In the 21st century, you should always scan documents that exist in a digital version.
The EU Council is one of the organisations that has understood this credo, and so they have scanned (in black and white) the draft executive version of a document that must have existed in a digital version, because the final "Study on the feasibility of establishing specialized branches of Frontex" is available in colour PDF in its final version.
But why not scan everything that is already existing digitally?
PS.: But maybe the draft executive version contains details that have been erased from the final version and they don't want that anybody finds them if the document isn't searchable? (Just a thought.)