Kiri

    Resolutsiooni liik: Riigikantselei resolutsioon Viide: Justiits- ja Digiministeerium /  / ; Riigikantselei /  / 2-5/25-01752

Resolutsiooni teema: Euroopa Parlamendi ja Nõukogu määrus, millega luuakse õigusprogramm aastateks 2028–2034 ja tunnistatakse kehtetuks määrus (EL) 2021/693

Adressaat: Justiits- ja Digiministeerium Ülesanne: Tulenevalt Riigikogu kodu- ja töökorra seaduse § 152` lg 1 p 2 ning Vabariigi Valitsuse reglemendi § 3 lg 4 palun valmistada ette Vabariigi Valitsuse seisukoha ja otsuse eelnõu järgneva algatuse kohta, kaasates seejuures olulisi huvigruppe ja osapooli:

- Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the Justice programme for the period 2028-2034 and repealing Regulation (EU) 2021 /693, COM(2025)463

EISi toimiku nr: 25-0555 Tähtaeg: 21.11.2025

Adressaat: Rahandusministeerium, Siseministeerium, Sotsiaalministeerium, Välisministeerium Ülesanne: Palun esitada oma sisend Justiits- ja Digiministeeriumile seisukohtade kujundamiseks antud eelnõu kohta (eelnõude infosüsteemi (EIS) kaudu). Tähtaeg: 10.11.2025

Lisainfo: Eelnõu on kavas arutada valitsuse 04.12..2025 istungil ja Vabariigi Valitsuse reglemendi § 6 lg 6 kohaselt sellele eelneval nädalal (26.11.2025) EL koordinatsioonikogus. Esialgsed materjalid EL koordinatsioonikoguks palume esitada hiljemalt 21.11.2025. 

Kinnitaja: Nele Grünberg, Euroopa Liidu asjade direktori asetäitja Kinnitamise kuupäev: 22.09.2025 Resolutsiooni koostaja: Sandra Metste [email protected],  

.

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EUROPEAN COMMISSION

Brussels, 3.9.2025

COM(2025) 463 final

2025/0255 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

establishing the Justice programme for the period 2028-2034 and repealing Regulation

(EU) 2021/693

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

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EXPLANATORY MEMORANDUM

1. CONTEXT OF THE PROPOSAL

This proposal provides for a date of application as of 1 January 2028 and is presented for a

Union of 25 Member States. For Ireland and Denmark, the provisions of Protocols No 21 and

No 22 annexed to the Treaty on European Union (TEU) and to the Treaty on the Functioning

of the European Union (TFEU) apply, as illustrated in the section on variable geometry on

page 8.

• Reasons and objectives

Article 3 of TEU states that ‘The Union shall offer its citizens an area of freedom, security

and justice’. Justice is closely linked to Union values, as enshrined in Article 2 TEU. These

core values imply the need for independent judiciaries operating within efficient and high-

quality justice systems capable of safeguarding fundamental rights and freedoms guaranteed

by Union law, in particular by ensuring access to justice for suspects, accused persons,

requested persons in European arrest warrant (EAW) proceedings and victims of crime.

Judicial independence itself stems from the common constitutional traditions shared by all

Member States, the rule of law mentioned in Article 2 TEU, the Member States’ obligation to

provide remedies sufficient to ensure effective legal protection in the fields covered by Union

law under Article 19 TEU, and from the fundamental right to an effective remedy before a

tribunal, as enshrined in Article 47 of the Charter of Fundamental Rights of the European

Union (‘the Charter’). In addition to being in line with Union values, a well-functioning

Union area of justice with effective, efficient and resilient national justice systems is

necessary for a flourishing internal market and is also a precondition for economic growth and

competitiveness.

In the past years, the EU has combined several instruments to build a Union area of justice

based on mutual trust. Several legislative and policy initiatives1 have been adopted and

supported, also thanks to dedicated EU funding.

Since its launch in 2014, the Justice programme has actively supported the creation of an area

of freedom, security and justice, by fostering judicial cooperation based on mutual recognition

and enforcement of judicial decisions. The Programme has also promoted Member States’

adherence to the rule of law and fundamental rights and supported the proper functioning of

independent judicial systems. This has led to tangible progress across the EU as, for instance,

national justice systems have become more effective, with legal practitioners now better

informed and equipped to apply the relevant EU acquis, e.g. on the use of cross-border

judicial cooperation procedures and mechanisms. At the same time, the practical protection

and promotion of the rights of children and other vulnerable groups (such as persons with

disabilities) involved in judicial proceedings continues to improve.

Significant progress has been made2, but achieving an effective, efficient, accessible, resilient

and digitalised Union area of justice, based on the rule of law, remains an ongoing challenge.

1

These include the European judicial training strategy, the EU strategy on victims’ rights, the Council’s European e-justice

strategy, the EU strategy on the rights of the child, and the forthcoming Commission strategy on digitalisation of justice that aims to promote

digital transformation within justice systems. Moreover, to further uphold the rule of law, the European Commission established the rule of law mechanism, including the annual rule of law report, which evaluates developments in judicial independence, anti-corruption frameworks

and access to justice in Member States. The Commission’s anti-corruption package, adopted in 2023, introduced comprehensive measures to

combat corruption, enhance transparency and safeguard judicial integrity throughout the Union. The EU has also adopted an internal security strategy and a counter-terrorism agenda. 2

For instance, insights from the EU Justice Scoreboard 2024 and data collected via recent Eurobarometer surveys highlighted

progress in Member States’ efforts to deliver effective national justice systems, but these insights also suggest that there is a continued need

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This calls for continued coordinated action by the EU and its Member States. In the Political

Guidelines for the European Commission 2024-2029, President von der Leyen emphasised

that the respect for the rule of law should remain ‘a must for EU funds’3. This underscores the

critical role EU funding plays in addressing persistent challenges.

In fact, despite the EU commitment, the protection and promotion of fundamental rights is an

ongoing challenge4. These rights –such as the right to an effective remedy and to a fair trial,

as well as the protection of whistleblowers and their right to freedom of expression, associated

procedural safeguards for suspects and accused persons as well as requested persons in EAW

proceedings, and victims’ rights – are central to justice and the rule of law. Their effective

implementation is essential to build trust in the justice system and ensure that everyone,

including the most vulnerable, can effectively exercise their rights in the EU as an area of

justice. However, as the 2021 annual report on the application of the Charter also shows,

fragmented application of Union law and legal protection gaps5 reflect ongoing challenges in

this area6.

In addition, progress on digitalisation across the EU is uneven. The EU’s growth and

competitiveness increasingly rely on digitalisation, including in the justice sector. Digital

tools and artificial intelligence (AI) can help public administrations, including courts, deliver

faster, more accessible and cost-effective services. At the same time, the use of qualified trust

services, such as electronic signatures and seals, brings benefits in terms of convenience and

legal certainty in the context of cross-border transactions and is becoming increasingly

relevant for transparent and trustable justice systems. The upcoming rollout of the EU Digital

Identity framework and the forthcoming European Business Wallets are also expected to

further facilitate digitalisation and build trust. Efficient and transparent justice systems

enhance legal certainty, attract investment and strengthen cross-border cooperation in civil

and criminal matters. Digitalisation reduces burdens on justice professionals, improves access

to judicial files and allows citizens and businesses to engage with courts remotely. This

increases transparency, saves costs and supports economic productivity. Moreover, digital

justice systems are more resilient during crises, ensuring continuity and reinforcing public

trust.

The rapidly changing economic, social and geopolitical environment creates uncertainties and

challenges, including Russia’s full-scale war against Ukraine. Among the challenges which

affect, more specifically, the Union area of justice, are the increasing threats to the rule of

law, several forms of serious crime and obstacles to access to justice and judicial cooperation.

Respect for the rule of law is a key determinant of a predictable business environment that

drives investment and innovation, and an essential consideration for companies operating

across borders. Respect for the rule of law ensures the proper functioning and resilience of the

internal market, of the cooperation in the justice area based on mutual trust and recognition

for improvement. Possible improvements include: (i) the need to reduce the burden of court fees; (ii) the availability of legal aid; (iii) the promotion of voluntary use of alternative dispute resolution methods (ADRs); (iv) support for the participation of persons with disabilities as

professionals in the justice system; and (v) facilitating access to justice by electronic means, because the uptake of digitalisation in national

justice systems across EU Member States remains uneven. In addition, cross-border crimes have continued to rise since 2020, suggesting cross-border judicial cooperation will only become more important. 3

Political guidelines European Commission 2024-2029.

4 Special Eurobarometer 487b. Also Special Eurobarometer 552: just over six in ten respondents (62%, 3 p.p. since 2021) indicate

being aware of the Charter of Fundamental Rights of the EU, including a quarter of all respondents (25%) who have heard of it and know

what it is. Close to four in ten (37%) of all respondents have heard of the Charter, but do not really know what it is. 5

435ae4e8-f5f4-432b-a391-b05468474a1e_en (europa.eu).

6 Report from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the

Committee of the Regions: ‘Protecting Fundamental Rights in the Digital Age - 2021 Annual Report on the Application of the EU Charter of

Fundamental Rights’.

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and is an essential precondition for compliance with the principles of sound financial

management of the Union budget. Respect for the rule of law is necessary for the effective,

uniform and transparent application of Union law and for equal access to justice. Facilitating

cooperation in relation to forms of serious crime, such as corruption, terrorism and

environmental crime is essential to maintain the rule of law and trust in those who govern

public institutions.

Other challenges include persistent obstacles to judicial cooperation and access to justice.

Effective access to justice, including through digital means, is a prerequisite for economic

growth. If there is no effective access to justice, both citizens and business development,

especially that of small and medium-sized enterprises (SMEs), are affected. Weak justice

systems, characterised by inefficiency or high costs, deter business activities, thereby

hindering economic growth7. One of the main obstacles is the fact that communication in

cross-border judicial proceedings is very often still paper-based, which leads to unnecessary

delays and costs. One of the reasons is the different speeds of digitalisation of national justice

systems and the absence of sufficient interoperability between Member States’ national IT

systems, and similarly, between national systems and EU Justice and Home Affairs (JHA)

agencies and bodies. Besides this aspect, delays and inefficiencies in cross-border judicial

cooperation procedures remain evident. Access to justice – i.e. the ability of everyone to seek

and obtain a just resolution of legal problems through a range of legal and justice services, in

a manner that complies with fundamental rights, including access to reliable legal information

and effective enjoyment of procedural safeguards – is still problematic, above all in cross-

border contexts. This affects individuals, such as victims and persons suspected or accused of

crime, and businesses. Moreover, the existing tools for collecting comparative information

about the quality, independence and efficiency of Member States’ justice systems are still

insufficient. All these factors can undermine Member States’ trust in each other’s justice

systems and may therefore hinder the proper functioning of the EU area of freedom, security

and justice.

Lastly, the level of knowledge, skills and awareness of the EU acquis and EU digital tools

among practitioners in the justice field is often insufficient. Despite the progress made8, the

level of participation in training still differs considerably between Member States and among

justice professions. This has a negative impact on the development of a common European

judicial culture, since well-trained practitioners play a key role in ensuring that the EU acquis

is implemented correctly and consistently across the EU. Justice professionals also lack the

necessary digitals skills and are not well equipped to use digital tools and infrastructure.

Training on Union law is also particularly important in view of the following factors: (i) the

deterioration of the rule of law and attacks on fundamental rights in some Member States; (ii)

the need to prevent and combat forms of serious crime, including corruption; (iii) the

increasing relevance of digitalisation; and (iv) the fact that there are more and more

individuals exercising their right to live and work in another Member State9.

The consequences of not addressing these challenges will have serious repercussions, as most

of these issues have a marked transnational dimension and cannot be adequately addressed by

Member States acting alone. Building an effective Union area of justice has profound

7

Stakeholder_contribution_on_rule_of_law_-_oecd.pdf (europa.eu); 9789264303416-2-en.pdf (oecd-ilibrary.org).

8 As highlighted by the annual reports on European judicial training published by the Commission’s Directorate-General for Justice

and Consumers, since the implementation of the two consecutive European judicial training strategies (Commission’s 2020 Communication

Ensuring justice in the EU – a European judicial training strategy for 2021-2024 and 2011 Communication, Building trust in EU-wide justice – a new dimension to judicial training), over 2 million EU justice professionals have participated in judicial training on Union law. 9

European Commission Communication, Ensuring justice in the EU – a European judicial training strategy for 2021-2024.

Available at: https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52020DC0713.

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implications for the political, social and economic life of the EU. It also has tangible benefits

for people’s day-to-day lives and business operations. The 2028-2034 Justice programme will

support the further development of a Union area of justice based on the Union’s values, the

rule of law, mutual recognition and trust, as well as effective, inclusive, accessible and

resilient justice systems, which are a precondition for economic growth and competitiveness.

The new Programme will also facilitate access to justice, promote judicial cooperation in civil

and criminal matters and promote judicial training with a stronger emphasis on the

digitalisation of justice. The policy areas covered by this legal proposal are firmly anchored in

the EU Treaties, which provide the legal bases for EU action through financial intervention.

The Justice programme will continue to sustain open, democratic, pluralist and more equal

and inclusive societies under the next Multiannual Financial Framework (2028-2034).

• Consistency with existing policy provisions

In recent years, the Justice programme has supported several legislative and policy initiatives

and has directly contributed to delivering on several of the Commission’s priorities10. The

priorities listed below are and will become even more relevant for the Justice programme:

1. ‘Protecting our democracy, upholding our values’. The Justice programme will support

judicial cooperation and access to justice by reinforcing the rule of law and fundamental

rights as democratic foundation of the EU. The Programme’s new enhanced focus on

digitalisation will make judicial systems more efficient, by enabling faster access to legal

protection. This new focus directly complements efforts to safeguard democracy and

fundamental rights, and increase legal certainty, investment protection, procedural fairness

and public trust in democratic institutions. The 2028-2034 Justice programme will support

judicial independence and increase the capacity to enforce laws, including relevant rules to

protect democracy. It will enable cross-border judicial cooperation to combat cross-border

digital crimes and support the implementation of digital tools that align with broader digital

enforcement policies like the Digital Services Act11, the AI Act12 and the European

Accessibility Act13. It will contribute to the application of the Charter by supporting training

of legal professionals on fundamental rights. To this end, synergies will be fostered in

particular with the AgoraEU programme14.

2. ‘Supporting people, strengthening our societies and our social model’. The Justice

programme will contribute to uphold fundamental rights, for instance by promoting judicial

training on non-discrimination and on the application of the Charter and create links with

social cohesion policies by supporting consistent legal protection across Member States. The

Programme will also support the implementation of the European Pillar of Social Rights15 by

ensuring enforceability through more accessible justice mechanisms. Moreover, digitalised

justice systems, set up with due attention to security vulnerabilities and the needs of all

10

Political guidelines European Commission 2024-2029. 11 Regulation (EU) 2022/2065 of the European Parliament and of the Council of 19 October 2022 on a Single Market For Digital

Services and amending Directive 2000/31/EC (Digital Services Act), OJ L 277, 27.10.2022, pp. 1–102,

ELI: http://data.europa.eu/eli/reg/2022/2065/oj. 12 Regulation (EU) 2024/1689 of the European Parliament and of the Council of 13 June 2024 laying down harmonised rules on

artificial intelligence and amending Regulations (EC) No 300/2008, (EU) No 167/2013, (EU) No 168/2013, (EU) 2018/858, (EU) 2018/1139

and (EU) 2019/2144 and Directives 2014/90/EU, (EU) 2016/797 and (EU) 2020/1828 (Artificial Intelligence Act), OJ L, 2024/1689, 12.7.2024, ELI: http://data.europa.eu/eli/reg/2024/1689/oj. 13 Directive (EU) 2019/882 of the European Parliament and of the Council of 17 April 2019 on the accessibility requirements for

products and services, OJ L 151, 7.6.2019, pp. 70–115, ELI: http://data.europa.eu/eli/dir/2019/882/oj. 14 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing the 'AgoraEU' programme for

the period 2028-2034, and repealing Regulations (EU) 2021/692 and (EU) 2021/818, COM(2025) 550 final. 15 https://employment-social-affairs.ec.europa.eu/policies-and-activities/european-pillar-social-rights-building-fairer-and-more-

inclusive-european-union_en.

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affected persons, have the potential to improve access to justice, including by reducing

barriers, especially for children and other vulnerable groups such as people with disabilities,

Roma and other marginalised communities. In this regard, synergies will be fostered with the

Erasmus+ programme16 and the National and Regional Partnership Plans17including, in

particular in the framework of the European Social Fund18. By improving accessibility and

affordability (e.g. videoconferencing, e-filing), digital justice can better inform interested

parties, serve the needs of many individuals and businesses, and reduce inequalities in

accessing rights and services, by strengthening social and intergenerational fairness and

making legal processes more efficient and inclusive.

3. ‘Delivering together and preparing our Union for the future’. The Justice programme will

contribute to a more integrated and effective Union, including by creating and connecting

digital infrastructure across Member States. Its increased focus on digitalisation will reduce

administrative burdens for Member States, bring savings for citizens and businesses, improve

cross-border cooperation and support mutual recognition and enforcement of judgments. At

the same time, the Programme will support the goal of simplifying EU mechanisms by

promoting more interoperability among national justice systems. In this regard, synergies will

be fostered with the National and Regional Partnership Plans to ensure progress on the

digitalisation of national justice systems at both national and EU level.

• Consistency with other Union policies

1. “A New Plan for Europe’s Sustainable Prosperity and Competitiveness”. The digitalisation

of justice contributes to growth and competitiveness by creating more efficient justice

systems, with simplified legal procedures and reduced time and costs for cross-border

litigation across the EU. This is particularly important for SMEs and start-ups. In this regard,

synergies will be fostered with the National and Regional Partnership Plans in key areas such

as skills, capacity-building and digitalisation. The Programme will complement also the plan

to deepen the Single Market (especially in services and digital sectors and on financial

services) by promoting legal interoperability and smoother enforcement of EU rules. By

financing activities on consumer and investors policy, company law and contract law and

anti-money laundering, the 2028-2034 Single Market and Customs programme will

complement the Justice programme and contribute directly to the implementation of EU

policy in the field of justice and the creation of a Union area of justice. Moreover, by

reinforcing the rule of law and legal certainty, the Justice programme will strengthen the

investment environment, reinforce the actions underpinning the Savings and Investments

Union19 and support the European Competitiveness Fund20 by creating a stable legal

framework for business activity. Lastly, there will also be synergies in the field of research

and innovation, specifically concerning the need to deepen the understanding of the use of

advanced new technologies, such as AI, in the justice sector and, therefore, synergies will be

16 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing the Erasmus+ programme for

the period 2028-2034, and repealing Regulations (EU) 2021/817 and (EU) 2021/888, COM/2025/549 final. 17

Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing the European Fund for

economic, social and territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and security for the period 2028-2034 and amending Regulation (EU) 2023/955 and Regulation (EU, Euratom) 2024/2509, COM/2025/565 final. 18 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing the European Social Fund as

part of the National and Regional Partnership Plan set out in Regulation (EU) […] [NRP Plan] establishing conditions for the implementation of the Union support to quality employment, skills and social inclusion for the period from 2028 to 2034, COM/2025/558 final.

19 https://finance.ec.europa.eu/regulation-and-supervision/savings-and-investments-union_en. 20 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing the European Competitiveness

Fund ('ECF’), including the specific programme for defence research and innovation activities, repealing Regulations (EU) 2021/522, (EU) 2021/694, (EU) 2021/697, (EU) 2021/783, repealing provisions of Regulations (EU) 2021/696, (EU) 2023/588, and amending Regulation

(EU) [EDIP], COM/2025/555 final.

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fostered with the next Framework Programme for Research and Innovation (Horizon

Europe)21.

2. “A New Era for European Defence and Security”: The Justice programme facilitates cross-

border judicial cooperation, which is crucial for security and to combat organised crime,

terrorism, and cyber threats. The Programme also supports the enforcement of the European

Arrest Warrant (EAW) and provides digital infrastructure for lawful access to electronic

evidence and case management across borders. Moreover, the Justice programme supports

anti-corruption measures at EU level. This complements the call for reflection on extending

the competence of the European Public Prosecutor’s Office (EPPO) to handle serious cross-

border crimes, especially corruption, that impacts Union funds and cannot be handled alone

by Member States. In addition, the political guidelines for the European Commission 2024-

202922 include the ambition to bolster Europol’s capacity to support national law enforcement

agencies and its cooperation with other EU agencies and bodies. This ambition is closely

aligned with the Programme’s increased focus on digitalisation, enabling faster transmission

of evidence, real-time coordination and an enhanced use of secure AI/data analytics in legal

enforcement within the limits of the applicable legal frameworks. It also aligns with the

establishment of the Authority for Anti-Money Laundering and Countering the Financing of

Terrorism (AMLA), which will help prevent the Union’s financial system from being used of

money laundering and terrorist financing. Likewise, the reform of Eurojust will help EU-level

coordination of cross-border investigations and prosecutions to become more effective,

including thanks to new digital tools. Additionally, the digitalisation of justice will also

provide technical resilience, secure infrastructure for legal systems, and frameworks for

prosecuting cybercrime, thereby complementing the Preparedness Union23 and cyber-defence

strategies24 as well as the ‘ProtectEU – a European Internal Security Strategy’25. Given the

intrinsic connections between security and justice on the ground, there will be synergies with

EU funds covering asylum, migration and integration, border management and internal

security, for instance to provide adequate training to the judiciary, also in relation to the new

rules introduced by the Pact on Migration and Asylum, and ensure effective protection to

victims of crime, interoperability with the European Criminal Records Information System

(ECRIS) and inter-agency cooperation in the fields of justice and internal security, including

via justice-related agencies and bodies such as Eurojust and the EPPO.

3. “A Global Europe: Leveraging Our Power and Partnerships”: The Programme’s focus on

the rule of law, judicial cooperation and access to justice will mirror how they are promoted at

global level, including through the implementation of the United Nations (UN) Sustainable

Development Goals (SDGs)26. In this respect, synergies will be developed with Global

Europe27, as the Justice programme will contribute to the EU’s external action by

strengthening judicial systems in accession countries in the context of the enlargement

process.

21 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing Horizon Europe, the Framework

Programme for Research and Innovation, for the period 2028-2034 laying down its rules for participation and dissemination, and repealing

Regulation (EU) 2021/695, COM/2025/543 final. 22

Political guidelines European Commission 2024-2029. 23 https://commission.europa.eu/topics/preparedness_en. 24 https://digital-strategy.ec.europa.eu/en/policies/cybersecurity-strategy. 25 https://home-affairs.ec.europa.eu/news/commission-presents-protecteu-internal-security-strategy-2025-04-01_en. 26 https://sdgs.un.org/goals. 27 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing Global Europe, COM/2025/551

final.

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2. LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY

• Legal basis

This proposal is based on Article 81(1) and (2) and Article 82(1) of the Treaty on the

Functioning of the European Union (TFEU).

Article 81(1) TFEU provides that the Union shall develop judicial cooperation in civil matters

having cross-border implications.

Article 81(2) TFEU provides for the adoption of measures aimed at ensuring the mutual

recognition and enforcement of judgments; the cross-border service of judicial and

extrajudicial documents; effective access to justice and support for the training of the

judiciary and judicial staff. Article 82(1) TFEU provides for measures to promote judicial

cooperation in criminal matters.

The combination of these Articles allows for a comprehensive approach to support the

development of judicial cooperation in civil and criminal matters, especially cross-cutting

issues affecting both fields.

• Variable geometry

This Regulation is based on legal bases under Title V of Part Three TFEU, concerning the

area of freedom, security and justice. As a consequence, the application of the Regulation to

Denmark and Ireland is subject to the provisions laid down in Protocol No 21 and Protocol

No 22 annexed to the TEU and the TFEU.

In accordance with Articles 1 and 2 of Protocol No 22, Denmark does not take part in the

adoption by the Council of measures proposed pursuant to Title V of Part Three TFEU, and

such measures are not binding upon or applicable in Denmark.

In accordance with Articles 1 and 2 of Protocol No 21, Ireland does not take part in the

adoption by the Council of measures proposed pursuant to Title V of Part Three TFEU, and

such measures are not binding on or applicable in Ireland. However, Ireland may choose to

take part in the adoption and application of any such proposed measure. In addition, any time

after the adoption of such a measure, Ireland may accept the measure, subject to the

completion of procedures referred to in Article 4 of Protocol No 21.

• Subsidiarity (for non-exclusive competence)

The objectives outlined under the section “reasons and objectives” have a strong transnational

dimension and require joint solutions, as well as EU-level governance, coordination and

support. Isolated national actions would be less effective and impactful than coordinated EU-

level efforts, which foster cooperation, capacity building, mutual learning, and the sharing of

resources, expertise and best practice.

Without EU action and funding, the functioning of a Union area of justice would be at risk,

negatively affecting many beneficiaries, especially members of the judiciary, civil society

organisations (CSOs) working on access to justice, and EU-wide legal networks. EU support

helps overcome national barriers, enabling each Member State to act on issues it could not

address alone. This ensures no Member State is left behind in tackling cross-border problems.

EU-level action is also key for addressing EU-wide priorities that may not rank highly on

national agendas or where targeted support is needed. In some areas, national efforts alone

may be insufficient, short-term or misaligned with EU priorities. For example, the EU should

continue to support cross-border training on Union law and exchanges for judicial

professionals. This is not only a Treaty-based obligation, but also essential for meeting shared

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transnational challenges, equipping justice professionals with the right skills and reinforcing

core Union values.

The EU is uniquely positioned to create cross-border opportunities for justice professionals to

connect, develop and contribute to a shared legal culture. It should therefore continue to

promote transnational cooperation, awareness raising and networking. Such activities build

mutual trust among national justice systems and help gather comparative data on their quality,

independence and efficiency – something individual Member States cannot achieve alone.

EU action is equally crucial in areas needing close coordination with Member States to

uphold international justice standards, such as the UN SDGs, and to maintain a unified EU

stance on key issues like fundamental rights in the digital sphere and data protection.

Lastly, EU action is essential for advancing justice reforms in candidate countries as part of

the enlargement process, particularly in the areas of the rule of law, independence of the

judiciary and anti-corruption. These efforts are vital for safeguarding EU justice standards,

completing the Single Market and strengthening EU cohesion and prosperity.

In addition to the need for EU action in this field, EU funds have also a strong added value

because the EU is best placed to ensure that justice systems across the Union can operate in a

harmonised manner. EU intervention has intrinsic added value for EU judicial training since

delegating this responsibility at national level would lead to a more inconsistent

understanding and implementation of Union law across Member States. This will have

negative effects on the overall capacity of national actors to implement EU policies and laws,

address cross-border issues and on the development of transnational multi-country projects.

Moreover, EU action on justice policies helps boost the Single Market and improves

competitiveness. A comprehensive and harmonised justice framework across Member States

reduces legal uncertainties and inconsistencies, thereby facilitating smoother cross-border

business operations and investments. Predictable enforcement of regulations, consistent

protection of intellectual property rights, and effective dispute resolution mechanisms are

crucial for maintaining investor confidence and encouraging entrepreneurship and innovation.

By providing clear legal standards and ensuring their uniform application, the EU helps

companies operate efficiently, reduces transaction costs and enhances the overall

attractiveness of the Single Market. This legal predictability also bolsters fair competition by

ensuring that businesses face equal conditions irrespective of their country of origin within the

EU, thus promoting economic stability and sustainable growth.

• Proportionality

The proposal does not go beyond the minimum required in order to achieve the stated

objective at Union level.

• Choice of the instrument

The new 2028-2034 Justice programme builds primarily on the 2021-2027 Justice

programme. The most appropriate instrument to operationalise the proposed framework is a

regulation.

3. RESULTS OF RETROSPECTIVE EVALUATIONS, STAKEHOLDER

CONSULTATIONS AND IMPACT ASSESSMENTS

• Retrospective evaluations/fitness checks of existing legislation

The mid-term evaluation of the 2021-2027 Justice programme highlights that the actions

funded by the Programme are coherent with policies and priorities at EU and national levels,

aligned with other EU funding instruments and consistent with international commitments and

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objectives, such as the SDGs28. The streamlined architecture of the 2021-2027 Programme

allows for greater impact and a more focused approach in key areas compared to the previous

Programme 2014-2020. Specifically, the 2021-2027 Justice programme is successfully

contributing to supporting the mutual recognition and enforcement of judicial decisions across

Member States and to improving cross-border cooperation, by creating a long-term impact

through the further development of a cohesive Union area of justice built on mutual trust and

cooperation.

Direct funding to beneficiaries has led to immediate and tangible benefits for the target groups

involved. In particular, funding for EU networks such as the European Judicial Training

Network (EJTN) facilitates sustained collaboration, capacity building, and continuous high-

quality engagement among legal professionals across the EU. Furthermore, the Programme’s

continued emphasis on judicial training significantly contributes to unify and develop the EU

legal landscape. The Justice programme plays a crucial role in fostering a shared legal culture

by training thousands of judges, lawyers and court staff and by supporting the implementation

of the 2021-2024 strategy on European judicial training29. By facilitating exchanges of best

practice, the Programme strengthens Member States’ collaboration, ensuring that judicial

practitioners apply Union law in a uniform, coherent and consistent way across borders, thus

enhancing the integrity of EU legislation.

The 2021-2027 Programme builds on the progress achieved in the previous programming

period (2014-2020), by further reducing barriers to justice and improving frameworks and

protections for marginalised individuals30. At the same time, its mid-term evaluation points to

some areas for improvement. First of all, evidence gathered through stakeholder consultations

highlights the need to expand the Programme’s reach. Even if it has already reached a large

number of people, awareness of the Programme remains limited among certain types of

stakeholders31 and also varies between Member States. This suggests that while the

Programme’s communication activities are effective, they may not be reaching all sectors and

Member States equally32. Moreover, some stakeholders suggested including correctional

services and prison staff in the Programme’s target groups. In order to better reflect the

Programme’s impact and enhance its added value and visibility, further actions could be

considered, e.g. a more systemised process for collecting stakeholders’ perceptions and

experiences, and ways to link the existing platforms (such as the EJTN and the e-Justice

portal) with successful projects on the EU Funding & Tenders portal. In addition, to keep

increasing the Programme’s cost-effectiveness, collaboration with existing EU-level networks

could be further explored.

All these findings are taken into account for the 2028-2034 Justice programme presented in

this proposal.

In terms of addressing new challenges, the digitalisation of justice has become a significant

cross-cutting objective of the 2021-2027 Justice programme, particularly following the

COVID-19 pandemic, which accelerated the use of digital technologies. This focus facilitates

easier access to legal information, modernises cross-border judicial cooperation mechanisms

and supports broader EU digital transformation goals, making justice systems more efficient

28

Mid-term evaluation of the 2021-2027 Justice programme, COM(2025)267 and SWD(2025)134.

29 For instance, in 2022, 24 208 justice professionals took part in training supported by the Justice programme (around 35.3% of all

those who received EU (co-)funded training on Union law that year). See Justice programme performance statement. 30

Mid-term evaluation of the 2021-2027 Justice programme, COM(2025)267 and SWD(2025)134.

31 Higher education and public authorities reported higher awareness of the Programme compared to CSOs.

32 Mid-term evaluation of the 2021-2027 Justice programme, COM(2025) 267 and SWD(2025)134.

EN 11 EN

and accessible. Investment in digitalisation also strengthens fundamental rights within the

justice field, such as the presumption of innocence 33. Moreover, the increased use of digital

tools expands the Programme’s reach efficiently. There is still scope to further capitalise on

opportunities brought about by digitalisation in the justice field. This is why the 2028-2034

Justice programme will have an increased focus on digitalisation under its general and

specific objectives. This will ensure a more strategic and consistent approach to all the issues

and challenges related to the digitalisation of justice.

• Stakeholder consultations

The consultation strategy supporting the preparatory work for the Programme included: (i) a

first open public consultation (OPC) for the final evaluation of the 2014-2020 Justice

programme 2024-2020 and the mid-term evaluation of the 2021-2027 Justice programme

2021-2027; (ii) a second OPC in the domains of cross-border education, youth, culture,

media, values and civil society; and (iii) ad hoc consultations that the Commission organised

in the form of interviews and targeted surveys with stakeholders.

The first OPC aimed to strengthen the evidence base for the evaluation of the two Justice

programmes by gathering the views of relevant stakeholders on the Programmes’

effectiveness, efficiency, relevance, coherence and EU added value. It was launched on

3 April 2024 and was open for 12 weeks (closing on 26 June 2024).

Overall, respondents to this OPC considered the Justice programmes’ general and specific

objectives to be highly relevant. Among the specific objectives, judicial training and access to

justice were considered the most relevant. Moreover, most respondents considered the

activities funded by the Justice programmes to be relevant, in particular those related to

developing and maintaining information and communication technology 34, with digitalisation

perceived as an important dimension of the Programme. Respondents considered both

programmes effective in achieving their objectives and intended results, specifically

concerning: (i) improving access for all citizens to CSO services, counselling activities and

support activities (assessed as achieved to a very or high extent by 62% of respondents); (ii)

supporting training activities for stakeholders (assessed as achieved to a very high or high

extent by 50% of respondents); and (iii) increasing the cross-border interoperability of

systems (assessed as achieved to a very or high extent by 50% of respondents). In that regard,

respondents highlighted the development of E-CODEX and ECRIS, as well as the training in

the use of IT tools, as particularly relevant and effective. In terms of coherence, most

respondents were not able to compare the Justice programme with other programmes (only

three out of eight respondents indicated that they were familiar with other similar EU

initiatives and/or national initiatives in the field of justice). Two respondents considered the

Justice programmes to be complementary to other EU programmes or initiatives to a great

extent, and one to a limited extent. There was consensus among respondents on the EU added

value of both programmes, with all respondents considering that the EU was best placed to

fund the type of activities under the Justice programme, as EU involvement ensured that all

Member States adhered to the same standards, resulting in more equal access to justice. As a

result, most respondents considered that, if the 2021-2027 Justice programme were to stop,

Member States would not be able to achieve similar results at national, regional or local level

and technical cooperation would become limited to smaller-scale bilateral projects between

neighbouring Member States, while some organisations would not be able to secure funding

33

Ibidem.

34 Considered highly relevant by 62% of respondents.

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at all. A summary report of the OPC is available on the European Commission’s “Have your

say platform”35.

The second OPC, which informed the impact assessment for EU programmes in the domains

of cross-border education, youth, culture, media, values and civil society under the 2028-2034

MFF, was carried out between 12 February and 7 May 202536. The EU programmes covered

by this OPC were: Creative Europe, Erasmus+, the European Solidarity Corps, the Citizens,

Equality, Rights and Values programme and the Justice programme. The purpose of this OPC

was to help assess the public perception of the relevance and EU added value of the EU

programmes and to identify barriers to their specific impact and potential improvements to the

Programmes’ architecture. The public consultation received 4 861 responses from 110

countries, encompassing all EU Member States as well as non-EU countries37. Most of these

responses came from respondents with experience of Erasmus + and the European Solidarity

Corps; only 60 respondents declared to have experience with the Justice programme. 51% of

responses were submitted by EU citizens. Within this group, around 1 200 respondents were

under the age of 30. 49% of responses were submitted by organisations and institutions. These

included 17% responses from academic and research bodies, the majority of which were large

institutions, with 69% employing more than 250 people. Another 11% of submissions came

from non-governmental organisations (NGOs), several of which were umbrella CSO

networks. Public authorities accounted for 232 submissions, including a mix of international,

national, regional and local entities. A further 208 responses came from companies and

businesses. A small number of additional responses (around 45) were received from trade

unions, business associations, consumer groups and environmental organisations.

Some of the main results relevant for the justice field are detailed here below:

– According to the respondents, “uphold and promote the rule of law” is an important

(22.51%) and very important (58.71%) policy priority and an area where EU funding

provide added value to a large extent compared to funding at national, local or regional

level (50.44%);

– According to the respondents, “the effective protection of EU funds against fraud,

corruption and other illegal activity” is an important (25.78%) and very important

(55.09%) policy priority and an area where EU funding provide added value to a large

extent compared to funding at national, local or regional level (54.68%);

– According to the respondents, “build an EU area of justice, promote judicial training,

judicial cooperation and access to justice” is an important (29.77%) and very important

(37.03%) policy priority and an area where EU funding provide added value to a large

extent compared to funding at national, local or regional level (47.85%);

– At the same time, the respondents consider that the following actions, which are

particularly relevant under the Justice programme, bring to a large extent a positive

impact in the future: “Supporting cross-border mutual learning, exchange of good

practices and cooperation, coalition building” (72.19%), “Supporting the creation and

development of EU-level networks and organisations” (60.48%), “Capacity building

and training/train-the-trainer activities” (56.10%), “Cross-border mutual learning

possibilities in the justice area” (49.08%).

35

Justice programme - final evaluation of the 2014-2020 programme and interim evaluation of the 2021-2027 programme. 36 https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/14523-EUs-next-long-term-budget-MFF-EU-funding-for-

cross-border-education-training-and-solidarity-young-people-media-culture-and-creative-sectors-values-and-civil-society_en. 37

The country of residence with the most contributions overall was Germany, followed by France and Italy.

EN 13 EN

• External expertise

The proposal has been informed by external and internal reports and assessments, e.g.

programme evaluations (mid-term and ex post), the spending review exercise, reports and

documents from other EU institutions, agencies and international organisations 38.

• Impact assessment

The impact assessment on cross-border education, youth, culture, media, values and civil

society analysed the future of five funding programmes in this cluster, including the Justice

programme.

The two options below were discarded at an early stage:

– A discontinuation of the EU funding: this option was immediately discarded given the

importance of the problems affecting the policy areas in this cluster, the prominence given to

these policies in the Political Guidelines for the European Commission 2024-202939 and the

added value of the EU interventions, underpinned by the respective mid-term evaluations.

– Merging the Justice programme with other programmes in this cluster: this option was

also discarded at an early stage for legal reasons. The Justice programme cannot be merged

with other programmes in this cluster, as not all 27 EU Member States participate in the

Justice programme (contrary to the other existing programmes in the cluster). The legal bases

of the Regulation establishing the 2021-2027 Justice programme are Article 81(1) and (2) and

Article 82 (1) TFEU. These provisions are part of Title V TFEU, which covers the area of

freedom, security and justice. By virtue of the Protocols annexed to the Treaties, Denmark

does not take part in decisions made under Title V in line with Protocol No 22 (known as

‘opt-out’) and Ireland can choose to take part in certain measures if it decides to ‘opt-in’, in

line with Protocol No 21. The other programmes in the scope of the impact assessment are

open to all Member States and are therefore incompatible with the legal bases of Title V.

Retained options: The Commission decided to have a stand-alone Justice programme,

because both the final evaluation of the 2014-2020 Justice programme and the interim

evaluation of the 2021-2027 Justice programme confirmed that the Programme provided

unique added value that would be difficult to replicate at national level. This decision is

reflected in the post-2027 MFF proposal package presented by the Commission on 16 July

2025.

In line with the Better Regulation Guidelines, the 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 the following: 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 RSB’s comments and

recommendations.

• Simplification

38 Including for instance: Stakeholder_contribution_on_rule_of_law_-_oecd.pdf (europa.eu); https://eige.europa.eu/gender-

statistics/dgs/indicator/wmidm_jud_natcrt__wmid_natcrt_supcrt/datatable; http://www.coe.int/t/dghl/cooperation/cepej/evaluation/default_

en.asp. 39

Political guidelines European Commission 2024-2029.

EN 14 EN

The initiative will be in line with the Communication on the road to the 2028-2034 MFF 40

and its aim to streamline EU management, governance and implementation of EU

programmes to improve efficiency for applicants, beneficiaries and EU institutions. Efforts

will be made to simplify the application, management and reporting requirements and to

provide additional guidance. Pooling of resources, including in areas such as monitoring and

internal and external communication will bring economies of scale and enhance the

predictability of EU funding more widely among beneficiaries, stakeholders and EU citizens.

As regards the management mode of the Programme, there is no clear scope for further

simplification as the management modes used for the 2021-2027 Justice programme are

appropriate for a programme of this size (i.e. direct management and a limited number of

initiatives implemented under indirect management by the bodies referred to in point (c) of

the first subparagraph of Article 62(1) of Regulation (EU) 2024/2509). During the last years,

the Programme has implemented several simplification measures to streamline its processes

and administrative procedures, thereby enhancing its efficiency. There is limited evidence to

suggest that major changes are still needed, especially considering the simplification measures

implemented thus far. For instance, to simplify implementation and reduce administrative

burden for beneficiaries, the use of simplified forms of funding will remain the standard form

of contribution for reimbursing grants.

Beneficiaries consider the instruments used for the 2021-2027 Justice programme (grants and

procurement activities) suitable for the needs of the Programme.

At the same time, several findings show that the growing demand for the digitalisation of

justice is highlighting significant investment gaps at both EU and national levels.

A two-level approach (i.e. at EU level and at Member-State level) is therefore necessary to

allow the full digitalisation of national justice systems and to build an effective and

interconnected Union area of justice.

This would not only create more links with all the policy areas covered under the Justice

programme but will also provide for strong coherence with actions carried out at national

level for the digitalisation of national justice systems under the National and Regional

Partnership plans.

• Fundamental rights

The Programme objectives are closely linked to the promotion of fundamental rights and are

in line with the Charter.

In the implementation of all of its actions, the Programme also seeks to promote the Union

values set out in Article 2 TEU, gender equality, the rights of the child, including by means of

child-friendly justice, the protection of victims’ rights and the effective application of the

principle of equal rights and non-discrimination based on any of the grounds listed in

Article 21 of the Charter, in accordance with and within the limits set by Article 51 of the

Charter.

In addition, projects funded under the Programme must comply with the highest ethical

standards, the General Data Protection Regulation 2016/67941 and international law

40

https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex:52025DC0046. 41 Regulation (EU) 2016/679 of the European Parliament and of the Council of 27 April 2016 on the protection of natural persons

with regard to the processing of personal data and on the free movement of such data, and repealing Directive 95/46/EC (General Data

Protection Regulation), OJ L 119, 4.5.2016, pp. 1–88, ELI: http://data.europa.eu/eli/reg/2016/679/oj.

EN 15 EN

agreements to which the Union or all EU Member States are party (including the United

Nations Convention on the rights of persons with disabilities42).

4. BUDGETARY IMPLICATIONS

The financial envelope for the implementation of the Justice programme for the period

1 January 2028 to 31 December 2034 will be EUR 798 million (current prices).

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 established under Regulation (EU) XXX of the European Parliament and of the

Council [Performance Regulation]43. The performance framework also sets out the rules for

evaluations, which 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.

The Programme is implemented through direct management by the Commission. A limited

number of initiatives might also be implemented under indirect management by international

organisations.

• Detailed explanation of the specific provisions of the proposal

The general objective of the proposed 2028-2034 Justice programme (Article 3 of the

Regulation) is to contribute to the further development of an efficient, inclusive, resilient and

digitalised Union area of justice, based on the rule of law, mutual recognition and mutual

trust. By achieving this objective, the Programme will also strengthen democracy and the

protection of fundamental rights and contribute to growth and competitiveness. This general

objective will be achieved through three specific objectives:

(a) To facilitate and support judicial cooperation in civil and criminal matters, and to

promote the rule of law;

(b) To promote and support judicial training;

(c) To facilitate and support effective and non-discriminatory access to justice for all and

effective remedy, including by digital means.

The Programme will provide for synergies between its different specific objectives to

effectively support the policy areas these objectives cover and increase their potential to reach

its target groups. 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 tailor-

made approaches.

In implementing this Regulation, the Commission will set the funding priorities in the

respective policy areas each year. The structure of the Regulation allows for flexibility and for

quick adjustments based on policy needs and new policy and technological developments.

42 OJ L 23, 27.1.2010, p. 37, ELI: http://data.europa.eu/eli/convention/2010/48(1)/oj. Since the Union became a Party to the United

Nations Convention on the Rights of Persons with Disabilities, its provisions have become an integral part of the Union legal order and are

binding upon the institutions of the Union and on its Member States including its Article 13 on access to justice. That Article requires that States Parties ensure effective access to justice for persons with disabilities on an equal basis with others (including through the provision of

procedural and age-appropriate accommodations) in all legal proceedings, including at investigative and other preliminary stages. It also

indicates that States Parties shall promote appropriate training for those working in the field of administration of justice, including police and prison staff. 43 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing a budget expenditure tracking

and performance framework and other horizontal rules for the Union programmes and activities, COM/2025/545 final.

EN 1 EN

2025/0255 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

establishing the Justice programme for the period 2028-2034 and repealing Regulation

(EU) 2021/693

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty on the Functioning of the European Union, and in particular

Article 81(1) and (2) and Article 82(1) thereof,

Having regard to the proposal from the European Commission,

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

Having regard to the opinion of the European Economic and Social Committee1,

Having regard to the opinion of the Committee of the Regions2,

Acting in accordance with the ordinary legislative procedure,

Whereas:

(1) Article 3 of the Treaty on European Union (TEU) provides that the Union is to offer

its citizens an area of freedom, security and justice and Article 67 of the Treaty of the

Functioning of the European Union (TFEU) further specifies that the Union is to

constitute an area of freedom, security and justice with respect for fundamental rights

and the different legal systems and traditions of the Member States. Justice is closely

linked to core values on which the Union is founded, particularly the rule of law,

democracy and respect for fundamental rights as enshrined in Article 2 TEU. Those

core values imply the necessity of independent judiciaries operating within efficient

justice systems. Judicial independence itself stems from the common constitutional

traditions shared by all Member States, the rule of law, and from the principle of

effective judicial protection provided for in Article 19(1) TEU and Article 47 of the

Charter of Fundamental Rights of the European Union (the ‘Charter’).

(2) The completion of an area of freedom, security and justice is still challenged by

factors such as threats to the rule of law, several forms of serious crime and obstacles

to access to justice and judicial cooperation. It is therefore more important than ever to

promote, strengthen, and defend justice, which has direct implications for the political,

economic, financial and social life in the Union and beyond and is necessary to

prepare for an enlarged Union. Building on the 2021-2027 Justice programme

established by Regulation (EU) 2021/693 of the European Parliament and of the

Council3, this Regulation aims at establishing the Justice programme (the

‘Programme’) in order to support the further development of a Union area of justice

based on the rule of law, fundamental rights, democracy, the independence and

1 OJ C, […], […], ELI:. […]. 2 OJ C, […], […], ELI: […]. 3

Regulation (EU) 2021/693 of the European Parliament and of the Council of 28 April 2021 establishing the Justice Programme

and repealing Regulation (EU) 1382/2013 (OJ L 156, 5.5.2021, p. 21, ELI: http://data.europa.eu/eli/reg/2021/693/oj).

EN 2 EN

impartiality of the judiciary, mutual recognition and mutual trust, access to justice and

cross-border judicial cooperation in civil and criminal matters. The Programme should

also provide an enhanced focus on digitalisation of justice across all its specific

objectives.

(3) This Regulation lays down an indicative financial envelope for the Justice programme.

For the purpose of this Regulation, current prices are calculated by applying a fixed

2% deflator.

(4) In a rapidly changing economic, social and geopolitical environment, which creates

uncertainties and challenges, recent experience has shown the need for a more flexible

multiannual financial framework and Union spending programmes. To that effect, and

in line with the objectives of the Justice programme, the funding should duly consider

the evolving policy needs and Union’s priorities as identified in relevant documents

published by the Commission, in Council conclusions and European Parliament

resolutions, while ensuring sufficient predictability for the budget implementation.

(5) Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council4

applies to the Programme. It lays down the rules on the establishment and the

implementation of the general budget of the Union, including the rules on grants,

prizes, non-financial donations, procurement, financial assistance, financial

instruments and budgetary guarantees.

(6) In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom)

No 883/2013 of the European Parliament and of the Council5, Council Regulation (EC

Euratom) No 2988/956, Council Regulation (Euratom, EC) No 2185/967 and Council

Regulation (EU) 2017/19398, the financial interests of the Union are to be protected

through proportionate measures, including the prevention, detection, correction and

investigation of irregularities and fraud, the recovery of funds lost, wrongly paid or

incorrectly used and, where appropriate, the imposition of administrative sanctions. In

particular, in accordance with Regulations (EU, Euratom) No 883/2013 and (Euratom,

EC) No 2185/96, the European Anti-Fraud Office (OLAF) may carry out

investigations, including on-the-spot checks and inspections, with a view to

establishing whether there has been fraud, corruption or any other illegal activity

affecting the financial interests of the Union. In accordance with Regulation (EU)

2017/1939, the European Public Prosecutor’s Office (EPPO) may investigate and

prosecute fraud and other illegal activities affecting the financial interests of the Union

as provided for in Directive (EU) 2017/1371 of the European Parliament and of the

Council9. In accordance with Regulation (EU, Euratom) 2024/2509, any person or

entity receiving Union funds is to fully cooperate in the protection of the Union’s

4 Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September 2024 on the financial rules

applicable to the general budget of the Union (OJ L, 2024/2509, 26.9.2024, ELI: http://data.europa.eu/eli/reg/2024/2509/OJ). 5 Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council of 11 September 2013 concerning

investigations conducted by the European Anti-Fraud Office (OLAF) and repealing Regulation (EC) No 1073/1999 of the European

Parliament and of the Council and Council Regulation (Euratom) No 1074/1999 (OJ L 248, 18.9.2013, p. 1.,

ELI: http://data.europa.eu/eli/reg/2013/883/oj). 6 Council Regulation (EC, Euratom) No 2988/95 of 18 December 1995 on the protection of the European Communities financial

interests (OJ L 312, 23.12.95, p. 1, ELI: http://data.europa.eu/eli/reg/1995/2988/oj). 7 Council Regulation (Euratom, EC) No 2185/96 of 11 November 1996 concerning on-the-spot checks and inspections carried out

by the Commission in order to protect the European Communities’ financial interests against fraud and other irregularities (OJ L 292.15.11.96, p. 2, ELI: http://data.europa.eu/eli/reg/1996/2185/oj). 8 Council Regulation (EU) 2017/1939 of 12 October 2017 implementing enhanced cooperation on the establishment of the

European Public Prosecutor’s Office (‘the EPPO’) (OJ L 283, 31.10.2017, p. 1, ELI: http://data.europa.eu/eli/reg/2017/1939/OJ). 9 Directive (EU) 2017/1371 of the European Parliament and of the Council of 5 July 2017 on the fight against fraud to the Union’s

financial interests by means of criminal law (OJ L 198, 28.7.2017, p. 29, ELI: http://data.europa.eu/eli/dir/2017/1371/oj).

EN 3 EN

financial interests, to grant the necessary rights and access to the Commission, OLAF,

EPPO and the European Court of Auditors and to ensure that any third parties

involved in the implementation of Union funds grant equivalent rights.

(7) The Programme is to be implemented in accordance with Regulation (EU) XXX of the

European Parliament and of the Council [Performance Regulation]10 which establishes

the rules for the expenditure tracking and the performance framework for the budget,

including rules for ensuring a uniform application of the principles of ‘do no

significant harm’ and gender equality referred to in Article 33(2), points (d) and (f), of

Regulation (EU, Euratom) 2024/2509 respectively, rules for monitoring and reporting

on the performance of Union programmes and activities, rules for establishing a Union

funding portal, rules for the evaluation of the programmes, as well as other horizontal

provisions applicable to all Union programmes such as those on information,

communication and visibility.

(8) Measures under the Programme should support enhanced mutual recognition and

enforcement of judgments and judicial decisions in civil and criminal matters, mutual

trust between Member States and the necessary approximation of legislation in order

to facilitate cooperation between all the relevant authorities, including by digital

means. The Programme should also support the maintenance and setting up of existing

and new IT tools or platforms for new judicial cooperation instruments. While

harvesting the efficiency gains of digitalisation of justice, the protection of

fundamental rights, in accordance with the Charter, as well as safeguards against

inequalities, discrimination and exclusion should be ensured.

(9) The Programme should, in all its activities, promote the rule of law also by supporting

efforts to improve the independence, quality and efficiency of national justice systems

in order to enhance mutual trust, which is indispensable for judicial cooperation in

civil and criminal matters.

(10) In civil matters, the Programme should support the protection of individual rights in

civil and commercial cases, including Anti-SLAPP (strategic lawsuits against public

participation), and promote greater convergence in civil law. This will help eliminate

obstacles to satisfactory and efficiently functioning judicial and extrajudicial

procedures for the benefit of all parties in a dispute. To support the effective

enforcement and practical application of Union law in this area, the Programme should

also support the functioning of the European Judicial Network in civil and commercial

matters established by Council Decision 2001/470/EC11.

(11) In criminal matters, the Programme should help implement rules and procedures to

ensure the recognition of judgments and decisions throughout the Union and support

the protection of the Union financial interests. It should contribute to removing

obstacles to effective mutual trust and cooperation, including through support for

measures that ensure the correct transposition of Union legal acts approximating

national criminal laws. The Programme should also support actions aimed at

facilitating cooperation in relation to forms of serious crime such as corruption,

terrorism and environmental crime. In particular, the Programme should enhance

coordination and cooperation between law enforcement, judicial authorities and other

10 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing a budget expenditure tracking

and performance framework and other horizontal rules for the Union programmes and activities (OJ L …, …., ELI: …). 11

Council Decision 2001/470/EC of 28 May 2001 establishing a European Judicial Network in civil and commercial matters (OJ L

174, 27.6.2001, p. 25, ELI: http://data.europa.eu/eli/dec/2001/470/oj).

EN 4 EN

competent authorities. Furthermore, it should support cooperation with and awareness

raising of the role of Union bodies and agencies, such as the European Union Agency

for Criminal Justice Cooperation (Eurojust) and the EPPO, thereby enabling a more

integrated system of judicial cooperation in the Union.

(12) The Programme should contribute to improving non-discriminatory access to justice

for all and should support activities to protect the rights of victims of crime as well as

the procedural rights of suspects and accused persons in criminal proceedings as well

as requested persons in European Arrest Warrant (EAW) proceedings. Access to

justice should include, in particular, access to courts, alternative methods of dispute

resolution, and legal advice to be provided in an independent and impartial manner by

public office-holders. Particular attention should be given to improved implementation

of the various Union legal acts for the protection of victims of crime, as well as to

actions aimed at the exchange of best practices between competent authorities,

including judicial authorities, law enforcement authorities, legal practitioners and at

supporting the improvement of the knowledge and use of collective redress

instruments. Moreover, support should be given to activities which facilitate effective

and equal access to justice for persons who face discrimination or are in a situation of

vulnerability (such as persons with disabilities in accordance with Article 13 of the

United Nations Convention on the Rights of Persons with Disabilities12, children,

minorities, LGBTIQ+ persons and victims of gender-based violence, domestic

violence and other forms of interpersonal violence. The Programme should also

support activities of civil society organisations which contribute to those objectives.

(13) The Programme should support the training of the judiciary and judicial staff. Training

activities should contribute to the implementation of Union strategic priorities,

including for instance, training on civil and criminal law, on the effective application

of the Charter, on mutual recognition as well as on procedural safeguards (including

safeguards for strategic lawsuits against public participation (anti-SLAPP)). Training

activities under the Programme should have a strong focus on digitalisation of justice,

providing a supportive environment for the judiciary and judicial staff, including

through increasing digital skills, knowledge and awareness. Training should also

support the digitalisation of cross-border judicial proceedings. Support to training

should happen in synergy with measures at national level, thus leveraging the impact

of the Programme.

(14) The Programme should support the annual work programme of the European Judicial

Training Network (EJTN), which is an essential actor with regard to judicial training

and plays an important role in supporting and implementing the objectives of

European judicial training policy. The EJTN is the only network at Union level

bringing together the judicial training bodies of the Member States. It is therefore in a

unique position to organise exchanges and training for the judiciary between Member

States and to coordinate the work of national judicial training bodies, thereby fostering

synergies between Union supported and nationally funded training and structured

communication between the Union and national training providers. Moreover, the

EJTN may also include the judicial training bodies of candidate countries and potential

candidates as observer members.

(15) The protection of children’s rights is a core objective of the Union, as enshrined in

Article 3(3) of the TEU and Article 24 of the Charter. In all actions concerning

12

OJ L 23, 27.01.2010, p. 37, ELI: http://data.europa.eu/eli/convention/2010/48(1)/oj.

EN 5 EN

children, the best interests of the child are to be a primary consideration. That is

essential also for the legitimacy and effectiveness of justice systems. Children

involved in legal proceedings, whether as witnesses, victims, suspects, accused or

convicted persons, or other parties, often face significant barriers which undermine

their ability to participate effectively and to benefit from appropriate

safeguards. Strengthening the capacity of national justice systems and practitioners to

address the specific needs of children is therefore necessary to ensure the effective

exercise of their rights.

(16) The Programme should contribute to digitalisation of justice, including by developing,

rolling-out and maintaining tools at Union level. It could thus leverage tools

facilitating digital communication between courts and parties such as the European

Electronic Access Point, allowing easier access to judicial data such as the European

Case Law Identifier, or enhancing the efficiency and security of digitalised judicial

procedures such as trust services under Regulation (EU) No 910/2014 and the

European Digital Identity Wallets. A well-functioning Union area of justice with

effective and resilient national justice systems is necessary for a flourishing internal

market and it is a precondition for economic growth, sound financial markets and

competitiveness. Digitalisation enhances the efficiency of cross-border judicial

procedures in civil and criminal matters as well as access to justice within the Union,

which in turn are a driver for investments. Digitalisation of justice also enables and

facilitates the effective and efficient cooperation with other competent authorities in

the implementation and enforcement of key pieces of the EU digital rulebook, such as

for instance the Digital Services Act. Digitalising justice systems helps also to reduce

costs for both public budgets and end users, while maintaining effective services for

citizens and businesses. It enables justice professionals to focus on core tasks,

improving the quality and efficiency of proceedings. Digital tools also expand access

to justice, by allowing remote communication and easy access to judicial files, thereby

enhancing transparency. Moreover, digitalisation strengthens the resilience of national

justice systems in times of crisis (such as pandemics), ensuring they can continue to

operate effectively for the benefit of citizens and businesses. That strengthens trust in

the justice system’s ability to function reliably under unexpected circumstances.

(17) The Union must protect its security interest against suppliers which could represent a

persistent security risk due to the potential interference from third countries as well as

their security, notably cybersecurity. It is therefore necessary to reduce the risk of

persisting dependency on high-risk suppliers in the internal market, including in the

ICT supply chain, as they could have potentially serious negative impacts on security

for users and companies across the Union and the Union’s critical infrastructure in

terms of the integrity of data and services as well as the availability of service. This

restriction should be based on a proportionate risk assessment and associated

mitigation measures as defined in the Union policies and laws.

(18) The Commission should ensure overall consistency, complementarity and synergies

with the work of Union bodies, offices and agencies, in particular Eurojust, the

European Union Agency for Fundamental Rights (FRA), the European Union Agency

for the Operational Management of Large-Scale IT Systems in the Area of Freedom,

Security and Justice (eu-LISA) and the EPPO, and should take into account the work

of other national and international actors in the areas covered by the Programme.

(19) In order to ensure the efficient allocation of funds from the general budget of the

Union, it is necessary to ensure that all actions carried out under the Programme have

Union added value, complement Member States’ actions and are consistent with other

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Union actions. Consistency, complementarity and synergies should be sought in

particular with funding programmes supporting policy areas that are closely

interlinked, such as the National and Regional Partnership Plans (established by

Regulation XXX of the European Parliament and of the Council [NRP Regulation]13),

the AgoraEU programme (established by Regulation XXX of the European Parliament

and of the Council [AgoraEU]14,), and external actions supported by Global Europe

(established by Regulation XXX of the European Parliament and of the Council15).

(20) The Programme replaces the programme established by Regulation (EU) 2021/693 for

the programming period 2021-2027 which should therefore be repealed.

(21) In accordance with Articles 1 and 2 of Protocol No 22 on the position of Denmark,

annexed to the TEU and to the TFEU, Denmark is not taking part in the adoption of

this Regulation and is not bound by it or subject to its application.

(22) In accordance with Article 3 of Protocol No 21 on the position of the United Kingdom

and Ireland in respect of the area of freedom, security and justice, annexed to the TEU

and the TFEU, Ireland has notified [,by letter of …,] its wish to take part in the

adoption and application of this Regulation.

or

In accordance with Articles 1 and 2 of Protocol No 21 on the position of the United

Kingdom and Ireland in respect of the area of freedom, security and justice, annexed

to the TEU and to the TFEU, and without prejudice to Article 4 of that Protocol,

Ireland is not taking part in the adoption of this Regulation and is not bound by it or

subject to its application,

HAVE ADOPTED THIS REGULATION:

Article 1

Subject matter

This Regulation establishes the Justice programme (the ‘Programme’) and lays down the

objectives of the Programme, its budget for the period 2028-2034, the forms of Union funding

and the rules for providing such funding.

Article 2

Definition

For the purposes of this Regulation, ‘judiciary and judicial staff’ means judges, prosecutors

and members of staff of courts and of prosecutors’ offices, as well as any other justice

professionals associated with the justice systems or otherwise participating in the

administration of justice, irrespective of the definition in national law, legal status or internal

organisation, such as lawyers, notaries, bailiffs or enforcement officers, insolvency

practitioners, mediators, court interpreters and translators, court experts, prison staff and

probation officers.

13 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing the European Fund for

economic, social and territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and security for the period 2028-2034 and

amending Regulation (EU) 2023/955 and Regulation (EU, Euratom) 2024/2509, COM(2025) 565 final. 14 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing the 'AgoraEU' programme for

the period 2028-2034, and repealing Regulations (EU) 2021/692 and (EU) 2021/818, COM(2025) 550 final. 15 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing Global Europe, COM/2025/551

final.

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Article 3

Programme objectives

1. The general objective of the Programme is to contribute to the further development

of an efficient, inclusive, resilient and digitalised Union area of justice, based on the

rule of law, mutual recognition and mutual trust, thereby also strengthening

democracy and the protection of fundamental rights, and contributing to the Union’s

growth and competitiveness, as well as the digitalisation of justice at the Union level.

2. The Programme has the following specific objectives:

(a) to facilitate and support judicial cooperation in civil and criminal matters, and to

promote the rule of law, in particular the independence, quality and efficiency of

justice systems, including through improving the effective cross-border recognition

and enforcement of judicial decisions;

(b) to promote and support training of the judiciary and judicial staff, with a view to:

promoting the rule of law, fundamental rights and democracy; fostering a common

legal and judicial culture; ensuring the consistent and effective implementation of the

relevant Union legal instruments; and providing a supportive environment for the

digitalisation of judicial cooperation and justice systems.

(c) to facilitate and support effective and non-discriminatory access to justice for all and

effective remedy, including by digital means, by promoting efficient civil and

criminal procedures and by promoting and supporting the rights of all victims of

crime and the procedural rights of suspects and accused persons in criminal

proceedings as well as of requested persons in European Arrest Warrant proceedings.

Article 4

Budget

1. The indicative financial envelope for the implementation of the Programme for the

period from 1 January 2028 to 31 December 2034 is set at EUR 798 000 000 in

current prices.

2. Appropriations may be entered in the Union budget beyond 2034 to cover the

expenses necessary and to enable the management of actions not completed by the

end of the Programme.

3. The financial envelope referred to in paragraph 1 of this Article and the amounts of

additional resources referred to in Article 5 may also be used for technical and

administrative assistance for the implementation of the Programme, such as

preparatory, monitoring, control, audit and evaluation activities, corporate

information technology systems and platforms, information and communication

activities, including corporate communication on the political priorities of the Union,

and all other technical and administrative assistance or staff-related expenses

incurred by the Commission for the management of the Programme.

Article 5

Additional resources

1. Member States, Union institutions, bodies and agencies, third countries, international

organisations, international financial institutions, or other third parties, may make

additional financial or non-financial contributions to the Programme. Additional

financial contributions shall constitute external assigned revenue within the meaning

EN 8 EN

of Article 21(2), points (a), (d), or (e) or Article 21(5) of Regulation (EU, Euratom)

2024/2509.

2. Resources allocated to Member States under shared management may, at their

request, be made available to the Programme. The Commission shall implement

those resources directly or indirectly in accordance with Article 62(1), point (a) or

(c), of Regulation (EU, Euratom) 2024/2509. They shall be additional to the amount

referred to in Article 4(1) of this Regulation. Those resources shall be used for the

benefit of the Member State concerned. Where the Commission has not entered into

a legal commitment under direct or indirect management for additional amounts thus

made available to the Programme, the corresponding uncommitted amounts may, at

the request of the Member State concerned, be transferred back to one or more

respective source programmes or their successors.

Article 6

Alternative, combined and cumulative funding

1. The Programme shall be implemented in synergy with other Union programmes. An

action that has received a Union contribution from another programme may also

receive a contribution under the Programme. The rules of the relevant Union

programme shall apply to the corresponding contribution or a single set of rules may

be applied to all contributions and a single legal commitment may be concluded. If

the Union contribution is based on eligible costs, the cumulative support from the

Union budget shall not exceed the total eligible costs of the action and may be

calculated on a pro-rata basis in accordance with the documents setting out the

conditions for support.

2. Award procedures under the Programme may be jointly conducted under direct or

indirect management with Member States, Union institutions, bodies and agencies,

third countries, international organisations, international financial institutions, or

other third parties (‘partners to the joint award procedure’), provided the protection

of the financial interests of the Union is ensured. Such procedures shall be subject to

a single set of rules and lead to the conclusion of single legal commitments. For that

purpose, the partners to the joint award procedure may make resources available to

the Programme in accordance with Article 5 of this Regulation, or the partners may

be entrusted with the implementation of the award procedure, where applicable in

accordance with Article 62(1), point (c), of Regulation (EU, Euratom) 2024/2509.

For the purposes of Article 153(3) of Regulation (EU, Euratom) 2024/2509, in joint

award procedures the evaluation committee may be partially composed by members

that are representatives of the partners in that procedure.

Article 7

Third countries associated to the Programme

1. The Programme may be opened to the participation of the following third countries

through full or partial association, in accordance with the objectives laid down in

Article 3 and in accordance with the relevant international agreements or any

decisions adopted under the framework of those agreements and applicable to:

(a) members of the European Free Trade Association which are members of the

European Economic Area, as well as European micro-states;

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

(c) European Neighbourhood Policy countries;

EN 9 EN

(d) other third countries.

2. The association agreements for participation in the Programmes shall:

(a) ensure a fair balance as regards the contributions and benefits of the third

country participating in the Programme;

(b) lay down the conditions of participation in the Programme, including the

calculation of financial contributions, consisting of an operational contribution

and a participation fee, to a programme and its general administrative costs;

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

(d) guarantee the rights of the Union to ensure sound financial management and to

protect its financial interests;

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

the Union.

For the purposes of the first subparagraph, point (d), the third country shall grant the

necessary rights and access required under Regulations (EU, Euratom) 2024/2509 and (EU,

Euratom) 883/2013, and guarantee that enforcement decisions imposing a pecuniary

obligation on the basis of Article 299 of the Treaty on the Functioning of the European Union,

as well as judgements and orders of the Court of Justice of the European Union, are

enforceable.

Article 8

Implementation and forms of Union funding

1. The Programme shall be implemented in accordance with Regulation (EU, Euratom)

2024/2509, under direct management or under indirect management with entities

referred to in Article 62(1), point (c), of that Regulation.

2. Union funding may be provided in any form in accordance with Regulation (EU,

Euratom) 2024/2509, in particular grants, procurement and non-financial donations.

3. Where Union funding is provided in the form of a grant, funding shall be provided as

financing not linked to costs or, where necessary, simplified cost options, in

accordance with Regulation (EU, Euratom) 2024/2509. Funding may be provided in

the form of actual eligible cost reimbursement only where the objectives of an action

cannot be achieved otherwise.

4. For the purposes of Article 153(3) of Regulation (EU, Euratom) 2024/2509, the

evaluation committee may be composed partially or fully of independent external

experts.

Article 9

Eligibility

1. Eligibility criteria shall be set to support achievement of the objectives laid down in

Article 3 of this Regulation, in accordance with Regulation (EU, Euratom)

2024/2509 and shall apply to all award procedures under the Programme.

2. In award procedures under direct and indirect management, one or more of the

following legal entities may be eligible to receive Union funding:

(a) entities established in a Member State;

(b) entities established in an associated third country;

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(c) international organisations;

(d) other entities established in non-associated third countries where the funding of

such entities is essential for implementing the action and contributes to the

objectives laid down in Article 3.

3. In addition to Article 168(2) and (3) of Regulation (EU, Euratom) 2024/2509,

associated third countries referred to in Article 7 (1) of this Regulation may, where

relevant, participate in and benefit from any procurement mechanisms set out in

Article 168(2) and (3) of Regulation (EU, Euratom) 2024/2509. Rules applicable to

Member States shall be applied, mutatis mutandis, to participating associated third

countries.

4. Award procedures affecting security or public order, in particular concerning

strategic assets and interests of the Union or its Member States, shall be restricted in

accordance with Article 136 of Regulation (EU, Euratom) 2024/2509. In accordance

with Article 136 of Regulation (EU, Euratom) 2024/2509, eligibility restrictions shall

apply to high-risk suppliers in line with Union law, for security reasons.

5. The work programme referred to in Article 110 of Regulation (EU, Euratom)

2024/2509, the calls for proposals and calls for tenders may further specify the

eligibility criteria set out in this Regulation or set additional eligibility criteria for

specific actions.

6. An operating grant may be awarded without a call for proposals to the European

Judicial Training Network to cover expenditure associated with its permanent work

programme.

Article 10

Work programme

The Programme shall be implemented by work programmes referred to in Article 110 of

Regulation (EU, Euratom) 2024/2509.

Article 11

Repeal

Regulation (EU) 2021/693 is repealed with effect from 1 January 2028.

Article 12

Transitional provisions

1. This Regulation shall not affect the continuation or modification of the actions

initiated under Regulation (EU) 2021/693, which shall continue to apply to the

actions concerned until their closure.

2. The financial envelope for the Programme may also cover technical and

administrative assistance expenses necessary to ensure the transition between the

Programme and the measures adopted under Regulation (EU) 2021/693.

Article 13

Entry into force and application

This Regulation shall enter into force on the twentieth day following that of its publication in

the Official Journal of the European Union.

EN 11 EN

It shall apply from 1 January 2028.

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

accordance with the Treaties.

Done at Brussels,

For the European Parliament For the Council

The President The President

EN 1 EN

LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT

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

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

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

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

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

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

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

1.3.4. Indicators of performance ............................................................................................ 5

1.4. The proposal/initiative relates to: ................................................................................. 5

1.5. Grounds for the proposal/initiative .............................................................................. 5

1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for

roll-out of the implementation of the initiative ............................................................ 5

1.5.2. Added value of EU involvement (it may result from different factors, e.g.

coordination gains, legal certainty, greater effectiveness or complementarities). For

the purposes of this section ’added value of EU involvement’ is the value resulting

from EU action, that is additional to the value that would have been otherwise

created by Member States alone. ................................................................................. 6

1.5.3. Lessons learned from similar experiences in the past .................................................. 7

1.5.4. Compatibility with the multiannual financial framework and possible synergies with

other appropriate instruments ....................................................................................... 7

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

redeployment ................................................................................................................ 7

1.6. Duration of the proposal/initiative and of its financial impact .................................... 8

1.7. Method(s) of budget implementation planned ............................................................. 8

2. MANAGEMENT MEASURES .............................................................................. 10

2.1. Monitoring and reporting rules .................................................................................. 10

2.2. Management and control system(s) ........................................................................... 10

2.2.1. Justification of the budget implementation method(s), the funding implementation

mechanism(s), the payment modalities and the control strategy proposed ................ 10

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

to mitigate them.......................................................................................................... 10

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between

the control costs and the value of the related funds managed), and assessment of the

expected levels of risk of error (at payment & at closure) ......................................... 11

2.3. Measures to prevent fraud and irregularities .............................................................. 11

3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE ..... 12

EN 2 EN

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

affected ....................................................................................................................... 12

3.2. Estimated financial impact of the proposal on appropriations ................................... 13

3.2.1. Summary of estimated impact on operational appropriations.................................... 13

3.2.1.1. Appropriations from voted budget EUR million (to three decimal places) ............... 13

3.2.2. Estimated output funded from operational appropriations (not to be completed for

decentralised agencies)............................................................................................... 15

3.2.3. Summary of estimated impact on administrative appropriations ............................... 17

3.2.3.1. Appropriations from voted budget .............................................................................. 17

3.2.3.2. Appropriations from external assigned revenues (NA) ............................................. 17

3.2.4. Estimated requirements of human resources.............................................................. 18

3.2.4.1. Financed from voted budget....................................................................................... 18

3.2.4.2. Financed from external assigned revenues (NA) ....................................................... 19

3.2.5. Overview of estimated impact on digital technology-related investments ................ 21

4. DIGITAL DIMENSIONS ........................................................................................ 23

4.1. Requirements of digital relevance .............................................................................. 23

4.2. Data ............................................................................................................................ 25

4.3. Digital solutions ......................................................................................................... 26

4.4. Interoperability assessment ........................................................................................ 29

4.5. Measures to support digital implementation .............................................................. 29

EN 3 EN

1. FRAMEWORK OF THE PROPOSAL/INITIATIVE

1.1. Title of the proposal/initiative

Proposal for a Regulation of the European Parliament and the Council establishing

the Justice programme and repealing Regulation (EU) No 2021/693 for the period

2028-2034.

1.2. Policy area(s) concerned

Judicial cooperation in civil and criminal matters, judicial training, access to justice,

the rule of law, fundamental rights.

1.3. Objective(s)

1.3.1. General objective(s)

The Programme has the general objective of contributing to the further development

of an efficient, inclusive, resilient and digitalised Union area of justice, based on the

rule of law, mutual recognition and mutual trust, thereby also strengthening

democracy and the protection of fundamental rights, and contributing to the Union’s

growth and competitiveness as well as to the digitalisation of justice at Union level.

1.3.2. Specific objective(s)

The Programme will have the following specific objectives:

Specific objective No 1:

To facilitate and support judicial cooperation in civil and criminal matters, and to

promote the rule of law, in particular the independence, quality and efficiency of

justice systems, including through improving the effective cross-border recognition

and enforcement of judicial decisions.

Specific objective No 2:

To promote and support training of the judiciary and judicial staff, with a view to:

promoting the rule of law, fundamental rights and democracy; fostering a common

legal and judicial culture; ensuring the consistent and effective implementation of the

relevant Union legal instruments; and providing a supportive environment for the

digitalisation of judicial cooperation and justice systems.

Specific objective No 3:

To facilitate and support effective and non-discriminatory access to justice for all and

effective remedy, including by digital means, by promoting efficient civil and

criminal procedures and by promoting and supporting the rights of all victims of

crime and the procedural rights of suspects and accused persons in criminal

proceedings as well as of requested persons in European Arrest Warrant proceedings.

1.3.3. Expected result(s) and impact

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

- Increased capacity - including digital capacity - of national practitioners, courts and

authorities to address issues related to judicial cooperation in civil and criminal

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matters and to implement EU instruments on civil and civil procedural law, as well

as on criminal and criminal procedural law;

- Improved cross-border cooperation and mutual trust between judicial authorities

responsible for judicial cooperation in civil, commercial and criminal matters, and

improved cooperation and coordination between these authorities and other

responsible agencies and institutions across the EU;

- Acceleration of proceedings in relation to judicial cooperation in civil and criminal

matters;

- Improved situation of persons subject to measures in the field of judicial

cooperation in criminal matters, enhancement of their social rehabilitation and re-

integrations, reduced risks of violation of their fundamental rights;

- Enhanced capacity and visibility of EU level Networks active in the areas of

judicial training, access to justice and judicial cooperation;

- Improved promotion of the rule of law, independence and impartiality of the

judiciary, including by supporting the efforts to improve the effectiveness of national

justice systems, particularly through collection of information on rule of law

situation at national level, the collection of data on the independence, quality and

efficiency of national justice systems, promotion and upholding of European

standards and best practices in these areas;

- Strengthened cooperation and exchange of information between competent national

authorities, European networks, NGOs and/or professional organisations in relation

to the rights of persons suspected or accused of crime and of victims of crime;

- Reduced risks of breaches of fair trial rights;

- Facilitating cooperation in relation to forms of serious crime, such as corruption,

terrorism and environmental crime;

- Improved public awareness and knowledge, also among relevant policy makers,

about procedural rights of suspected and accused persons and victims’ rights at both

EU and national level;

- Increased awareness and knowledge on the use of digital and AI tools in criminal

proceedings (in particular the use of videoconferencing technology) and its impact

(chances and risks) on the procedural rights of suspected and accused persons and

victims’ rights at both EU and national level;

- Increased awareness and knowledge about the specific needs of the most vulnerable

victims of crimes, including victims of terrorism, and most vulnerable suspects and

accused persons;

- Improved knowledge about legal remedies available for victims in case of a

violation of their rights as well as about challenges and benefits for victims related to

digitalisation of justice;

- Improved support services to victims;

- Enhanced knowledge of EU civil law, commercial law, criminal law and

fundamental rights related instruments (including on the scope of application of the

EU Charter of Fundamental Rights and on existing remedies and redress) among

justice professionals;

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- Increased ‘Digital capacity’ of justice professionals to use digital tools and

infrastructures effectively, handle the impact of digitalisation on court proceedings

and procedural rights and apply cross-border cooperation tools;

- Increased legal certainty for citizens and businesses.

1.3.4. Indicators of performance

Specify the indicators for monitoring progress and achievements.

The output and result indicators for the purpose of monitoring progress and

achievements of this Programme will correspond to the common indicators provided

under Regulation (EU) XXX of the European Parliament and of the Council

[Performance Regulation]1.

1.4. The proposal/initiative relates to:

 a new action

 a new action following a pilot project / preparatory action2

 the extension of an existing action

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

1.5. Grounds for the proposal/initiative

1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for

roll-out of the implementation of the initiative

Whereas legislation is a key tool to implement the Union’s objectives in the area of

justice, it needs to be complemented by other means. In this context, funding has an

important role to play to enhance the effectiveness of legislation by increasing

knowledge, awareness and capacity of justice professionals and other key

stakeholders, through supporting, for instance:

- dissemination of information and awareness raising, including support for national

and European campaigns to inform people of their rights and forums for discussion

for stakeholders to enhance the knowledge of the Programme and the transferability

of its results;

- training, exchanges and capacity building for the judiciary and judicial staff and

other practitioners and relevant national authorities, to equip them with the tools to

effectively put Union rights and policies into practice.

Funding has also a central role in promoting cooperation at transnational level and

developing mutual trust, through, for instance:

- developing and strengthening the capacity of key European-level networks,

European-level judicial associations and European level judicial training providers to

assist with the preparation of future initiatives in the areas covered by the

Programme, as well as to promote their consistent implementation across Europe;

- cross-border cooperation on enforcement and coordination of other national actions

to maximise and deepen the impact of Union level actions;

1 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing a budget expenditure tracking

and performance framework and other horizontal rules for the Union programmes and activities, COM/2025/545 final. 2 As referred to in Article 58(2), point (a) or (b) of Regulation (EU) 2024/2509.

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- cross-border interoperability of systems and applications by deploying and

maintaining innovative techniques and technologies, notably digital ones.

Additionally, funding should also support, for instance:

- Research, studies, surveys, evaluations, impact assessments, analytical, monitoring

and other support activities which allow to be always updated on new improvements

and challenges on the ground. The results of these activities will then feed into the

development and implementation of Union policies and ensure that they are

evidence-based, well targeted and well structured.

The Programme will contribute to tackling common transnational challenges by

taking into account the specific nature and challenges of the different policy areas,

their different target groups and their particular needs. By bringing together support

in these areas, the Union will be better equipped to address recurrent but also new

and emerging policy priorities.

The Programme will publish every year around four calls for proposals (including

operating grant calls) and support some indirect management activities with

international organisations. Some calls will be biennial. In addition to this, the

Programme will undertake some actions through contracts following public

procurement. The types of activities funded may include, for example: conferences,

expert meetings, meetings of committees in support of implementing EU legislative

acts, seminars, communication, information and visibility activities; development of

training material and development and maintenance of IT platforms and systems;

surveys, studies and impact assessments.

All these activities will be implemented over the whole period 2028-2034. It is

difficult to set a precise roll-out at this stage, as the Programme has been conceived

to remain flexible enough to adapt to new emerging priorities and needs.

1.5.2. Added value of EU involvement (it may result from different factors, e.g.

coordination gains, legal certainty, greater effectiveness or complementarities). For

the purposes of this section ’added value of EU involvement’ is the value resulting

from EU action, that is additional to the value that would have been otherwise

created by Member States alone.

Reasons for action at EU level (ex ante)

Despite progress, the EU continues to face major cross-border justice challenges

requiring coordinated action. The Justice programme remains highly relevant and

impactful, helping Member States uphold EU values and fundamental rights.

Without EU-level support, national responses would be fragmented, inefficient and

uneven, especially in areas like judicial training, access to justice, and digitalisation.

EU funding enables joint solutions, legal cooperation, and interoperability of justice

systems, particularly benefiting smaller Member States. It also helps fill national

gaps, sustain EU-wide legal networks and build a common European legal culture.

The Justice programme is vital for supporting CSOs working in the field of access to

justice and transnational projects that could not be realised otherwise. EU action

ensures uniform standards, promotes fair access to justice, strengthens the Single

Market and boosts competitiveness by reducing legal uncertainty. It also key to

support the EU enlargement process and to ensure coherence between internal and

external justice policies, thereby reinforcing the EU’s role globally and safeguarding

its legal order.

EN 7 EN

Expected generated EU added value (ex post)

Collaboration and networking between stakeholders will lead to the dissemination of

best practices, in particular innovative and integrated approaches in different

Member States. The participants in the activities funded by the Programme will then

act as multipliers in their respective professional activities within their Member

State. European Union intervention allows for these activities to be pursued

consistently across the Union and brings economies of scale.

1.5.3. Lessons learned from similar experiences in the past

The mid-term evaluation of the 2021-2027 Justice programme showed that the

Programme continues to effectively strengthen cross-border judicial cooperation and

mutual trust among Member States as well as judicial training and access to justice

for vulnerable groups. The Pprogramme is also increasingly promoting digitalisation,

thereby improving access to legal information and modernising judicial cooperation

tools. The evaluation confirmed the overall effectiveness of the Programme and the

validity of its targeted objectives, but some aspects have been identified for

improvement, in particular: the limited budget constrains the Programme’s ability to

meet growing digital needs; awareness remains uneven, with CSOs less informed

than public authorities and the Programme is less known in some countries.

Additionally, some beneficiaries continue to experience challenges with the

application procedure and reporting requirements.

1.5.4. Compatibility with the multiannual financial framework and possible synergies with

other appropriate instruments

The initiative is part of the 2028-2034 Multiannual Financial Framework proposal.

The Programme will seek synergies, consistency and complementarities with other

Union instruments supporting policy areas which are closely interlinked, such as

with the AgoraEU programme and the programmes in the areas of asylum,

migration and integration, border management and internal security, consumers,

employment, education, social inclusion, research and innovation. Cooperation will

be sought as well as with external actions supported by Global Europe and with the

National and Regional Partnership Plans for what concerns judicial reforms and

digitalisation of national justice systems. Duplication with activities under these

other programmes will be avoided.

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

redeployment

N/A.

EN 8 EN

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

 limited duration

 in effect from 01/01/2028 to 31/12/2034

 financial impact from 2028 to 2034 for commitment appropriations and from

2028 to 2034 for payment appropriations.

 unlimited duration

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

followed by full-scale operation.

1.7. Method(s) of budget implementation planned3

 Direct management by the Commission

 by its departments, including by its staff in the Union delegations;

 by the executive agencies

 Shared management with the Member States

 Indirect management by entrusting budget implementation tasks to:

 third countries or the bodies they have designated

 international organisations and their agencies (e.g. CoE, OECD, UNESCO…)

 the European Investment Bank and the European Investment Fund

 bodies referred to in Articles 70 and 71 of the Regulation (EU) 2024/2509)

 public law bodies (e.g. Pillar assessed bodies)

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

they are provided with adequate financial guarantees (e.g. Pillar assessed bodies)

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

implementation of a public-private partnership and that are provided with

adequate financial guarantees (e.g. Pillar assessed bodies)

 bodies or persons entrusted with the implementation of specific actions in the

common foreign and security policy pursuant to Title V of the Treaty on

European Union, and identified in the relevant basic act

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

State or Union law and eligible to be entrusted, in accordance with sector-specific

rules, with the implementation of Union funds or budgetary guarantees, to the

extent that such bodies are controlled by public law bodies or by bodies governed

by private law with a public service mission, and are provided with adequate

financial guarantees in the form of joint and several liability by the controlling

bodies or equivalent financial guarantees and which may be, for each action,

limited to the maximum amount of the Union support.

3 Details of budget implementation methods and references to the Financial Regulation may be found on the BUDGpedia site:

https://myintracomm.ec.europa.eu/corp/budget/financial-rules/budget-implementation/Pages/implementation-methods.aspx.

EN 9 EN

Comments

The Programme will be implemented under direct management as well as under indirect

management through international organisations (e.g. CoE, UNESCO, OECD…)

EN 10 EN

2. MANAGEMENT MEASURES

2.1. Monitoring and reporting rules

This initiative will be monitored through the performance framework for the 2028-

2034 budget established under Regulation (EU) XXX of the European Parliament

and of the Council [Performance Regulation]. The performance framework also sets

out the rules for evaluations, which 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.

2.2. Management and control system(s)

2.2.1. Justification of the budget implementation method(s), the funding implementation

mechanism(s), the payment modalities and the control strategy proposed

The Justice programme will be managed directly by the Commission as this allows to

better adapt the Programme to the needs of the different policies, have more

flexibility to re-adjust priorities in case of emerging needs and establish direct

contacts with beneficiaries/contractors and stakeholders directly engaged in activities

that serve relevant Union policies. The implementation mode of the 2021-2027

Programme (direct and indirect management) has so far proved effective and suitable

for the needs of the Programme and its beneficiaries. The use of simplified forms of

funding will remain the standard form of contribution for reimbursing grants.

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

to mitigate them

The Programme faces the same risks as other Commission programmes that target

beneficiaries which are diverse in nature. In particular, some beneficiaries are not

recurring or do not have extensive administrative structures. Risks are mainly related

to (1) ensuring quality of selected projects and their subsequent technical

implementation; (2) risk of inefficient or non-economic use of funds awarded, both

for grants and procurement; (3) fraud.

Most of these risks are expected to be reduced thanks to: (1) careful design of calls

for proposals; (2) guidance to applicants and beneficiaries; (3) the use of the

simplified cost options of unit costs, flat rates and lump sums, which have been

effectively applied in the 2021-2027 MFF and are provided in the Regulation (EU)

2024/2509); (4) the use of corporate procedures and systems for the management of

proposals and grants (e.g. grants vademecum, eGrants etc.) to ensure a full alignment

with best practice in all stages of the grant and procurement lifecycles; (5) the

measures laid down in the anti-fraud strategy.

The control system envisaged for the 2028-2034 Programme will be a continuation

of the 2021-2027 control system. The control strategy is composed of different

building blocks: (1) programming, evaluation and selection of proposals to ensure

that only best proposals are funded; (2) signing and monitoring of grant agreements,

subject to ex ante verification at both financial and policy level; (3) ex post audits

based on a ‘detection strategy’ aimed at identifying a maximum of anomalies in view

of recovering undue payments.

EN 11 EN

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between

the control costs and the value of the related funds managed), and assessment of the

expected levels of risk of error (at payment & at closure)

The cost of controls of the Programme amounts to approximately 3.2% of the

payments done by the Commission. This is expected to stay stable or slightly

decrease if the use of simplified cost options is further expanded. The objective for

the management and control system is to maintain the expected levels of risk of error

(at payment and at closure) below the materiality threshold of 2%.

2.3. Measures to prevent fraud and irregularities

DG JUST will continue to apply its Anti-Fraud Strategy (updated in June 2024) in

line with the Commission’s Anti-Fraud Strategy (CAFS) in order to ensure, inter

alia, that its internal anti-fraud related controls are fully aligned with the CAFS and

that its fraud risk management approach is geared to identify fraud risk cases and

adequate responses.

The Anti-fraud strategy enables fraud risk to be addressed, mainly via measures to

prevent irregularity which are then escalated in the event of fraud detection. The

following measures will continue to be implemented: desk monitoring, monitoring

missions in accordance with a defined monitoring strategy, clear reporting

requirements in the grant agreements with beneficiaries, kick-off meetings with new

beneficiaries, possibility to cut grants upon non-delivery of results or non-

compliance with certain funding conditions such as those linked to information,

communication and visibility.

Beneficiaries in exclusion cases are submitted to the Early Detection and Exclusion

Database (EDES) and cases are followed up with OLAF and the European Public

Prosecutor’s Office (EPPO).

EN 12 EN

3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE

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

line(s) affected

New budget lines requested

In order of multiannual financial framework headings and budget lines.

Heading of

multiannual

financial

framework

Budget line Type of

expenditure Contribution

Number

Non-diff. from EFTA

countries

from

candidate

countries

and

potential

candidates

from other

third

countries

other

assigned

revenue

2

06 01 04 Support expenditure for

Justice

Non-

diff. YES/NO YES/NO YES/NO YES/NO

2

06 05 01 Justice

Diff. YES/NO YES/NO YES/NO YES/NO

EN 13 EN

3.2. Estimated financial impact of the proposal on appropriations

3.2.1. Summary of estimated impact on operational appropriations

 The proposal/initiative does not require the use of operational appropriations

 The proposal/initiative requires the use of operational appropriations, as explained below

3.2.1.1. Appropriations from voted budget EUR million (to three decimal places)

Heading of multiannual financial framework Number 2

DG: <JUST.> Year Year Year Year Year Year Year

TOTAL MFF 2028-2034 2028 2029 2030 2031 2032 2033 2034

Operational appropriations

06 05 01 Justice Commitments (1b) pm pm pm pm pm pm pm pm

Payments (2b) pm pm pm pm pm pm pm pm

Appropriations of an administrative nature financed from the envelope of specific programmes[1]\

06 01 04 support expenditure for

Justice (3) pm pm pm pm pm pm pm pm

TOTAL appropriations Commitments =1a+1b+3 101 105 109 114 118 123 128 798

for DG <JUST> Payments =2a+2b+3 pm pm pm pm pm pm pm pm

Mandatory table

Year Year Year Year Year Year Year TOTAL

MFF 2028-

2034 2028 2029 2030 2031 2032 2033 2034

EN 14 EN

TOTAL operational

appropriations

Commitments (4) pm pm pm pm pm pm pm pm

Payments (5) pm pm pm pm pm pm pm pm

TOTAL appropriations of an administrative

nature financed from the envelope for

specific programmes (6) pm pm pm pm pm pm pm pm

TOTAL

appropriations

under HEADING

<2>

Commitments =4+6 101 105 109 114 118 123 128 798

of the multiannual

financial framework Payments =5+6 pm pm pm pm pm pm pm pm

====================================================================================================

Heading of multiannual financial framework 4 ‘Administrative expenditure’1

EUR million (to three decimal places)

DG: <JUST>

Year Year Year Year Year Year Year TOTAL

MFF

2028-

2034 2028 2029 2030 2031 2032 2033 2034

Human resources 9,470 9,470 9,470 9,470 9,470 9,470 9,470 66,290

Other administrative expenditure 0,380 0,387 0,395 0,403 0,411 0,420 0,428 2,824

1 The necessary appropriations should be determined using the annual average cost figures available on the appropriate BUDGpedia webpage.

EN 15 EN

TOTAL DG

<JUST> Appropriations 9,850 9,857 9,865 9,873 9,881 9,890 9,898 69,114

EUR million (to three decimal places)

Year Year Year Year Year Year Year TOTAL

MFF 2028-

2034 2028 2029 2030 2031 2032 2033 2034

TOTAL appropriations

under HEADINGS 1 to

4 Commitments pm pm pm pm pm pm pm pm

of the multiannual

financial framework Payments pm pm pm pm pm pm pm pm

3.2.2. Estimated output funded from operational appropriations (not to be completed for decentralised agencies)

The output and result indicators for the purpose of monitoring progress and achievements of this programme will correspond to the

common indicators provided under Regulation (EU) [XXX]* of the European Parliament and of the Council [Performance].

Commitment appropriations in EUR million (to three decimal places)

Indicate

objectiv

es and

outputs



Year 2028

Year 2029

Year 2030

Year 2031

Enter as many years as necessary to show the duration

of the impact (see Section1.6) TOTAL

OUTPUTS

Typ

e 2

Avera

ge

cost No Cost No Cost No Cost No Cost No Cost No Cost No Cost Total

No Total

cost

SPECIFIC OBJECTIVE

No 3 …

2 Outputs are products and services to be supplied (e.g. number of student exchanges financed, number of km of roads built, etc.). 3 As described in Section 1.3.2. ‘Specific objective(s)’.

EN 16 EN

- Output

- Output

- Output

Subtotal for specific

objective No 1

SPECIFIC OBJECTIVE

No 2 …

- Output

Subtotal for specific

objective No 2

TOTALS

EN 17 EN

3.2.3. Summary of estimated impact on administrative appropriations

 The proposal/initiative does not require the use of appropriations of an

administrative nature

 The proposal/initiative requires the use of appropriations of an administrative

nature, as explained below

3.2.3.1. Appropriations from voted budget

VOTED APPROPRIATIONS Year Year Year Year Year Year Year TOTA

L 2028

- 2034 2028 2029 2030 2031 2032 2033 2034

HEADING 4

Human resources 9,470 9,470 9,470 9,470 9,470 9,470 9,470 66,290

Other administrative expenditure 0,380 0,387 0,395 0,403 0,411 0,420 0,428 2,824

Subtotal HEADING 4 9,850 9,857 9,865 9,873 9,881 9,890 9,898 69,114

Outside HEADING 4

Human resources 0,505 0,505 0,505 0,505 0,505 0,505 0,505 3,535 Other expenditure of an administrative

nature p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.

Subtotal outside HEADING 4 0,505 0,505 0,505 0,505 0,505 0,505 0,505 3,535

TOTAL 10,355 10,362 10,370 10,378 10,386 10,395 10,403 72,649

===================================================================

3.2.3.2. Appropriations from external assigned revenues (NA)

EXTERNAL ASSIGNED

REVENUES Year Year Year Year Year Year Year TOTA

L 2028

- 2034 2028 2029 2030 2031 2032 2033 2034

HEADING 4

Human resources 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000

Other administrative expenditure 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000

Subtotal HEADING 4 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000

Outside HEADING 4

Human resources 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000 Other expenditure of an administrative

nature 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000

Subtotal outside HEADING 4 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000

TOTAL 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000

3.2.3.3. Total appropriations

TOTAL VOTED APPROPRIATIONS + EXTERNAL

ASSIGNED REVENUES

Year Year Year Year Year Year Year TOTA

L 2028

- 2034 2028 2029 2030 2031 2032 2033 2034

HEADING 4

Human resources 9,470 9,470 9,470 9,470 9,470 9,470 9,470 66,290

EN 18 EN

Other administrative expenditure 0,380 0,387 0,395 0,403 0,411 0,420 0,428 2,824

Subtotal HEADING 4 9,850 9,857 9,865 9,873 9,881 9,890 9,898 69,114 Outside HEADING 4

Human resources 0,505 0,505 0,505 0,505 0,505 0,505 0,505 3,535

Other expenditure of an administrative nature p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.

Subtotal outside HEADING 4 0,505 0,505 0,505 0,505 0,505 0,505 0,505 3,535

TOTAL 10,35

5 10,36

2 10,37

0 10,37

8 10,38

6 10,39

5 10,40

3 72,649

===================================================================

The appropriations required for human resources and other expenditure of an administrative nature

will be met by appropriations from the DG that are already assigned to management of the action

and/or have been redeployed within the DG, together, if necessary, with any additional allocation

which may be granted to the managing DG under the annual allocation procedure and in the light of

budgetary constraints.

3.2.4. Estimated requirements of human resources

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

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

3.2.4.1. Financed from voted budget

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

VOTED

APPROPRIATIONS

Year Year Year Year Year Year Year

2028 2029 2030 2031 2032 2033 2034

 Establishment plan posts (officials and temporary staff)

20 01 02 01 (Headquarters and

Commission’s Representation

Offices)

45 45 45

45

45

45

45

20 01 02 03 (EU Delegations) 0 0 0 0 0 0 0

01 01 01 01 (Indirect research) 0 0 0 0 0 0 0

01 01 01 11 (Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) 0 0 0 0 0 0 0

• External staff (in FTEs)

20 02 01 (AC, END from the

‘global envelope’) 10 10 10 10 10 10 10

20 02 03 (AC, AL, END and

JPD in the EU Delegations) 0 0 0 0 0 0 0

Admin. Support line

06 01 04

- at Headquarters

5 5 5 5 5 5 5

- in EU

Delegations 0 0 0 0 0 0 0

01 01 01 02 (AC, END -

Indirect research) 0 0 0 0 0 0 0

01 01 01 12 (AC, END - Direct

research) 0 0 0 0 0 0 0

Other budget lines (specify) -

Heading 7 0 0 0 0 0 0 0

Other budget lines (specify) -

Outside Heading 7 0 0 0 0 0 0 0

TOTAL 60 60 60 60 60 60 60

06 01 04 - in EU

Delegations 0 0 0 0 0 0 0

EN 19 EN

01 01 01 02 (AC, END -

Indirect research) 0 0 0 0 0 0 0

01 01 01 12 (AC, END - Direct

research) 0 0 0 0 0 0 0

Other budget lines (specify) - Heading 7

0 0 0 0 0 0 0

Other budget lines (specify) -

Outside Heading 7 0 0 0 0 0 0 0

TOTAL 60 60 60 60 60 60 60

===================================================================

3.2.4.2. Financed from external assigned revenues (NA)

EXTERNAL ASSIGNED

REVENUES Year Year Year Year Year Year Year

2028 2029 2030 2031 2032 2033 2034

Establishment plan posts (officials and temporary staff) 20 01 02 01 (Headquarters and

Commission’s Representation

Offices) 0 0 0 0 0 0 0

20 01 02 03 (EU Delegations) 0 0 0 0 0 0 0

(Indirect research) 0 0 0 0 0 0 0

(Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) 0 0 0 0 0 0 0

• External staff (in full time equivalent units)

20 02 01 (AC, END from the

‘global envelope’) 0 0 0 0 0 0 0

20 02 03 (AC, AL, END and

JPD in the EU Delegations) 0 0 0 0 0 0 0

Admin. Support

line - at

Headquarters 0 0 0 0 0 0 0

[XX.01.YY.YY] - in EU

Delegations 0 0 0 0 0 0 0

(AC, END - Indirect research) 0 0 0 0 0 0 0

(AC, END - Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) -

Heading 4 0 0 0 0 0 0 0

Other budget lines (specify) -

Outside Heading 4 0 0 0 0 0 0 0

TOTAL 0 0 0 0 0 0 0

3.2.4.3. Total requirements of human resources

TOTAL VOTED

APPROPRIATIONS +

EXTERNAL ASSIGNED

REVENUES

Year Year Year Year Year Year Year

2028 2029 2030 2031 2032 2033 2034

Establishment plan posts (officials and temporary staff)

20 01 02 01 (Headquarters and

Commission’s Representation

Offices) 45 45

45

45

45

45

45

20 01 02 03 (EU Delegations) 0 0 0 0 0 0 0

(Indirect research) 0 0 0 0 0 0 0

EN 20 EN

(Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) 0 0 0 0 0 0 0

• External staff (in full time equivalent units)

20 02 01 (AC, END from the ‘global envelope’) 10 10 10 10 10 10 10

20 02 03 (AC, AL, END and JPD in the EU Delegations) 0 0 0 0 0 0 0

Admin. Support

line - at

Headquarters 5 5 5 5 5 5 5

06 01 04 - in EU

Delegations 0 0 0 0 0 0 0

(AC, END - Indirect research) 0 0 0 0 0 0 0

(AC, END - Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) -

Heading 4 0 0 0 0 0 0 0

Other budget lines (specify) - Outside Heading 4 0 0 0 0 0 0 0

TOTAL 60 60 60 60 60 60 60

===================================================================

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

To be covered by

current staff

available in the

Commission

services

Exceptional additional staff*

To be financed

under Heading

4 or Research

To be financed

from BA line

To be financed

from fees

Establishment

plan posts

30 15 N/A

External staff

(CA, SNEs,

INT)

2 8 5

Method of calculation, description of tasks to be carried out and reasoned request

DG JUST staff working on the 2021-2027 Justice programme combines the operational staff,

working full time on the management of the Programme, throughout all phases of the

programme cycles (work programme, calls for proposals, evaluation, contracting and

implementation) as well as having initiation and verification roles, with staff from policy units

(ensuring the subject-matter expertise) and staff ensuring the overall coordination and

horizontal tasks.

The estimation of the operational staff working on the Programme is based on a distribution

corresponding to the share of Justice budget against the total programme budget managed by

the DG, which also includes the CERV programme and the consumer strand of the Single

Market Programme.

EN 21 EN

The estimation of staff from policy units is based on the high number of policies and pieces of

legislation supported by the Justice programme implementation, hence on policy units

involvement at key stages of the process, such as preparation of the calls for proposals, project

selection and implementation.

Operational, policy and coordination staff combined amount to 60 FTE, including 5 CA

funded from outside Heading 4 (former BA lines), which is considered necessary to

effectively cater for the expanded more labour intensive portfolio – including, in particular,

initiatives such as the digitalisation of justice, increased number of financial operations for the

implementation of the Programme, and in line with the thematic scope of the Programme as

per political guidelines.

Starting from the current staffing level as baseline, and considering the 2.7 fold increase in the

envelope of the Justice programme in the next MFF, the FTEs requested is necessary to

enable DG JUST to cope with the actions required to reach the political objectives of the Von

der Leyen II Commission with the 2028-2034 Justice programme being instrumental in

successfully delivering on the Commission’s ambitions.

There is no margin in the current teams to further redeploy staff between functions without

putting at risk the credibility of the Commission to deliver in the areas of DG JUST’s

competence.

Officials and temporary staff 45

External staff 15

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

TOTAL Digital

and IT

appropriations

Year Year Year Year Year Year Year TOTAL

MFF

2028 -

2034 2028 2029 2030 2031 2032 2033 2034

HEADING 4

IT expenditure

(corporate) 0.492 0.492 0.492 0.492 0.492 0.492 0.492 3.444

Subtotal

HEADING 4 0.492 0.492 0.492 0.492 0.492 0.492 0.492 3.444

Outside HEADING 4

Policy IT

expenditure on

operational

programmes

37 37 37 37 37 37 37 259

Subtotal outside

HEADING 4 37 37 37 37 37 37 37 259

TOTAL 37.492 37.492 37.492 37.492 37.492 37.492 37.492 262.444

EN 22 EN

3.2.6. Compatibility with the current multiannual financial framework

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

3.2.7. Third-party contributions

The proposal/initiative:

 does not provide for co-financing by third parties

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

Appropriations in EUR million (to three decimal places)

Year Year Year Year Year Year Year

Total 2028 2029 2030 2031 2032 2033 2034

Specify the co-

financing body

TOTAL

appropriations

co-financed

3.3. Estimated impact on revenue

 The proposal/initiative has no financial impact on revenue.

 The proposal/initiative has the following financial impact:

 on own resources

 on other revenue

 please indicate, if the revenue is assigned to expenditure lines

EUR million (to three decimal places)

Budget revenue line:

Appropriation

s available for

the current

financial year

Impact of the proposal/initiative

Year

2028 Year

2029 Year

2030 Year

2031 Year

2032 Year

2033 Year

2034

Article …………

For assigned revenue, specify the budget expenditure line(s) affected.

[…]

Other remarks (e.g. method/formula used for calculating the impact on revenue or any other

information).

[…]

EN 23 EN

4. DIGITAL DIMENSIONS

4.1. Requirements of digital relevance

The Justice programme has key digital relevance as it will continue to fund a number of

EU-level IT systems supporting cross-border judicial cooperation. These systems ensure

the implementation of different legal instruments and the proper functioning of the

cross-border judicial cooperation.

Reference to

the

requirement

Requirement

description

Actors affected

or concerned

by the

requirement

High-level

Processes

Categories

Article 4 […] Technical

and

administrative

assistance for

the

implementation

of the

Programme

such as

preparatory,

monitoring,

control, audit

and evaluation

activities,

corporate

information

technology

systems and

platforms…

European

Commission;

Beneficiaries

Programme

implementation

through direct

grant

management

Digital

solutions

Article 3, par. 1 […] as well as

to the

digitalisation of

justice at EU

level.

European

Commission;

Beneficiaries

Programme

implementation

, monitoring

and evaluation

Digital

solutions, data

Article 3, par. 2

(b)

Article 4

[…] promoting

the rule of law,

fundamental

rights and

democracy.

[…] Technical

and

administrative

European

Commission;

Beneficiaries

Dissemination,

support to the

Programme

Digital

solutions

EN 24 EN

assistance for

the

implementation

of the

Programme

such as…

information and

communication

activities,

including

corporate

communication

on the political

priorities of the

Union.

Article 3, par. 2

(c)

Article 4

[…] promoting

efficient civil

and criminal

procedures

and…

promoting…

the rights of all

victims of

crime and the

procedural

rights of

suspects and

accused persons

in criminal

proceedings as

well as of

requested

persons in

EAW

proceedings.

[…] Technical

and

administrative

assistance for

the

implementation

of the

Programme

European

Commission;

Beneficiaries

Dissemination,

support to the

Programme

Digital

solutions

EN 25 EN

such as…

information and

communication

activities,

including

corporate

communication

on the political

priorities of the

Union.

4.2. Data

Type of data Reference(s) to the

requirement

Standard and/or

specification (if

applicable)

Countries, organisations,

budget, participants and

priorities per project

Article 4, Article 3, par. 1

and par. 2 (b) and (c)

Regulation (EU) XXX

[Performance Regulation]

Commission monitoring

and reporting tools and

databases, including

eGrants.

Alignment with the European Data Strategy

The provisions under the proposal support interoperability, reusability, and secure data

sharing, in line with the European Data Strategy. Where personal data are processed (e.g.

participants), it aligns with the General Data Protection Regulation (GDPR)1. The architecture

is also consistent with the Open Data Directive2, as relevant aggregated, non-personal data

may be made available for reuse by researchers or public bodies.

Alignment with EU Digital Identity Framework

The proposal aligns with the EU Digital Identity Framework, which enables secure

identification and the use of electronic attestations of attributes to verify specific

characteristics or qualifications of individuals, economic operators and organisations,

including in the context of justice and legal proceedings. Furthermore, the proposal will be

compatible with the forthcoming European Business Wallets, which will further enable the

sharing of attestations in professional contexts, such as in cross-border legal proceedings,

allowing legal professionals and businesses to securely and efficiently share verified

information with courts, public administrations, and other partners, thereby reducing

administrative burdens and increasing trust in digital justice systems.

1 Regulation (EU) 2016/679 of the European Parliament and of the Council of 27 April 2016 on the protection of natural persons

with regard to the processing of personal data and on the free movement of such data, and repealing Directive 95/46/EC (General Data

Protection Regulation), OJ L 119, 4.5.2016, pp. 1–88, ELI: http://data.europa.eu/eli/reg/2016/679/oj. 2 Directive (EU) 2019/1024 of the European Parliament and of the Council of 20 June 2019 on open data and the re-use of public

sector information (recast), OJ L 172, 26.6.2019, pp. 56–83, ELI: http://data.europa.eu/eli/dir/2019/1024/oj.

EN 26 EN

Alignment with the once-only principle

Dashboards established are the source of traceability and reusability of the data available from

the Programme implementation. Data comes from the project lifecycle tools/documents (e.g.

application forms, final reports, participant surveys). Traceability and reusability of the data

available from the Programme implementation will be ensured. The data will be recorded via

the project lifecycle documents and made accessible, in line with the provisions of the

Regulation (EU) XXX of the European Parliament and of the Council [Performance

Regulation] regarding transparency of information on programmes performance and

achievements through the Single Gateway portal.

Data flows

Type of

data

Reference(s)

to the

requirement(

s)

Actor who

provides

the data

Actor who

receives

the data

Trigger for

the data

exchange

Frequency (if

applicable)

Countries,

organisation

s, budget,

participants

and

priorities

per project

Article 4,

Article 3, par.

1 and par. 2

(b) and (c)

Regulation

(EU) XXX

[Performance

Regulation]

Beneficiari

es

General

public

Commissio

n European

Parliament

Council of

the

European

Union

Regulation

(EU) XXX

[Performance

Regulation]:

Article XXX

(monitoring)

and Article

XXX

(implementati

on report and

retrospective

evaluations).

Regular

programme

reporting

Regulation

(EU) XXX

[Performance

Regulation]:

Article XXX

(monitoring)

and Article

XXX

(implementati

on report and

retrospective

evaluations).

General comment:

The exchange of data between the Member States is of key importance for the success of the

various initiatives in the field of digitalisation of justice. A number of initiatives are

dependent on data and its availability. A good example is the EU Strategy for the

digitalisation of justice, planned to be adopted by the end of 2025. Another example for the

exchange of data is the European Legal Data Space3, which aims to ensure the availability of

judicial data, including for the purposes of training AI. All these systems will be supported

and sustained through the Justice programme.

4.3. Digital solutions

3 https://data.europa.eu/en/ELDS.

Digital Reference(s Main Responsi How is How is Use of AI

EN 27 EN

solution ) to the

requiremen

t(s)

mandated

functionalit

ies

ble body accessibil

ity

catered

for?

reusabilit

y

considere

d?

technologi

es (if

applicable

)

Digital

solution

#1 –

Direct

Grant

Managem

ent

platform

Article 4 Direct

Grant

Managemen

t

European

Commissi

on

In

accordanc

e with

Commissi

on

Standard

// The

platform

shall

leverage

the use

artificial

intelligenc

e where

relevant

and

adhering

with the

precaution

ary

principle.

Digital

solution

#2 –

Platform(s

) to

support

the

Programm

e

Article 3,

par. 1 and

par. 2 (b)

and (c) and

Article 4

Disseminate

Programme

’s results

European

Commissi

on

In

accordanc

e with

Commissi

on

Standard

//

The

platform(s

) shall

leverage

the use

artificial

intelligenc

e where

relevant

and

adhering

with the

precaution

ary

principle.

Digital solution #1 - Direct Grant Management platform

Digital and/or sectorial policy (when

these are applicable)

Explanation on how it aligns

EN 28 EN

4 Regulation (EU) 2024/1689 of the European Parliament and of the Council of 13 June 2024 laying down harmonised rules on

artificial intelligence and amending Regulations (EC) No 300/2008, (EU) No 167/2013, (EU) No 168/2013, (EU) 2018/858, (EU) 2018/1139

and (EU) 2019/2144 and Directives 2014/90/EU, (EU) 2016/797 and (EU) 2020/1828 (Artificial Intelligence Act), OJ L, 2024/1689,

12.7.2024, ELI: http://data.europa.eu/eli/reg/2024/1689/oj. 5 Regulation (EU, Euratom) 2023/2841 of the European Parliament and of the Council of 13 December 2023 laying down measures

for a high common level of cybersecurity at the institutions, bodies, offices and agencies of the Union, OJ L, 2023/2841, 18.12.2023,

ELI: http://data.europa.eu/eli/reg/2023/2841/oj. 6 https://single-market-economy.ec.europa.eu/single-market/single-digital-gateway_en. 7 Regulation (EU) No 1024/2012 of the European Parliament and of the Council of 25 October 2012 on administrative cooperation

through the Internal Market Information System and repealing Commission Decision 2008/49/EC ( ‘the IMI Regulation’ ), OJ L 316,

14.11.2012, pp. 1–11, ELI: http://data.europa.eu/eli/reg/2012/1024/oj.

AI Act4 When leveraging AI, the European

Commission will ensure the compliance

with the AI Act.

EU Cybersecurity framework5 Without prejudice to Regulation (EU)

2016/679, the European Commission shall

ensure the security, integrity, authenticity

and confidentiality of the data collected

and stored for the purpose of this regulation

EU Digital Identity Framework,

European Business Wallets

In accordance with the EU Digital Identity

Framework, the Commission shall ensure

that the grant management platform is

interoperable with the EU Digital Identity

Wallets and the forthcoming European

Business Wallets to enable identification,

authentication, the exchange of electronic

attestations of attributes and the use of trust

services.”

Single Digital Gateway6 and IMI7 NA

Others NA

Digital solution #2 - Platform(s) to support the Programme

Digital and/or sectorial policy (when

these are applicable)

Explanation on how it aligns

AI Act When leveraging AI, the European

Commission will ensure the compliance

with the AI Act.

EU Cybersecurity framework Without prejudice to Regulation (EU)

2016/679, the European Commission shall

ensure the security, integrity, authenticity

EN 29 EN

4.4. Interoperability assessment

4.5. Measures to support digital implementation

8 Regulation (EU) 2023/2844 of the European Parliament and of the Council of 13 December 2023 on the digitalisation of judicial

cooperation and access to justice in cross-border civil, commercial and criminal matters, and amending certain acts in the field of judicial

cooperation, OJ L, 2023/2844, 27.12.2023, ELI: http://data.europa.eu/eli/reg/2023/2844/oj.

and confidentiality of the data collected and

stored for the purpose of this regulation

EU Digital Identity Framework,

European Business Wallets

In accordance with the EU Digital Identity

Framework, the Commission shall ensure

that these platforms are interoperable with

the EU Digital Identity Wallets and the

forthcoming European Business Wallets to

enable identification, authentication, the

exchange of electronic attestations of

attributes and the use of trust services.”

Single Digital Gateway and IMI NA

Others NA

General comment:

The Justice programme will continue to fund a number of digital solutions, which have been

developed over the years, as well as will support the development of new IT systems. Some

examples of IT systems, which will be funded by the continuation of the Justice programme,

are the European e-Justice Portal, which is a one stop-shop for all justice matters, and the

decentralised IT system developed under Regulation (EU) 2023/28448 for the digitalisation of

cross-border judicial cooperation. The Justice programme is used to fund IT systems at EU

level stemming from legal instruments or from the voluntary cooperation of Member States.

In both cases, these are systems with high political and operational importance for Member

States, which support the smooth day-to-day functioning of the justice sector by enhancing

efficiency and ensuring interoperability.

Interoperability is essential for the success of the different IT systems and tools. The

Justice programme promotes the interoperability of national systems in order to facilitate

their interconnection at EU level and the possibility to develop decentralised systems,

facilitating cross-border cooperation. Systems developed at EU level are set up with the

idea that all Member States should be able to connect their national systems to a central

one, but mostly between each other, by using commonly agreed digital procedural

standards as provided by the Digitalisation Regulation. The EU-level solution needs to

be interoperable on its own to allow and support the integration with existing and newly

developed national solutions.

In connection with the future planning, all justice-related legal instruments foresee, or

EN 30 EN

are expected to foresee, a certain level of digitalisation. This will create the obligation

for the EU to develop new systems and solutions but also for the Member States to

connect to those systems. In this regard, the Justice programme will support the digital

implementation through different measures. This might include ICT procurement

procedures, internal development of the EU-level solution and support for the Member

States in the form of exchange of expertise, provision of action grants or others.

19.09.2025

Euroopa Parlamendi ja Nõukogu määrus, millega luuakse õigusprogramm aastateks 2028–2034 ja tunnistatakse

kehtetuks määrus (EL) 2021/693

Otsuse ettepanek koordinatsioonikogule

Kujundada seisukoht

Kaasvastutaja sisendi tähtpäev 10.11.2025

KOKi esitamise tähtpäev 26.11.2025

VV esitamise tähtpäev 04.12.2025

Ettepaneku selgitus: Peavastutaja JDM; kaasvastutajad VÄM, SOM, SIM, RAM

Seisukoha valitsusse toomise alus ja põhjendus

Algatuse vastuvõtmisega kaasneks oluline majanduslik või sotsiaalne mõju (RKKTS § 152¹ lg 1 p 2);

Sisukokkuvõte

Uue kavandatava õigusprogrammi üldine eesmärk aastateks 2028–2034 on aidata kaasa tõhusa, kaasava, vastupidava ja digitaliseeritud liidu õigusruumi edasiarendamisele, mis põhineb õigusriigil, vastastikusel tunnustamisel ja vastastikusel usaldusel. Selle eesmärgi saavutamisega tugevdaks programm ka demokraatiat ja põhiõiguste kaitset ning aitaks kaasa majanduskasvule ja konkurentsivõimele. Kavandatav programm tugineb 2021–2027 õigusprogrammile ja asendab selle alates 1.jaanuar 2028. Kavandatav õigusprogramm peaks kõigis oma tegevustes edendama õigusriigi põhimõtteid, toetades ka jõupingutusi riiklike kohtusüsteemide sõltumatuse, kvaliteedi ja tõhususe parandamiseks, et suurendada vastastikust usaldust, mis on tsiviil- ja kriminaalasjades tehtava õigusalase koostöö jaoks hädavajalik. Programmi rakendamise soovituslik rahastamispakett ajavahemikul 2028 kuni 2034 on jooksevhindades 798 mln eurot.

Eesmärgid

1.Eesmärk - kavandatava õigusprogrammi üldeesmärk saavutatakse 3 erieesmärgi kaudu: (1) hõlbustada ja toetada õigusalast koostööd tsiviil- ja kriminaalasjades ning edendada õigusriigi põhimõtet; (2) edendada ja toetada õigusalast koolitust; (3)

2

hõlbustada ja toetada kõigi jaoks tõhusat ja mittediskrimineerivat juurdepääsu õiguskaitsele ja tõhusat õiguskaitsevahendit, sealhulgas digitaalsete vahendite abil.

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