(fra kommisjonsforslaget) 

(1) Pursuant to Article 2 of the Treaty on European Union (TEU), the Union is founded on the values of respect for human dignity, freedom, democracy, equality, the rule of law and the respect for human rights, including the rights of persons belonging to minorities, which are common to the Member States in a society in which pluralism, non-discrimination, tolerance, justice, solidarity and equality between women and men prevail (‘Union values’). The Union values are reflected in the rights, freedoms and principles set out in the Charter of Fundamental Rights of the European Union (the ‘Charter’). Article 3 TEU further mandates the Union to promote the protection of the rights of the child. Article 10 TEU further states that the functioning of the Union shall be founded on representative democracy, that citizens are directly represented at Union level in the European Parliament and that citizens have the right to participate in the democratic life of the Union. Article 20 establishes Union citizenship and sets out important rights that citizens of the Union shall, inter alia, enjoy.

(2) Culture and media and promotion and respect of Union values are all crucial components of a free, fair, diverse, inclusive and cohesive Union. Citizens’ participation and engagement, in due respect of Union values, constitutes the basis of the democratic life of the Union, with media playing a crucial role in shaping public opinion and free debate. Audiovisual works and all other forms of cultural and creative expressions, including cultural heritage, are essential to Europe’s diversity and to forging societal resilience and mutual understanding among European citizens and communities.

(3) The ‘AgoraEU’ Programme (the ‘Programme’) will provide a significant contribution to the attainment and realisation of these objectives, rights and values.

(4) The Programme should succeed the Creative Europe Programme established by Regulation (EU) 2021/818 of the European Parliament and the Council 11 and the Citizens, Equality, Rights and Values Programme, established by Regulation (EU) 2021/692 of the European Parliament and of the Council 12 . It should streamline various funding actions in support of media freedom and pluralism, fight against disinformation in support of the provision on information on Union affairs. Free and pluralistic media and civil society are among key watchdogs of the Union’s democratic systems, playing a crucial role for democratic resilience, and should be supported. The Programme should also support the cultural, creative and media sectors, harness the power of culture and cultural diversity, enhance the information space, and support the Union’s efforts to strengthen a rights-based, inclusive, equal and democratic society. This Regulation lays down an indicative financial envelope for the ‘AgoraEU’ Programme 13 . For the purpose of this Regulation, current prices are calculated by applying a fixed 2% deflator.

(5) To be effective, the Programme should take into account the specific nature and challenges of the different policy areas and sectors, their different target groups and their particular needs through targeted approaches.

(6) In a fast changing economic, social and geopolitical environment, the recent experience has shown the need for a more flexible multiannual financial framework and its programmes. To that effect, and in line with the objectives of the ‘AgoraEU’ Programme, the funding will take due account of the evolving policy needs and Union’s priorities as identified in relevant documents published by the Commission, in Council conclusions and European Parliament resolutions while ensuring sufficient predictability for the implementation. 

(7) The cultural and creative sectors, including performing arts (such as theatre and dance), literature and book publishing, music, visual arts, tangible and intangible cultural heritage, architecture, archives, libraries and museums, crafts and design (including fashion design), serve as ‘public good’, generating meaning and embodying the values of the Union. They are also a great asset for the Union and its regions, attracting sustainable tourism and projecting the image of a dynamic continent on the world stage. The Programme should take into account, on the one hand, their intrinsic and artistic value, as well as, on the other hand, their extrinsic social and economic contributions, including to social and territorial cohesion, well-being and health, growth and job creation, competitiveness, creativity and innovation.

(8) The cultural and creative sectors are however fragmented along national and linguistic lines in the Union. They also face multiple challenges, such as attacks on freedom of artistic expression, precarious working conditions, digital transformations with the rise of artificial intelligence, and the need to adapt to climate change. The Programme should help those sectors respond to such challenges, untap their full potential and project themselves resolutely into the future while ensuring the widest participation, including from local and regional actors, through various channels and formats.

(9) Europe's cultural heritage is a shared and priceless legacy facing budget constraints, natural and human-induced disasters, climate change, and regional conflicts. It is important to safeguard and preserve such a legacy, enhancing access and fostering a collective European identity. Digital preservation further ensures that future generations can learn from, appreciate, and draw inspiration from their cultural heritage.

(10) The Programme should also give financial support to the European Heritage Label and the European Capitals of Culture actions, that celebrate and preserve Europe's rich cultural diversity and heritage, connecting it to the local level and contributing to culture-driven development strategies. 

(11) Europe's media sectors hold a unique position in our democracies, culture, and economies. They encompass, inter alia, content such as films, series, video games, news and information, immersive reality and multimedia, as well as services including theatrical exhibition, television and radio broadcasting, print and online publishing, advertising online videos and podcasts. The digital transformation, notably the rise of artificial intelligence, has accelerated media convergence, changed consumer behaviour, disrupted business and revenue models, as well as intellectual property management and exploitation. The Union should therefore help the Union’s media thrive, foster innovation and access to finance, promote cross fertilisation between news, audiovisual and other media sectors and support collaborations between different types of media entities across the Union.

(12) The Union audiovisual sector faces challenges stemming from limited cross-border circulation, shifting consumption habits and the dominance of non-Union players. Given these challenges, Union intervention should support the capacity of European audiovisual and video games industries to create, finance, produce and disseminate European works on all platforms that are available and attractive to audiences within the Union and beyond. It should foster transmedia adaptations of intellectual property between different media formats, contribute to promoting collaboration among Member States with different market capacities, and accompany the Union’s audiovisual regulatory framework.

(13) News media outlets and journalists across the Union are under increased pressure, notably due to the rise of global online platforms, shifting consumption habits and growing spread of disinformation. These challenges impact news revenues and distribution, undermining the viability and public trust in news media outlets, and limiting citizens’ access to diverse, professionally produced European journalistic content. The Union should support a viable, independent and diverse information ecosystem, protect journalists under threat, promote media freedom and pluralism, and reinforce the integrity of the information space, by promoting measures and enhancing cooperation aimed at tackling disinformation and supporting digital and media literacy, including for young people. 

(14) Democracies in the Union are facing increasing challenges. Declining trust of citizens in democratic institutions and processes is exacerbated by disinformation, social polarisation and hatred impacting the electoral and other democratic processes. A whole of society approach is needed to make European democracy more resilient.

(15) The protection and promotion of fundamental rights contributes to the construction of a more democratic Union. Non-discrimination is a core principle of the Union enshrined in Article 19 TFEU and in Article 21 of the Charter. Working towards an equal and discrimination-free society contributes to untapping the potential of individuals in their diversity and to cultural, economic and social growth. It also helps to address important root causes of violence against vulnerable groups, which in turn is a frontal attack on equality. Therefore, the Programme should promote actions to address all forms of discrimination and intolerance, namely direct and indirect discrimination, paying attention to the specific forms of structural and intersectional discrimination, with a view to supporting relevant Union policy frameworks. The Programme should support actions to prevent and combat all forms of xenophobia and racism, antisemitism and anti-Muslim hatred, homophobia, biphobia, transphobia, interphobia, intolerance and discrimination based on gender identity, intolerance towards persons belonging to minorities including Roma, as well as hate speech. The Programme should also contribute to enabling the Union to deliver on the commitment taken as Party to the UN Convention on the Rights of Persons with Disabilities adopted on 13 December 2006 14  to promote, protect and ensure the full and equal enjoyment of all human rights and fundamental freedoms by all persons with disabilities.

(16) The rights to privacy and the protection of personal data, enshrined respectively in Article 7 of the Charter and in Article 16 TFEU and Article 8 of the Charter, are enforced through a dedicated Regulation 15 and Directive 16 . The Union’s legal framework lays down provisions to ensure that the right to protection of personal data is effectively protected. These legal instruments entrust the national data protection supervisory authorities with the task of promoting public awareness and understanding the risks, rules, safeguards and rights in relation to the processing of personal data. The Programme should contribute to raising awareness, carry out studies and other relevant activities in this field, including through the national data protection supervisory authorities, given the importance of the right to the protection of personal data in times of rapid technological developments.

(17) Gender equality is a fundamental right and an objective of the Union and should be supported by the Programme. Despite many achievements, significant challenges remain, which require to reinforce the Union’s commitment. This includes working towards freedom from gender-based violence, the highest standards of health, including in particular sexual and reproductive health, equal pay and economic empowerment, work-life balance and care, equal employment, career opportunities and working conditions, quality and inclusive education, political participation and equal representation, institutional mechanisms that deliver on women’s rights, actively tackling gender stereotypes and addressing intersectional discrimination.

(18) Gender-based violence and violence against women, children, young persons and other groups at risk, such as LGBTIQ persons and persons with disabilities, constitute a serious violation of fundamental rights and continue to persist throughout the Union, in all social and economic contexts. Violence against women and persons belonging to other groups at risk is a violation of human rights and a frontal attack on equality. Thus, preventing and addressing such violence is a societal imperative and contributes to tackling such discrimination as well as addressing the impacts of violence, including on health. At the same time, ensuring a discrimination-free society will also help address the root causes of violence against vulnerable groups, since they are intrinsically linked. Therefore, the Programme should continue the longstanding Union effort in preventing, responding to and fighting violence at all levels as well as in protecting and supporting all direct and indirect victims and survivors of violence, building on the five consecutive generations of the Daphne programme and strand 17 . The Programme should support the achievement of the objectives of the Council of Europe Convention on preventing and combating violence against women adopted in Istanbul on 11 May 2011, the implementation of the Commission Recommendation on developing and strengthening integrated child protection systems in the best interests of the child 18 , which protects children from any form of violence, as well as contribute to enabling the Union to deliver on the commitment taken as Party to the UN Convention on the Rights of Persons with Disabilities, which protects persons with disabilities against any form of exploitation, violence and abuse.

(19) In accordance with Union acquis on equal treatment, the Member States have set up independent bodies for the promotion of equal treatment (‘equality bodies’), which play a key role in promoting equality and ensuring the effective application of equal treatment legislation. Further, the Programme should support the European Network of Equality Bodies (Equinet) composed of the national equality bodies as provided for by Council Directive (EU) 2024/1499 19 and Directive (EU) 2024/1500 of the European Parliament and of the Council 20 , since Equinet is the only entity which ensures coordination of activities between equality bodies. This is of key importance for the effective implementation of Union anti-discrimination law in the Member States.

(20) Citizens throughout the Union, many of whom regularly or at least occasionally travel to, live, study, work or volunteer in another Member State, should feel able to enjoy and exercise their citizenship rights and to place their trust in equal access, full enforceability and protection of their rights without any discrimination, no matter where in the Union they happen to be. Citizens should be more aware of their rights deriving from citizenship of the Union, namely their right to move and reside freely in the Union, their voting rights when residing in another Member State, their right to petition the European Parliament in any of the official languages, their right to submit citizens' initiatives and their right to lodge complaints with the European ombudsman against institutional maladministration.

(21) Encouraging citizens to play a more active role in democracy at Union level will strengthen European civil society and foster the development of a European identity. Civil society therefore needs to be supported in promoting, safeguarding and raising awareness of Union values and in contributing to the effective enjoyment of rights under Union law. When Union citizens participate in the democratic life of the Union, they contribute to making a reality representative democracy, a principle on which the functioning of the Union is founded and which gives concrete expression to the value of democracy enshrined in Article 2 TEU. 

(22) In order to bring the Union closer to its citizens and to foster democratic participation, a variety of actions and coordinated efforts are necessary. European citizenship and European identity should be developed and advanced by encouraging citizens’ understanding of the policy-making process, and by promoting civic engagement in the actions of the Union. Remembrance activities and critical reflection on Europe’s historical memory are necessary to make citizens aware of the common history, and to lay the foundation for a common future and shared values. Furthermore, supporting civil society organisations at local, regional, national and transnational level in the areas covered by the Programme will contribute to increasing citizens’ engagement in society and ultimately to their active involvement in the democratic life of the Union. At the same time, supporting activities that promote mutual understanding, intercultural dialogue, cultural and linguistic diversity, social inclusion and respect for others fosters a sense of belonging to the Union and of a common citizenship under a European identity, based on a shared understanding of our common European values, culture, history and heritage.

(23) Civil society organisations, and other civic space actors, such as independent human rights bodies, equality bodies and Ombudspersons Institutions, play a vital role in contributing to the implementation of policy, encouraging people’s participation, holding institutions accountable, and driving positive change. The Programme should help ensure sufficient resources and an enabling environment for them to operate independently, freely, safely, and effectively. To this end, Union funding should complement efforts at national level by supporting, protecting, empowering and building their capacity, as emphasised in the European Parliament resolution of 19 April 2018 21 , as well as Council conclusions of 10 March 2023 22 and 7 March 2025 23 . Civil society also plays an important role in ensuring an effective implementation of Directive (EU) 2019/1937 of the European Parliament and of the Council 24 by fostering a speak-up culture and a favourable environment for whistleblowers.

(24) The Court of Justice of the European Union has confirmed that the Union is a legal structure that is based on the fundamental premise that each Member State shares with all the other Member States, and recognises that they share with it, the common values contained in Article 2 TEU, on which the Union is founded 25 . That premise is based on the specific and essential characteristics of Union law, including the autonomy it enjoys in relation to the laws of the Member States and to international law. That premise implies and justifies the existence of mutual trust between the Member States that those values will be recognised and, therefore, that the Union law that implements them will be respected. It follows that compliance by a Member State with the values contained in Article 2 TEU is a condition for the enjoyment of all the rights deriving from the application of the Treaties to that Member State. The Court of Justice of the European Union has therefore confirmed that in the areas for which the Union is competent, it can take action to ensure respect for the values set out in Article 2 TEU. 

(25) At a time when European societies face challenges that affect democracies, such as raise of extremisms and intolerance, disinformation and foreign information manipulation and interference by hostile actors, it is crucial that Union values such as respect for fundamental rights, equality and democracy, continue to be actively cultivated, protected, promoted, enforced, and shared among citizens and peoples, so that those values remain at the heart of the Union project. A deterioration in their protection in any Member State can have detrimental effects on the Union as a whole. It is therefore crucial that this Programme contributes to protecting Union values, including respect for fundamental rights, equality and democracy.

(26) In light of increasing risks linked to natural hazards, climate and environmental disasters, health emergencies, technological accidents, evolving security threats, and other disruptions, it is essential to enhance the Union’s and Member States’ capability to anticipate, prepare for, and respond to crises. The Programme should therefore support citizens’ education and engagement on crisis preparedness thus enhancing societal resilience. 

(27) Hence, the Programme should also support actions aiming at safeguarding and strengthening democracy in the Union, reinforcing public trust in democracy and democratic institutions, strengthening democratic preparedness and resilience, fostering citizens’ engagement, participation and awareness of common history and values, thereby supporting citizens’ exercise of their rights, including their electoral rights, in full respect of Member States’ competences in the organisation of elections. The Programme should also contribute to fostering critical thinking, civic participation and democracy through education as a lifelong effort, so that all citizens have the skills to recognise foreign information, manipulation and interference and disinformation.

(28) The Programme should foster synergies and complementarity with Global Europe as it will contribute to the advancement of the Union’s international cultural relations and to the Union’s external action objectives through cultural cooperation.

(29) The Programme should also support the financing of technical and organisational support for the implementation of Regulation (EU)2019/788 of the European Parliament and of the Council 26 , thereby underpinning the exercise by citizens of the right to launch and support European citizens’ initiatives. Together with the other rights set out in Article 24 TFEU, that right ensures citizens’ direct participation in the democratic life of the Union.

(30) To ensure consistency, the budgetary guarantee and financial instruments under the Programme, including when combined with other forms of non-repayable support in blending operations, should be implemented in accordance with the applicable rules of the European Competitiveness Fund (ECF) InvestEU Instrument through agreements concluded for that type of support under the ECF InvestEU Instrument.

(31) Where Union support under the Programme is to be provided in the form of a budgetary guarantee or a financial instrument, including where combined with non-repayable support in a blending operation, it is necessary that such support is provided exclusively through the ECF InvestEU Instrument in accordance with the applicable rules of the ECF InvestEU Instrument.  

(32) The Commission should be able to divide budgetary commitments into annual instalments. In that case, the Commission should commit the annual instalments during the implementation of the Programme, taking into account the progress of the actions that receive financial assistance, their estimated needs and the budget available.

(33) Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council 27 applies to the Programme. It lays down the rules on the establishment and the implementation of the general budget of the Union, including the rules on grants, prizes, non-financial donations, procurement, indirect implementation, financial assistance, financial instruments and budgetary guarantees.

(34) In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council 28 , Council Regulation (EC, Euratom) No 2988/95 29 , Council Regulation (Euratom, EC) No 2185/96 30 and Council Regulation (EU) 2017/1939 31 , the financial interests of the Union are to be protected through proportionate measures, including the prevention, detection, correction and investigation of irregularities and fraud, the recovery of funds lost, wrongly paid or incorrectly used and, where appropriate, the imposition of administrative sanctions. In particular, in accordance with Regulations (EU, Euratom) No 883/2013 and (Euratom, EC) No 2185/96, the European Anti-Fraud Office (‘OLAF’) may carry out investigations, including on-the-spot checks and inspections, with a view to establishing whether there has been fraud, corruption or any other illegal activity affecting the financial interests of the Union. In accordance with Regulation (EU) 2017/1939, the European Public Prosecutor's Office (EPPO) may investigate and prosecute fraud and other illegal activities affecting the financial interests of the Union as provided for in Directive (EU) 2017/1371 of the European Parliament and of the Council 32 . In accordance with Regulation (EU, Euratom) 2024/2509, any person or entity receiving Union funds is to fully cooperate in the protection of the Union’s financial interests, to grant the necessary rights and access to the Commission, OLAF, EPPO and the European Court of Auditors and to ensure that any third parties involved in the implementation of Union funds grant equivalent rights.

(35) The Programme is to be implemented in accordance with Regulation (EU) [XXX]* of the European Parliament and of the Council [Performance] which establishes the rules for the expenditure tracking and the performance framework for the budget, including rules for ensuring a uniform application of the principles of ‘do no significant harm’ and gender equality referred to in Article 33(2), points (d) and (f), of Regulation (EU, Euratom) 2024/2509 respectively, rules for monitoring and reporting on the performance of Union programmes and activities, rules for establishing a Union funding portal, rules for the evaluation of the programmes, as well as other horizontal provisions applicable to all Union programmes such as those on information, communication and visibility, while taking into account the scope and nature of the activities and priorities. 

(36) The Programme should also support the role of Programme Desks, which Member States have the possibility to establish, and which should provide guidance and assistance to applicants on funding opportunities and cross-border collaborations, contributing to the Programme’s outreach visibility and dissemination in accordance with Regulation (EU) [XXX]* of the European Parliament and of the Council [Performance]. Programme Desks should carry out their functions independently and without interference from public authorities in their decision making, and ought not to have any responsibility regarding the management of the programme 33 .

(37) Pursuant to Article 85(1) of Council Decision (EU) 2021/1764 34 , persons and entities established in overseas countries and territories are eligible for funding subject to the ruled objectives of the Programme and possible arrangements applicable to the Member State to which the relevant overseas country or territory is linked.

(38) Participation of third countries in the ‘Audiovisual’ specific objective requires a certain level of reciprocity and regulatory alignment. For this reason, the situation of their audiovisual markets, the proximity of their legal frameworks with the Union audiovisual media acquis, in particular Directive 2010/13/EU, and the access to their support schemes should be taken into consideration when concluding Association Agreements. This is of particular importance concerning other European countries, whose audiovisual works benefit from the provisions of Directive 2010/13/EU that promote European works, notably the quotas system. In the specific case of acceding countries, candidate countries and potential candidates, the requirement to align their national legislations with Directive 2010/13/EU was already included in Regulation (EU) 2021/818 establishing the Creative Europe Programme. This condition has been an efficient incentive to accelerate their work on the overall alignment with the EU acquis in view of accession.

(39) Since the objectives of this Regulation cannot be sufficiently achieved by the Member States but can rather, by reason of the transnational nature of the challenges, be better achieved at Union level, the Union may adopt measures, in accordance with the principle of subsidiarity, as set out in Article 5 TEU. In accordance with the principle of proportionality, as set out in that Article, this Regulation does not go beyond what is necessary in order to achieve those objectives.

(40) This Regulation establishes the Programme for 2028 to 2034, which succeeds to the Programmes established by Regulations (EU) 2021/692 and (EU) 2021/818 for 2021 to 2027. Regulations (EU) 2021/692 and (EU) 2021/818 should therefore be repealed,