Digital personnel file software: GDPR-compliant HR files in your DMS
Digital personnel file software stores all documents relating to employees in a structured, access-protected electronic file with deletion periods, from the application to the time after the employee leaves.
AWP Consult implements the electronic personnel file as a certified enaio partner with enaio, the document management system that many companies already use for invoices, contracts and correspondence. Your payroll and HR software stays in place, the file is added alongside it.
- Contract
- Pay
- Qualifications
- Time
- Health
- Exit
Key facts at a glance
- A digital personnel file is the electronic collection of all documents relating to an employee, organised into sections and document types to which access rights as well as retention and deletion periods are attached.
- Under Section 83(1) of the German Works Constitution Act (BetrVG), employees may inspect their personnel file and involve a member of the works council. Under Section 83(2) BetrVG, their own statements on its content must be added to the file on request.
- Under Art. 12(3) of the General Data Protection Regulation (GDPR), information requested under Art. 15 GDPR must be provided without undue delay and at the latest within one month, and it includes a copy of the stored data.
- Where a works council (Betriebsrat) exists, introducing an electronic personnel file is as a rule subject to co-determination under Section 87(1) No. 6 of the German Works Constitution Act (BetrVG).
- Under Section 41(1) of the German Income Tax Act (EStG), the payroll account must be retained until the end of the sixth calendar year after the last recorded wage payment. For application documents, the two-month period under Section 15(4) of the German General Equal Treatment Act (AGG) is a common benchmark.
- AWP Consult runs the digital personnel file in enaio, alongside your existing payroll and HR software, with integration to DATEV, SAP and the digital salary portal.
We will show you what this looks like with enaio in your organisation.
Does a digital personnel file need its own HR suite?
No, a digital personnel file does not need its own HR suite: if payroll, time recording and applicant management are already running, the personnel file in the document management system is the shorter route, because enaio handles documents, audit-proof storage, permissions and deletion periods while the specialist systems supply their master data via interfaces. Many vendors sell the digital personnel file as part of a complete HR suite. That works if you want to replace your HR software anyway. Usually the situation is different: payroll, time recording and applicant management are already running, only the documents are still in suspension files, on network drives and in email inboxes.
In this case, the personnel file in the DMS is the shorter route. enaio takes care of the documents, audit-proof storage, permissions and deletion periods. Your specialist systems supply master data and payslips via interfaces. If the personnel file is to become part of a wider document strategy, we clarify the target picture and sequence in an enterprise content management consultancy.
Personnel files, contract management, digital project files and the invoice archive sit in the same system, with uniform rules for retention and access.
Personnel number, name, cost centre and start date come from the leading system.
Documents are stored unalterably, as in archiving software, and access is logged.
Applicant management, leave workflow, onboarding and the salary portal can be added step by step.
In the HR demo you see the digital personnel file in enaio, and we clarify which master data your payroll or HR system can supply.
- Sections and document types
- Rights down to document type
- Integration with DATEV or SAP
How is a digital personnel file structured?
A digital personnel file is organised into sections such as application, contract, pay, qualifications, absence, disciplinary measures, health and exit, and within the sections it works with document types to which access rights, metadata and deletion periods are attached, so that health data is kept separately with tightly restricted access. The file structure is based on a file plan that we develop with you during the analysis. A structure of sections modelled on the familiar paper file has proven effective. Within the sections, the digital file works with document types to which rights and periods are attached.
| Section | Typical document types | Access (example) |
|---|---|---|
| Application and hiring | Application documents, personnel questionnaire, certificates | HR department, involved manager |
| Contract | Employment contract, fixed-term agreement, amendments, written statement of essential terms of employment | HR department |
| Pay | Payslips, annual wage tax statements, wage garnishments, certificates | HR department, payroll |
| Qualifications and development | References, certificates, training records, target agreements | HR department, manager for released documents |
| Time and absence | Leave requests, parental leave, special leave | HR department, manager |
| Disciplinary measures | Formal warnings, counterstatements, reprimands | HR department |
| Health | Health data, separate from the rest of the file | Separate area with tightly restricted access |
| Exit | Notice of termination, termination agreement, employment reference, exit documents | HR department |
Sample structure. You define sections, document types and rights together with the HR department, works council and data protection.
Permissions: who sees what?
The permission concept is role-based. It is developed together with the HR department, the works council and the data protection officer and can be broken down to individual document types.
HR department
Sees the complete file of the employees they are responsible for, maintains documents and monitors deadlines.
Managers
See only documents released to them, such as target agreements or leave requests from their team. Health data stays hidden.
Works council
Gets access only where your concept and your works agreement provide for it. An audit trail records every access.
What does a digital personnel file need legally and organisationally?
A digital personnel file needs six decisions before the start: document types with the form each requires, a procedure for inspection and access requests, a separate area for special categories under Art. 9 of the General Data Protection Regulation (GDPR), a works agreement, deletion rules with a trigger event and a plan for legacy files and interfaces. It is half technology and half rulebook. The following sections summarise which rules you should define before the start. They do not replace legal advice, but they show what matters when coordinating with the works council and data protection.
Together with the HR department, works council and data protection, we develop the file plan, rights and deletion rules for your digital personnel file.
Request a consultation +49 6104 94738-1301
Section structure and document types
Sections organise the file for people. Document types control it for the system. Each document type carries its own metadata, a rights class and a deletion rule. Typical fields are personnel number, document type, document date, valid until and confidentiality level.
Under German employment law, a substantive concept of the personnel file applies: the personnel file includes all documents about an employee, wherever they are kept. Secondary files in departments therefore belong in the concept.
- Statement of employment terms may since 2025 be sent electronically in text form under certain conditions under Section 2(1) of the German Act on Evidence of Employment Conditions (NachwG), with a request for confirmation of receipt. This does not apply to sectors listed in Section 2a SchwarzArbG (Act to Combat Undeclared Work).
- Fixed-term agreement requires the written form under Section 14(4) of the German Part-Time and Fixed-Term Employment Act (TzBfG). The signed original should be kept, even if the file is digital.
- Employment reference may be issued in electronic form with the employee's consent under Section 109(3) of the German Trade Regulation Act (GewO).
Create a few clearly defined document types rather than many finely differentiated ones. Otherwise, anything nobody can assign clearly ends up in “Other” without a deletion rule.
02
Inspection under Section 83 BetrVG and access under Art. 15 GDPR
Two entitlements run in parallel. Under Section 83(1) of the German Works Constitution Act (BetrVG), employees may inspect their personnel file and involve a member of the works council. Under Section 83(2) BetrVG, their own statements on its content must be added on request. Art. 15 of the GDPR additionally grants access to all stored data and a copy, including data outside the actual file.
Under Art. 12(3) of the GDPR, access must be provided without undue delay, at the latest within one month, extendable by two further months in justified cases. Under Art. 15(4) GDPR, the rights of other persons must not be adversely affected. Names of colleagues in complaints or witness statements are therefore checked before disclosure and redacted where necessary.
Prepare a fixed procedure for access requests: document receipt, export the file and secondary sources, check third-party data, log the disclosure. This keeps the one-month deadline manageable even with several requests.
03
Special categories under Art. 9 GDPR
Health data and information revealing religious beliefs are special categories of personal data under Art. 9(1) of the General Data Protection Regulation (GDPR). In the personnel file, this concerns, for example, sick notes, documents on a severe disability or on occupational reintegration management (BEM), and the religious denomination that results from the church tax attribute.
Processing is permitted for employment purposes if it is necessary to fulfil obligations under employment or social security law and no overriding interests stand against it (Art. 9(2)(b) GDPR in conjunction with Section 26(3) of the German Federal Data Protection Act (BDSG)). Section 26(5) BDSG requires appropriate measures to ensure compliance with the principles of Art. 5 GDPR.
- Separate storage a separate section or sub-file for health data, not mixed with performance and contract documents.
- Small circle only named persons in the HR department, managers generally without access.
- Log every access is recorded in the audit trail.
In practice, documents on occupational reintegration management are usually kept separately from the personnel file. Clarify this explicitly in the works agreement.
04
Co-determination and works agreement
Under Section 87(1) No. 6 of the German Works Constitution Act (BetrVG), the works council has a say in the introduction and use of technical equipment designed to monitor the behaviour or performance of employees. According to case law, the objective suitability for this is sufficient. An electronic personnel file with logging and search functions generally meets this criterion.
A works agreement that describes the system specifically is customary. It creates legal certainty for both sides and is also part of your data protection documentation.
- Purpose of the file and distinction from other systems
- Document types, sections and roles with their rights
- Evaluation of access logs only for a specific reason and under a defined procedure
- Deletion and retention rules per document type
- Interfaces to payroll, time and applicant systems
- Procedure for inspection, counterstatements and changes to the system
Involve the works council as early as the file plan, not only once the configuration is finished. Changes to roles are easy in the concept phase and laborious after the rollout.
05
Deletion periods and formal warnings
There is no explicit retention period for application documents of rejected candidates, but the periods of the German General Equal Treatment Act (AGG) do apply. Under Section 15(4) AGG, claims for discrimination must be asserted in writing within two months of receipt of the rejection. After that, Section 61b(1) of the German Labour Courts Act (ArbGG) allows three months to file a claim. Many companies therefore delete a few months after the rejection. Under Section 41(1) of the German Income Tax Act (EStG), the payroll account must be retained until the end of the sixth calendar year after the last entry.
There is no fixed deletion period for formal warnings. According to the German Federal Labour Court (BAG) (judgment of 19 July 2012, 2 AZR 782/11), removal of a justified warning can be demanded if the conduct complained of has become irrelevant to the employment relationship in every respect. A follow-up reminder for review therefore makes more sense than automatic deletion.
Link deletion rules to the exit date from the payroll system. The periods then start automatically with the correct event.
06
Digitising legacy files and connecting systems
There are two proven routes for paper files: scan all existing files in one project, or keep new documents digitally from a cut-off date and add existing files when a need arises. In both cases, documents are separated by document type during scanning, for example with separator sheets or barcodes with the personnel number, and spot checks are carried out.
You decide per document type whether paper originals are destroyed after scanning. Documents subject to a written form requirement or with high evidential value remain in the original. For all others, the Technical Guideline TR-RESISCAN of the German Federal Office for Information Security (BSI) describes a regulated procedure.
The interface to the payroll system supplies personnel number, name, organisational unit and start and exit dates. Payslips and certificates arrive as documents in the pay section.
Start digitisation with the files of active employees. Check the files of former employees for expired periods beforehand, because anything that may be deleted does not need to be scanned.
How does a digital personnel file implement GDPR and deletion periods?
A digital personnel file implements the GDPR and deletion periods by giving each document type a defined retention period, by having the system propose and document deletion once it expires, by restricting and logging access based on roles, and by allowing access requests under Art. 15 GDPR to be compiled quickly from a complete file. Personnel files contain particularly sensitive data. The General Data Protection Regulation (GDPR) requires you to store only what you need for the employment relationship and to delete data as soon as the purpose no longer applies and there is no longer a retention obligation (Art. 5 and Art. 17 GDPR). With paper files, this usually fails in practice, because nobody reviews every file regularly.
In enaio, deletion is a rule in the system. Whoever creates a document type also defines how long it is retained and what happens afterwards. The overarching rules are described on our page on GDPR-compliant document management.
For each document type, the retention period is stored. When it expires, enaio proposes deletion.
The deletion is documented and the proof is archived in an audit-proof manner.
Documents of rejected applicants are proposed for deletion after the period you have defined.
If an employee requests access, you compile the stored documents in minutes instead of days.
Data is stored encrypted, and access is traceable in the audit trail.
How long must HR documents be retained?
HR documents must be retained for different periods depending on the document, because there is no single period for the entire personnel file: the payroll account until the end of the sixth calendar year after the last entry, payslips as accounting vouchers generally for eight years, and many other documents only as long as they are needed. Some periods are set out in law, others result from limitation and preclusion periods and from your deletion concept. The overview lists the established key points.
| Document | Period | Basis |
|---|---|---|
| Payroll account | Until the end of the sixth calendar year following the last recorded wage payment | § 41(1) EStG (Income Tax Act) |
| Wage and salary statements as accounting vouchers | Since 2025 generally eight years, from the end of the calendar year | § 147 AO (Fiscal Code) |
| Application documents of rejected candidates | No fixed period. AGG claims must be asserted within two months of receipt of the rejection, legal action within a further three months. Deletion a few months after the rejection is customary | § 15(4) AGG, § 61b ArbGG, Art. 17 GDPR |
| Formal warnings | No fixed period. Removal once the conduct has become irrelevant in every respect | BAG (Federal Labour Court), 2 AZR 782/11 |
| Other documents in the personnel file | As long as they are needed for the employment relationship, legal obligations or possible claims | Art. 5 and Art. 17 GDPR, deletion concept |
Not legal advice. You agree the specific periods per document type with your tax adviser and data protection. enaio then monitors them automatically. Payslips as accounting vouchers are subject to the same requirements as a GoBD-compliant DMS.
Not sure where to start? We will assess your starting position.
Book an initial call +49 6104 94738-13What inspection and access rights do employees have?
Employees have two rights that apply in parallel: the right to inspect their own personnel file under Section 83 of the German Works Constitution Act (BetrVG), with a member of the works council if they wish, and the right of access under Art. 15 of the General Data Protection Regulation (GDPR) to all stored personal data, including a copy. The works council member involved must keep the content confidential unless released from this obligation in the individual case. Employees' statements on the content of the file must be added at their request.
The digital file makes both easier: it is complete, can be provided in an orderly way, and counterstatements are kept as a separate document in the file.
How the digital file makes inspection easier
A complete file instead of scattered folders and inboxes
Inspection on screen, with a works council member if desired
Counterstatements as a separate document in the file
Traceable who accessed the file and when
Together with you, we draft the permission and deletion concept so that you can agree it with the works council and the data protection officer.
How is the personnel file connected to payroll software and HR systems?
The personnel file is connected to payroll software and HR systems via interfaces that supply personnel number, name, organisational unit and start and exit dates and automatically assign payslips and certificates to the correct file, for example from DATEV, SAP, Sage, Microsoft Dynamics 365 or proALPHA. The personnel file is only as up to date as its connection to the systems in which personnel data is created. enaio exchanges data with your existing programs via flexible interfaces. Payslips from the payroll or ERP system land automatically in the correct file.
DATEV
Payslips and payroll documents from DATEV are assigned to the correct personnel file, without renaming and moving files.
SAP
Personnel data and documents are linked via the enaio SAP interface and can be accessed from both systems.
enaio SAP interfaceSage, Dynamics 365, proALPHA
Other payroll and ERP systems can also be connected. We check your interface before the project starts.
Outlook and scanning
Applications, certificates and correspondence arrive in the file by email or scan. Paper files are digitised step by step.
Replacement scanningSounds right for your company? Let's talk about it.
Which HR processes run in the file, from application to exit?
From application to exit, five HR processes run in the file: applicant management, onboarding with digitally signed documents, follow-up reminders and a leave workflow during employment, the creation of employment references, and the exit with subsequent retention and deletion periods per document type. The digital personnel file is more than an archive. Workflows in enaio generate documents, distribute tasks and send reminders of deadlines. This way, the file largely builds itself while the processes run.
01
Applicant management
Applications are recorded and compared with the requirements profile in a target/actual comparison. Workflows send invitations, rejections and contracts. When someone is hired, the documents move into the personnel file.
02
Onboarding
Employment contract, data protection notices and briefings are digitally signed and filed. The workflow requests missing mandatory documents.
03
Ongoing employment
Follow-up reminders flag the end of fixed terms, probationary periods and training obligations. A leave workflow manages requests, and subscriptions provide notification of contract changes.
04
Employment reference
Interim and final references can be created in a workflow with input from the manager and approval by the HR department. The finished reference is immediately in the file.
05
Exit and deletion
An offboarding workflow bundles the exit steps and documents. After that, retention and deletion periods run per document type.
More on the individual processes: applicant management and onboarding and digital reference creation.
Book an HR demoHow do documents from the personnel file reach employees?
Documents from the personnel file reach employees via dedicated AWP Consult portals, without employees needing access to enaio: payslips via the digital salary portal, training via the digital learning portal and exchanges with external parties via the link and upload portal. Many enquiries to the HR department are about documents: the latest payslip, a certificate, a training record. The portals connect the personnel file with employees, without employees needing access to enaio.
Digital salary portal
Employees receive payslips and the annual wage tax statement in a personal area and are notified by email as soon as a new document is available.
Digital salary portalDigital learning portal
Online training and instruction with progress checks. Combined with the enaio personnel file, certificates can be filed directly in the file.
Digital learning portalLink and upload portal
External parties upload documents via a link and password instead of sending them unencrypted by email. Access has limited validity.
AWP Link and Upload PortalCommon mistakes when introducing a digital personnel file
These mistakes cost the most time in HR projects. Almost all of them can be avoided before the rollout.
Paper file replicated one to one
- Consequence
- Folders without document types, no automatic periods, rights only on entire files.
- Better
- Sections for orientation, document types for rights and deletion rules.
Health data in the general section
- Consequence
- Managers or deputies see data covered by Art. 9 GDPR.
- Better
- Separate area with a small circle and logging.
Works council informed only at rollout
- Consequence
- Delays due to renegotiation, rights and logs have to be rebuilt.
- Better
- Involve the works council from the file plan onwards and develop the works agreement in parallel.
Deletion periods without a trigger event
- Consequence
- Periods never start or start from the wrong date.
- Better
- Use the exit date or rejection date from the leading system as the trigger.
Scanning everything, even expired files
- Consequence
- High effort for documents that ought to be deleted.
- Better
- Check existing files for expired periods before scanning.
Secondary files forgotten
- Consequence
- Access requests under Art. 15 GDPR remain incomplete.
- Better
- Capture all storage locations with a personnel reference and transfer them into the file or dissolve them.
How is a digital personnel file introduced with the works council and data protection?
A digital personnel file is introduced in four steps: analysis and file plan, agreement of the permission and deletion concept with the HR department, works council and data protection, a pilot area with digitisation of existing files, and then rollout and training, with the works council and data protection officer involved from the start. An electronic personnel file is a technical system that can be used to evaluate data about employees. Where a works council (Betriebsrat) exists, its introduction is therefore as a rule subject to co-determination under Section 87(1) No. 6 of the German Works Constitution Act (BetrVG). We involve the works council from the start, as well as your data protection officers.
01
Analysis and file plan
We record document types, sections, responsibilities and interfaces and create the file plan.
02
Rights and periods
The permission and deletion concept is agreed with the HR department, works council and data protection.
03
Pilot and digitisation
One area starts. Existing paper files are scanned and organised by document type, often step by step.
04
Rollout and training
Further areas follow. The HR department and managers are trained.
More on this: enaio implementation and training
How long will it take in your case? We will estimate it with you.
Request an estimate +49 6104 94738-13Glossary: terms relating to the digital personnel file
The key terms from employment law, data protection and records management, briefly explained.
01
Electronic personnel file
Digital collection of all documents relating to an employee, organised into sections and document types, with rights and periods.
02
Substantive personnel file
All documents about an employee, regardless of where they are kept. Secondary files are also included.
03
Document type
Category such as employment contract or formal warning, to which metadata, access rights and a deletion rule are attached.
04
Right of inspection
Right of employees under Section 83 of the German Works Constitution Act (BetrVG) to inspect their own personnel file, with a works council member if they wish.
05
Right of access
Right under Art. 15 of the GDPR to information about all stored personal data and to a copy.
06
Special categories
Data under Art. 9 GDPR, for example health data or information on religious beliefs. It requires its own legal basis and increased protection.
07
Counterstatement
Statement by the employee on the content of the file, which must be added on request under Section 83(2) of the German Works Constitution Act (BetrVG).
08
Deletion concept
Set of rules that defines per document type how long data is stored and when it is deleted.
09
Payroll account
Record of wage payments and deductions that the employer must keep under Section 41 of the German Income Tax Act (EStG).
10
Audit trail
Complete log of who opened or changed which file or document and when.
Together with you, we outline which area you start with, how the paper files are digitised and when further areas follow.
Sources and legal basis
The legal statements on inspection, co-determination, data protection and retention are based on the following official sources. Review status: October 2026.
- § 83 BetrVG German Works Constitution Act: inspection of personnel files
- § 87 BetrVG Co-determination rights, para. 1 no. 6
- General Data Protection Regulation (EU) 2016/679 Official full text, including Art. 9, 12, 15 and 17
- § 15 AGG German General Equal Treatment Act: compensation and damages, deadline under para. 4
- § 41 EStG German Income Tax Act: recording obligations and retention of the payroll account
- § 147 AO German Fiscal Code: retention periods for accounting vouchers
Frequently asked questions about the digital personnel file
Your question about inspection, deletion periods or the works council is not listed? Call us or write to us, and we will answer personally.
We show the personnel file in enaio and go through your sections, rights and interfaces to the payroll software together.
Book an HR demo +49 6104 94738-13What is a digital personnel file?
A digital or electronic personnel file contains all documents relating to an employee in electronic form. It is organised into sections and document types to which access rights and deletion periods are attached. It replaces the paper file and is stored in an audit-proof manner. Every access is logged.
Which digital personnel file software is GDPR-compliant?
A solution is GDPR-compliant if it enables role-based rights, deletion periods per document type, logging, encryption and fast access requests under Art. 15 GDPR. It must be possible to store health data separately with tightly restricted access. But the configuration is also decisive: no system helps if everyone can see everything. With enaio, we implement these points and agree them with your data protection officer.
Do I need new HR software for the electronic personnel file?
No. The personnel file in the DMS complements your existing payroll and HR software. Master data such as personnel number, organisational unit and exit date comes via interfaces. enaio handles storage, rights, periods and workflows. Nobody has to learn new HR software just because the paper file is to disappear.
What belongs in a digital personnel file?
All documents required for the employment relationship: contract, pay, qualifications, absences, disciplinary measures and exit. Health data belongs in a separate area with tightly restricted access. Managers' private notes do not belong in it. Under employment law, secondary files also count as part of the personnel file, so they should be dissolved or integrated.
May employees inspect their digital personnel file?
Yes. Under Section 83 of the German Works Constitution Act (BetrVG), employees may inspect their personnel file and involve a member of the works council. Their own statements on its content must be added on request. In addition, there is the right of access under Art. 15 GDPR, including the right to a copy. The information must be provided without undue delay and at the latest within one month.
How long do I have to retain HR documents?
That depends on the document. The payroll account must be retained until the end of the sixth calendar year after the last entry (Section 41 of the German Income Tax Act, EStG), and payslips as accounting vouchers generally for eight years (Section 147 of the German Fiscal Code, AO). For application documents, many companies are guided by the periods in Section 15(4) of the German General Equal Treatment Act (AGG) and Section 61b of the German Labour Courts Act (ArbGG). For many other documents, you set the period in the deletion concept.
How do I handle health data in the personnel file?
Health data falls under the special categories of Art. 9 GDPR. It belongs in a separate area to which only a small, named group of people has access. The legal basis is usually Art. 9(2)(b) GDPR in conjunction with Section 26(3) of the German Federal Data Protection Act (BDSG). In practice, documents on occupational reintegration management are usually kept separately.
Does the works council have to approve the digital personnel file?
Where a works council exists, introducing the file is as a rule subject to co-determination under Section 87(1) No. 6 of the German Works Constitution Act (BetrVG), because the system is objectively suitable for monitoring behaviour or performance. A works agreement is customary. It regulates purpose, roles, evaluation of logs, interfaces and deletion periods. The earlier the works council is involved, the more smoothly the project runs.
How long may a formal warning remain in the personnel file?
There is no fixed period. According to the German Federal Labour Court (BAG), removal of a justified warning can be demanded if the conduct complained of has become irrelevant to the employment relationship in every respect. In the digital file, a follow-up reminder for review therefore works better than automatic deletion. Employees' counterstatements are added as a separate document.
Is an audit-proof personnel file also worthwhile for small companies?
Yes, especially where a small HR department handles many tasks. Follow-up reminders, deletion periods and access requests run automatically and do not depend on the memory of individuals. With enaio Cloud, there is also no need to run your own servers. You can start with just a few sections and document types.
How do existing paper files get into the digital personnel file?
Paper files are scanned and organised by document type, for example with separator sheets or barcodes. Many companies proceed step by step: new documents digital straight away, existing files by area or at the next occasion. Before scanning, it is worth checking for expired periods. Documents subject to a written form requirement, such as fixed-term agreements, are additionally kept in the original.
I am looking for GDPR-compliant HR document management. What matters?
A role-based permission concept down to document types, deletion periods with proof of deletion, a complete audit trail and encryption. In addition, a separate area for health data, operation in German data centres and interfaces to the payroll software. We review these requirements together with you and your data protection officer during the analysis.
Your personnel file, properly digitised
In an HR demo, we show you the digital personnel file with enaio and discuss the file plan, permissions, deletion periods and the integration with your payroll software.
- In person in Dietzenbach or online
- With HR and data protection
- Result: a specific project proposal