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Empowerment is key to European Union (EU) and UK policy in social exclusion discourse, but it remains poorly defined and debated. This study takes a fresh look at the concept of empowerment. It examines it within the context of increased globalization and policy emphasis on human rights, and sets it against growing acceptance of an individual's responsibility for their own destiny. Based on the experience of the EU INTEGRA programme, the project gathered data from stakeholder groups involved in empowerment processes. Over 70 indicators of empowerment experienced through community-based interventions to combat social exclusion were identified. This widens the discourse beyond identifying empowerment simply with participation. The report also identifies 14 "prime indicators" which have particular significance for measuring changes in the balance of power. "Empowerment indicators" should be of particular use to practitioners developing new project interventions where empowerment and empowering approaches are required, and for those developing policies addressing inclusion and social coherence.