EMPACT Module v0.9.9 Learning Resource PDF

**EMPACT** **Online Learning Module** 8 Chapters & Glossary **7 May 2023** **Table of Contents** {#table-of-contents.TOCHeading} ===================== [1. About this module 6](#about-this-module) [1.1 Aims of the module 6](#aims-of-the-module) [1.2 Target audience of the module 6](#target-audience-of-the-module) [1.3 Module contents 7](#module-contents) [2. EMPACT history and framework 9](#empact-history-and-framework) [2.1 A brief history 9](#a-brief-history) [2.1.1 1999-2004 -- 'The first key steps': Tampere and the Hague Programmes 9](#the-first-key-steps-tampere-and-the-hague-programmes) [2.1.2 2004-2010 -- 'Getting structured': COSPOL, ECIM and OCTA 9](#getting-structured-cospol-ecim-and-octa) [2.1.3 2010 -- 'The decisive factor': Project Harmony 10](#the-decisive-factor-project-harmony) [2.2. Main steps in EMPACT 12](#main-steps-in-empact) [Key points to remember 14](#key-points-to-remember) [External links 14](#external-links) [True/false items 15](#_Toc134370343) [3. EMPACT actors 17](#empact-actors) [3.1 Introduction 17](#introduction) [3.1.1 Approach of the EMPACT cycle 17](#approach-of-the-empact-cycle) [3.1.2 Core actors vs partners 17](#core-actors-vs-partners) [3.2 Core actors: Member States' competent authorities 17](#core-actors-member-states-competent-authorities) [3.3 Core actors: Presidency of the Council of the EU 18](#core-actors-presidency-of-the-council-of-the-eu) [3.4 Core actors: EU institutions and bodies 18](#core-actors-eu-institutions-and-bodies) [3.4.1 JHA Council 18](#jha-council) [3.4.2 General Secretariat of the Council -- Justice and Home Affairs 18](#general-secretariat-of-the-council-justice-and-home-affairs) [3.4.3 Standing Committee on Operational Cooperation on Internal Security (COSI) 19](#standing-committee-on-operational-cooperation-on-internal-security-cosi) [3.4.4 European Commission 19](#european-commission) [3.4.5 European Anti-Fraud Office (OLAF) 20](#european-anti-fraud-office-olaf) [3.4.6 European Public Prosecutor's Office (EPPO) 20](#european-public-prosecutors-office-eppo) [3.5 JHA agencies 20](#jha-agencies) [3.5.1 Europol 20](#europol) [3.5.2 Eurojust 21](#eurojust) [3.5.3 Frontex 21](#frontex) [3.5.4 CEPOL 21](#cepol) [3.5.5 European Monitoring Centre for Drugs and Drug Addiction (EMCDDA) 22](#european-monitoring-centre-for-drugs-and-drug-addiction-emcdda) [3.5.6 eu-LISA 22](#eu-lisa) [3.5.7 EU Agency for Network and Information Security (ENISA) 22](#eu-agency-for-network-and-information-security-enisa) [3.5.8 European Union Intellectual Property Office (EUIPO) 22](#european-union-intellectual-property-office-euipo) [3.6 Other actors: Partners 23](#other-actors-partners) [3.6.1 Non-EU partners 23](#non-eu-partners) [3.6.2 Non-EU countries 23](#non-eu-countries) [3.6.3 EEAS and EU missions 23](#eeas-and-eu-missions) [3.6.4 International organisations 24](#international-organisations) [3.6.5 **Non-law enforcement actors** 24](#non-law-enforcement-actors) [Key points to remember 24](#key-points-to-remember-1) [External links 25](#external-links-1) [True/false items 26](#_Toc134370374) [4. EU SOCTA 28](#eu-socta) [4.1 What is the EU SOCTA? 28](#what-is-the-eu-socta) [4.1.1 Overview 28](#overview) [4.1.2 Versions of the EU SOCTA 28](#versions-of-the-eu-socta) [4.1.3 Purpose of the EU SOCTA 28](#purpose-of-the-eu-socta) [4.2 Methodology 29](#methodology) [4.2.1 Defining the methodology 29](#defining-the-methodology) [4.2.2 Data and sources 29](#data-and-sources) [4.2.3 Prioritisation process 29](#prioritisation-process) [4.3 Key findings of the EU SOCTA 2021 30](#key-findings-of-the-eu-socta-2021) [4.4 Timeline for EU SOCTA 2025 32](#timeline-for-eu-socta-2025) [Key points to remember 33](#key-points-to-remember-2) [Citations 33](#citations) [External links 33](#external-links-2) [True/false items 33](#_Toc134370389) [5. Political policy process 35](#political-policy-process) [5.1 Process of setting the crime priorities 35](#process-of-setting-the-crime-priorities) [5.1.1 Preparatory phase: Drafting the policy advisory document (PAD) 35](#preparatory-phase-drafting-the-policy-advisory-document-pad) [5.1.2 Council Conclusions 35](#council-conclusions) [5.1.3 Identification of drivers, co-drivers and other core actors 35](#identification-of-drivers-co-drivers-and-other-core-actors) [5.2 Crime priorities of the cycles 2012-2021 36](#crime-priorities-of-the-cycles-2012-2021) [5.3 Crime priorities of the 2022-2025 cycle 37](#crime-priorities-of-the-2022-2025-cycle) [5.3.1 Operational action plans (OAPs) and strategic goals 37](#operational-action-plans-oaps-and-strategic-goals) [5.3.2 Crime priorities 38](#crime-priorities) [Key points to remember 40](#key-points-to-remember-3) [External links 40](#external-links-3) [True/false items 40](#_Toc134370401) [6. Strategic plans 42](#strategic-plans) [6.1 The G-MASP 42](#the-g-masp) [6.1.1 Strategic planning in the EMPACT cycle 42](#strategic-planning-in-the-empact-cycle) [6.1.2 General vs thematic MASPs 42](#general-vs-thematic-masps) [6.1.3 Creating the G-MASP 43](#creating-the-g-masp) [6.2 Common horizontal strategic goals (CHSGs) 43](#common-horizontal-strategic-goals-chsgs) [6.2.1 Characteristics of CHSGs 43](#characteristics-of-chsgs) [6.2.2 Achieving CHSGs 43](#achieving-chsgs) [6.2.3 The CHSGs for 2022-2025 44](#the-chsgs-for-2022-2025) [6.3 Strategic coherence: Consistency between EU policies, strategies and action plans 46](#strategic-coherence-consistency-between-eu-policies-strategies-and-action-plans) [Key points to remember 47](#key-points-to-remember-4) [External links 47](#external-links-4) [True/false items 48](#_Toc134370414) [7. Operational actions 50](#operational-actions) [7.1 Operational action plans (OAPs) 50](#operational-action-plans-oaps) [7.2 Creating the OAP 50](#creating-the-oap) [7.3 Operational actions and strategic goals 51](#operational-actions-and-strategic-goals) [7.4 Examples of operational actions 51](#examples-of-operational-actions) [7.4.1 Operation Caldo 51](#operation-caldo) [7.4.2 Operation Mvrand 52](#operation-mvrand) [7.4.3 Operation Otto 52](#operation-otto) [7.4.4 Operation OPSON XI 52](#operation-opson-xi) [7.4.5 JIT Astrolabio 53](#jit-astrolabio) [7.4.6 Joint Action Days South Eastern Europe (JAD SEE) 53](#joint-action-days-south-eastern-europe-jad-see) [7.5 Financing of activities 54](#financing-of-activities) [Key points to remember. 54](#key-points-to-remember.) [External links 55](#external-links-5) [True/false items 55](#_Toc134370429) [8. Oversight 57](#oversight) [8.1 National EMPACT coordinators and drivers 57](#national-empact-coordinators-and-drivers) [8.1.1 National EMPACT coordinators 57](#national-empact-coordinators) [8.1.2 Drivers 57](#drivers) [8.2 Implementation and monitoring 57](#implementation-and-monitoring) [8.2.1 Monitoring implementation 57](#monitoring-implementation) [8.2.2 Monitoring effectiveness 58](#monitoring-effectiveness) [8.3 Reporting to COSI 58](#reporting-to-cosi) [8.4 Evaluation coordinated by the European Commission 59](#evaluation-coordinated-by-the-european-commission) [8.4.1 Aims of the evaluation 59](#aims-of-the-evaluation) [8.4.2 The 2020 evaluation (EMPACT 2018-2021) 59](#the-2020-evaluation-empact-2018-2021) [8.4.3 Overall effectiveness 60](#overall-effectiveness) [Key points to remember 60](#key-points-to-remember-5) [External links 60](#external-links-6) [True/false items 60](#_Toc134370444) [Glossary 63](#glossary) 1. About this module ==================== EMPACT is the European Multidisciplinary Platform Against Criminal Threats. It is a security initiative driven by the EU Member States to identify, prioritise and address threats posed by organised and serious international crime. EMPACT aims to tackle the most important serious and organised criminal threats affecting the EU and the safety of its citizens. It does this by creating the conditions for cooperation between the relevant services of the EU Member States, EU institutions and EU agencies as well as third countries and organisations, including the private sector where relevant. EMPACT started as the EU Policy Cycle for organised and serious international crime with a 2-year pilot project implemented between 2012 and 2013. Two fully fledged EU policy cycles followed this between 2014-2017 and 2018-2021. In 2021, the Council of the European Union decided on: - permanently continuing of the EU Policy Cycle for organised and serious international crime: EMPACT 2022+; - changing its name to 'EMPACT'; - keeping its duration as 4 years. The third EMPACT cycle covers the period 2022-2025. 1.1 Aims of the module ---------------------- This e-learning module aims to give readers a broad understanding of the EMPACT cycle, including: - an overview of the main players involved; - the key steps in the planning and implementation cycle; and - the means by which the operational activity to counter the threat from organised and serious international crime will be delivered, managed and evaluated. The objectives of the module are: - to promote the EMPACT cycle among law enforcement officials who are not yet directly involved with EMPACT, in order to increase the pool of potential contributors and participants. - to provide those who are already taking part in the EMPACT cycle with information about the wider context, so that they can see the full picture and are therefore better prepared to fulfil their particular role; 1.2 Target audience of the module --------------------------------- This module could be of interest to all EU law enforcement professionals, but given the political importance and scope of EMPACT, its influence also goes beyond the EU law enforcement community's professional activities. This module targets: - individuals who are involved in working on the implementation of EMPACT operational actions (particularly drivers and co-drivers, action leaders and participants) and overseeing the delivery of operational actions or strategic goals within the operational action plans (OAPs) (i.e. national EMPACT coordinators, CHSG coordinators); - law enforcement officials involved in cross-border operations, international cooperation, awareness and training at national level; - law enforcement officials collecting data and compiling national contributions for the Serious and Organised Crime Threat Assessment (SOCTA); - professionals creating the general multiannual strategic plan (G-MASP) that contains common horizontal strategic goals (CHSGs) for all OAPs. Additionally, the module serves as a source of knowledge for law enforcement officers interested in upgrading their knowledge on international cooperation. 1.3 Module contents ------------------- Apart from this introduction, the module consists of seven topic chapters and a glossary of the EMPACT-related terms and abbreviations used in the module. There are also quizzes to test your knowledge and level of understanding. A certificate and a badge will be provided when you successfully complete all the quizzes. The individual chapters are as follows: **Chapter 2 - EMPACT history and framework:**\ This chapter covers the historical development of EMPACT and the current process and procedure by which the EMPACT cycle is implemented. **Chapter 3 - EMPACT actors:**\ This chapter describes the roles of the different actors involved in EMPACT. It starts with the division of EMPACT actors into 'core actors' and 'partners' followed by four sections on the different types of core actors: Member States' competent authorities, the Presidency of the Council of the EU, EU institutions and bodies and the EU Justice and Home Affairs (JHA) agencies. The chapter finishes with a section on partners. **Chapter 4 - EU SOCTA**:\ This chapter gives an overview of the European Union Serious and Organised Crime Threat Assessment (EU SOCTA). It provides an outline on what the SOCTA is and its purpose, the research methodology used and the key findings of the current EU SOCTA. **Chapter 5 - Political policy process**:\ This chapter covers the political policy process by which the crime priorities are set for the EMPACT cycle. It outlines the process and describes how the chosen crime priorities have changed during the successive cycles since 2021. It also provides a summary of the crime priorities in the current EMPACT cycle (2022-2025). **Chapter 6 - Strategic plans**:\ This chapter covers strategic planning in the EMPACT cycle, starting with the general multiannual strategic plan (G-MASP). It then examines the common horizontal strategic goals (CHSGs) in the G-MASP, including the CHSGs of the current EMPACT cycle. The chapter also covers the role that EMPACT plays in supporting EU strategic coherence -- i.e. the consistency between EU policies, strategies and action plans. **Chapter 7 - Operational actions:\ **This chapter describes EMPACT operational activities. It includes what operational action plans (OAPs) are and how they are created. It also covers the connection between operational actions (OAs) and the strategic goals, describes some example operational actions and lists the sources of funding for EMPACT activities. **Chapter 8 -- Oversight**:\ This chapter covers the management, monitoring and assessment of the EMPACT cycle and its implementation. It includes sections on the roles of the national EMPACT coordinators and drivers, the implementation and monitoring of EMPACT activities, reporting to COSI and the EMPACT independent evaluations managed by the European Commission. **Glossary of terms** 2. EMPACT history and framework =============================== This chapter covers the historical development of EMPACT (Section 2.1) and the current process and procedure by which the EMPACT cycle is implemented (2.2). 2.1 A brief history ------------------- ### 2.1.1 1999-2004 -- 'The first key steps': Tampere and the Hague Programmes The promotion and strengthening of operational law enforcement cooperation on internal security within the EU has always been a key issue. In 1999, Tampere was a decisive moment. 'Tampere', the name of a town in Finland, is also EU shorthand for a series of important decisions in the field of justice and home affairs. It was at Tampere that the European Council -- the EU summit of the leaders of its 15 Member States -- met in a special session in October 1999 to initiate the EU's justice and home affairs (JHA) policies. The meeting led to the creation of an area of freedom, security and justice (AFSJ) in the EU, with ambitious conclusions (), including on a *'union-wide fight against crime'.* In 2004, 5 years after the European Council\'s meeting in Tampere, the multiannual Hague Programme () set 10 priorities for strengthening freedom, security and justice in the EU, as well as objectives to fight organised cross-border crime and to develop a strategic approach at EU level to tackle organised crime and corruption. ### 2.1.2 2004-2010 -- 'Getting structured': COSPOL, ECIM and OCTA Also in 2004, a note from the Presidency of the Council of the EU was published (Doc. 13075/1/04 REV 1, not public), which highlighted measures for *strengthening EU operational police cooperation* through: - more coordination of cross-border operative actions; - two different proposals on a methodology for European police cooperation: - the Comprehensive Operational Strategic Plan for Police (COSPOL) of the Netherlands delegation; - the European Criminal Intelligence Model (ECIM) of the UK delegation. **Note**: When used, the term 'police cooperation' is not limited to 'police' but refers to 'cooperation involving all the Member States\' competent authorities, including police, customs and other specialised law enforcement services in relation to the prevention, detection and investigation of criminal offences' (Article 87 TFEU https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:12012E/TXT&from=EN). Nowadays, the term 'law enforcement cooperation' is increasingly used. Member States progressively developed the framework for COSPOL, its relationship with the ECIM, the Organised Crime Threat Assessment (OCTA) and the Council's priorities and strategies in the fight against organised crime and terrorism (Council Conclusions on intelligence-led policing and the development of the Organised Crime Threat Assessment (OCTA) (Doc. 10180/4/05 ([https://data.consilium.europa.eu/doc/document/ST 10180 2005 REV 4/EN/pdf](https://data.consilium.europa.eu/doc/document/ST%2010180%202005%20REV%204/EN/pdf))) and note from the Police Chiefs Task Force (PCTF) to the Article 36 Committee on the Comprehensive Operational Strategic Planning for the Police (COSPOL) (Doc. 5859/4/06/REV4 (). They worked on an architecture of internal security (Note from the Presidency to Coreper/Council on the Architecture of Internal Security (doc. 9596/1/06 REV 1, not public)). COSPOL was a multilateral law enforcement instrument under the guidance, support and direction of the PCTF. It aimed to achieve tangible operational results (e.g. arrests of top-level criminals and dismantling of criminal and terrorist organisations and networks), while ensuring that the Member States' competent authorities make use of Europol's analytical support, in particular its analysis work files (AWFs). In 2005, the ECIM was established as a first step in creating an EU-wide, intelligence-led law enforcement approach. In broad terms, the principles of the ECIM stemmed from the concept of intelligence-led policing (ILP) as proposed by Jerry H. Ratcliffe. ILP is '*a business model and managerial philosophy where data analysis and crime intelligence are pivotal to an objective, decision-making framework that facilitates crime and problem reduction, disruption and prevention through both strategic management and effective enforcement strategies that target prolific and serious offenders*' (Ratcliffe JH (2008) Intelligence-led policing. Willan Publishing, Cullompton). COSPOL and ECIM were based on the same key principles: - EU police cooperation should be based on ILP, providing a link between the assessment of threats and the actions to be taken against them, and requiring the political level to proactively set strategic priorities; - the actors and instruments supporting EU operational police cooperation should be enhanced and better used. In this methodology, the 'actions' were left to the law enforcement authorities of the Member States, with the assistance of Europol. The 'assessment of threats' was decided at the policy-making level. In 2006, Europol produced the first OCTA in place of its annual Organised Crime Situation Report. The OCTA supported the further development of a common intelligence model by Europol and the Member States. ### 2.1.3 2010 -- 'The decisive factor': Project Harmony From 2006 onwards, many initiatives of EU police cooperation were undertaken. Yet, there was a lack of commitment and coherence among Member States, which affected the effectiveness and the efficiency of cooperation, and the fight against organised crime. In 2010, Belgium resolved to find a solution to this matter during its Presidency of the Council of the EU (in the second half of 2010). Belgium developed Project Harmony and worked in close cooperation with Europol, the UK and the Netherlands, to streamline and integrate the existing EU instruments (Organised Crime Threat Assessment, Police Chiefs Task Force, COSPOL projects, etc.) into a more coherent and effective approach, resulting in a 'genuine European policy cycle'. (The result of the 'Harmony' project was 'A generic European Crime Intelligence Model -- Bringing together the existing instruments and strengthening Europol's central role' (doc. 14851/10 -- 2010). () Rather than starting from scratch (i.e. 'reinventing the wheel'), Project Harmony aimed to bridge the gaps between EU and national crime strategies, and between political decisions and the way law enforcement agencies converted them into operational actions. It proposed a solution which neatly fitted together existing components into a logical process with clearly defined actors, responsibilities and activities set against a realistic (and cyclical) timeline. This is how the 'EU policy cycle for organised and serious international crime' was born. **2.1.4 2010-today -- 'Cooperation in motion': the EU policy cycle(s) *for organised and serious international crime / EMPACT*** In November 2010, the 'EU policy cycle for organised and serious international crime' was officially established and described in Justice and Home Affairs (JHA) Council Conclusions. (Council conclusions on the creation and implementation of an EU policy cycle for organised and serious international crime. https://www.consilium.europa.eu/uedocs/cms\_data/docs/pressdata/en/jha/117583.pdf). At this time, the EU's highest political level endorsed both the methodology and the identification of the 'EU crime priorities' to be tackled in a partnership approach. In other words, the governments of all EU Member States officially and explicitly agreed and committed to work together within this new approach. The *'EU policy cycle for organised and serious international crime'* was designed to be multidisciplinary and integrated, thus reaching beyond law enforcement and ensuring a balance between the prevention and tackling of the consequences of threats to EU internal security posed by organised and serious international crime. Moreover, its multidisciplinary nature required (and still requires) good cooperation between police, border guards, customs, judicial and administrative authorities of the Member States, as well as EU institutions and agencies. In 2012, the first *'EU policy cycle for organised and serious international crime'* started with an initial and shorter 2-year cycle (2012-2013) based on the OCTA published in 2011. The relevant stakeholders developed *'operational action plans'* (OAPs) and implemented joint actions by using the framework of the *European Multidisciplinary Platform Against Criminal Threats (EMPACT)*. Then, between 2014-2017 and 2018-2021, two fully-fledged cycles took place. Over the years, the instrument has evolved through several stages to make it more effective, efficient and streamlined, and to balance the burden placed on different categories of stakeholders. This has been achieved notably thanks to the independent evaluations conducted at the end of each cycle. These are managed by the European Commission, contracted out to an external evaluator. In 2020, the latest independent evaluation concluded that EMPACT is relevant, effective, increasingly efficient, coherent, and brings the EU added value with better operational results against serious and organised crime than if the Member States had tackled it alone. The independent evaluation contained recommendations, endorsed by the Member States through a roadmap. For more details, please see Chapter 8. In July 2020, the European Commission set out a new EU Security Union Strategy, () which laid out four strategic priorities for action at EU level. This strategy covers the period 2020 to 2025 and focuses on priority areas where the EU can help Member States in fostering security for all those living in the EU, while respecting European values and principles. This strategy mentioned the *'EU policy cycle for organised and serious international crime/EMPACT',* hence recognising its importance in the EU security architecture, and stressed its relevance for *'a strong European security ecosystem'*. By doing so, the EU Security Union Strategy gave a boost to the development of EMPACT. In 2021, the *'EU policy cycle for organised and serious international crime'* became a **permanent** instrument with the adoption of the Council Conclusions 'EMPACT 2022+' by the Council of the EU (Doc. 7100/23. ). These Council Conclusions introduced two key changes: 1. The Council of the EU agreed to change the term *'EU Policy cycle for organised and serious international crime'* to 'EMPACT' (European Multidisciplinary Platform Against Criminal Threats). In other words, this decision merged two concepts into one, i.e.: - *'The EU Policy Cycle for organised and serious international crime',* that was used to define the cooperation framework for setting common priorities; and - *'EMPACT',* that was the operational platform enabling cooperation between practitioners. EMPACT is now the only 'branding' name used. 2. The Council of the EU also agreed to implement EMPACT as a permanent and key EU instrument for structured multidisciplinary cooperation to fight organised and serious international crime. All these steps led to EMPACT becoming 'an EU flagship'*:* a permanent security initiative 'driven' by EU Member States to identify, prioritise and address threats posed by organised and serious international crime, using an intelligence-led policing approach, endorsed at the highest EU political level, supported by all EU institutions, bodies and agencies, and associated partners. 2.2. Main steps in EMPACT ------------------------- The EMPACT cycle EMPACT runs in 4-year cycles. This fixed period allows adjustments to be made in response to changes and developments that may occur. Each 4-year cycle is broken down into a detailed timeline, which specifies exactly who will perform each of the different elements of the cycle, and when. The various actors involved and their precise role are described in Chapter 3. EMPACT has four main steps. Each step requires designated actors to perform specific activities. The output from one step facilitates the next step. Indeed, a step cannot begin until the preceding one has been completed. - **Policy development**: This is based on the European Union Serious and Organised Crime Threat Assessment (EU SOCTA -- see Chapter 4) prepared by Europol. The EU SOCTA includes recommendations for EU-level crime priorities and shape real and impactful policy on the ground. The EU SOCTA is based on the threats observed and detected by practitioners on the ground, and is developed through close cooperation between Europol, the law enforcement authorities of the Member States and third parties such as EU agencies, international organisations and countries outside the EU that have working arrangements with Europol. A mid-term review of the EU SOCTA highlights new, changing and emerging threats. 1. **Policy setting and decision-making**: EU political leaders orient EMPACT through: a. the identification by the Council of a limited number of crime priorities, following proposals made by the Standing Committee on Operational Cooperation on Internal Security (COSI) on the basis of the EU SOCTA, of the Policy Advisory Document (PAD) prepared by the Presidency of the Council of the EU and the European Commission (Directorate-General Migration and Home Affairs/DG HOME acts as '*chef de file*' (leader) and involves all relevant Commission services), and considering other strategic papers, assessments and policies as well as Member States' reasoning. b. the development of a single, overarching strategic plan called the general multiannual strategic plan (G-MASP), which contains common horizontal strategic goals (CHSGs). 2. **Implementation and monitoring**: EMPACT stakeholders develop, implement and monitor operational action plans (OAPs) aligned with the strategic goals set out in the G-MASP. They combine all existing tools and techniques to best prevent and fight the prioritised threats and disrupt criminal networks. 3. **Evaluation:** EMPACT stakeholders continuously evaluate the results, hold the gains, learn and improve, and repeat. At the end of each cycle, the European Commission performs an independent evaluation to assess the implementation of EMPACT activities and their outcomes. This evaluation is then used to make informed policy decisions, which serve as guidance for the next EMPACT cycle. In this way, the knowledge and experience gained compiled in the last phase of a cycle feeds directly into the development of the first phase of the next cycle. Through this four-step process, EMPACT creates an EU-level framework within which the efforts to fight international crime at national level are integrated or 'joined-up'. Such a collective, coherent and coordinated approach delivers synergy, avoids duplication, and streamlines activity, in its aim to tackle the most important criminal threats chosen over a given period. **Put in simple terms, 'EMPACT is a living instrument that is all about fighting crime together'...** The 'EMPACT flagship' Key points to remember ---------------------- 1. EMPACT is an EU Member State-driven permanent security instrument, using an intelligence-led policing approach, endorsed at the highest EU political level, to identify, prioritise and address threats posed by organised and serious international crime. All EU institutions, bodies and agencies support EMPACT. 2. EMPACT is now the sole and only 'brand' name and designates the EU flagship instrument for multidisciplinary and multiagency operational cooperation to fight organised crime. EMPACT encompasses two concepts, *i.e. 'the EU Policy Cycle for organised and serious international crime'* that was formerly used to define the cooperation framework for setting common priorities, and *'the multidisciplinary platform'* that facilitates cooperation between practitioners. 3. EMPACT runs in 4-year cycles and has four key steps: (1) Policy development, (2) Policy setting and decision-making, (3) Implementation and monitoring, and (4) Evaluation. 4. So far, there have been an initial 2-year test cycle (2012-2013), two 4-year cycles (2014-2017 and 2018-2021) and the ongoing 2022-2025. 5. The findings of the final evaluation of each EMPACT cycle contribute to improving the next one. 6. EMPACT helps to build a security ecosystem that fosters multidisciplinary cooperation on internal security and helps bridge the gap between EU and national crime strategies and between political decisions and the way competent authorities implement them. External links -------------- 'The Hague Programme: strengthening freedom, security and justice in the European Union' (2005/C 53/01) Council Conclusions on intelligence-led policing and the development of the Organised Crime Threat Assessment (OCTA) (2005) Note from the PCTF to the Article 36 Committee on the Comprehensive Operational Strategic Planning for the Police (COSPOL) (2006) Result of the 'Harmony' project -- 'A generic European Crime Intelligence Model -- Bringing together the existing instruments and strengthening Europol's central role (doc. 14851/10 -- 2010) Council conclusions on the creation and implementation of an EU policy cycle for organised and serious international crime (2010) EU Security Union Strategy (2020) Council conclusions on the permanent continuation of the EU Policy Cycle for organised and serious international crime: EMPACT 2022 + (2023) European Union Serious and Organised Crime Threat Assessment (SOCTA) 2021 \| Europol (europa.eu) 3. EMPACT actors ================ This chapter describes the roles of the different actors involved in EMPACT. It starts with the division of EMPACT actors into 'core actors' and 'partners' (Section 3.1). The next four sections focus on the different types of core actors: Member States' competent authorities (3.2), the Presidency of the Council of the EU (3.3), EU institutions and bodies (3.4) and the EU Justice and Home Affairs (JHA) agencies (3.5). The chapter finishes with a section on partners (3.6). 3.1 Introduction ---------------- ### 3.1.1 Approach of the EMPACT cycle The multidisciplinary approach is at the core of the EMPACT cycle. The successful implementation of the EMPACT cycle requires commitment and coordinated effort from representatives of different agencies at national and EU levels, and at a global level, for a multiagency approach. ### 3.1.2 Core actors vs partners Following the EMPACT Terms of Reference, the EMPACT actors are divided in two groups: 1. **core actors,** including EU Member States, EU institutions and bodies, and EU agencies; 2. **partners,** including non-EU countries, the public and private sector, EU networks/expert groups and EU missions. This division also defines their roles and responsibilities. For instance, the core actors can participate in the discussions linked to the EMPACT governance and policy-making decisions. In addition, partners cannot be drivers or co-drivers, and need acceptance from the driver(s) and action leader(s) to participate in operational actions or to lead them. 3.2 Core actors: Member States' competent authorities ----------------------------------------------------- Member States contribute to the EMPACT cycle by: - providing intelligence to be used in producing the EU SOCTA and other reports; - leading and promoting the operational action plans (OAPs) or specific operational actions; - undertaking roles, such as drivers, co-drivers, action leaders, common horizontal goals coordinators, action co-leaders and participants. For operational contributions, each Member State decides whether and how to become involved in each crime priority and activity area, in line with their national crime strategy as wells as the EU strategy. OAPs and operational actions are driven by the Member States. Operational actions can also be led by partners. The competent authorities belong to the national government of an EU Member State. They include: - **The Ministry of Interior and/or Justice:** These are the national authorities most responsible for EMPACT. The national EMPACT coordinator (NEC) is usually attached to the Ministry of Interior. - **Other ministries and departments:** These may become involved in some EMPACT operational actions, especially those that are multidisciplinary, such as the Ministry of Finance, tax authorities and customs, especially active in OAPs covering fraud, economic and financial crimes. - **Law enforcement agencies**: - These may have different structures and legal competences in different Member States, such as uniformed police, gendarmerie (i.e. a military force with law enforcement duties), border guards, coastguard, customs and tax authorities. - Law enforcement competent authorities cooperate closely with or under the supervision of prosecutors and judicial authorities. 3.3 Core actors: Presidency of the Council of the EU ---------------------------------------------------- The Presidency of the Council of the EU (the Presidency) is responsible for the functioning of the Council of the EU , and so helps to ensure the continuity of the EU agenda. The Presidency rotates to a different EU Member State every six months. The Presidency has overall responsibility for ensuring the development and implementation of each EMPACT cycle. With support from the General Secretariat of the Council (GSC), the Presidency prepares for COSI (the Standing Committee for operational cooperation on Internal Security -- see Section 3.4.2) the discussions on the methodology for the EMPACT cycle and on the EU Serious and Organised Crime Threat Assessment (SOCTA) recommendations. The Presidency also organises the meeting of the national EMPACT coordinators (NECs), which takes place every six months and is facilitated and hosted by Europol. 3.4 Core actors: EU institutions and bodies ------------------------------------------- ### 3.4.1 JHA Council The Council of the EU is the institution representing the Member States' governments. The Council is, like the European Parliament, an essential EU decision-maker. The Justice and Home Affairs configuration of the Council (JHA, also known as JAI) develops cooperation and common policies on internal security and justice. The JHA Council is made up of justice and home affairs ministers from all the EU Member States, who facilitate the coordination of actions on internal security by seeking to enhance police and customs cooperation. It is also responsible for administering the Schengen Area, for asylum and immigration policies, and for the fight against serious and organised crime and terrorism. The JHA Council is the body that sets the crime priorities in the EMPACT cycle (see Chapter 5). ### 3.4.2 General Secretariat of the Council -- Justice and Home Affairs The General Secretariat of the Council of the EU (GSC), or Council Secretariat, assists the Council of the EU (Member States -- Ministerial level) and the Presidency of the GSC (one EU Member State every 6 months). The GSC is divided into seven directorate-generals depending on the subject or area of competence. The Directorate General for Justice and Home Affairs (DG JAI/JHA) is the part of the GSC that is responsible for EU policy on issues of justice and home affairs, which includes the preparation of the JHA Council. DG JHA currently consists of two directorates: Home Affairs (JAI.1) and Justice (JAI.2). These two units report on horizontal issues, evaluations in justice and home affairs, and drugs policy. A dedicated team within JAI.1 assists the Presidency and COSI/COSI Support Group (COSI-SG), especially on EMPACT-related matters. ### 3.4.3 Standing Committee on Operational Cooperation on Internal Security (COSI) COSI was set up in 2010 to promote and strengthen operational cooperation on internal security in the EU (Article 71 of the Treaty on the Functioning of the EU ). COSI is supported by the COSI Support Group (COSI-SG), which prepares its work and meetings. Both COSI and COSI-SG are chaired by the Presidency. COSI plays a central role and is involved, in many areas of the EMPACT cycle. It: - approves the general multiannual strategic plans (G-MASPs) and OAPs; - adopts the Terms of Reference (ToR); - monitors the implementation activities; - analyses the findings of the independent evaluation of the EMPACT cycle to identify future improvements. ### 3.4.4 European Commission The European Commission protects the interests of the EU and its citizens, manages EU policies, allocates EU funding, enforces law together with the Court of Justice, and represents the EU internationally. It is the EU\'s politically independent executive arm. A full listing of departments and executive agencies is available on the Commission's website. The Commission has a significant supporting role in EMPACT; it is responsible for: - **Policy development**, through: - providing political advice -- drafting (with the Presidency) the policy advisory document (PAD) -- to support the drafting of the Council Conclusions that establish EU crime priorities; - supporting the development of the G-MASP, which contains the common horizontal strategic goal (CHSGs), and chairing the workshop(s) to fine-tune it; - ensuring the consistency of EMPACT actions with EU political priorities and other initiatives; - **Promotion and support**, through: - promoting general awareness of EMPACT in security dialogue; - providing financial support for EMPACT activities, notably through the Internal Security Fund (ISF) ; - **Operational support** by: - participating in various operational actions and supporting EMPACT-coordinated actions or joint action days (JADs); - coordinating the eighth CHSG on 'external dimension: cooperation with non-EU partners'. - **Evaluation of EMPACT**, through: - coordinating an independent evaluation at the end of each EMPACT cycle, - generating recommendations on how to improve it. ### 3.4.5 European Anti-Fraud Office (OLAF) OLAF is empowered to conduct independent investigations into fraud and corruption involving EU funds and to investigate serious misconduct by EU staff. OLAF works to prevent and investigate the loss of EU revenues from customs fraud and criminal avoidance of import tax and other taxes, as well as through VAT fraud. OLAF is involved in the EMPACT Cycle 2022-2025, in three of the 15 OAPs: IPCCGC (Intellectual Property Crime, Counterfeiting of Goods and Currencies), Environmental Crime, and **Missing Trader Intra-Community** (MTIC) fraud. It participates in the prevention, investigation and fighting of MTIC fraud and other cross-border VAT fraud. OLAF is also leading an operational action targeting external transit consignments with counterfeit goods in the IPCCGC priority. ### 3.4.6 European Public Prosecutor's Office (EPPO) The European Public Prosecutor's Office (EPPO) () is an independent institution of the EU. It is responsible for investigating, prosecuting and bringing to judgment crimes against the financial interests of the EU, including fraud, corruption, money laundering and cross-border VAT fraud. The EPPO participates in several EMPACT crime priorities, such as **high-risk criminal networks (HRCN)**, criminal finance, money laundering and asset recovery (CFMLAR), MTIC and excise fraud. As well as its participation in actions associated with investigation of specific crimes under its competence gathered in these OAPs, it is also involved in multidisciplinary training activities under the CHSG 6 (training and capacity building). 3.5 JHA agencies ---------------- The abolition of the controls at the internal borders of the Schengen Area was accompanied by several measures, notably the strengthening of police cooperation and the creation of the Schengen Information System (SIS). The law enforcement agencies were created after this. Some of them have a significant role in EMPACT. ### 3.5.1 Europol Europol is the EU Agency for Law Enforcement Cooperation. According to the Europol Regulation, it is in its mandate to cooperate and exchange information by processing of personal data in support of EU Member States' criminal investigations. Europol has created specialised centres in different criminal areas, such as ESOCC (serious and organised crime), EC3 (cybercrime), EFECC (economic and financial crime), and Europol's Operational and Analysis Centre (OAC), which produces the EU SOCTA. Europol has a key role within the EMPACT cycle as it is responsible for: - producing the EU SOCTA (see Chapter 4); - hosting the EMPACT Support Team; - supporting the EMPACT OAPs with intelligence analysis and operational inputs. The CHSG coordinators and Europol's analysis projects (APs) representatives provide strategic and operational guidance and facilitate alignment between Europol operational task forces (OTFs) and EMPACT operational actions. - taking part in operational actions within the EMPACT OAPs; - providing EMPACT funding from its budget, following the strategic guidance of COSI; - being a co-driver of the migrant smuggling OAP. ### 3.5.2 Eurojust Eurojust is the EU Agency for Criminal Justice Cooperation. Its main role is to stimulate and improve the coordination of investigations and prosecutions between competent authorities in EU Member States. Eurojust participates in several operational actions under the EMPACT crime priorities when judicial cooperation and coordination are required, especially with regard to prosecution and the investigation of complex cross-border cases. In most cases, these occur under CHSG 2 (i**nvestigations and judicial response, with a specific focus on HRCN and key individuals).** ### 3.5.3 Frontex Frontex was created as the European Agency for the Management of Operational Cooperation at the External Borders of the Member States of the European Union, and after its more recent regulation it became the **European Border and Coast Guard Agency**. That regulation has enhanced the role of the agency in tackling cross-border crime [https://frontex.europa.eu/we-support/cross-border-crime/](https://frontex.europa.eu/we-support/cross-border-crime/a) and terrorism, having a reinforced mandate and increased competences such as the European Border and Coast Guard Standing Corps (the EU's first uniformed service). The Frontex Annual Risk Assessment and other tailored analytical products provide an important input to the policy-making process alongside the EU SOCTA. Regarding the EMPACT cycle, Frontex: - is a co-driver of the migrant smuggling OAP; - participates in operational actions in land, maritime and air domains; - shares intelligence, including personal data, to support Member State investigations; - supports and coordinates many EMPACT joint action days (JADs). ### 3.5.4 CEPOL CEPOL is the European Agency for Law Enforcement Training. CEPOL's main training areas are linked to the prevention and fight against serious crime affecting two or more Member States and terrorism, maintenance of public order (international policing of major events) and the planning and command of EU missions. This includes training on law enforcement leadership and language skills. CEPOL is responsible for the coordination of the CHSG 6 on 'capacity building' that applies to all EMPACT OAPs. Some of their training, learning activities and deliverables (face-to-face or e-learning) are EMPACT tailor-made. ### 3.5.5 European Monitoring Centre for Drugs and Drug Addiction (EMCDDA) The EMCDDA provides the EU and its Member States with factual overviews of European drug issues and a solid evidence base -- using independent scientific information -- to support debates on drugs. It gives context to any attempts to combat drug-related crime. In the near future, the EMCDDA will become the EU Drugs Agency, a fully fledged agency with strengthened roles. The EMCDDA contributes to the EU SOCTA and prepares analytical products on drugs. In the 2022-2025 EMPACT cycle, the EMCDDA participates in the Drugs priority (Synthetic Drugs and Cocaine, Heroin and Cannabis) and in the HRCN OAP, by leading operational actions under the CHSG 1 on the intelligence picture. ### 3.5.6 eu-LISA eu-LISA is the European Agency for the Operational Management of large-scale IT Systems in the Area of Freedom, Security and Justice, such as EURODAC , the Visa Information System (VIS) and the Schengen Information System (SIS). eu-LISA participates in the EMPACT crime priorities of Migrant Smuggling, Firearms and Cyberattacks. For instance, it is contributing to the exploration of possible solutions of interoperability for different analysis ballistic information systems (ABISs). It is also leading one specific training-related operational action on EURODAC and SIS II under the OAP Migrant Smuggling. ### 3.5.7 EU Agency for Network and Information Security (ENISA) ENISA has a mandate related to cybersecurity in the EU. It provides recommendations, supports policy development and its implementation, and collaborates with operational teams. It is involved in the EMPACT cycle on cybersecurity issues. It is participating in a specific operational action on cooperation and real-time information exchange between law enforcement agencies and CERTs (cyber emergency response teams). ### 3.5.8 European Union Intellectual Property Office (EUIPO) EUIPO is an EU agency (not linked to JHA). Its responsibilities relate to trademarks, designs and other intellectual property (IP) rights. It is involved in the EMPACT OAP relating to IP crime, counterfeiting of goods. It is involved in updating the handbook developed in 2022 about practical investigations on on-line and off-line IP crime areas and business models. **3.5.9 European Labour Authority (ELA)** ELA https://www.ela.europa.eu/en/what-we-do is the EU agency tasked with coordinating and supporting the enforcement of labour mobility and social security. It is participating and co-leading operational actions within the OAP THB (Trafficking of Human Beings). For example, ELA is involved in **the EMPACT action days** against trafficking for the purposes of all types of labour exploitation and other forms of serious labour violations, including the exploitation of temporarily displaced persons. **3.5.10 European Fisheries Control Agency (EFCA)** EFCA coordinates the policies of the EU Member States regarding the control and inspection of fishing grounds. It also provides support to national authorities performing coastguard functions, in cooperation with Frontex and the European Maritime Safety Agency, each within their mandate. EFCA participates in the Environmental Crime OAP. 3.6 Other actors: Partners -------------------------- Other actors involved in EMPACT can include: - **non-EU ('external') actors**: e.g. non-EU countries, EU missions and international organisations; - **actors outside of law enforcement/judiciary**: e.g. private sector organisations, public sector organisations outside of law enforcement, EU networks/expert groups and academia. Partners can be invited to express their interest in participating in an operational action, including partners who do not already have an operational or strategic agreement or a working arrangement with Europol. The relevant action leader and OAP driver are responsible for accepting their participation. ### 3.6.1 Non-EU partners Many crime priority areas contain non-EU aspects. A successful operational implementation of the EMPACT cycle must therefore consider the 'external dimension' of EU internal security in CHSG 8, coordinated by the European Commission. Further developing cooperation with these partners provides an added value to the operational implementation of the EMPACT cycle (OAPs) and contributes to raising awareness of the actions carried out to counter the existing threats outside the EU. The involvement of non-EU partners should comply with the applicable rules on exchanges of data, as set out in the Europol Regulation and according to the EMPACT Terms of Reference. ### 3.6.2 Non-EU countries Non-EU countries are often involved in EMPACT activities, and some of them even lead operational actions. These are notably: - the Schengen associated states (Iceland, Liechtenstein, Norway, Switzerland); - countries from the Western Balkans, the EU's eastern and southern neighbours; - the US; - countries from Latin America. ### 3.6.3 EEAS and EU missions The European External Action Service (EEAS) is involved in the EMPACT cycle 2022-2025. The EEAS and its EU delegations overseas perform a supporting role in the crime priority areas that have an external dimension. Under the common security and defence policy (CSDP), the EU takes a leading role in peacekeeping operations, conflict prevention and the strengthening of international security. Some of these missions are becoming part of some EMPACT OAPs. For example, the European Union Integrated Border Management Assistance Mission in Libya (EUBAM Libya), which was established to support the capacity of Libyan authorities to enhance the security of their borders. From the EMPACT perspective, it can provide inputs and information on the smuggling of migrants, firearms or trafficking in human beings (THB). ### 3.6.4 International organisations There are organisations which have a specialised knowledge, a long track record, and good worldwide local contacts, such as INTERPOL and the United Nations Office on Drugs and Crime (UNODC). They can provide a 'bridge' to areas outside the EU. ### 3.6.5 **Non-law enforcement actors** There are other non-law enforcement actors within Member States administrations which could be useful partners in future implementation activity. Public sector bodies involved in academic research, health, education, science and technology, commerce, transport, etc. all have the potential to contribute to EMPACT. This is particularly sought in actions relating to crime prevention, capacity building, awareness raising (CHSG 7) and the administrative approach (CHSG 9). For example: 1. The design of a 'barrier model' for fighting and preventing trafficking in human beings (THB) for sexual exploitation purposes, as part of the administrative approach; 2. The development of the EU barrier model on the secondary distribution of synthetic drugs through postal and courier services, involving the postal and courier service industry as a partner. 3. A preventative action to combat organised property crime in the maritime areas (e.g. thefts of boats, boat engines and parts such as GPS) could involve local administration and manufacturers. Key points to remember ---------------------- 1. According to the EMPACT Terms of Reference, the EU Member States, EU institutions and bodies, and EU agencies are known as 'core actors'. 2. EU Member States contribute to the EMPACT cycle by undertaking roles, such as drivers, co-drivers, action leaders, common horizontal goals coordinators, action co-leaders and participants. Sometimes, those roles can be undertaken by other actors and partners, except for the roles of driver and co-driver. 3. The JHA Council develops cooperation and common policies on internal security and justice. It is made up of justice and home affairs ministers from all the EU Member States. 4. COSI plays a central role and is involved in many areas of the EMPACT cycle. It is supported by the COSI Support Group (COSI-SG). It approves the general multiannual strategic plans (G-MASPs) and OAPs, adopts the Terms of Reference (ToR), monitors the implementation activity and analyses the findings of the independent evaluation of the EMPACT cycle to identify future improvements. 5. The European Commission is responsible for ensuring the consistency of EMPACT actions with EU political priorities, promoting general awareness of EMPACT, as well as providing it with financial support. 6. The European Public Prosecutor's Office (EPPO) is an EU body. It is not a JHA agency, but an independent institution of the EU, responsible for investigating, prosecuting and bringing to judgment crimes against the financial interests of the EU. 7. The EU missions -- under the common security and defence policy (CSDP) -- take a leading role in peacekeeping operations, conflict prevention and the strengthening of international security. Some of them are participating in EMPACT OAPs. 8. Colombia could lead an operational action under one EMPACT priority (OAP). In this case, this operational action is linked to CHSG 8. External links -------------- Presidency of the Council of the European Union Council of the EU Treaty on the Functioning of the EU European Commission listing of departments and executive agencies Internal Security Fund (ISF) European External Action Service EEAS Europol Eurojust European Public Prosecutor's Office (EPPO) Frontex CEPOL EMCDDA eu-LISA European Labour Authority (ELA) EFCA EURODAC Visa Information System (VIS) Schengen Information System (SIS) ENISA EUIPO INTERPOL United Nations Office on Drugs and Crime (UNODC) 4. EU SOCTA =========== This chapter gives an overview of the European Union Serious and Organised Crime Threat Assessment (EU SOCTA). The reader will receive an outline on what it is and its purpose (Section 4.1), the analysis methodology used (4.2) and the key findings of the current EU SOCTA (4.3). 4.1 What is the EU SOCTA? ------------------------- ### 4.1.1 Overview The EU SOCTA is a present- and future-oriented threat assessment of serious and organised crime affecting the EU. It is an in-depth analysis prepared by Europol, based on data provided by the Member States and partners. It assesses the key threats to provide a comprehensive understanding of the phenomena and support EU priority setting in the fight against organised and serious international crime. Threat assessments on serious and organised crime have undergone various revisions over the years, using new and improved analytical innovations to assess the evolving nature of crime, e.g. the Organised Crime Threat Assessment (OCTA) developed in 2006 evolved into the SOCTA in 2013. For the past versions of the OCTA and SOCTA, see: ### 4.1.2 Versions of the EU SOCTA The current EU SOCTA was published in 2021 in four versions: - a full restricted EU SOCTA for law enforcement authorities in the Member States; - a light restricted version for Europol cooperation partners in relevant EU Justice and Home Affairs (JHA) agencies, law enforcement authorities in non-EU countries and international organisations; - an executive summary (*Limit*e) of the EU SOCTA for EU Member States, as represented in Council structures, in particular the EU Standing Committee on Operational Cooperation on Internal Security (COSI), Law Enforcement Working Party Police (LEWP-P), Law Enforcement Working Party Customs (LEWP-C) and the European Commission; - a public version of the EU SOCTA for the general public (https://www.europol.europa.eu/cms/sites/default/files/documents/socta2021\_1.pdf). ### 4.1.3 Purpose of the EU SOCTA The EU SOCTA aims to inform Europe's law enforcement community, decision-makers and the general public on developments in serious and organised crime and the threats it poses to the EU. The EU SOCTA feeds into the political process along with other assessments and research papers to inform the EU JHA Council who set the EU crime priorities (see Chapter 5, Political policy process). These priorities are developed into strategic plans (see Chapter 6) and structure the operational actions carried out in the framework of the EMPACT cycle for the next 4 years (see Chapter 7). This is reflected in the EU SOCTA's position as the cornerstone of EMPACT. The EU SOCTA 2021 focuses on the following key areas as a starting point for data collection: - the threatening features of serious and organised crime areas; - the character or threatening features of organised crime groups, including their modi operandi and the infrastructures they use; - findings on specific geographical aspects and key locations; - the overall impact of serious and organised crime on society. 4.2 Methodology --------------- ### 4.2.1 Defining the methodology The methods used to create the EU SOCTA have evolved over time. In preparation for the 2021 EU SOCTA, a customer requirements document was approved by COSI. Based on these customer requirements, an updated methodology was subsequently endorsed by COSI. Europol, in cooperation with the SOCTA advisory group (composed of EU Member States, EU agencies, the European Commission and the General Secretariat of the Council) are regularly engaged to ensure that the final output of the EU SOCTA is in line with customer expectations. For the current EU SOCTA 2021, the reference period was from January 2016 to December 2019. ### 4.2.2 Data and sources Law enforcement agencies, cooperation partners and other authorities of the EU Member States and the relevant JHA agencies contributed almost 4 000 questionnaires to the EU SOCTA 2021. Contributors were encouraged to gather data from multidisciplinary sources to feed into the data-gathering process. Sources also include non-EU countries, EU agencies and EMPACT actors. Europol also relied heavily on the operational intelligence held in its databases on serious and organised crime. Additional information is gathered from other sources such as academia, the private sector and verified open-source information. Contributors were provided with a dedicated questionnaire for each crime area. This questionnaire sought information on specific indicators: - **Organised crime groups**: e.g. size of the group, demand and supply, level of expertise; - **Serious and organised crime areas**: e.g. modi operandi, resources available, geographical distribution; - **Impact indicators**: e.g. financial/economic impact, health impact, political impact; - **Crime infrastructure indicators**: e.g. use of legal business structures, corruption, technology and digital infrastructure; - **Environment indicators**: economic situation, geopolitical situation and national strategies. Contributors were also asked to provide information on emerging trends and anticipated developments over the course of the next 4 years. ### 4.2.3 Prioritisation process The EU SOCTA is written by Europol's strategic analysts, working in close cooperation with subject-matter experts. During the analysis of the information, a certain value is attributed to each of the indicators (e.g. threat indicators, impact indicators and indicator of future evolution). The indicators are considered on a scale (unknown, nil, low, medium or high). The value or weight (high, medium or low) of each separate indicator is also considered. The analysis provides a consolidated score resulting in a score for each threat. A single indicator will never determine the overall threat. 4.3 Key findings of the EU SOCTA 2021 ------------------------------------- The 2021 EU SOCTA provides a complete picture of criminal threats and criminal actors currently affecting the EU (see pages 12-13). The nature of criminal networks can be summarised in the following graphic: ![](media/image4.png) (Europol, 2021) The key threats and recommended priorities identified in the EU SOCTA 2021 are: - high-risk criminal networks (including corruption, money laundering and the use of firearms); - cyberattacks; - migrant smuggling; - online child sexual exploitation; - online fraud schemes; - organised burglaries and thefts; - the production, trafficking and distribution of cannabis; - the production, trafficking and distribution of synthetic drugs and new psychoactive substances; - the trade in illicit tobacco products; - the wholesale trafficking of cocaine; - trafficking in human beings for labour and sexual exploitation; - waste crime. The conclusions and recommended priorities of the EU SOCTA facilitated the policy setting and decision-making by the EU Council for the current EMPACT cycle (2022-2025). 4.4 Timeline for EU SOCTA 2025 ------------------------------ Once the EU SOCTA 2021 report was finalised, preparations started for both the EU SOCTA 2023 interim report and the EU SOCTA 2025. The interim report is an update of the SOCTA 2021 and aims to check whether the identified EU crime priorities are on track or should be updated. In 2022: - the EU SOCTA was evaluated together with the main stakeholders to obtain an overview of lessons learned and best practices; - the customer requirements for the EU SOCTA interim report were formulated; - the continuous data collection was started. In 2023: - the interim report will be finalised in June; - the EU SOCTA 2025 preparatory documents are being developed: - EU SOCTA 2025 customer requirements have been discussed and will be endorsed in June; - the EU SOCTA methodology is being reviewed and an updated version will be ready by the end of the year. In 2024: - once the methodology is updated, a new manual and new questionnaires will be prepared and distributed for data collection; - training sessions will be organised, including a CEPOL webinar, for all partners involved (to help them to contribute their data and insights); - analysis and drafting will take place in the second half of the year and will be extensively reviewed. The EU SOCTA 2025 will be issued in March 2025. Key points to remember ---------------------- 1. The EU SOCTA is an intelligence picture on current and future serious and organised crime affecting the EU. 2. The EU SOCTA, prepared by Europol, is an in-depth study, conducted with quantitative and qualitative research methods from multiple sources. 3. The goal of the EU SOCTA is to inform Europe's law enforcement community and decision-makers on the developments in serious and organised crime and the anticipated future threats it poses to the EU. Citations --------- Europol (2021), European Union serious and organised crime threat assessment, A corrupting influence: the infiltration and undermining of Europe\'s economy and society by organised crime, Publications Office of the European Union, Luxembourg. External links -------------- SOCTA -- Europol EU SOCTA 2021 (public version) 5. Political policy process =========================== This chapter covers the political policy process through which the crime priorities are set for the EMPACT cycle. The first section (5.1) outlines the process, and Section 5.2 describes how the crime priorities chosen have changed during the successive cycles since 2021. Section 5.3 provides an in-depth summary of the crime priorities in the current EMPACT cycle (2022-2025). 5.1 Process of setting the crime priorities ------------------------------------------- The Council of the EU sets the crime priorities for the 4-year EMPACT cycle, and considers the importance of setting a limited number of EU crime priorities that constitute the greatest threats to EU internal security. The setting of priorities involves focusing on some crime areas and excluding others, based on objective and relevant criteria. The crime priorities are defined in the Council Conclusions. ### 5.1.1 Preparatory phase: Drafting the policy advisory document (PAD) Following the creation of the EU Serious and Organised Crime Threat Assessment (SOCTA) (see Chapter 4) and first exchange of views, the Presidency and the European Commission draft together a policy advisory document (PAD). The PAD is based on the SOCTA's recommended priorities, but also considers other relevant documents and assessments. It proposes a limited number of EMPACT crime priorities that are later set out in the Council Conclusions. Creating the PAD ensures that the Council delegates are not confronted with draft conclusions 'out of thin air'. The PAD provides them with a clear understanding of where the threats come from, why some have been prioritised over others, and why particular forms of wording have been chosen for the Council Conclusions. The PAD is also the means by which other factors which might have not been addressed in the SOCTA can be incorporated into the policy process. One example is a new piece of legislation or policy in a significant non-EU country might be reported by the European External Action Service (EEAS). Another example is a major new initiative being launched by the European Commission, whether this is DG HOME or any other DG. In this way, the Council Conclusions will be comprehensive and consistent at EU level. The PAD goes through a complicated approval process. This begins with the discussion at the Council of the EU in the COSI Support Group, followed by Member States' written comments. The revised PAD is discussed again and, if needed, further amended. ### 5.1.2 Council Conclusions The Council Conclusions are the highest political document issued by the Council. Once the PAD is finalised, the Council Conclusions containing the proposed crime priorities are drafted by the Presidency, discussed by COSI SG/COSI and subsequently submitted for adoption to the Justice and Home Affairs Council. ### 5.1.3 Identification of drivers, co-drivers and other core actors Each crime priority requires one or more drivers, one or more co-drivers, and other actors (action leaders, action co-leaders and participants). The executive version of the SOCTA includes an overview of the impact of criminal areas on the Member States and a list of national crime priorities. These tables can be used to identify the likely candidates to perform the roles of driver and co-driver and participants of the EU crime priorities. However, the participation of Member States and the level of this participation (i.e. as a driver, co-driver, action leader, action co-leader or participant) are voluntary and decided by the Member State. When interest is expressed in being a driver (Member States only) or co-driver (Member States and EU agencies) of the priority/operational action plan (OAP), this is communicated to the Presidency. In exceptional cases, and after agreement in COSI between the two involved countries, the Member State driving the priority may change after 2 years (i.e. at the mid-point of the EMPACT cycle). 5.2 Crime priorities of the cycles 2012-2021 -------------------------------------------- For the 2-year 'test period' of 2012-13, the Council decided on eight crime priorities, mixing geographical and thematic ones. These priorities reflected the 'criminal hubs' approach used in the 2011 OCTA. This approach was changed in the 2013 SOCTA, as the focus was put on the type of crime, the so-called 'commodity-based approach'. Therefore, although some of the recommended crime priorities were closely related to the previous priorities, there were also a number of changes with the dropping of the geographical approach. The 2017 SOCTA followed the same commodity-based approach as the 2013 SOCTA and a 'cross-cutting' priorities approach to adapt to the growing poly-criminal nature of the organised criminal organisations. This was reflected in the 10 crime priorities of the 2022+ cycle with the setting of the priorities of high-risk criminal networks (HRCN) and fraud, economic and financial crimes. The table below shows how the crime priorities have evolved: **2012-13 priorities** **2014-17 priorities** **2018-21 priorities** **2022-2025 priorities** -------------------------------------- --------------------------------------------------------------------- --------------------------------------------------------------------- ------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------- Illegal immigration Illegal immigration Illegal immigration Migrant smuggling Trafficking in human beings (THB) Trafficking in human beings (THB) Trafficking in human beings (THB) Trafficking in human beings (THB) Mobile organised crime groups (MOCG) Organised property crime Organised property crime Organised property crime Cybercrime Cybercrime (card fraud, child sexual exploitation and cyberattacks) Cybercrime (card fraud, child sexual exploitation and cyberattacks) Cyberattacks Synthetic drugs Synthetic drugs Drugs (synthetic drugs, cocaine, heroin and cannabis) Drugs (synthetic drugs, cocaine, heroin and cannabis) Cocaine and heroin Excise fraud and MTIC fraud Excise fraud and MTIC fraud Fraud, economic and financial crimes (online fraud schemes, excise fraud, MTIC fraud, intellectual property (IP) crime, counterfeiting of goods and currencies, criminal finances, money laundering and asset recovery) Firearms Firearms Firearms Environmental crime Environmental crime Criminal finances Document fraud Counterfeit goods Container shipments West Africa Western Balkans Child sexual exploitation High-risk criminal network 5.3 Crime priorities of the 2022-2025 cycle ------------------------------------------- The current EMPACT cycle has 10 crime priorities. ### 5.3.1 Operational action plans (OAPs) and strategic goals Each crime priority is implemented under one OAP unless it is split into sub-priorities. Hence, the 10 criminal priorities are implemented through 15 OAPs with a vertical management from the OAP driver to the action leaders. To better coordinate the OAPs, the 2022-2025 cycle introduced eight mandatory common horizontal strategic goals (CHSGs), to be reached in each OAP (see Chapter 6 for the description of the CHSGs) with a horizontal management structure with the coordinators and the drivers. In the current cycle, there are two crime priorities (high-risk criminal network (HRCN) and criminal finance, money laundering and asset recovery (CFMLAR)) that are both implemented in an OAP and are also CHSGs (as CHSG number 2 has a focus on HRCN) for each of the 15 OAPs (see table below). ### 5.3.2 Crime priorities **1. High-risk criminal network (HRCN)** The aim of this priority is 'to identify and disrupt high risk criminal networks active in the EU, with special emphasis on those using corruption, acts of violence, firearms and money laundering through parallel underground financial systems'. Drivers: BE (2024/25), IT (2023-25); co-drivers: AT, ES, Europol**.** **2. Cyber attacks (CA)** The aim of this priority is 'to target the criminal offenders orchestrating cyber-attacks, particularly those offering specialised criminal services online'. Driver: FR; co-drivers: DE, EL, RO. **3. Trafficking in human beings (THB)** The aim of this priority is 'to disrupt criminal networks engaged in trafficking in human beings, with special focus on those who exploit minors, those who use or threaten with violence against victims and their families and those who recruit and advertise victims online'. Driver: NL; co-drivers: AT, FR, ES, RO. **4. Child sexual exploitation (CSE)** The aim of this priority is 'to combat child abuse online and offline, including the production and dissemination of child abuse material as well as online child sexual exploitation'. Driver: BE; co-drivers: EL, ES. **5. Migrant smuggling (MS)** The aim of this priority is 'to fight against criminal networks involved in migrant smuggling, in particular those providing facilitation services along the main migratory routes'. Driver: DE; co-drivers: AT, EL, ES, IT, Europol, Frontex. **6. Drugs trafficking: the production, trafficking and distribution of cannabis, cocaine and heroin; the production, trafficking and distribution of synthetic drugs and new psychoactive substances (NPS)** This EU crime priority has been split into two sub-priorities and is being implemented in two separate OAPs. **6a. The production, trafficking and distribution of cannabis, cocaine and heroin (CCH)** The aim of this sub-priority is 'to identify and target criminal networks involved in the wholesale trafficking of cannabis, cocaine and heroin to the EU; and to tackle the criminal networks involved in the cultivation, production, transformation and distribution of cannabis, cocaine and heroin in the EU'. Driver: ES; co-drivers: FR, NL. **6b. The production, trafficking and distribution of synthetic drugs and NPS (NPS)** The aim of this sub-priority is 'to identify and target the criminal networks involved in the production and global supply of synthetic drugs and NPS in the EU'. Driver: PL; co-driver: NL. **7. Fraud, economic and financial crimes: Online fraud schemes, excise fraud, MTIC fraud, intellectual property (IP) crime, counterfeiting of goods and currencies, criminal finances, money laundering and asset recovery** This crime priority consists of five sub-priorities, implemented in five separate OAPs. **7a. Online fraud schemes (OFS)** The aim of this sub-priority is 'to target individual criminals and criminal networks orchestrating large-scale fraud schemes online as well as fraud and counterfeiting of non-cash means of payment aimed at defrauding private individuals, businesses and public sector organisations'. Driver: FR; co-drivers: RO, EL, Europol. **7b. Excise fraud (EF)** The aim of this sub-priority is 'to target criminal networks and individual criminals engaging in the large-scale excise fraud with particular focus on the production and/or trafficking of illicit tobacco products in the EU'. Driver: LT; co-driver: BE. **7c. MTIC (VAT) fraud (MTIC)** The aim of this sub-priority is 'to disrupt the capacity of criminal networks and individual criminal entrepreneurs involved in Missing Trader Intra Community (MTIC) fraud'. Driver: IT; co-drivers: CZ, Europol. **7d. Intellectual property (IP) crime, counterfeiting of goods and currencies (IPCR)** The aim of this sub-priority is 'to combat and disrupt criminal networks and criminal individual entrepreneurs involved in IP crime and in the production, sale or distribution of counterfeit goods or currencies, with a specific focus on goods harmful to consumers' health and safety, to the environment and to the EU economy'. Driver: BG; co-drivers: ES, IT, PT. **7e. Criminal finances, money laundering and asset recovery (CFMLAR)** The aim of this sub-priority is 'to combat and disrupt criminal networks and criminal individuals who are involved in criminal finances and money laundering and facilitate asset recovery in view of effectively confiscating the criminal profits'. Driver: FR; co-drivers: IT, Europol. **8. Organised property crime (OPC)** The aim of this priority is 'To disrupt criminal networks involved in organised property crime, with particular focus on organised burglaries, theft and robberies, motor vehicle crime and illegal trade in cultural goods'. Driver: FR; co-drivers: DE, ES, RO. **9. Environmental crime (ENVI)** The aim of this priority is 'to disrupt criminal networks involved in all forms of environmental crime, with a specific focus on waste and wildlife trafficking, as well as on criminal networks and individual criminal entrepreneurs with a capability to infiltrate legal business structures at high level or to set up own companies in order to facilitate their crimes'. Drivers: IT (2022/23) and ES (2024/25); co-drivers: ES/IT, AT, FR, PT and SK. **10. Firearms trafficking (FIA)** The aim of this priority is 'to target criminal networks and individual criminals involved in the illicit trafficking, distribution and use of firearms'. Driver: ES; co-drivers: FR, NL, PT. In addition to these priorities, the production and provision of fraudulent and false documents is addressed as a common horizontal strategic goal, since it is a key enabler for many crimes. Key points to remember ---------------------- 1. The number of crime priorities should be limited so that they can all be properly addressed. 2. The PAD is drafted by the Presidency and the European Commission. 3. The PAD explains how the Council Conclusions have been decided (how the SOCTA recommended priorities have become the ones to be adopted by the Council). 4. The Council set 10 crime priorities for the EMPACT cycle 2022-2025. 5. Many crime priorities in the 2022-2025 EMPACT cycle are a continuation of the ones of the 2018-2021 cycle and some of them are new (see the summary table in Section 5.4). External links -------------- Council Conclusions (crime priorities) for the 2012-2013 cycle Council Conclusions (crime priorities) for the 2014-2017 cycle Council Conclusions (crime priorities) for the 2018-2021 cycle [[http://data.consilium.europa.eu/doc/document/ST-9450-2017-INIT/en/pdf]](http://data.consilium.europa.eu/doc/document/ST-9450-2017-INIT/en/pdf) Council Conclusions (crime priorities) for the 2022-2025 cycle 6. Strategic plans ================== This chapter covers strategic planning in the EMPACT cycle, starting with the general multiannual strategic plan (general MASP or G-MASP) (Section 6.1). It then looks in detail at the common horizontal strategic goals (CHSGs) contained in the G-MASP (6.2), including the CHSGs of the current EMPACT cycle (6.2.2). The chapter also covers the role that EMPACT plays in supporting EU strategic coherence -- i.e. the consistency between EU policies, strategies and action plans (6.3). 6.1 The G-MASP -------------- ### 6.1.1 Strategic planning in the EMPACT cycle Once the EU crime priorities are set by the Justice and Home Affairs Council (see Chapter 5), it is necessary to implement the political decisions through operational activities. An intermediary step is required between broad political policy and detailed operational actions, which is strategic planning covering the whole period of the cycle. In essence, strategic planning helps define the direction and includes clear goals and objectives, and the actions needed to achieve them. When combined, these goals collectively aim to deliver the desired political outcome. Strategic planning in the 4-year EMPACT cycle is elaborated through the drafting of a MASP. ### 6.1.2 General vs thematic MASPs The EMPACT cycle 2022-2025 brought significant changes. Up to then, there had been one MASP for reach EU crime priority -- the 'thematic MASPs' -- plus a horizontal one (14 documents in total for the cycle 2014-2021). This was cumbersome and somewhat confusing, and an independent evaluation of 2020 recommended addressing the situation. In the Council Conclusions on the permanent continuation of EMPACT (Doc. 6481/22), the Council recognised the benefits of removing the thematic MASPs and adopted instead one G-MASP to define the common horizontal strategic goals. This change: - decreased the administrative burden; - strengthened the consistency and coherence of the operational action plans (OAPs); - strengthened a multidisciplinary, integrated and integral approach (covering preventive and repressive measures as well as training) to effectively address the prioritised threats. The G-MASP is valid for the whole duration of the cycle (which is why it is called 'multiannual '). The G-MASP applies to all OAPs and allows EMPACT stakeholders to apply a 'matrix approach', meaning that every OAP contains actions covering the pre-determined common horizontal strategic goals (CHSGs). This means in practice that each of the OAPs has at least one activity focusing on the predetermined CHSGs. [https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52021SC0074&qid=1642175448458](https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52021SC0074&qid=1642175448458)**Image:** The 'matrix approach' ### 6.1.3 Creating the G-MASP The European Commission is responsible for facilitating the creation of the G-MASP. The drafting of the G-MASP starts shortly after the adoption of the crime priorities. It has to be completed as soon as possible to allow the European Commission to submit the consolidated draft G-MASP to the Presidency of the Council of the EU and the General Secretariat of the Council. This is to enable an agreement by COSI as early as possible, as the G-MASP/CHSGs need to be adopted before the launch of the drafting process for the OAPs. The drafting of the G-MASP follows a pre-agreed template. It takes shape through a procedure facilitated by the Directorate General for Migration and Home Affairs (DG HOME) and which involves experts from Member States and EU institutions, bodies and agencies. 6.2 Common horizontal strategic goals (CHSGs) --------------------------------------------- ### 6.2.1 Characteristics of CHSGs The G-MASP contains CHSGs. Each CHSG identifies: - an objective; - an indicative and non-exhaustive list of possible 'core' actors involved; - the type of actions that could be used to implement the objective; - the possible main benefits resulting from the implementation of the objective; - recommended key performance indicators (KPIs), which should be followed and applied in the operational actions (OAs) constituting the OAPs. The CHSGs are mostly 'mandatory'. This means that for each priority, EMPACT stakeholders have to design operational action(s) to achieve the agreed CHSG, unless they provide a reasoned explanation as to why it is not appropriate. Some CHSGs can be 'additional and targeted' (*i.e.* 'not mandatory') and tailored to a priority's specific need. ### 6.2.2 Achieving CHSGs There are many different operational ways in which the CHSGs can be achieved, and a given operational action can contribute to one or more strategic goals. As not all CHSGs can be delivered by law enforcement agencies acting alone, the approach needs to be both: - fully multidisciplinary -- involving cooperation between a wide variety of stakeholders; - integral -- including preventive as well as repressive measures. For the EMPACT cycle 2022-2025, a new function of 'Coordinator of Common Horizontal Strategic Goals' was also established. This new function stems from the roadmap on the implementation of recommendations from the independent evaluation of EMPACT (13686/2/20) to task co-drivers/coordinators with the implementation of a CHSG and to strengthen the role of JHA agencies. ### 6.2.3 The CHSGs for 2022-2025 There are eight 'mandatory' CHSGs and one 'additional and targeted' CHSG for the EMPACT cycle 2022-2025. Each CHSG has a coordinator. #### 1. Criminal intelligence picture The objective of this CHSG is to develop the intelligence picture or keep it updated by detecting intelligence gaps. This includes: - the monitoring of: - threats (including from high-risk criminal networks -- HRCNs); - trends; - new developments (e.g. the use of new technologies); - the identification of links between crime areas; - the strategic and operational intelligence picture relating to each EU crime priority; - the integration of the intelligence picture into the strategic and operational planning of the relevant stakeholders. Coordinator: Europol (**European** Union **Agency** for **Law Enforcement** Cooperation) #### 2. Investigations and judicial response, with a specific focus on high-risk criminal networks (HRCNs) and key individuals The objective is to prepare and conduct investigations, coordinated actions and prosecutions, in each EU crime priority, to detect, identify and disrupt criminal networks active in the EU, and individuals with key roles in these networks. There is a particular focus on HRCNs and key individuals: - that are undermining the rule of law by using corruption and intimidation to infiltrate a country's legal economy and administrative management system; - who commit acts of violence and use firearms to further their criminal goals and take advantage of vulnerable groups; - who launder their criminal proceeds through a parallel underground financial system. Coordinator: Europol #### 3. Coordinated controls and operations targeting the online and offline trade in illicit goods and services The objective is to target people involved in the online and offline trade in illicit goods and services. This includes criminal networks, individual criminal entrepreneurs, high-impact vendors and facilitators, their business models and other actors. This is to be achieved especially through coordinated controls and operations. Particular attention is to be paid to those active in the markets that are related to an EU crime priority. Coordinator: Europol #### 4. Criminal finances, money laundering and asset recovery The objectives are to: - combat the criminal use of financial structures, including money laundering; - facilitate asset recovery and confiscate proceeds of crime; - disrupt criminal infiltration. These are to be achieved by: - involving specialised financial investigators, where relevant, as part of investigations in the EU crime priorities; - develop a culture of asset recovery through training and financial intelligence sharing. Coordinator: Europol #### 5. Document fraud The objective is to target criminal networks or criminal individual entrepreneurs active in the production and provision of fraudulent and false documents or identification marks. This is to be achieved by involving specialised investigators, where relevant, as part of investigations in the EU crime priorities. Coordinators: France, assisted by Frontex (European Border and Coast Guard Agency). #### 6. Capacity building through training, networking and innovation The objective is to build the law enforcement and judicial authorities' capacities and capabilities to tackle serious and organised crime by improving knowledge, skills and expertise based on: - training; - networking; - the sharing of good practices; - the development of innovative approaches. Coordinator: CEPOL (European Union Agency for Law Enforcement Training). #### 7. Prevention, awareness raising and harm reduction, early identification of and assistance to victims The objective is to raise awareness and reduce the risk of crime occurring and its harmful consequences. This is to be achieved by carrying out ethically acceptable and evidence-based activities. The ultimate goal is the improvement of the quality of life and safety of individuals, groups and communities. Coordinator: EUCPN (European Crime Prevention Network). #### 8. External dimension: cooperation with non-EU partners The objective is to expand the external dimension of EMPACT and cooperation both with third countries and at a global level to address common challenges. This involves enhancing cooperation with: - international organisations; - regional forums; - non-EU source, transit and destination countries; - priority countries such as enlargement and neighbouring countries; - key crime markets for each EU crime priority. Coordinator: European Commission (three directorate generals: European Neighbourhood Policy and Enlargement Negotiations (DG NEAR), DG for International Partnerships (DG INPTA) and the Service for Foreign Policy Instruments (FPI). #### 9. Administrative approach (additional) The objective is to prevent and tackle the misuse of the legal infrastructure by using administrative measures against serious and organised crime in a complementary way. This should be done through multiagency cooperation by sharing information and taking action to set up barriers. Coordinator: ENAA (European Network on the Administrative Approach). 6.3 Strategic coherence: Consistency between EU policies, strategies and action plans ------------------------------------------------------------------------------------- This section covers the role of EMPACT in improving and assuring consistency between the various policies, strategies and action plans created by the European Commission. The EU Security Union Strategy, published in 2020 by the European Commission, highlights the need for strategic coherence and the role that EMPACT can play in connecting the dots and developing the security ecosystem. In addition, the Commission considered the call from the Member States to 'integrate and articulate the EMPACT instrument, whenever pertinent, with relevant EU security policies, and capacity-building programmes'. This was made in the Council Conclusions making EMPACT permanent. It is crucial to ensure a consistent and reciprocal approach between EU strategies and EMPACT. EMPACT is a key element in these strategies because it effectively connects the strategic level with what is actually happening on the ground. A good EU strategy requires input from the competent authorities dealing with the threats on a daily basis, and committed people to implement the strategy on the ground and be ready to provide feedback to adapt them, if and when necessary. In this context, EMPACT is mentioned in several of the (thematic) EU policies, strategies and action plans, recently communicated by the Commission (see the external links). While all topics and criminal areas are important, it is key to note the link between EMPACT and the **EU Strategy to Tackle Organised Crime 2021-2025**. *Commissioner Johansson described this strategy as 'a 5-year programme to strengthen European law enforcement in the physical and the digital world'. It has* **four priorities, to:** - boost law enforcement and judicial cooperation; - conduct effective investigations to tackle criminal networks and high-priority crimes; - eliminate criminal profits to fight infiltration of the legal economy; - make law enforcement and the judiciary fit for the digital age. EMPACT is a gateway to turn these priorities into reality. A Commission **Staff Working Document on EMPACT** **accompanies this strategy. It provides the Commission's views on how to reinforce EMPACT and develop it in the future, through six work strands (several of these work strands have already led to specific measures).** Key points to remember ---------------------- 1. There is a single general multiannual strategic plan (G-MASP) for each EMPACT cycle that contains common horizontal strategic goals (CHSGs). 2. The G-MASP applies during the entire cycle to all operational action plans (OAPs) and allows EMPACT stakeholders to apply a 'matrix approach', meaning that every OAP contains actions covering the predetermined CHSGs. 3. Each CHSG includes: (1) an objective, (2) types of actors that will implement the objective, (3) types of actions used to achieve the objective, (4) the benefits of achieving the objective, (5) key performance indicators (KPIs) to measure the results. 4. Most CHSGs are mandatory, i.e. OAP drivers (and the participating stakeholders) must design the operational actions (OAs) to achieve them, unless due justification is provided. External links -------------- EU Security Union Strategy EU Strategy to tackle Organised Crime 2021-2025 Commission Staff Working Document on EMPACT EU Action Plan on Firearms trafficking 2020-2025 EU Agenda on Drugs and Action Plan / EU Drugs Strategy 2021-2025 EU strategy for a more effective fight against child sexual abuse Renewed EU action plan against migrant smuggling (2021-2025) EU Strategy on Combatting Trafficking in Human Beings 2021-2025. The intellectual property action plan to support the EU's recovery and resilience The proposal for a Directive on the protection of the environment through criminal law and replacing Directive 2008/99/EC Commission staff working document: Enhancing security through research and innovation Point 9 of the 10-Point Plan for stronger European coordination on welcoming people fleeing the war against Ukraine EU Action Plan against Trafficking in Cultural Goods 7. Operational actions ====================== This chapter describes EMPACT operational activities. It includes a description of operational action plans (OAPs) (Section 7.1) and how they are created (7.2). It also covers the connection between operational actions (OAs) and the strategic goals (7.3). Section 7.4 describes some examples of operational actions and Section 7.5 lists the sources of funding for EMPACT activities. For more details on the processes described in this chapter, please see the EMPACT Terms of Reference (). 7.1 Operational action plans (OAPs) ----------------------------------- For each crime priority included in the EMPACT cycle, one or more OAPs are drafted and implemented. An OAP is a plan detailing the 'operational actions' (OAs) that have been proposed, each one by an action leader. The OAs can contain one or more activities. The aim of the OAP is to achieve the strategic goals included in the general multiannual strategic plan (G-MASP). For this reason, the OAP contains OAs of different types, ranging from fully operational actions to clearly strategic actions, training activities, joint action days (JADs), EMPACT action days (EADs), and other activities that are relevant to the particular strategic goal they are aiming to meet. OAs introduced in one OAP can be continued to the following OAP if this is considered necessary. Until 2023, each OAP covered 1 year. From 2024 onwards, the OAPs will be drafted bi-annually and will last for 2 years. 7.2 Creating the OAP -------------------- For each OAP, a representative from a Member State volunteers for the role of the driver, and is responsible for the management, coordination, implementation and monitoring of the OAP. The driver is appointed after previous discussions and agreement between interested Member States, under the guidance of the Standing Committee on Operational Cooperation on Internal Security (COSI). The driver, in cooperation with the OAP group of core actors and participants, is responsible for the creation/drafting of an OAP. The driver collects proposals for OAs by action leaders to be included in the OAP. Each driver consolidates the proposals for the OAP during the summer period. Following the assessment of operational needs and with the agreement of all participating Member States, the driver confirms whether each OA proposal received from a partner is accepted or not. The OAP is fine-tuned during a workshop chaired by the driver, which usually takes place in September, during which all proposals are discussed and consolidated. Participants at the workshop include: - operational-level experts representing the partic

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