings of independent studies, Council conclusions 4 , resolutions from the European Parliament 5 , the evaluation of the European Heritage Label action 6 and the first interim evaluation of the European Capital of Culture action for the year 2020-2033 7 , as well as recommendations made by experts from Member States in the context of the Open Method of Coordination on culture 8 . These various sources underline the persisting relevance of the Culture strand of Creative Europe while pointing at areas of improvement, in particular in connection with the digital and green transitions and the surge of AI, working conditions of artists and cultural and creative professionals, as well as the international context.
• Impact assessment
This proposal was subject to an impact assessment. Commission services have explored several alternative policy options to address the challenges of the sectors concerned and determined which option served better the policy areas and the priorities of the Commission. The various options were mutually exclusive. One option was to continue the existing Creative Europe and CERV programmes as stand-alone programmes, while introducing some incremental improvements. A second option consisted of bringing together the programmes aimed at protecting Union values, media and culture. A third option was a full integration under a single instrument of policies covered today by CERV, Creative Europe, together with those covered by Erasmus+ and European Solidarity Corps (ESC).
Other alternatives were also considered yet discarded at an early stage. One was the discontinuation of the EU funding in the fields currently covered by CERV and Creative Europe, but it was rejected given the importance of the problems affecting the sectors concerned, the prominence given to these policies in the Political Guidelines and the assessment of the continued relevance and added value of the EU funding intervention, underpinned by the respective mid-term evaluations. The option of alternative merging of programmes (e.g. only the Media strand of Creative Europe with the CERV programme) was also abandoned at an early stage, as it would not have effectively aligned with political priorities or adequately catered for the challenges of the sectors concerned.
The main potential impacts of the three shortlisted options (continuity, full integration, and objective-based merger) were analysed across various social, economic and environmental dimensions. Where relevant, the analysis also covered costs and benefits, impacts on competitiveness and SMEs and on digitalisation, as well as their contribution to the United Nations Sustainable Development Goals (SDG). The three policy options were assessed based on their effectiveness, efficiency, coherence and proportionality, applying the Social Multi-Criteria Evaluation (SMCE).
The evaluation of the options and their impacts highlighted that an integration based on policy objectives (objective-based merger) would offer better potential compared to the two alternatives. It would allow for reinforced coordination, targeted flexibility, and a more impactful use of the EU budget – without sacrificing policy focus or accessibility. It would offer the optimal balance between simplification and policy relevance. It is also congruent with stakeholders’ calls, who ask for the simplification of access to funding, flexibility of resource allocation and the application of common rules. In line with the Political Guidelines, it follows a ‘funding-follows-policy’ principle, bringing together programmes aiming at protecting culture, media and Union values. It will build on the success of current programmes, best practices of the current MFF, as evidenced by evaluations, better addressing transnational and common challenges, filling funding gaps at Member States level, and enhancing coherence between internal and external policies, while enhancing synergies, efficiency and effectiveness, and reducing overlaps. It will pay due visibility to each of the policy areas included in the merged programme in full respect of the horizontal provisions detailed in Regulation (EU, Euratom) [202X/XXX, Performance Regulation] applicable to all Union programmes. It will also increase action on cross-cutting priorities and synergies affecting the societal, media and cultural and creative sectors (e.g. sectoral skills, access to finance, innovation uptake, etc.).
Based on the Better Regulation guidelines, this impact assessment report was submitted for quality scrutiny to the Regulatory Scrutiny Board (RSB). The RSB gave an opinion on the impact assessment on 13 June 2025. The RSB made a series of comments and recommendations on scope, problem definition and the use of evaluations, intervention logic and objectives, comparison of options and cost-benefit analysis, governance, coherence and future monitoring and evaluation. The impact assessment accompanying this legal proposal was reviewed in accordance with the Board’s comments.
• Regulatory fitness and simplification
The initiative will streamline EU management, governance and implementation of EU programmes to improve efficiency for applicants, beneficiaries and EU institutions. Application and reporting procedures will be simplified and further harmonised, through the introduction of common or aligned rules, making it easier for applicants to apply to calls addressing complementary policy objectives.
To simplify implementation and reduce administrative burden for beneficiaries, the use of simplified forms of funding (including financing not linked to costs and lump sums) will become the standard form of contribution for reimbursing grants. The use of financial support to third parties, which has proven efficient in making EU funding more accessible to small organisations, will also continue and could be extended where appropriate. Moreover, increasing the use of multi-annual grants will also have a positive impact. Obstacles encountered by grassroots organisations and first-time applicants will be addressed through targeted simplification measures addressing their circumstances, enhanced communication, and promotion of funding opportunities. The pooling of resources, including in areas such as monitoring, internal and external communication will bring economies of scale and enhance the predictability of EU funding more widely among beneficiaries, stakeholders and EU citizens.
• Fundamental rights
Building on the previous Creative Europe and Citizens, Equality, Rights and Values (CERV) programmes and pre-existing prerogative lines, the new instrument aims at promoting Union values, including respect for fundamental rights, equality, democracy, as well as culture and media.
It is in line with and promotes the values set out in Article 2 of the Treaty on European Union. The objectives of the new Programme are closely linked to the promotion of fundamental rights and are thus in line with the Charter of Fundamental Rights of the EU. In particular, this proposal will contribute to the promotion and protection of the rights and principles enshrined in Articles 8 (protection of personal data), 11 (freedom of expression, rights to information, media freedom and pluralism), 12 (freedom of assembly and of association), 13 (freedom of the arts and science), 15 (freedom to choose an occupation and right to engage in work), 20 and 21 (equality and non-discrimination), 22 (cultural and linguistic diversity), 23 (equality between women and men), 24 (rights of the child), 26 (rights of persons with disabilities), 31 (fair and just working conditions), 32 (prohibition of child labour and protection of young people at work), 33 (family and professional life), 39 to 46 (citizens’ rights) of the Charter.
4. BUDGETARY IMPLICATIONS
5. OTHER ELEMENTS
• Implementation plans and monitoring, evaluation and reporting arrangements
This initiative will be monitored through the performance framework for the 2028-2034 budget defined in Regulation (EU) [XXX]* of the European Parliament and of the Council [Performance], which also details the specific rules regarding evaluations. The evaluation shall be conducted in accordance with the Commission's Better Regulation Guidelines and will be based on indicators relevant to the objectives of the Programme.
A part of the Programme will be implemented by an Executive Agency under the supervision of the Commission services responsible for the Programme.
• Detailed explanation of the specific provisions of the proposal
The general objectives of the Programme are to promote cultural and linguistic diversity and heritage, to increase the competitiveness of the cultural and creative sectors, in particular the media and audiovisual industries, to safeguard artistic and media freedom, and to protect and promote equality, active citizenship, rights and values as enshrined in the Treaties and in the Charter, thereby enhancing democratic participation and societal resilience within the Union.
Within this general objective, the Programme shall have three separate strands:
First, the ‘Creative Europe – Culture’ strand, which will implement the following specific objective:
(a)Contribute to cross-border cultural creation, cooperation, participation and accessibility, and cross-border circulation of a diversity of cultural works, while strengthening the social, economic and international dimensions of the cultural and creative sectors.
Second, the ‘MEDIA+’ strand, which will implement the following specific objectives:
(a)Contribute to the cultural diversity and competitiveness of the audiovisual and video games industries, notably by enhancing creation and cross-border distribution of European content and its access by citizens.
(b)Contribute to a free, viable and diverse Union information ecosystem, notably by supporting free and independent journalism and news media, enhancing citizens’ access to trustworthy information and tackling disinformation.
Third, the Democracy, Citizens, Equality, Rights and Values (‘CERV+’) strand, which will implement the following specific objectives:
(a)Contribute to protecting and promoting fundamental rights, equality and non-discrimination and Union citizens’ rights enshrined in the Treaties including free movement of citizens, and empowering civil society.
(b)Contribute to fighting against gender-based violence, violence against children and other groups at risk of such violence.
(c)Contribute to enhancing democratic participation and upholding the rule of law.
To maximise impact and enhance synergies across the strands, the Programme shall support cross-cutting and horizontal activities contributing to the general objective, notably by developing synergies between the cultural, media and civic spheres and promoting cross-sectoral collaboration and innovation.
To be effective, the Programme should take into account the specific nature of the different policies, their different target groups and their particular needs through targeted approaches.