Forslag til EUROPA-PARLAMENTETS OG RÅDETS FORORDNING om oprettelse af et globalt Europa

EN EN
EUROPEAN
COMMISSION
Brussels, 16.7.2025
COM(2025) 551 final
ANNEXES 1 to 2
ANNEXES
to the
Proposal for a
REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL
establishing Global Europe
{SEC(2025) 548 final} - {SWD(2025) 552 final} - {SWD(2025) 553 final}
Offentligt
KOM (2025) 0551 - Forslag til forordning
Europaudvalget 2025
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ANNEX I – List of countries and territories
Annex I.A - Europe
Enlargement and Neighbourhood East area
Armenia
Azerbaijan
Bosnia and Herzegovina
Georgia
Iceland
Kosovo*
Montenegro
The Republic of Albania
The Republic of Moldova
The Republic of North Macedonia
The Republic of Serbia
The Republic of Türkiye
Ukraine
Union support under this area may also benefit Russian/Belarussian independent civil society
and independent free media, in full compliance with Union restrictive measures
Other European countries
Principality of Andorra
Principality of Liechtenstein
Principality of Monaco
Kingdom of Norway
Republic of San Marino
Swiss Confederation
United Kingdom of Great Britain and Northern Ireland
Vatican City State
*
This designation is without prejudice to positions on status and is in line with UNSCR 1244/1999 and the
ICJ Opinion on the Kosovo declaration of independence.
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Annex I.B - Middle East, North Africa and the Gulf
Neighbourhood South
Algeria
Egypt
Israel
Jordan
Lebanon
Libya
Morocco
Occupied Palestinian Territory
Syria
Tunisia
Other countries
Bahrain
Iran
Iraq
Kuwait
Oman
Qatar
Saudi Arabia
United Arab Emirates
Yemen
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Annex I.C - Sub-Saharan Africa
Angola
Benin
Botswana
Burkina Faso
Burundi
Cabo Verde
Cameroon
Central African Republic
Chad
Comoros
Congo
Cote d’Ivoire
Democratic Republic of the Congo
Djibouti
Equatorial Guinea
Eritrea
Eswatini
Ethiopia
Gabon
Gambia (the)
Ghana
Guinea
Guinea-Bissau
Kenya
Lesotho
Liberia
Madagascar
Malawi
Mali
Mauritania
Mauritius
Mozambique
Namibia
Niger
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Nigeria
Rwanda
Sao Tomé and Príncipe
Senegal
Seychelles
Sierra Leone
Somalia
South Africa
South Sudan
Sudan
Tanzania
Togo
Uganda
Zambia
Zimbabwe
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Annex I.D - Asia and the Pacific
Afghanistan
Australia
Bangladesh
Brunei Darussalam
Bhutan
Cambodia
China (People’s Republic of)
Cook Islands
Democratic People’s Republic of Korea
Fiji
India
Indonesia
Japan
Kazakhstan
Kiribati
Kyrgyzstan
Lao People’s Democratic Republic
Malaysia
Maldives
Marshall Islands
Micronesia (Federated States of)
Mongolia
Myanmar
Nauru
Nepal
New Zealand
Niue
Pakistan
Palau
Papua New Guinea
Philippines
Samoa
Singapore
Solomon Islands
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South Korea
Sri Lanka
Taiwan1
Tajikistan
Thailand
Timor-Leste
Tonga
Turkmenistan
Tuvalu
Uzbekistan
Vanuatu
Vietnam
1
This designation should not be interpreted as reflecting any official position of the European Union with regard
to the legal status of Taiwan.
EN 7 EN
Annex I.E - Americas and the Caribbean
Antigua and Barbuda
Argentina
Bahamas (the)
Barbados
Belize
Bolivia
Brazil
Canada
Chile
Colombia
Costa Rica
Cuba
Dominica
Dominican Republic
Ecuador
El Salvador
Grenada
Guatemala
Guyana
Haiti
Honduras
Jamaica
Mexico
Nicaragua
Panama
Paraguay
Peru
Saint Kitts and Nevis
Saint Lucia
Saint Vincent and the Grenadines
Suriname
Trinidad and Tobago
United States of America
Uruguay
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Venezuela
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ANNEX II – Specific objectives
Annex II.A - Europe
(1) Preparing candidate countries and potential candidates for accession to Union
membership
a) Supporting the enlargement process by accelerating the alignment with Union
values, laws, rules, standards, policies and practices (‘acquis’) through the
adoption and implementation of reforms with a view to future Union
membership and through the process of gradual integration;
b) Strengthening the fundamentals of the enlargement process in line with the
enlargement policy framework, including democracy, the rule of law, economic
criteria, public administration reform, independent and efficient judiciary,
fundamental rights, public procurement, statistics and financial control, justice,
freedom, and security
c) Supporting the fight against organised crime, effectively strenghtening
migration management, countering irregular migration, supporting visa policy
alignment as well as effective border management and, where applicable,
preparation for Schengen accession;
d) Fostering regional economic integration and progressive integration into the
Union single market leading to improved neighbourly relations, a positive
appreciation of integration with the Union and reducing beneficiaries’ and the
Union’s strategic dependencies;
e) Accelerating the socio-economic and regulatory convergence of candidate
countries’ and potential candidates’ with the Union and their transition to
economies that are capable of withstanding competitive market pressures of the
Union single market, in particular through increased trade and investment flows,
and resilient and sustainable value chains providing decent jobs, and transition
to a digital and AI economy;
f) Accelerating the alignment of candidate countries and potential candidates with
the Union’s climate and environmental standards and supporting their
implementation;
g) Reinforcing the effectiveness of public administration, building local capacities
and investing in administrative staff in the beneficiary contries.Supporting
transparency, accountability, structural reforms and good governance at all
levels, including through the prevention of corruption and by strenghtening
engagement of public authorities with civil society actors. Improving national
control systems in view of accession, including as regards their powers of
oversight and inquiry over the distribution of and access to public funds as well
as in the areas of public financial management and public procurement and State
aid control;
h) Supporting territorial cohesion, cross-border cooperation across land and
maritime borders with a focus on the transport connections along the trans-
European transport network extended to neighbouring countries as defined in the
TEN-T Regulation 2024/1679, as well as agriculture and rural development;
i) Moving towards full alignment of candidate countries and potential candidates
with the Union Common Foreign and Security Policy, including Union
restrictive measures;
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j) Enhancing capacities for strategic communication, including to ensure public
support for and understanding of Union values and the benefits and obligations
of potential Union membership, while addressing foreign information
manipulation and interference and disinformation;
(2) Building mutually beneficial partnerships with the Union’s partners, including
candidate countries and potential candidates, contributing to the Union’s strategic
interests and promoting the Union’s values and a peaceful, stable, strong and united
Europe.
a) Promoting a strengthened partnership between the Union and the European
partner countries, and among the partner countries;
b) Supporting the implementation of association agreements or other existing and
future agreements, to support the conclusion and implementation of
comprehensive partnerships, including through providing financial support
against the achievement of results set out in relevant performance-based plans;
c) Reinforcing the rule of law, including the fight against and prevention of
corruption, and respect for human rights and fundamental freedoms, including
by combating discrimination and promoting gender equality and the women’s
and girls’ rights and empowerment and preventing and combating violence
against women and domestic violence. Facilitating judicial cooperation,
promoting children’s rights and the rights of persons with disabilities and
accessibility, strengthening the rights of victims of crime and contributing to the
strengthening of democracy and political stability;
d) Fostering good neighbourly relations, reconciliation, and the settlement of
disputes, and promoting peace, stability, security;
e) Preparing for and responding effectively to crisis, emerging crisis and post-crisis
situations; supporting peace, stability and conflict prevention;
f) Increasing stability and security; stepping-up cooperation with justice and law
enforcement institutions, on counter-terrorism, transnational organised crime,
terrorist and organised crime financing and anti-money laundering, the fight
against radicalisation and violent extremism, cyberthreats, the fight against
impunity, corruption;
g) Fostering regional economic cooperation and, where appropriate, a positive
appreciation of integration with the Union and reducing strategic dependencies
of the Union and of partner countries, including on energy, critical raw materials
and inputs, and health security;
h) Supporting sustainable and inclusive growth, private sector engagement, trade,
and investments in key infrastructure as well as research and innovation;
advancing the digital transition to unlock societal and economic opportunities
both within private and public sector; fostering skills development and decent
jobs;
i) Promoting social and cultural inclusion across borders, preserving and
promoting cultural and natural heritage, offering support to cultural and creative
sectors and industries, and sport;
j) Fostering the use of the Union’s single currency for trade, financial services and
investment within the region and with respect to the Union;
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k) Contributing to the resilience of partner countries, supporting and reinforcing
actions addressing the humanitarian-development-peace nexus, fragility
challenges and addressing reconstruction needs as well as balance of payment
crises;
l) Supporting Union competitiveness and flexibly responding to economic
challenges and opportunities;
m) Developing the digital economy and society with a particular focus on
supporting the rollout of secure and trusted digital infrastructure, developing data
and AI economies through support for the setting-up of AI Factories and shaping
AI to uphold democratic values and protect cultural diversity, promoting relevant
Digital Public Infrastructure and eGovernance solutions such as privacy-
preserving digital identity frameworks, strengthening cybersecurity and cyber
defence capabilities;
n) Fostering energy transition and promoting energy security; investing in energy
connectivity and renewable energies; promoting the use of clean energy sources
in industry and transport; promoting the integration of Union’s value chain;
o) Reinforcing environmental protection, increasing resilience to climate change,
accelerating the shift towards a climate neutral, positive biodiversity inclusive,
sustainable green, blue and circular economy, strengthening the fight against
environmental crime;
p) Strengthening economic and social development and inclusion, with particular
attention to women, children and youth, including through preventing brain
drain, supporting vulnerable communities, promoting equality, cultural
inclusion, quality education, training, reskilling and upskilling, and supporting
employment policies, labour rights and effective social protection systems;
q) Strengthening partnerships on well-managed and safe migration and mobility via
structured migration discussions and, where applicable and provided that
conditions for well-managed and secure mobility are in place, developing and
support the implementation of existing visa-free regimes, visa liberalisation
dialogues and bilateral or regional agreements and arrangements with partner
countries;
r) Fostering the establishment of people-to-people partnerships based on common
interests and promoting collaboration on education, culture, sport research and
innovation as well as the mutually beneficial mobility of people;
s) Empowering civil society and strengthening its capacity on the monitoring of the
implementation of reforms, supporting the creation of an enabling environment
for civil society organisations, promoting and strengthening pluralism,
independence and professionalism of a free and independent media, as well as
enhancing digital and media literacy;
t) Helping to mitigate challenges posed by Russia’s war of aggression against
Ukraine and attempts to destabilise partner countries, fight disinformation,
hybrid threats, and foreign information manipulation and interference, in
particular by Russia, against partner countries’ sovereignty, democratic
processes and institutions, as well as against the Union and its values.
u) Strengthening awareness, understanding and perception of the European Union
in partner countries through strategic communication.
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(3) Supporting Ukraine in light of the consequences of Russia’s war of aggression
a) Helping maintaining the macro-financial stability of Ukraine and easing its
external and internal financing constraints to ensure the continued functioning
of the Ukrainian state;
b) Supporting the recovery, reconstruction and modernisation of Ukraine, in line
with its accession path, by addressing the social, economic, security and
environmental consequences of Russia’s war of aggression in Ukraine and
contributing to the rebuilding of vital infrastructure, including energy, transport
and digital infrastructure, thereby contributing to social cohesion, resilience and
to the post-war recovery of free, culturally vibrant Ukrainian society, including
by supporting culture and cultural heritage and by creating the social and
economic conditions for internally displaced persons and persons under
temporary protection to go back to Ukraine once conditions allow,, and
reintegrating the veteran population.
c) Supporting accountability efforts in the context of Russia’s war of aggression,
including assistance to investigation and prosecution of international crimes
committed in and against Ukraine, notably in relation to the crime of aggression,
and to transitional justice and accountability mechanisms, including the Special
Tribunal for the Crime of Aggression against Ukraine.
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Annex II. B - Middle East, North Africa and the Gulf
(1) Enhancing strategic partnerships at regional and country level
a) Deepening partnerships with the Middle East, North Africa and Gulf regions
through a stronger political commitment and with a view to achieving a common
space of peace, prosperity and stability in the Mediterranean region;
b) Developing mutually beneficial tailored partnerships, including through formal
bilateral agreements and bilateral and regional dialogues, based on Union’s
leverage and local ownership, contributing to the Union’s strategic interests, and
promoting the Union’s values;
c) Support the implementation of association agreements or other existing and
future agreements and jointly agreed documents with the Southern
Neighbourhood countries as listed in Annex I;
d) Strengthening awareness, understanding and perception of the European Union
in partner countries through strategic communication.
(2) Strengthening security, peace, resilience, reconstruction and preparedness
a) Supporting and promoting peace, stability, security, crisis response, conflict
prevention, stabilization, mediation, political transition and reconciliation
efforts;
b) Supporting the needs related to socio-economic recovery, rehabilitation and
post-conflict reconstruction;
c) Contributing to the resilience of partner countries, supporting and reinforcing
actions addressing the humanitarian-development-peace nexus, fragility
challenges and addressing reconstruction needs as well as balance of payment
crises;
d) Support security in areas of common interest, such as health security, maritime
security, fight against organised crime counter-terrorism, and cyber security and
cyber capacity-building;
e) Stepping-up cooperation on terrorist and organised crime financing and anti-
money laundering, judicial cooperation, the fight against radicalisation and
violent extremism, hybrid and cyber threats, the fight against impunity,
corruption, organised crime and law enforcement;
f) Contributing to preventing the circumvention of Union restrictive measures.
(3) Promoting and protecting democracy, the rule of law, human rights, good governance,
human development and people to people relations
a) Strengthening public institutions and economic/democratic governance systems,
including through oversight, enforcement, and the prevention of and fight
against corruption and foreign interference; supporting effectiveness of public
finances, transparency and accountability;
b) Safeguarding the space for civil society, civic and non-state actors and
independent media; supporting the fight against foreign information
manipulation and interference, supporting local and regional capacities for
human rights protection, including national human rights institutions;
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c) Protecting and promoting human rights, gender equality, children’s rights, the
rights of persons with disabilities and fighting against child labour and
discrimination on any ground;
d) Enhancing quality and relevance of education, health and access to health
products and social protection systems; fostering universal health coverage;
e) Fostering the establishment of people-to-people partnerships based on common
interests and strengthening skills development through cooperation in the fields
of education, youth, research and innovation;
f) Empowering young people, creating decent jobs, supporting the creation of a
common space for learning, connecting skills, vocational education and training,
higher education, research and innovation;
g) Promoting mutual understanding through culture, media, sports and tourism;
h) Promoting the role of culture and intercultural dialogue, cultural diversity in all
its forms, mobility, and reinforcing cooperation on safeguarding, conservation
and enhancement of cultural heritage.
(4) Supporting inclusive and sustainable growth, trade, and investments in key
infrastructure
a) Supporting Union trade policy and trade and investment agreements and their
implementation;
b) Creating conditions for the participation of EU companies in the regional
markets through the removal of barriers and de-risking through support for
regulatory changes;
c) Promoting business and investment opportunities (including for companies from
the European Union), private sector development, regulatory convergence with
Union’s standards, economic integration, as well as local and regional
sustainable value chains and diversification;
d) Improving the region’s productive and export capacity of critical raw materials
and inputs;
e) Advancing the digital transition to unlock societal and economic opportunities
both within private and public sector. Advancing secure and trusted digital
infrastructures to underpin future developments of key economic and critical
sectors. Developing data and AI economies, including by supporting AI
innovation ecosystems. Supporting actions to close the digital divide and to
ensure accessible, affordable, inclusive, and secure digital connectivity
solutions.
f) Fostering the use of the Union’s single currency for trade, financial services and
investment within the region and with respect to the Union;
g) Strengthening sustainable road and maritime transport and ports; promoting
smart and sustainable mobility, supporting the uptake of sustainable transport
fuels;
h) Fostering energy transition and promoting energy security; investing in energy
connectivity and renewable energies; promoting the integration of Union’s value
chain with resilient clean tech industrial chains of partner countries;
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i) Supporting Union competitiveness and stability, and flexibly responding to
economic challenges and opportunities.
(5) Promoting healthy eco-systems and addressing climate change
a) Enhancing climate change adaptation and mitigation capacity; helping to
promote climate-proof investments;
b) Developing sustainable green and blue economy; Supporting the transition to
low-emissions, resource efficient and circular economic models and promoting
the development of sustainable production and value chains, supporting green
hydrogen projects;
c) Ensuring the protection and conservation of the environment and biodiversity
and ensuring the restoration and sustainable management of ecosystems,
including water systems, land, forests and the ocean. Promoting the fight against
pollution biodiversity conservation, sustainable fisheries and transition to
sustainable food systems, focusing on the water-energy-food-ecosystems nexus
approach. Promoting nature-based solutions, in particular for sustainable
infrastructure and the development of green and smart cities.
(6) Enhancing cooperation on all aspects of migration, mobility and forced displacement
a) Enhancing cooperation on all aspects of migration and forced displacement
including through the EU agencies; strengthening local and international
partnerships on migration and forced displacement along key migratory routes;
b) Strengthening all aspects of migration and asylum governance; enhancing border
management, including quality of travel documents and visa systems;
strengthening the fight against smuggling of migrants and trafficking in human
beings and fostering cooperation on safe, dignified and sustainable returns,
readmission and reintegration of migrants; as well as addressing the root causes
of irregular migration and forced displacement;
c) Supporting a comprehensive approach to and implementation of legal migration
and mobility, including through mutually beneficial Talent Partnerships and
exchanges, respecting the competences of the Member States;
d) Contributing to the provision of international protection, including access to
resettlement and complementary pathways, and support to refugees, migrants,
internally displaced persons, host communities, and to countries hosting
significant refugee or displaced populations.
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Annex II.C - Sub-Saharan Africa
(1) Supporting inclusive and sustainable growth, promoting connectivity, trade, and
decent jobs
a) Supporting sustainable, safe, secure and resilient infrastructure and connectivity,
including strengthening sustainable and safe road, rail, air and maritime
transport, and promoting smart, inclusive and sustainable mobility, and the
uptake of sustainable transport fuels;
b) Strengthening the digital and space economy, supporting actions to close the
digital divide, advancing secure and trusted digital infrastructures, promoting
human-centric digital governance, including the development of modern data
management and protection systems for safe data flows, developing data and AI
economies, including by supporting AI innovation ecosystems; supporting
cybersecurity and cyber capacity-building;
c) Fostering energy transition and promoting energy security; investing in energy
connectivity and renewable energies; promoting the use of clean energy sources
in industry and transport; fostering energy access and energy efficiency;
d) Promoting trade, business and investment opportunities (including for
companies from the European Union), private sector development, regulatory
convergence with Union’s standards, economic integration, diversification of
supply chains, and development of local and regional sustainable value chains;
e) Supporting Union trade policy and trade agreements and their implementation;
f) Improving the region’s capacity to sustainably produce and export critical raw
materials and inputs;
g) Promoting private sector development and improving the business environment
to attract investments and foster decent job creation;
h) Fostering skills development and decent jobs, as well as research and innovation;
i) Supporting Union competitiveness and flexibly responding to economic
challenges and opportunities;
j) Fostering the use of the Union’s single currency for trade, financial services and
investment within the region and with respect to the Union.
(2) Fighting climate change, protecting the environment and biodiversity
a) Supporting climate change mitigation and adaptation, disaster preparedness, and
risk reduction, with particular attention to the most vulnerable countries such as
least developed countries and small island developing states;
b) Fostering pollution prevention and reduction, and ensuring the protection and
preservation of the environment and biodiversity as well as the restoration and
sustainable management of ecosystems, including water systems, land, forests
and the ocean;
c) Promoting nature-based solutions for sustainable infrastructure and cities,
sustainable green, blue and circular economy, including bioeconomy;
d) Supporting sustainable and resilient agriculture, including agroforestry,
sustainable fisheries, and sustainable aquaculture.
(3) Enhancing cooperation on all aspects of migration, mobility and forced displacement
EN 17 EN
a) Addressing the root causes of irregular migration and forced displacement;
b) Strengthening migration governance and management, enhancing border
management, the quality of travel documents and visa systems, fighting against
migrant smuggling and trafficking in human beings, and fostering cooperation
on safe, dignified and sustainable returns, readmission and reintegration of
irregular migrants;
c) Supporting and promoting the use of legal channels of migration and mobility,
and encouraging diasporas’ contributions to the development of the countries of
origin;
d) Supporting asylum seekers, refugees, internally displaced and stateless people,
as well as their host communities, and promoting their access to protection and
durable solutions, including voluntary repatriation, local integration, and access
to resettlement as well as complementary pathways.
(4) Promoting human development and gender equality
a) Supporting greater access to and improved quality of education, healthcare
services and health products and supporting food and nutrition security, and
promoting access to climate resilient and safe water supply, sanitation and waste
services;
b) Fostering social inclusion, social protection, universal health coverage and the
fight against inequalities, with a focus on the most vulnerable;
c) Promoting gender equality and the rights and empowerment of women and girls,
preventing and combating violence against women and domestic violence
protecting rights of persons with disabilities, of young people and of children,
and fighting child labour;
d) Contributing to the resilience of partner countries, supporting and reinforcing
actions addressing the humanitarian-development-peace nexus, fragility
challenges and addressing reconstruction needs as well as balance of payment
crises;
(5) Promoting and protecting democracy, rule of law, human rights and good governance
a) Protecting and promoting human rights, with specific attention to protect the
most vulnerable, and democracy, safeguarding the space for civil society
organisations and supporting freedom and pluralism of the media;
b) Supporting the rule of law and good governance, including transparency,
accountability, institutional oversight, law enforcement, as well as civic space,
and the prevention of and fight against corruption, and illegal trafficking,
including illicit financial flows;
c) Strengthening the respect of human rights and international law, with specific
attention to protect the most vulnerable;
d) Promoting respect for the principles of equality and non-discrimination.
(6) Contributing to stability, peace and security
a) Preparing for and responding effectively to crisis, emerging crisis and post-crisis
situations;
b) Supporting peace, mediation, stability and conflict prevention;
EN 18 EN
c) Increasing stability and security through judicial cooperation, the fight against
impunity, organised crime, cyber and hybrid threats, violent extremism and
terrorism;
d) Contributing to preventing the circumvention of Union restrictive measures.
(7) Strengthening partnerships
a) Encouraging regional and cross-regional integration, cooperation, dialogue and
initiatives;
b) Promoting policy dialogue with the Organisation of Africa, Caribbean and
Pacific States, African Union and Regional Organisations;
c) Promoting intercultural dialogue and cooperation, twinning, mobility, exchange
and leadership programmes; promoting the role of cultural diversity in all its
forms, and reinforcing cooperation on safeguarding, conservation and
enhancement of cultural heritage;
d) Fostering the establishment of people-to-people partnerships based on common
interests, and strengthening skills development through cooperation in the fields
of education, youth, culture, sport as well as research and innovation;
e) Ensuring engagement with civil society, local authorities and private sector, and
strengthening State and local authority institutions and their effective operations
in line with their respective mandate;
f) Strengthening awareness, understanding and perception of the European Union
in partner countries through strategic communication.
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Annex II.D - Asia and the Pacific
(1) Supporting inclusive and sustainable growth, decent jobs and the digital
transformation
a) Supporting sustainable, safe, secure and resilient infrastructure and transport
connectivity, including road, rail, air and maritime transport, and promoting
smart and sustainable mobility, and the uptake of sustainable transport fuels;
b) Promoting trade, business and investment opportunities (including for
companies from the European Union), private sector development, regulatory
convergence with Union’s standards, economic integration, diversification of
supply chains, as well as local and regional sustainable value chains;
c) Enhancing regional integration, intra-regional trade, business dialogue and
business-government dialogue at regional and inter-regional levels;
d) Fostering the use of the Union’s single currency for trade, financial services and
investment within the region and with respect to the Union;
e) Promoting secure digital and space economy, supporting actions to close the
digital divide, advancing secure and trusted digital infrastructures, promoting
human-centric digital governance, includingthe development of modern data
management and protection systems for safe data flows;
f) Facilitating and enhancing investments in critical raw materials and inputs,
sustainable and competitive policies on extraction and treatment of minerals;
g) Supporting Union trade policy and trade agreements, and their implementation;
h) Strengthening an inclusive and just transition to green and digital economy and
promoting digital governance and e-services as well as the transparency and
effectiveness of public finances;
i) Fostering skills development and decent jobs, as well as research and innovation,
supporting international labour and environment standards, and business and
human rights principles;
j) Supporting Union competitiveness and flexibly responding to economic
challenges and opportunities;
(2) Fighting climate change, protecting the environment and biodiversity
a) Promoting the protection and conservation of the environment and biodiversity,
and ensuring sustainable management and restoration of natural resources,
pollution reduction, biodiversity preservation, including water systems, land,
forests and the ocean;
b) Fostering a sustainable green, blue and circular economy, including bioeconomy,
green and smart cities and the access to climate resilient and safe water supply,
sanitation and waste services;
c) Supporting cooperation on environmental challenges, sustainable energy
transition, and improved regional energy connectivity as well as promoting
energy access, renewable energy and energy efficiency; promoting the use of
clean energy sources in industry and transport;
d) Supporting regional initiatives and partner countries’ efforts and plans for
climate change mitigation and adaptation, disaster preparedness and risk
reduction in order to support their commitments on climate change and
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biodiversity, with particular attention to the most vulnerable, in particular least
developed countries and small island developing states;
e) Ensuring food and nutrition security, sustainable and resilient agriculture and
sustainable fisheries;
(3) Promoting human development and gender equality
a) Supporting access to and improved quality of education, healthcare services and
health products and nutrition;
b) Fostering social inclusion, social protection, universal health coverage and the
fight against inequalities, with a focus on the most vulnerable;
c) Promoting gender equality and the rights and empowerment of women and girls,
protecting rights of persons with disabilities and of children and fighting child
labour, preventing and combating violence against women and domestic
violence;
d) Contributing to the resilience of partner countries, supporting and reinforcing
actions addressing the humanitarian-development-peace nexus, fragility
challenges and addressing reconstruction needs as well as balance of payment
crises;
(4) Enhancing cooperation on all aspects of migration, mobility and forced displacement
a) Addressing the root causes of irregular migration and forced displacement;
b) Strengthening all aspects of migration governance and management, enhancing
border management, including the quality of travel documents and visa systems,
fighting against migrant smuggling and trafficking in human beings and
fostering cooperation in safe, dignified and sustainable returns, readmission and
reintegration of irregular migrants;
c) Supporting and promoting the use of legal channels of migration and mobility,
and encouraging diasporas’ contributions to the development of the countries of
origin;
d) Supporting asylum seekers, refugees, internally displaced and stateless people,
notably the most vulnerable migrants including children, as well as their host
communities, and promoting their access to protection and durable solutions,
including voluntary repatriation, local integration, and access to resettlement as
well as complementary pathways.
(5) Promoting and protecting democracy, rule of law, human rights and good governance
a) Supporting democracy, the rule of law, good governance, transparency, and
accountability, protecting civic space, the prevention of and fight against
corruption and impunity, and independent, accountable and efficient justice
systems;
b) Supporting and ensuring engagement with civil society organisations, freedom
of the media, and empowerment of young people in all policy areas and
institutional processes;
c) Promoting respect for human rights and international humanitarian law, the
principles of equality and non-discrimination, with specific attention to
protecting those most at risk.
(6) Contributing to stability, peace and security
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a) Preparing for and responding effectively to crisis, emerging crisis and post-crisis
situations;
b) Supporting peace, mediation, stability and conflict prevention;
c) Increasing stability and security through judicial cooperation, the fight against
hybrid and cyber threats, organised crime, illegal trafficking, violent extremism,
and terrorism;
d) Contributing to preventing the circumvention of Union restrictive measures.
(7) Strengthening partnerships
a) Encouraging regional and inter-regional integration, cooperation, dialogue and
initiatives;
b) Promoting policy dialogue with the Organisation of Africa, Caribbean and
Pacific States;
c) Promoting the role of culture and intercultural dialogue, cultural diversity in all
its forms, and reinforcing cooperation on safeguarding, conservation and
enhancement of cultural heritage;
d) Fostering the establishment of people-to-people partnerships based on common
interests, and strengthening skills development through cooperation in the fields
of education, youth, culture, sport, research and innovation;
e) Ensuring engagement with civil society, local authorities and private sector, and
strengthening State and local authority institutions and their effective operations
in line with their respective mandate;
f) Strengthening awareness, understanding and perception of the European Union
in partner countries through strategic communication.
EN 22 EN
Annex II.E - Americas and the Caribbean
(1) Advancing the agenda of just green and digital transitions for sustainable development
a) Developing local added value and bi-regional value chains (including on clean
energy and critical raw materials and inputs), inclusive and sustainable growth,
promoting the development of sustainable production and value chains, research
and innovation as well as decent jobs, by building upon European technology to
diversify the economies;
b) Leveraging value-based investments to address infrastructure needs in a climate
neutral, resilient, and nature-positive economy that meets high environmental,
social and governance standards;
c) Developing sustainable finance to attract international investors and promoting
green investments;
d) Fostering a just transition to a sustainable green, blue, digital and circular
economy, supporting decarbonisation and resource efficiency in agriculture,
transport, forestry, energy, while supporting climate change adaptation;
e) Supporting sustainable, safe, secure and resilient infrastructure and transport
connectivity, including road, rail, air and maritime transport, and the uptake of
sustainable transport fuels;
f) Improving the region’s productive and export capacity of critical raw materials
with a sustainability focus;
g) Promoting pollution reduction and protecting, preserving, restoring and ensuring
sustainable management of ecosystems, such as water systems, land, forests and
the ocean; developing sustainable food systems, sustainable fisheries, nature-
based solutions, fighting forest and biodiversity loss;
h) Advancing digital transformation and secure cyber-resilient digital connectivity,
including to reduce the digital gap and the gender divide, promoting the space
economy, secure and safe data flows and the use of space-based data, in line with
EU standards;
i) Supporting Union competitiveness and flexibly responding to economic
challenges and opportunities;
j) Promoting just transitions, inclusive societies and tackling inequalities in all its
forms, enhancing affordable and equal access to skills development and
universal access to health and social protection;
k) Fostering energy transition and promoting energy security; investing in energy
connectivity and renewable energies; promoting the use of clean energy sources
in industry and transport.
(2) Rolling out a common EU-LAC trade and investment agenda
a) Improving the conditions for sustainable investment and private sector
development through a more conducive business and regulatory environment,
promoting business and investment opportunities (including for companies from
the European Union), and a regulatory convergence with Union’s standards;
b) Facilitating trade in goods subject to the legislations related to the EU Green
Deal;
EN 23 EN
c) Facilitating joint ventures, exports and decent work creation by small and
medium-sized enterprises;
d) Ensuring the implementation of trade and association agreements including
through technical assistance and business involvement;
e) Fostering the use of the Union’s single currency for trade, financial services and
investment within the region and with respect to the Union.
(3) Enhancing justice, citizen security and the fight against transnational organised crime,
contributing to stability, peace and security
a) Supporting cooperation and coordination against transnational organised crime,
and the financial flows it generates, building bridges between justice and security
institutions based on the convergence and harmonisation of rule of law policies
and instruments;
b) Strengthening partner countries’ capacities to respond to the impacts of security
and cyber threats and better protecting citizens and the most vulnerable;
c) Strengthening partner countries’ capacities to secure value chains and logistics;
d) Preparing for and responding effectively to crisis, emerging crisis and post-crisis
situations;
e) Supporting peace, mediation, stability and conflict prevention, and strengthening
the bi-regional parternship on security and justice;
f) Increasing stability and security through the fight against hybrid and cyber
threats, impunity, corruption, illegal trafficking, violent extremism, and
terrorism;
g) Contributing to preventing the circumvention of Union restrictive measures.
(4) Promoting human rights, human development, democracy and rule of law
a) Protecting and promoting human rights, with specific attention to protect the
most vulnerable, democracy, rule of law and good governance, including
accountability, and the prevention of and fight against corruption, including in
relation to organised crime;
b) Promoting gender equality and the rights and empowerment of women and girls,
preventing and combating violence against women and domestic violence, as
well as promoting young people’s empowerment in all policy areas and
institutional processes;
c) Safeguarding the space for civil society, and supporting freedom and pluralism
of the media;
d) Supporting greater access to and improved quality of education, healthcare
services and health products, and supporting food and nutrition security, and
access to climate resilient and safe water supply and water efficiency, sanitation
inclusive of all and waste services, protecting rights of persons with disabilities
and of children and fighting child labour;
e) Fostering social inclusion, social protection and the fight against inequalities,
with a focus on the most vulnerable;
f) Enhancing cooperation on migration, including combatting migrant smuggling,
and human mobility;
EN 24 EN
g) Contributing to the resilience of partner countries, supporting and reinforcing
actions addressing the humanitarian-development-peace nexus, fragility
challenges and addressing reconstruction needs as well as balance of payment
crises.
(5) Strengthening partnerships
a) Promoting the EU-LAC bi-regional partnership;
b) Encouraging regional and inter-regional integration, connectivity and
cooperation;
c) Promoting policy dialogue with the Organisation of Africa, Caribbean and
Pacific States;
d) Promoting the role of culture and intercultural dialogue, cultural diversity in all
its forms, and reinforcing cooperation on safeguarding, conservation and
enhancement of cultural heritage;
e) Fostering the establishment of people-to-people partnerships based on common
interests, and strengthening skills development through cooperation in the fields
of education, youth, culture, sport and research and innovation;
f) Ensuring engagement with civil society, local authorities and private sector, and
strengthening State and local authority institutions and their effective operations
in line with their respective mandate;
g) Strengthening awareness, understanding and perception of the European Union
in partner countries through strategic communication.
EN 25 EN
Annex II.F - Global
(1) Supporting human development
a) Preventing and combatting health threats, such as pandemics and anti-microbial
resistance, strengthening health systems and health equity, promoting universal
health coverage, and sexual and reproductive health and rights;
b) Supporting inclusive, equitable and quality education and skills, including via
global initiatives and research;
c) Promoting gender equality and empowerment of women and girls and
addressing inequalities;
d) Protecting children and young people, promoting youth engagement and
empowerment, and empowering persons with disabilities;
e) Steering and contributing to the global agenda on the governance of migration
and forced displacement and supporting the Union commitments in this regard;
f) Contributing to the global agenda on decent work for all, including through the
promotion of international labour standards, and universal social protection and
social inclusion.
(2) Advancing a just green and digital transition for sustainable prosperity
a) Accelerating a just transition to a climate-neutral, resilient, sustainable, green,
blue and circular economy, including by supporting global initiatives;
b) Strengthening global governance and knowledge on climate, food and
agriculture, environment, natural resources and the ocean , supporting global
public goods;
c) Accelerating the deployment of accessible, affordable, inclusive, sustainable,
safe and secure digital connectivity, including satellite connectivity, and
promoting a human-centric and secure digital economy and global governance;
d) Promoting sustainable finance, public and private investments, sustainable and
resilient value chains, responsible business conduct, and supporting the Union’s
trade policy and economic security in multilateral settings.
(3) Promoting and protecting democracy, human rights and rule of law
a) Upholding human rights and fundamental freedoms, promoting the principles of
equality and non-discrimination, protecting and enhancing an enabling civic
space, including by empowering human rights defenders and their networks
worldwide;
b) Supporting democracy, including effective representation and participation also
by deploying EU electoral observation missions;
c) Addressing threats to democracy, including foreign information manipulation
and interference and disinformation, and supporting free and independent media;
d) Supporting and protecting the rule of law and international law, including
through international justice mechanisms, transparency and accountability
mechanisms.
e) Strengthening global and multilateral human rights system, processes and
architecture.
(4) Contributing to peace, security, stability and response to crises
EN 26 EN
a) Supporting peace, stability and conflict prevention through foresight, conflict
analysis, early warning, peacebuilding, mediation and dialogue;
b) Tackling global threats, including, hybrid, space and cyber threats, promoting
maritime and aviation security;
c) Increasing stability and security through multilateral initiatives against
terrorism, radicalisation and violent extremism, as well as global cooperation
against illicit trafficking and organised crime;
d) Mitigating chemical, biological, radiological and nuclear risks;
e) Supporting global initiatives to address climate and environmental risks with a
potentially destabilising impact on peace and security;
f) Supporting global initiatives to curb the use of minerals and other natural
resources to finance conflicts and prevent related human rights abuses and risks
in supply chains.
(5) Strengthening partnerships and strategic relations
a) Upholding multilateralism and multilateral agreements and engaging in global
partnerships, including supporting global economic governance and
development architecture;
b) Supporting global initiatives to combat illicit financial flows, money laundering
and tax evasion;
c) Strengthening institutional and operational capacities of European and partner
countries’ local authority networks and alliances for development;
d) Increasing capacities and maintaining partnerships with European and partner
countries’ civil society organisations, networks, platforms and alliances to create
an enabling environment for citizen participation and civil society action,
including in the Union;
e) Engaging in public diplomacy activities to promote dialogue and mutual
understanding.


EN EN
EUROPEAN
COMMISSION
Brussels, 16.7.2025
COM(2025) 551 final
2025/0227 (COD)
Proposal for a
REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL
establishing Global Europe
{SWD(2025) 552} - {SWD(2025) 553} - {SEC(2025) 548}
Offentligt
KOM (2025) 0551 - Forslag til forordning
Europaudvalget 2025
EN 1 EN
EXPLANATORY MEMORANDUM
1.CONTEXT OF THE PROPOSAL
•Reasons for and objectives of the proposal
This proposal is made in the context of the external heading of the multiannual financial
framework (MFF) 2028-2034. The communication ‘The road to the next multiannual
financial framework’1
, sets the main priorities and principles of EU external action under the
EU budget, which aims to be simpler, more focused, more flexible, with a greater impact and
to deliver on EU priorities.
The international landscape has changed significantly over the last years, appearing far less
predictable and stable. The impact of the current geopolitical instability on the EU and on
partner countries is increasing, notably following Russia’s war of aggression against Ukraine,
the conflicts in the Middle East, the US administration’s disengagement from external aid, the
increasing risk of pandemics, the trade tensions, and the technology competition. These
challenges, along with the widening gap to reach the Sustainable Development Goals (SDGs)
by 2030, require the EU to adapt its external action financing to better serve its strategic
interests and address current and future crises.
The objective of the proposed Instrument, Global Europe, is to uphold and promote the
Union’s values, principles and interests worldwide to pursue the objectives and principles of
the Union’s external action, as laid down in Article 3(5), Articles 8 and 21 of the Treaty on
European Union (TEU). Global Europe will contribute to the objectives of the EU’s external
action, by promoting mutually beneficial partnerships with partner countries, contributing
simultaneously to the sustainable development of partner countries and to the Union’s
strategic interests. Global Europe will also allow the Union to be better positioned to address
global challenges.
The proposed Instrument is based on four main guiding principles, which are further detailed
in the different sections of this document.
– Simplification of the architecture of the external heading, through one main instrument for
EU external action and with a horizontal Performance Regulation2
for the entire MFF,
covering monitoring, reporting, evaluation and communication.
– Coherence of action, with increased geographisation, more focus on coherence,
consistency and complementarity between internal and external programmes, as well as a
stronger Team Europe approach.
– Flexibility of the instrument, preserving some of the flexibilities of NDICI-Global Europe
including its general reserve (the cushion), financial flexibilities and the possibility to
adopt delegated acts, and increasing them through the reduction of targets and easier
budgetary transfers between and within pillars, as well as budgetary flexibilities among
MFFs (below more details on architecture and on flexibilities).
1
Communication (COM/2025/46 final) from the Commission to the European Parliament, the European
Council and the Council, the European Economic and Social Committee and the Committee of the
Regions – “The road to the next multiannual financial framework”.
2
Regulation (EU) No …/… of the European Parliament and of the Council establishing a budget
expenditure tracking and performance framework and other horizontal rules for the Union programmes
and activities (OJ […], […], p. […]).
EN 2 EN
– Impact of EU action, with a strengthened toolbox allowing to build comprehensive
packages; with a streamlined and more efficient guarantee and blending framework, and a
stronger promotion of European interests.
To further simplify, increase coherence and ensure the effectiveness of the Union's
external action, Global Europe serves a wide range of policies, namely the enlargement,
neighbourhood, international partnerships and humanitarian aid policies, maintaining the
specificities of each policy, fostered through a broad array of tools. Through this proposal the
EU will continue to deliver on the objectives of pre-accession, to engage with partner
countries, including in complex settings and to provide humanitarian assistance. The proposed
instrument will also provide increased economic and trade opportunities to the mutual benefit
of the Union and partner countries, support sustainable development, promote human rights,
gender equality and EU multilateral engagement, fight the root causes of irregular migration,
forced displacement, instability climate change, and protect the environment. The general
objectives of the Instrument are detailed in Article 4 of the proposed Regulation and the
specific objectives are specified and detailed in Annex II.
Building on the experience of the NDICI-Global Europe that superseded eleven former
Regulations, in line with the priorities set out in the communication ‘The road to the next
multiannual financial framework’ and as concluded in the impact assessment accompanying
this Regulation, Global Europe incorporates and builds on:
– The Regulations (EU) 2021/947 establishing Neighbourhood, Development and
International Cooperation – Global Europe (NDICI-Global Europe), amending and
repealing Decision No 466/2014/EU and repealing Regulation (EU) 2017/1601 and
Council Regulation (EC, Euratom) No 480/2009;
– The Regulation (EU) 2021/1529 establishing the Instrument for Pre-Accession assistance
(IPA III);
– The Regulation (EU) 2024/792 of the European Parliament and of the Council of 29
February 2024 establishing the Ukraine Facility;
– The Regulation (EU) 2024/1449 of the European Parliament and of the Council of 14 May
2024 on establishing the Reform and Growth Facility for the Western Balkans;
– The Regulation (EU) 2025/535 of the European Parliament and of the Council of 18 March
2025 establishing the Reform and Growth Facility for the Republic of Moldova.
Given the magnitude and unpredictability of the needs, reconstruction and pre-accession
assistance for Ukraine will be financed above the MFF ceilings (the so-called ‘headroom’
of the MFF) and be implemented through Global Europe. Furthermore, humanitarian aid
actions will be funded under Global Europe and implemented in line with the Humanitarian
Aid Regulation3
. Moreover, macro-financial assistance could be provided to countries
experiencing balance of payments crises and will be funded under Global Europe. Global
Europe will be the main instrument of the external heading, complemented by the association
of the overseas countries and territories with the Union established by Council Decision (EU)
2021/17644
as well as the Common Foreign and Security Policy budget. Furthermore, the
3
Council Regulation (EC) No 1257/96 concerning humanitarian aid (OJ L 163, 2.7.1996, p. 1–6,
ELI: http://data.europa.eu/eli/reg/1996/1257/oj).
4
Council Decision (EU) 2021/1764 of 5 October 2021 on the association of the Overseas Countries and
Territories with the European Union including relations between the European Union on the one hand,
and Greenland and the Kingdom of Denmark on the other (Decision on the Overseas Association,
including Greenland) (OJ L 355, 7.10.2021, p. 6, ELI: http://data.europa.eu/eli/dec/2021/1764/oj).
EN 3 EN
Instrument will be implemented in accordance with the horizontal Performance Regulation, as
detailed in chapter 5 ‘Other elements’ of this document.
In a global context where the Union is confronted with high geopolitical and geoeconomic
competition, marked by global challenges, ranging from climate change to tensions around
scarce resources, continuing migratory pressure or economic and trade disruptions, in addition
to security threats and fragility, external action has to continuously and rapidly react to
emerging needs, as well as to act to advance strategic priorities, in order to effectively
pursue the Union’s and partners’ priorities. The Instrument is built to combine the need of
predictability with the need to adjust rapidly to an evolving geopolitical context.
Coherence and complementarity of action will be ensured, enhancing the geographisation
principle introduced under NDICI-Global Europe. The internal architecture of the proposed
Instrument follows this principle and is composed of five geographic pillars and a global
pillar, each of which is composed of a programmable and non-programmable component.
The Instrument will be implemented primarily through the five geographic programmable
components, complemented by the geographic non-programmable components. The global
pillar will focus on global initiatives and will be complementary to the geographic pillars. The
six pillars are supported by an unallocated emerging challenges and priorities cushion, to
increase flexibility as well as the ability of the Union to respond to unforeseen needs and
adapt its partnerships to emerging priorities, building on the experience of the European
Development Funds and NDICI-Global Europe.
The recent evaluation of the external instruments (2014-2020 and 2021-2027)5
confirmed that
the external financing instruments under the current MFF are largely fit for purpose and
delivering against their objectives. Nevertheless, it noted that the changing geopolitical
landscape has also exposed some architectural weaknesses in their design, in particular as
regards their flexibility. On NDICI-Global Europe, the evaluation stressed that it could still
better contribute to an integrated approach balancing EU interests, partnerships and values,
further reconciling the objectives of the EU’s internal and external thematic policies. On IPA
III, the above evaluation highlighted that the instrument's flexibility has been limited by the
fact that annual planning has, through implementation, prevailed over strategic multi-annual
programming. The lessons learned together with the increasing volatile geopolitical context
have prompted the Commission to further simplify the architecture of the external financing
instruments and provide more flexibility. The Global Europe proposal also preserves
flexibilities already allowed under NDICI-Global Europe and IPA III, concerning carry-overs
of funds Furthermore, reflows generated by financial instruments and surplus of budgetary
guarantees will be available to be reused under this Instrument. Other elements enhancing
flexibility are the possibility of adopting delegated acts, already foreseen under NDICI-Global
Europe and the easier budgetary transfers between and within pillars under the architecture of
Global Europe. Furthermore, the proposed instrument does not include thematic targets. A
target on official development assistance spending is present in the Global Europe proposal.
•Consistency with existing policy provisions in the policy area
As mentioned above, the Global Europe proposal serves under one instrument a wide range of
policies, namely the enlargement, neighbourhood, international partnerships and humanitarian
aid policies, maintaining the specificities of each policy. This proposal provides an enabling
5
Evaluation of the EU's External Financing Instruments for the 2014 - 2020 and 2021 - 2027
Multiannual Financial Frameworks; Register of Commission Documents - COM(2024)208. This
evaluation consisted of both the mid-term evaluation of the EU’s External Financing Instruments of the
2021-2027 MFF and the final evaluation of the 2014-2020 MFF External Financing Instruments.
EN 4 EN
framework through which external action policies and international commitments can be
implemented. The main international commitments include the 2030 Agenda for Sustainable
Development6
, the Paris Agreement on Climate Change7
, the Kunming-Montreal Global
Biodiversity Framework8
, the Addis Ababa Action Agenda9
, the Sendai Framework for
Disaster Risk Reduction (2015-2030)10
, the Istanbul Convention on violence against women11
and the Pact for the Future12
. Within the EU, the policy framework includes the Treaty
provisions on external action, association agreements, partnership and cooperation
agreements, multilateral agreements to which the Union is a party, and other agreements that
establish a legally binding relationship between the Union and partner countries as well as
European Council conclusions, Council conclusions, summit declarations or conclusions of
meetings with partner countries at the level of heads of state or government or ministers,
European Parliament resolutions, communications of the Commission and joint
communications with the High Representative of the Union for Foreign Affairs and Security
Policy.
•Consistency with other Union policies
Consistency and complementarity will be ensured among the Union’s external financing
instruments, in particular with Humanitarian aid (funded under Global Europe), the
association of the overseas countries and territories with the Union, the Common Foreign and
Security Policy and the European Peace Facility (which is financed outside the Union
budget), as well as the European Instrument for International Nuclear Safety Cooperation-
Decommissioning.
Global Europe will provide support aimed at credibly and effectively preparing candidate
countries and potential candidates for future EU membership. The fulfilment of this ambition
calls for aligning, to the extent possible, the design of pre-accession support under Global
Europe with the orientations of relevant internal programmes.
Funding from Global Europe should also be used to foster the establishment of people-to-
people partnerships based on common interests and intergenerational fairness and strengthen
skills development, innovation and cultural diversity through cooperation in the fields of
education, youth and research, in a way that is consistent with the Erasmus+ Regulation.
Furthermore, in this framework, consistency and complementarity will also be ensured with
6
“Transforming our world: the 2030 Agenda for Sustainable Development”, adopted at the United
Nations Sustainable Development Summit on 25 September 2015 (A/RES/70/1).
7
Council Decision (EU) 2016/1841 of 5 October 2016 on the conclusion, on behalf of the European
Union, of the Paris Agreement adopted under the United Nations Framework Convention on Climate
Change.
8
“The Kunming-Montreal Global Biodiversity Framework”, adopted by the 15th
conference of Parties
(COP 15) to the Convention on Biological Diversity (CBD) on 19 December 2022.
9
“Addis Ababa Action Agenda of the Third International Conference on Financing for Development”,
adopted on 16 June 2015 and endorsed by the United Nations General Assembly on 27 July 2015
(A/RES/69/313).
10
“Sendai Framework for Disaster Risk Reduction”, adopted on 18 March 2015 and endorsed by the
United Nations General Assembly on 3 June 2015 (A/RES/69/283).
11
“Council of Europe Convention on preventing and combating violence against women and domestic
violence”, (CETS No. 210) entered into force on 1 August 2014,
https://www.coe.int/en/web/conventions/full-list?module=treaty-detail&treatynum=210.
12
“The Pact for the Future”, adopted by the United Nations General Assembly on 22 September 2024
(A/RES/79/1).
EN 5 EN
trade and investment, economic cooperation, migration, security and other sectoral
cooperation.
In particular, serving the new economic foreign policy and in synergy with the European
Competitiveness Fund, the Instrument will enhance the Union’s competitiveness by
responding to economic challenges and swiftly seize opportunities to support Union
competitiveness, including via the support to the external dimension of Union internal
policies. This will harness the potential of mutually beneficial partnerships for sustainable
development in the Union and in partner countries alike.
Moreover, it will contribute to boost resilience and promote stability by addressing fragility in
a humanitarian-development-peace nexus approach, balance of payment crises as well as
post-conflict recovery and reconstruction needs.
2.LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY
•Legal basis
Part Five, Title III, Chapters 1, 2 of the Treaty on the Functioning of the European Union,
provides the legal framework for cooperation with partner countries.
This proposal is based on Articles 209, 212 and 322 of the Treaty on the Functioning of the
European Union. It is presented by the Commission in accordance with the procedure laid
down in Article 294 of the Treaty on the Functioning of the European Union.
•Subsidiarity (for non-exclusive competence)
The EU’s external action financing seeks to cooperate with partner countries, as well as to
promote multilateral solutions to global challenges. It enables the EU to defend its interests, to
promote its values and standards, to support the objectives of its internal policies, ensure its
security and protect its citizens. It should focus more on strengthening the Union’s
competitiveness and reducing its dependencies, notably through securing critical supply
chains. Moreover, it is in the EU’s own interest to preserve its role of a trusted global player.
The above-mentioned evaluation of the external instruments (2014-2020 and 2021-2027
MFFs) confirmed the added value that the external financing instruments bring to EU’s
external relations, as they provide a more integrated and sizable offer to partner countries,
improving their capacity to address shared priorities with the EU and contributing to
sustainable development.
As a party to most multilateral processes, the EU can engage with multilateral and regional
partners in key policy areas. Compared to its Member States acting separately, the EU,
together with Member States, can achieve greater impact by coordinating common positions
and speaking with a stronger voice. As a world’s leading proponent and defender of
multilateral and rule-based global governance system, the EU has credibility as an honest
broker and defender of core international human right instruments. This leverage in
multilateral and regional fora also enables the Union to project globally its policies and
values, as well as influence the shaping of global norms and regulatory standards. The EU’s
financial commitment is an integral part of the overall engagement in several multilateral
agreements (e.g. climate and biodiversity).
Through the increased use of budgetary guarantees, financial instruments and blending
operations, the EU incentivises and pools together public and private investments, including
to the benefit of countries and sectors having difficult access to financial markets, investments
EN 6 EN
promoting economic resilience, and private sector development. EU non-action would widen
the SDGs financing investment gap and further deteriorate the situation of fragile countries
while weakening the EU as a geopolitical and geoeconomic actor and as global player in
multilateral fora.
Finally, the EU triggers collaboration among development financial institutions. Macro-
financial assistance provides much needed financing for countries experiencing balance of
payments crises, with favourable conditions.
•Proportionality
In line with the principle of proportionality, the proposed Regulation does not go beyond what
is necessary to achieve its objectives.
•Choice of the instrument
In accordance with Articles 209, 212 of the Treaty on the Functioning of the European Union,
which set out the ordinary legislative procedure to be used to adopt measures for
implementing cooperation with partner countries, the proposal takes the form of a Regulation,
ensuring its uniform application, binding nature in its entirety and direct applicability. The
legislative financial and digital statement enclosed with this proposal shows the budgetary
implications and the human and administrative resources required.
3.RESULTS OF EX-POST EVALUATIONS, STAKEHOLDER CONSULTATIONS
AND IMPACT ASSESSMENTS
•Ex-post evaluations/fitness checks of existing legislation
The mid-term evaluation of the external financing instruments under the 2021-2027 MFF
concluded that they were largely fit for purpose and on track to delivery against their
objectives they were expected to fulfil at the time of their adoption and these objectives
continue to be relevant.
NDICI – Global Europe
The mid-term evaluation also noted that in the evolving geopolitical context, NDICI-Global
Europe and its enhanced flexibility proved its relevance to pursue EU priorities as well as to
provide support to partner countries notably in the context of the COVID-19 pandemic, the
Russian war of aggression against Ukraine and the migratory pressures. It also enabled the EU
to promote its internal policies and priorities in a more coherent manner towards the external
world, while it needed to better contribute to an integrated approach balancing EU interests,
partnerships and values. In terms of simplification gains, the mid-term evaluation stressed that
NDICI-Global Europe provides a unified legal basis for a large share of the EU’s external
interventions. By superseding a large number of the instruments of the past MFF, it had
brought about a major increase in coherence and complementarity.
The mid-term evaluation mentioned that the various flexibility features in the NDICI-Global
Europe had proved their relevance. However, the NDICI-Global Europe cushion had almost
been depleted in the first three years of implementation, showing a mismatch between
available funds and actual needs. Moreover, NDICI-Global Europe was not designed to
support countries at war at the scale needed by Ukraine. Therefore, a new financing
instrument, the Ukraine Facility was adopted for period 2024-27, to support Ukraine both in
the face of Russia’s war of aggression and on Ukraine’s path towards EU membership. In
general terms, the mid-term evaluation concluded that to better exploit windows of
opportunity and maximise scope for EU leverage, differentiated response strategies may be
required.
EN 7 EN
IPA III
The mid-term evaluation noted that IPA III had demonstrated its general effectiveness as a
pre-accession instrument. The instrument was considered aligned with the new enlargement
methodology, with the fundamentals of the EU accession process at the forefront. The mid-
term evaluation also emphasised that IPA III had been effective in promoting socio-economic
development and leveraging necessary investments under the Economic and Investment Plan,
while there was a need to further accelerate convergence with the EU. The mid-term
evaluation noted furthermore that while IPA III was designed as a performance-based
instrument both in terms of scope and intensity of assistance, balancing the performance
assessment with the fair share principle had limited the financial reward to well-performing
beneficiaries.
The mid-term evaluation noted that IPA III had been flexible in responding to exceptional
external events despite the lack of a similar cushion as in the NDICI-Global Europe
instrument. The absence of pre-set country financial envelopes had provided the required
flexibility to programme assistance according to urgent and evolving needs.
•Stakeholder consultation
For the mid-term evaluation and the impact assessment for this proposal, the consultation
approach involved collecting input from a wide range of stakeholders on the external
financing instruments. The open public consultations for both the mid-term evaluation and
the impact assessment targeted all types of stakeholders, including citizens. The summary
report on the results of the consultation carried out in the framework of the mid-term
evaluation has been published on the “Have Your Say” website13
and it provides an overview
of the received contributions. The synopsis report of the open public consultation in view of
the impact assessment for Global Europe can be found in Annex 2 of the impact assessment.
A targeted consultation was also undertaken for the mid-term evaluation, to gather the views
of specific categories of stakeholders. In the context of targeted consultations, EU Member
States experts, development agencies of the EU Member States, civil society and local
authorities’ networks and platforms, Development Financial Institutions, and the United
Nations were consulted through dedicated meetings. The summary of these targeted
consultations can be found in the synopsis report of the stakeholder consultation, in annex V
of the the mid-term evaluation14
.
•Collection and use of expertise
The mid-term evaluation report and associated staff working document were largely based on
the independent study carried out by external consultants15
. All five compulsory evaluation
criteria (i.e. effectiveness, efficiency, relevance, coherence and the EU added value) were
assessed in this study. The evaluation criteria of impact and sustainability were also covered.
13
Financing for European action outside EU borders – evaluation of the instruments (2014-2020 & 2021-
2027).
14
Evaluation of the European Union's external financing instruments (2014-2020 and 2021-2027)
(Annexes), p. 101.
15
Evaluation of the European Union's external financing instruments (2014-2020 and 2021-2027);
Independent study in support of the evaluation Volume I, Synthesis report, Publications Office of the
European Union.
EN 8 EN
The evaluation methods used included: (i) a review of documentation and analytical data; (ii)
more than 340 interviews(iii) a series of targeted surveys; (iv) targeted consultations and an
open public consultation, as explained above. This mix of qualitative and quantitative
methods, using both primary and secondary sources of evidence, provided a comprehensive
evidence base for the evaluation. This expertise was also used as evidence base for the impact
assessment of this proposal, together with the results of the open public consultations as
explained above.
•Impact assessment
As regards the impact assessment accompanying this proposal, the Regulatory Scrutiny Board
provided on 13 June 2025 its opinion without qualification, referring to the specific approach
related to the MFF process16.
. Following the Board’s opinion, the impact assessment was
revised in order to integrate its recommendations.
The general objective of the impact assessment was to design external financing instruments
that effectively advance the EU’s strategic interests while being responsive to fragility and
crisis situations. In this respect, the balance between flexibility and predictability was the
fundamental policy parameter for the design of possible policy options. The following options
were examined in this context:
• Option 1: A fully flexible external financing instrument based exclusively on strategic
priorities defined annually, with no multiannual planning. Ukraine-related support for pre-
accession and reconstruction needs would be covered above MFF ceilings.
• Option 2: An external financing instrument based on indicative geographic and global
envelopes covering programmable and non-programmable funding for multiannual planning,
balancing flexibility and predictability. Ukraine-related support for pre-accession and
reconstruction needs would be covered above the MFF ceilings.
• Option 3: An external financing instrument based on indicative geographic and global
envelopes covering programmable and non-programmable funding for multiannual planning,
balancing flexibility and predictability. Pre-accession needs for Ukraine would be covered by
this instrument inside MFF ceilings while the reconstruction needs of Ukraine would be
covered above the MFF ceilings.
Based on the analysis of impacts and comparison, Option 2 emerged as the preferred choice.
The analysis of effectiveness, coherence and efficiency of the three options against the
baseline was made by using the specific objectives of the impact assessment. Options 2 stood
out due to its flexibility-predictability equilibrium that best supported these objectives,
providing credible support to Ukraine in an uncertain context while protecting the external
instrument’s ability to deliver on needs and priorities in other geographical areas.
In terms of expected impact, both Options 2 and 3 are more likely than Option 1 to support
the promotion of EU strategic interests and the sustainable development of partner countries.
Options 2 and 3 would also likely better address the interlinkages between the different SDGs,
balancing the three dimensions of sustainable development (economic, social, and
environmental). They enhance coherence between internal and external policies on the one
hand and between external policies on the other. The geographisation principle, including the
16
The main elements of the Board’s opinion and the associated modifications made to the impact
assessment are further described in annex 1 of the impact assessment.
EN 9 EN
use of regional envelopes under the geographic pillars, facilitates alignment with the EU's
strategic goals (e.g. via Global Gateway, Comprehensive Partnerships, Clean Trade and
Investment Partnerships, other similar partnerships). This alignment also allows for more
coordinated efforts in addressing social, economic and environmental challenges, thus
ensuring that policies are mutually reinforcing rather than working in silos or at unintended
cross purposes. In this respect, Options 2 and 3 have the capacity to better integrate policy
objectives like competitiveness, economic security, resilient value chains, and environmental
sustainability, given that these goals are strategically pursued together.
As compared to Option 3, Option 2 would ensure continuity with the Ukraine Facility’s
approach, address short, medium and long-term needs comprehensively, and cover the
interlinkages between Ukraine’s accession path and post-war reconstruction. Furthermore,
Option 2 would allow to strike a balance between providing credible support to Ukraine in an
uncertain context while protecting the external instrument’s ability to deliver on needs and
priorities in other geographical areas.
Building on these considerations, option 2 has been retained for this proposal.
•Regulatory fitness and simplification
The proposal provides a simplification from the REFIT point of view. Further streamlining a
number of instruments within one broad instrument as detailed above will reduce financial
and operational barriers that exist under current instruments. Simplification thus contributes to
clearer processes and management of resources. In terms of aligning rules, horizontal
provisions from the Performance Regulation will provide the new instrument and the other
programmes under the MFF with a coherent and harmonised framework and will make it
easier for partners and implementing agents to understand.
•Fundamental rights
One of the Treaty-based general objectives of the EU’s external action (Article 3(5) and
Articles 8 and 21 TEU) is to support and promote democracy, the rule of law and respect for
human rights. The Instrument aims to apply a human rights-based approach guided by the
principles of ‘leaving no one behind’, equality and non-discrimination on any grounds. The
rights-based approach encompasses all human rights, whether civil and political or economic,
social and cultural in order to integrate human rights principles into all activities supported by
EU external action. The support to Human Rights and Democracy, and to Civil Society
Organisations, which was mostly channelled through dedicated thematic programmes in
NDICI-Global Europe, remains a priority under the Instrument, channelled both through the
geographic pillars to maximise impact and through the global pillar for global initiatives.
4.BUDGETARY IMPLICATIONS
The European Commission proposes to allocate an indicative financial envelope of EUR 200
309 000 000 (in current prices) to Global Europe for 2028-2034. Additionally, financial
resources for Ukraine shall be made available in accordance with Article 6 of Council
Regulation [(EU, Euratom) 20XX/XXX * [MFF Regulation]]. The detailed estimated
financial impact of this proposal is presented in the legislative financial and digital statement
enclosed with this proposal.
EN 10 EN
5.OTHER ELEMENTS
•Implementation plans and monitoring, evaluation and reporting arrangements
The Instrument should be implemented in accordance with the above-mentioned horizontal
Performance Regulation for the entire MFF, 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) 2024/250917
(Financial
Regulation) respectively, rules for monitoring and reporting on the performance of Union
programmes and activities, rules for establishing a Single Gateway, 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.
•Detailed explanation of the specific provisions of the proposal
The proposed Instrument (Global Europe) contains derogations from the provisions of the
Financial Regulation, which are justified in several recitals, namely:
Recital 37 – on the non-establishment of a provisioning rate for loans to Ukraine under this
Instrument.
Recital 64 – on the possibility to reuse Global Europe funds carried-over. Furthermore, the
recital refers to the possibility to reuse under Global Europe, reflows generated by financial
instruments.
Recital 65 – on the possibility to increase the resources available for Global Europe, by
assigning to it the surpluses related to the current and legacy budgetary guarantees and
financial assistance in the external action.
Recitals 68 and 69 – on the possibility to provide support in the form of grants in a flexible
and timely manner without the need for a call for proposals, including to private sector
entities from Member States.
Recital 81 – on the possibility to promote the participation of eligible entities or persons and
counterparts from partner countries benefiting from the budgetary guarantee or financial
instruments, and to increase the attractiveness for the private sector and maximise the impact
of the investments by extending the eligibility for the budgetary guarantee to entities without
a public service mission.
TITLE I: GENERAL PROVISIONS
Article 1 (Subject matter) - defines the Instrument created by the Regulation, which is one of
the EU programmes for external action.
Article 2 (Definitions) - contains definitions of the basic terminology used in the Regulation.
Article 3 (Scope and structure) - describes the structure of the Instrument, composed of five
geographic pillars and one global pillar. It clarifies the internal structure of the pillars, divided
in programmable and non-programmable components, detailing the nature of non-
programmable actions. The Article also establishes the geographic scope of each pillar and
explains the complementarity of the pillars and of the components.
17
Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September
2024 on the financial rules applicable to the general budget of the Union (OJ L, 2024/2509, 26.9.2024,
ELI: http://data.europa.eu/eli/reg/2024/2509/oj).
EN 11 EN
The countries and territories covered under the geographic pillars are listed in Annex I.
Article 4 (Objectives of the Instrument) - sets out the general objectives, applicable to all
pillars of the Instrument, as well as the specific objectives detailed in Annex II.
Article 5 (Consistency, coherence, synergies and complementarity) - explains the relationship
between this Instrument and all areas of external action, together with its synergy, consistency
and complementarity with internal EU programmes.
Article 6 (Budget) - refers to the overall envelope for the Instrument and gives a detailed
indicative breakdown by pillar and specifies the sources of support for Ukraine. It also refers
to the ‘emerging challenges and priorities cushion’, which may increase the amounts referred
to in the Article.
Article 7 (Emerging challenges and priorities cushion) - refers to the purposes of the emerging
challenges and priorities cushion. A provision is included to inform the European Parliament
and the Council on the use of the emerging challenges and priorities cushion and to take their
observations into account.
Article 8 (Policy framework) - refers to the overall policy framework for the implementation
of the Instrument. Existing agreements, strategies, conclusions, resolutions and other similar
documents determine the policy on which implementation of the Instrument would be based.
A provision is included to inform the European Parliament and the Council and have
exchanges of views with them.
Article 9 (General principles) - lists the various principles applicable to the whole Instrument,
such as focusing on transformational impact, catering for the strategic interests of the Union,
keeping the Union’s engagement in extremely fragile and complex settings contexts, as well
as promoting democracy, good governance, the rule of law, respect for human rights and
fundamental freedoms, gender equality, women and youth empowerment. The Article also
underlines the importance of the development effectiveness principle and of the involvement
and dialogue with civil society organisations and local authorities as well as the private sector.
Article 10 (Mainstreaming) – details how the fight against climate change, environment
protection and gender equality should be mainstreamed in the implementation of the
Instrument.
Article 11 (Team Europe Approach) - sets out the objective, the modalities and the ambition
of the Team Europe approach, which aims to further coordinate the actions, and pooling
resources for common goals.
Article 12 (Migration and forced displacement) - illustrates the comprehensive approach
toward irregular migration, forced displacement and their root causes.
TITLE II – IMPLEMENTATION OF THE INSTRUMENT
Groups chapters related to the implementation of the Instrument, which includes the
multiannual programming.
Chapter I — General programming provisions (Articles 13-17) covers the various provisions
on multiannual programming, notably the general approach, principles for geographic
programmes, the content of programming documents, and the procedure for adopting them.
Chapter II — Action plans, measures and implementing principles (Articles 18-22) illustrate
the action plans and measures which can be adopted, and the respective procedures. Article 22
contains provisions on flexibilities.
EN 12 EN
Chapter III – Implementation toolbox (Article 23 - 28) covers the available tools to deliver
against the objectives of the Instrument, notably budgetary guarantees, blending and financial
assistance.
TITLE IV–- FINAL PROVISIONS
Title III (Articles 29-35). Article 30 of this Title covers the exercise of the delegation of
powers, to amend Article 6(5), Article 24(1), (2) and (3) and Annex II. Article 31 illustrate the
additional implementing rules for the Europe pillar. Article 32 sets up the committee, pursuant
to Regulation (EU) No 182/2011. That committee is in charge of delivering an opinion on
multiannual programming documents and annual work programmes (action plans and
measures). The proposal has two annexes, as follows:
- Annex I — List of countries and territories
- Annex II — Specific objectives
EN 1 EN
2025/0227 (COD)
Proposal for a
REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL
establishing Global Europe
THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty on the Functioning of the European Union, and in particular
Articles 209 and 212, and Article 322(1) thereof,
Having regard to the proposal from the European Commission,
After transmission of the draft legislative act to the national parliaments,
Having regard to the opinion of the European Economic and Social Committee18
,
Having regard to the opinion of the Committee of the Regions19
,
Having regard to the opinion of the Court of Auditors,
Acting in accordance with the ordinary legislative procedure,
Whereas:
(1) This Regulation aims at establishing the programme Global Europe (the ‘Instrument’)
with a view to upholding and promoting the Union’s values, principles and interests
worldwide in order to pursue the objectives and principles of the Union’s external
action, as laid down in Article 3(5) and Articles 8 and 21 of the Treaty on European
Union (TEU).
(2) In accordance with Article 21 TEU, the Union is to ensure consistency between the
different areas of its external action and between these and its other policies, as well as
to work for a high degree of cooperation in all fields of international relations. To
increase coherence and ensure the effectiveness of the Union’s external action, the
Instrument should serve a wide range of Union policies, in particular the enlargement,
neighbourhood, international partnerships, humanitarian aid policies, and the external
aspects of its other policies, fostered through a broad array of tools.
(3) In accordance with Article 9 of Council Decision 2010/427/EU20
, the High
Representative of the Union for Foreign Affairs and Security Policy (the ‘High
Representative’), in its capacity of Vice-President of the Commission, shall ensure the
overall political coordination of the Union’s external action, ensuring its unity,
consistency and effectiveness, in particular through the implementation of the present
Instrument.
18
OJ L.., p..
19
OJ L.., p.
20
Council Decision 2010/427/EU of 26 July 2010 establishing the organisation and functioning of the
European External Action Service (OJ L 201, 3.8.2010, p. 30, ELI:
http://data.europa.eu/eli/dec/2010/427/oj).
EN 2 EN
(4) The implementation of the Instrument should be guided by the Strategic Agendas of
the European Council, relevant European Parliament resolutions and the Political
Guidelines of the Commission, which set the Union’s vision, strategic orientations and
priorities. While leveraging the Union’s power and partnerships, the external action
implemented under the Instrument should protect and promote Union values,
strengthen peace and security and bolster preparedness, prosperity and
competitiveness of the Union. To advance the Union’s priorities and interests in its
external action, the Union should work in partnership with partner countries and
international organisations.
(5) The Instrument should contribute to ensuring consistency, coherence, synergies and
complementarity between the Union’s internal and external policies and between its
external policies in order to simultaneously promote the Union’s fundamental and
strategic interests and sustainable development in partner countries and support the
achievement of its global commitments.
(6) The main approach for actions financed under the Instrument should be through
geographic programmable actions at country, multi-country, regional and trans-
regional level, in order to maximise the impact of the Union’s assistance. That
approach should be complemented, where relevant, by non-programmable geographic
actions, including actions concerning humanitarian aid, macro-financial assistance,
addressing crisis, peace and foreign policy needs, and enhancing resilience and
competitiveness, as well as global programmable and non-programmable actions.
(7) Geographic programmable actions should frame the Union’s cooperation with partner
countries and regions in the medium and long-term to build mutually beneficial
partnerships.
(8) While the budget to finance the Union’s humanitarian aid operations should be made
available under this Instrument, such operations should be implemented in accordance
with the Humanitarian Aid Instrument established by Council Regulation (EC) No
1257/9621
.
(9) While the budgetary resources to finance the Union’s macro-financial assistance
should be made available under this Instrument, such operations should be
implemented as per Article 212 and Article 213 of the Treaty on the Functioning of
the European Union TFEU.
(10)
(11) Resilience actions should enable the Union to step up its cooperation where needed in
light of the volatility of the external context. They should be flexible including in
responding to and reinforcing actions addressing fragility, crisis and supporting the
humanitarian-development-peace nexus, address post-conflict recovery and
reconstruction needs as well as balance of payment crises.
(12) Competitiveness actions should enable the Union to respond to economic challenges
and swiftly seize opportunities to support Union competitiveness, including via the
support to the external dimension of Union internal policies. Where relevant, they
should contribute to building comprehensive mutually beneficial packages with
partner countries.
21
Council Regulation (EC) No 1257/96 of 20 June 1996 concerning humanitarian aid (OJ L 163,
2.7.1996, p. 1–6, ELI: http://data.europa.eu/eli/reg/1996/1257/oj).
EN 3 EN
(13) Crisis, peace and foreign policy needs should include actions allowing the Union to
respond to exceptional and unforeseen situations or imperative foreign policy interest,
including where there is a threat to peace, democracy, law and order, the protection of
human rights and fundamental freedoms. Those actions should be designed for an
effective, efficient, integrated and conflict-sensitive Union response to achieve peace,
stability and conflict-prevention in situations of urgency, crisis, fragility, hybrid
threats, emerging crisis or natural disasters including the security and safety of
individuals, in particular those exposed to sexual and gender-based violence, in
situations of instability; or threatening to escalate into armed conflict or to severely
destabilise the partner country or countries concerned. They should also support
innovative initiatives to address foreign policy needs across political, economic and
security issues and enable the Union to act where there is a window of opportunity to
achieve its objectives, which are difficult to address by other means.
(14) The Instrument should build on the actions previously supported under Regulations of
the European Parliament and of the Council (EU) 2021/94722
, (EU) 2021/152923
, (EU)
2024/79224
, (EU) 2024/144925
, (EU) 2025/53526
.
(15) The Instrument should contribute to the objectives of the Union’s external action, by
promoting mutually beneficial partnerships with partner countries, contributing
simultaneously to the sustainable development of partner countries and to the Union’s
strategic interests. It should allow the Union to be better positioned to address global
challenges, including the fight against climate change and biodiversity protection. It
should also provide increased economic and trade opportunities to the mutual benefit
of the Union and partner countries.
(16) Union action should promote respect for and be rooted in international human rights
law, including the Universal Declaration of Human Rights adopted by the United
Nations General Assembly on 10 December 1948, and in international humanitarian
law, and should be guided by the universality and indivisibility of human rights.
(17) Article 49 TEU provides that any European state that respects the values of respect for
human dignity, freedom, democracy, equality, the rule of law, as well as respect for
human rights, including the rights of persons belonging to minorities, and is
committed to promoting those values may apply to become a member of the Union.
Those values are common to Member States in a society in which pluralism, non-
22
Regulation (EU) 2021/947 of the European Parliament and of the Council of 9 June 2021 establishing
the Neighbourhood, Development and International Cooperation Instrument – Global Europe,
amending and repealing Decision No 466/2014/EU of the European Parliament and of the Council and
repealing Regulation (EU) 2017/1601 of the European Parliament and of the Council and Council
Regulation (EC, Euratom) No 480/2009 (OJ L 209, 14.6.2021, p. 1–78, ELI:
http://data.europa.eu/eli/reg/2021/947/oj).
23
Regulation (EU) 2021/1529 of the European Parliament and of the Council of 15 September 2021
establishing the Instrument for Pre-Accession assistance (IPA III) (OJ L 330, 20.9.2021, p. 1–26, ELI:
http://data.europa.eu/eli/reg/2021/1529/oj).
24
Regulation (EU) 2024/792 of the European Parliament and of the Council of 29 February 2024
establishing the Ukraine Facility (OJ L, 2024/792, 29.2.2024, ELI:
http://data.europa.eu/eli/reg/2024/792/oj).
25
Regulation (EU) 2024/1449 of the European Parliament and of the Council of 14 May 2024 on
establishing the Reform and Growth Facility for the Western Balkans (OJ L, 2024/1449, 24.5.2024,
ELI: http://data.europa.eu/eli/reg/2024/1449/oj).
26
Regulation (EU) 2025/535 of the European Parliament and of the Council of 18 March 2025
establishing the Reform and Growth Facility for the Republic of Moldova (OJ L, 2025/535, 21.3.2025,
ELI: http://data.europa.eu/eli/reg/2025/535/oj).
EN 4 EN
discrimination, tolerance, justice, solidarity, equality between women and men,
intergenerational fairness and cultural diversity prevail. The enlargement process is
built on established criteria, fair and rigorous conditionality and the principle of own
merits. A European state which has applied to join the Union can become a member of
the Union only when it has been confirmed that it fully meets the accession criteria
established at the Copenhagen European Council in June 1993 (the ‘Copenhagen
criteria’) and provided that the Union has the capacity to integrate the new member. A
firm commitment to ‘fundamentals first’ approach, which requires a strong focus on
the rule of law, the fight against organised crime, fundamental rights, the functioning
of democratic institutions and public administration reform, as well as on economic
criteria, remains essential. Progress depends on each candidate country’s and potential
candidate’s implementation of the necessary reforms to align with the Union acquis.
(18) The enlargement policy of the Union is a strategic investment in peace, security,
stability and prosperity in Europe and allows the Union to be better positioned to
address global challenges. It also provides increased economic and trade opportunities
to the mutual benefit of the Union and the aspiring Member States, while ensuring a
gradual transformation of the partner countries. The prospect of Union membership
has a powerful transformative effect, embedding positive democratic, political,
economic and societal change. It is in the common interest of the Union and its
partners to advance efforts to reform their political, legal and economic systems with a
view to their future Union membership and to support their accession process.
(19) Since the beginning of Russia’s unprovoked and unjustified war of aggression against
Ukraine on 24 February 2022, the Union, its Member States and European financial
institutions have mobilised unprecedented support for Ukraine’s economic, social and
financial resilience. The scale of damage caused to Ukraine requires significant and
flexible support to Ukraine to maintain functions of its government, provide public
services, as well as to support the recovery, reconstruction and modernisation of the
country. The Instrument should provide the framework for assistance for the fast
recovery, reconstruction and modernisation of the country, to mobilise investments
and enhance access to finance, as well as to facilitate Ukraine’s alignment with Union
standards and values on its way to accession to the Union. Ukraine’s path towards
accession should be closely intertwined with reconstruction efforts. Support under the
Instrument should, to the extent possible, be integrated into international efforts
towards a financial architecture for the recovery of Ukraine and be coordinated with
relevant donors and international financial institutions to ensure proper coordination
and complementarity of support.
(20) In accordance with Article 8(1) TEU, the Union is to develop a special relationship
with neighbouring countries, aiming to establish an area of prosperity and good
neighbourliness, founded on the values of the Union and characterised by close and
peaceful relations based on cooperation.
(21) The Union should conclude mutually beneficial and tailored partnerships focusing on
strategic priorities and fostering regional cooperation in the Neighbourhood East,
including the Black Sea region and helping mitigate challenges posed by Russia’s war
of aggression against Ukraine.
(22) The Union should develop a more focused approach to the Middle East, North Africa
and the Gulf, taking into account the inter-relations among these regions. It should
deepen relations with the Middle East, North Africa and Gulf regions, in line with the
respective strategic frameworks and formal agreements, in particular through mutually
EN 5 EN
beneficial and tailored partnerships in areas of mutual interests, respecting the values
and principles of the Union.
(23) The Union’s international partnerships aim at developing relations and build
partnerships with partner countries, notably to reduce and, in the long term, eradicate
poverty in line with the primary objective of the Union’s development cooperation
policy set out in Article 208 TFEU. The Union’s international partnerships also
contribute to other objectives of the Union’s external action, in particular to the
safeguarding of the Union’s values and fundamental interests, to foster the sustainable
economic, social and environmental development of partner countries.
(24) The implementation of the Instrument should support the Global Gateway strategy27
,
the Union’s external investment strategy to advance the sustainable development goals
together with partner countries. As a main pillar of the Union’s economic foreign
policy, it aims at boosting the development of secure and quality infrastructure in
partner countries to create sustainable prosperity, decent jobs, thereby strengthening
connections between the Union and its partners, while also benefiting the EU strategic
and economic interests. This strategy leverages investments in secure infrastructure
with a focus on digitalisation, climate and energy, transport, health, and education and
research. It supports countries which seek to enhance their resilience in a sustainable
manner, while strengthening partnerships that are important for the Union’s open
strategic autonomy. Global Gateway is also a value-based offer that promotes high
social, environmental, governance and financial standards, and upholds democracy,
the rule of law and human rights.
(25) The Union should engage in contexts experiencing extremely high levels of fragility,
conflict areas, and other complex settings, supporting them through a differentiated
approach to address the root causes of fragility while providing access to basic
services and promoting the resilience of populations, along the humanitarian-
development-peace nexus.
(26) The Instrument should contribute to preserving peace, preventing conflicts and
strengthening international security. In line with the ProtectEU Strategy28
, the
Instrument should contribute to a coherent and comprehensive approach to security to
enhance the Union’s security.
(27) The Instrument should strengthen democratic resilience in partner countries, including
by countering foreign information manipulation and interference, empowering free
and pluralistic media, promoting citizens’ engagement, ensuring the fairness and
integrity of electoral and other democratic processes, and by engaging in public
diplomacy activities.
(28) In accordance with the Sendai Framework for Disaster Risk Reduction 2015-2030
adopted at the Third UN World Conference on Disaster Risk Reduction on 18 March
201529
, recognition should be given to the need to move away from crisis response and
27
Joint Communication (JOIN/2021/30 final) to the European Parliament, the Council, the European
Economic and Social Committee, the Committee of the Regions and the European Investment Bank -
The Global Gateway.
28
Communication (COM/2025/148 final) from the Commission to the European Parliament, the Council,
the European Economic and Social Committee and the Committee of the Regions on ProtectEU: a
European Internal Security Strategy.
29
“Sendai Framework for Disaster Risk Reduction”, adopted on 18 March 2015 and endorsed by the
United Nations General Assembly on 3 June 2015 (A/RES/69/283).
EN 6 EN
containment to a more structural, long-term approach that more effectively addresses
situations of fragility, natural and man-made disasters, and protracted crises. Greater
emphasis and collective approaches are required on risk reduction, disaster risk
management, early warning, prevention, mitigation and preparedness, and further
efforts are required to enhance swift response and a durable recovery. This instrument
should support reforms and investments that strengthen disaster risk and crisis
management, invest in climate resilience, and enhance the resilience of vital societal
functions. The Instrument should therefore contribute to strengthening the
humanitarian-development-peace nexus.
(29) Since the objectives of this Regulation cannot be sufficiently achieved by the Member
States but can 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.
(30) The Instrument should contribute to the collective Union objective of providing 0.7 %
of gross national income as official development assistance (‘ODA’), established by
the Development Assistance Committee of the OECD, within the timeframe of the
2030 Agenda adopted by the United Nations in September 201530
(the ‘2030
Agenda’), by supporting realistic and verifiable actions to meet this commitment, on
which progress should continue to be monitored and reported. It should also promote
mutually beneficial partnerships for sustainable development, including through the
mobilisation of private resources. The whole support of the Instrument to sustainable
development – including the mobilised private finance - should be monitored through
the Total Official Support for Sustainable Development.
(31) The Instrument should contribute to the Union collective target of reaching 0.2 % of
gross national income as ODA to least developed countries within the timeframe of
the 2030 Agenda, by supporting realistic, verifiable actions to meet this commitment,
on which progress should continue to be monitored and reported.
(32) The Instrument should enhance the Union’s competitiveness, in particular by
contributing to the sustainability, resilience and diversification of value and supply
chains, reflecting high standards of responsible business practice, and by increasing
economic opportunities. Consistency between the implementation of the Union’s
trade, economic security, and industrial policies and the Instrument should be ensured,
including synergies with Clean Trade and Investment Partnerships. In particular, in
order to harness the potential of mutually beneficial partnerships for sustainable
development in the Union and partner countries, synergies should be fostered between
the Instrument and the Union’s European Competitiveness Fund, established by
Regulation (EU) [XXX] by the European Parliament and Council31
, as well as the
Connecting Europe Facility, established by Regulation (EU) [XXX] by the European
30
"Transforming our world: the 2030 Agenda for Sustainable Development", adopted at the United
Nations Sustainable Development Summit on 25 September 2015 (A/RES/70/1).
31
Regulation (EU) No [XXX] of the European Parliament and of the Council on establishing the
European Competitiveness Fund (‘ECF’), including the specific programme for defence research and
innovation activities, and repealing Regulations (EU) 2021/522, (EU) 2021/694, (EU) 2021/696, (EU)
2021/697, (EU) 2021/783, (EU) 2023/588, (EU) 2023/1525, (EU) 2023/2418, (EU) (EDIP) (OJ L.., p.)
EN 7 EN
Parliament and Council 32
, in supporting projects of common interest between Member
States and partner countries, for the part of the project on the territory of the partner
country.
(33) Complementarity should be ensured among the Union’s external financing
instruments, in particular with Council Decision (EU) 2021/176433
on the association
of the overseas countries and territories with the Union, the European Instrument for
International Nuclear Safety Cooperation - Decommissioning established by Council
Regulation (Euratom) [XXX] [INSC-D]34
, the common foreign and security policy
including, where relevant, the Common Security and Defence Policy, and the
European Peace Facility, established by Council Decision (CFSP) 2015/50935
, which
is financed outside the Union budget.
(34) The Union should seek the most efficient use of available resources among its
financing instruments. In this respect, the Instrument should allow for both
contributions to and from other Union programmes, as well as the combination of
funding with them. This should contribute to the Union’s priorities and interests as
well as to sustainable development in the Union’s partner countries. This includes
coherence and complementarity with macro-financial assistance, where relevant.
(35) This Regulation should lay down an indicative financial envelope for the Instrument.
For the purpose of this Regulation, current prices are calculated by applying a fixed
2% deflator.
(36) In a rapidly changing economic, social and geopolitical environment, recent
experience has shown the need for a more flexible multiannual financial framework
and Union spending programmes. To that effect, and in line with the objectives of this
Regulation, the funding should duly consider 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 budget implementation.
(37) Council Regulation (EU, Euratom) …/…36
(MFF Regulation) allows to mobilise the
necessary appropriations in the Union budget over and above the ceilings of the
multiannual financial framework to honour the debt liabilities of the Union related to
the loans to Ukraine. This financially enables the authorisation under this Regulation
32
Regulation (EU) No [XXX] of the European Parliament and of the Council on establishing the
Connecting Europe Facility for the period 2028-2034, amending Regulation (EU) 2024/1679 and
repealing Regulation (EU) 2021/1153 (OJ […], […], p. […]).
33
Council Decision (EU) 2021/1764 of 5 October 2021 on the association of the Overseas Countries and
Territories with the European Union including relations between the European Union on the one hand,
and Greenland and the Kingdom of Denmark on the other (Decision on the Overseas Association,
including Greenland) (OJ L 355, 7.10.2021, p. 6, ELI: http://data.europa.eu/eli/dec/2021/1764/oj).
34
Council Regulation (Euratom) [XXX] of [ establishing the European Instrument for International
Nuclear Safety Cooperation and Decommissioning and repealing Regulations (Euratom) 2021/100 and
(Euratom) 2021/948 (OJ […], […], p. […]).
35
Council Decision (CFSP) 2021/509 of 22 March 2021 establishing a European Peace Facility, and
repealing Decision (CFSP) 2015/528 (OJ L 102, 24.3.2021, p. 14–62)
36
Council Regulation (EU, Euratom) …/… of … laying down the multiannual financial framework for
the years 2028 to 2034 (OJ L.., p.).
EN 8 EN
of financial assistance to Ukraine in the form of loans in accordance with Article
223(1) of Regulation (EU, Euratom) 2024/250937
.
(38) In view of the budgetary coverage under the Regulation (EU, Euratom) …/… (MFF
Regulation), it is appropriate not to reduce the maximum amount of the aggregate
Union financial liabilities covering budgetary guarantees and financial assistance in
the form of loans under this Regulation by the amount of financial assistance in the
form of loans provided to Ukraine under this Regulation. It is also appropriate not to
establish provisioning and, by way of derogation from Article 214(1) of Regulation
(EU, Euratom) 2024/2509, not to set a provisioning rate for loans to Ukraine under
this Instrument.
(39) As for Union support to Ukraine other than in the form of loans, this Regulation
should be financed by the (Ukraine Reserve) as provided for in the Council Regulation
[(EU, Euratom) 20XX/XXX * [MFF Regulation] for the period from 1 January 2028
to 31 December 2034. The commitment appropriations and corresponding payment
appropriations from the (Ukraine Reserve) should be mobilised annually through the
budget procedure. Additionally, it should be possible to use appropriations mobilised
for the purposes of this Regulation from the reserve referred to in Article 6 of
Regulation Council Regulation [(EU, Euratom) 20XX/XXX * [MFF Regulation] ) to
provide support to Ukraine under Regulation (Euratom) […] (INSC-D).
(40) In the framework of the Union’s restrictive measures, adopted on the basis of Article
29 TEU and 215(2) TFEU, no funds or economic resources may be made available,
directly or indirectly, to or for the benefit of designated natural or legal persons,
entities or bodies. Therefore, such natural or legal persons, entities or bodies, as well
as legal persons, entities or bodies owned or controlled by them should not be
supported by the Instrument.
(41) In a global context where the Union is confronted with high geopolitical and
geoeconomic competition, marked by global challenges, ranging from climate change
and biodiversity loss to tensions around scarce resources, technological dependencies,
continuing migratory pressure or economic and trade disruptions, in addition to
security threats and fragility, external action has to continuously and rapidly react to
emerging needs, as well as to act to advance strategic priorities, in order to effectively
pursue the Union’s and partners’ priorities. To increase the ability of the Union to
respond to unforeseen needs and adapt its partnerships to emerging priorities, building
on the experience of the European Development Funds and Regulation (EU)
2021/947, an amount should be left unallocated as an emerging challenges and
priorities cushion. It should be mobilised in accordance with the procedures
established in this Regulation.
(42) The overall context for action should be the pursuit of a rules-based and value-based
global order, with multilateralism as its key principle and the United Nations (UN) at
its core. The 2030 Agenda, together with the Paris Agreement adopted under the
United Nations Framework Convention on Climate Change38
(the ‘Paris Agreement’),
37
Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September
2024 on the financial rules applicable to the general budget of the Union (OJ L, 2024/2509, 26.9.2024,
ELI: http://data.europa.eu/eli/reg/2024/2509/oj).
38
Council Decision (EU) 2016/1841 of 5 October 2016 on the conclusion, on behalf of the European
Union, of the Paris Agreement adopted under the United Nations Framework Convention on Climate
Change (OJ L 282, 19.10.2016, p. 1–3, ELI: http://data.europa.eu/eli/dec/2016/1841/oj).
EN 9 EN
the Kunming-Montreal Global Biodiversity Framework39
, the Addis Ababa Action
Agenda of the Third International Conference on Financing for Development40
and the
Pact for the Future41
, is the international community’s response to global challenges
and trends in relation to sustainable development. The Instrument should pay
particular attention to interlinkages between sustainable development goals and to
integrated actions that can create co-benefits and meet multiple objectives in a
coherent way.
(43) The Instrument should support the implementation of the Samoa Partnership
Agreement between the Union and its Member States, of the one part, and the
Members of the Organisation of the African, Caribbean and Pacific States, of the other
part42
, signed in Samoa on 15 November 2023 and provisionally applied as from 1
January 2024. The Instrument should also support the continuation of the established
cooperation between the Union and these specific regions, for example with the
African Union in line with the EU-AU joint vision for 2030.
(44) The Union should ensure policy coherence for development as required by Article 208
TFEU. The Union should take account of the objectives of development cooperation
in the Union policies that are likely to affect developing countries and territories.
Ensuring policy coherence for sustainable development requires taking into account
the impact of all Union policies on sustainable development at all levels — nationally,
within the Union, in other countries and at global level.
(45) In accordance with its international commitments, the Union should apply the
development effectiveness principles, namely ownership of development priorities by
developing countries and territories, a focus on results, inclusive development
partnerships, transparency and mutual accountability. In that regard, the Union and its
Member States should maximise the value added of their collective assistance for
partner countries and regions. The implementation of the Instrument should be guided
by its expected results namely outputs, outcomes and impacts.
(46) The Union should foster close consultation with local authorities and civil society, as
well as support their participation in contributing to sustainable development and to
the implementation of the sustainable development goals at local level. The Union
should also support an enabling environment for civil society, in which these
organisations can carry out their work effectively. The Instrument should provide
Union support to civil society organisations and local authorities in order to pursue the
values, interests and objectives of the Union. Civil society organisations and local
authorities should be duly consulted and have timely access to relevant information
allowing them to be adequately engaged.
39
“The Kunming-Montreal Global Biodiversity Framework”, adopted by the 15th
conference of Parties
(COP 15) to the Convention on Biological Diversity (CBD) on 19 December 2022.
40
“Addis Ababa Action Agenda of the Third International Conference on Financing for Development”,
adopted on 16 June 2015 and endorsed by the United Nations General Assembly on 27 July 2015
(A/RES/69/313).
41
“The Pact for the Future”, adopted by the United Nations General Assembly on 22 September 2024
(A/RES/79/1).
42
Council Decision (EU) 2023/2861 of 20 July 2023 on the signing, on behalf of the European Union, and
provisional application of the Partnership Agreement between the European Union and its Member
States, of the one part, and the Members of the Organisation of African, Caribbean and Pacific States,
of the other part (OJ L, 2023/2861, 28.12.2023, ELI: http://data.europa.eu/eli/dec/2023/2861/oj).
EN 10 EN
(47) The implementation of the Instrument should be guided by the principles of gender
equality, women and girls’ empowerment and of preventing and combating violence
against women and domestic violence and should seek to protect and promote
women’s rights in line with the Roadmap on Women’s Rights43
, Gender Equality
Strategy44
, EU Gender Action Plans, relevant Council conclusions and international
conventions, including the Istanbul Convention on violence against women45
.
Strengthening gender equality and women’s empowerment in the Union’s external
action and increasing efforts to reach the minimum standards of performance indicated
by the EU Gender Action Plans should lead to a gender sensitive and transformative
approach in all Union external action and international cooperation. Gender equality
and women’s and girls’ empowerment should be mainstreamed under the Instrument
and adequately reflected across all the actions.
(48) The Instrument should support children and youth as key agents of change, giving
particular attention to their needs and empowerment. It should seek to prevent and
combat discrimination-based on age, ethnic origin, religion and belief, disability or
sexual orientation. It should promote the rights of persons with disabilities, in line with
the UN Convention to the Rights of Persons with Disabilities46
.
(49) Recognising that the triple planetary crisis of climate, biodiversity loss and pollution
have worsened over the last decade and cannot be solved by the Union alone, by
supporting international cooperation the Instrument should play an essential role to
meet multilaterally agreed climate and environmental goals. In that regard, the Union
should support the most vulnerable countries, in particular the small island developing
states and the least developed countries.
(50) Reflecting the importance of tackling climate change in line with the Union’s
commitments to implement the Paris Agreement and the Kunming-Montreal Global
Biodiversity Framework and to achieve the sustainable development goals, the
Instrument should contribute to mainstreaming climate action in the Union policies.
Relevant actions should be identified during the implementation of the Instrument, and
the overall contribution from the Instrument should be part of relevant monitoring
evaluations and review processes. The Instrument should contribute to halting and
reversing the decline of biodiversity building on the interlinkages between climate and
biodiversity goals.
(51) Union action in the area of climate change and biodiversity should support a just
transition to a climate-neutral, climate resilient, resource efficient and circular
economy. It should notably favour the adherence to and implementation of the Paris
Agreement, the UN Framework Convention on Climate Change, the UN Convention
on Biological Diversity, the UN Convention to Combat Desertification and the
43
Communication (COM/2025/97 final) from the Commission to the European Parliament, the Council,
the European Economic and Social Committee and the Committee of the Regions - A Roadmap for
Women's Rights.
44
Communication (COM/2020/152 final) from the Commission to the European Parliament, the Council,
the European Economic and Social Committee and the Committee of the Regions – A Union of
Equality: Gender Equality Strategy 2020-2025.
45
“Council of Europe Convention on preventing and combating violence against women and domestic
violence”, (CETS No. 210) entered into force on 1 August 2014,
https://www.coe.int/en/web/conventions/full-list?module=treaty-detail&treatynum=210.
46
Convention on the Rights of Persons with Disabilities (CRPD), entered into force on 3 May 2008
https://social.desa.un.org/issues/disability/crpd/convention-on-the-rights-of-persons-with-disabilities-
crpd#Fulltext.
EN 11 EN
Agreement on the Conservation and Sustainable Use of Marine Biological Diversity of
Areas beyond National Jurisdiction. In particular, funding allocated in the context of
the Instrument should be coherent with and support the long-term temperature goal of
the Paris Agreement of limiting the increase in the global average temperature to well
below 2°C above pre-industrial levels while pursuing efforts to limit the temperature
increase to 1.5°C. The Instrument should be coherent with the objective to increase the
ability to adapt to the adverse effects of climate change, reduce vulnerability, foster
climate resilience and align with the objectives of the Kunming-Montreal Global
Biodiversity Framework. In line with the European Ocean Pact47
, the Instrument
should promote the preservation of the ocean and strengthen international rules-based
ocean governance. Particular attention should be given to actions that create co-
benefits and meet multiple objectives, including for climate, biodiversity and the
environment.
(52) Article 33(2), point (d), of Regulation (EU, Euratom) 2024/2509 requires programmes
and activities to be implemented, where feasible and appropriate, without doing
significant harm to the environmental objectives set out in Article 9 of Regulation
(EU) 2020/85248
(the ‘do no significant harm principle’). To ensure a consistent
implementation of that principle throughout the budget, the Instrument should apply
the do no significant harm principle in line with the common rules established by
Regulation (EU, Euratom) [XXX] of the European Parliament and Council
[Performance Regulation] and following the single technical guidance ('do no
significant harm guidance'),
(53) The Instrument should promote digital cooperation with partner countries and their
digital transition, in line with the International Digital Strategy for the European
Union49
and the Competitiveness Compass50
.
(54) In accordance with Article 210 TFEU, the Union and its Member States should
increase their collective impact by bringing together to the fullest possible range their
respective resources and capacities.
(55) The Union’s and Member States’ international cooperation policies should operate in a
Team Europe approach51
, thereby complementing and reinforcing each other to
improve the effectiveness, impact and value added of their collective assistance.
(56) The Union, its Member States, Member States’ implementing agencies and financial
institutions, including development finance institutions and Member States export
credit agencies, the European Investment Bank (the ‘EIB’) and the European Bank for
Reconstruction and Development (the ‘EBRD’) should seek to support partner
47
Communication (COM/2025/281 final) from the Commission to the European Parliament, the Council,
the European Economic and Social Committee and the Committee of the Regions – The European
Ocean Pact.
48
Regulation (EU) 2020/852 of the European Parliament and of the Council of 18 June 2020 on the
establishment of a framework to facilitate sustainable investment, and amending Regulation (EU)
2019/2088 (OJ L 198, 22.6.2020, p. 13–43, ELI: http://data.europa.eu/eli/reg/2020/852/oj).
49
Joint Communication (JOIN/2025/140 final) to the European Parliament and the Council – An
International Digital Strategy for the European Union.
50
Communication (COM/2025/30 final) from the Commission to the European Parliament, the European
Council, the Council, the European Economic and Social Committee and the Committee of the Regions
- A Competitiveness Compass for the EU.
51
Joint Communication (JOIN/2024/25 final) to the European Parliament, the Council, the European
Economic and Social Committee, the Committee of the Regions and the European Investment Bank -
Building sustainable international partnerships as a Team Europe.
EN 12 EN
countries and Union strategic interests outside the Union through jointly identified and
implemented actions. This approach should be inclusive and open to like-minded
partners and stakeholders to pool resources and jointly contribute to the achievement
of common goals including through the use of the budgetary guarantee and blending.
(57) The Union should favour a constructive engagement on all aspects of migration and
forced displacement, working to ensure that migration takes place in a safe and well-
regulated manner and support is provided to forcibly displaced people and their host
communities. It is essential to further step up cooperation on migration with partner
countries while respecting competences of Member States, reaping the benefits of
orderly, safe, regular and responsible migration and effectively addressing irregular
migration. Such cooperation should contribute to mitigating the impact of forced
displacement, ensuring access to international protection, addressing the root causes of
irregular migration and of forced displacement, enhancing border management and
pursuing efforts to prevent irregular migration, fighting against trafficking in human
beings and migrant smuggling, and working on dignified and sustainable returns,
readmission and reintegration where relevant, on the basis of mutual accountability
and full respect of humanitarian and human rights obligations under international and
Union law, and by engaging with diasporas and supporting legal migration pathways.
Therefore, partner countries’ effective cooperation with the Union in this area should
be an integral element of the Instrument. Increased coherence between migration,
asylum, return and external policies is important to ensure that the Union’s external
assistance supports partner countries to manage migration more effectively towards
sustainable development. The Instrument should contribute to a coordinated, holistic
and structured approach to migration, maximising synergies and applying the
necessary leverage.
(58) The Instrument should enable the Union, in cooperation with Member States, to
comprehensively respond to challenges, needs and opportunities related to migration
and forced displacement in a way that is coherent with and complementary to Union
migration and asylum policy. Migration-related actions under the Instrument should
contribute to the effective implementation of Union agreements and dialogues on
migration with partner countries by encouraging cooperation relying on a flexible
incitative approach and supported by a coordination mechanism under the Instrument.
The coordination mechanism should enable ongoing and emerging migration and
forced displacement challenges to be addressed under the Instrument, using all
appropriate components through flexible funding, while respecting its financial
envelopes and relying on their flexible implementation. Those actions should be
implemented in full respect of international law, including international human rights,
international humanitarian law and refugee law, and Union and national competences.
(59) Under the Instrument, the Union should address human rights and democratic
governance at all levels, including through election observation missions, in line with
the EU Action Plan on Human Rights and Democracy52
. Where relevant, Union
assistance in areas pertaining to the protection of human rights and democratic values
and principles and support to civil society actors should be independent from the
consent of the governments and public authorities of the partner countries concerned.
As the respect for democracy, human rights and the rule of law is essential for sound
financial management and effective Union funding as referred to in Regulation (EU,
52
Joint Communication (JOIN/2020/5 final) to the European Parliament and the Council - EU Action
Plan on Human Rights and Democracy 2020-2024.
EN 13 EN
Euratom) 2024/2509, assistance could be suspended in the event of degradation in
democracy, human rights or the rule of law in third countries.
(60) Funding under the Instrument should be used to finance actions for the international
dimension of the Erasmus+ programme, including in line with the Union of Skills53
.
The multiannual programming of the international dimension of Erasmus+ under this
Instrument should be implemented in accordance with the procedures established in
Regulation (EU) [XXX] of the European Parliament and Council [Erasmus+
Regulation]54
.
(61) The Instrument should contribute to foster international cultural relations and
recognise the role of culture in promoting the Union’s values.
(62) Regulation (EU, Euratom) 2024/2509 applies to this Instrument. It lays down the rules
on the establishment and the implementation of the general budget of the European
Union, including the rules on grants, prizes, non-financial donations, procurement,
indirect management, financial assistance, financial instruments and budgetary
guarantees.
(63) Annual or multi-annual action plans and measures referred to in this Regulation should
constitute work programmes within the meaning of Regulation (EU, Euratom)
2024/2509. Annual or multi-annual action plans should consist of a set of measures
grouped into one document.
(64) Rules on effective establishment or nationality, or the type of participants in award
procedures, including with respect to their direct and indirect control by entities of a
partner country, as well as the origin of products may be restricted, including where
such restrictions are in the strategic interests of the Union. Such restrictions could, for
example, apply to high-risk suppliers, where relevant.
(65) While respecting the principle that the Union budget is set annually, external volatility
requires to preserve the flexibilities already allowed under Regulation (EU) 2021/947
concerning carry-overs. By way of derogation from Article 12(4) of Regulation (EU,
Euratom) 2024/2509, to ensure the efficient use of the Union funds both for Union
citizens and the partner countries, thus maximising the Union funds available for the
Union’s external action interventions, carry-overs stemming from the Instrument
should be available to be reused under this Instrument. By way of derogation from
Article 212(3) of Regulation (EU, Euratom) 2024/2509, revenue, repayments and
recoveries from financial instruments established by external action programmes
under this or preceding multiannual financial frameworks should be available to be
reused under this Instrument. This will make available the necessary resources to fund
the most pressing additional needs of the EU’s external relations of the moment.
(66) To increase the resources available for the Instrument by assigning to it the surpluses
related to the Guarantee Fund for external actions established by Regulation (EC,
Euratom) No 480/2009, the European Fund for Sustainable Development (EFSD)
53
Communication (COM/2025/90 final) from the Commission to the European Parliament, the European
Council, the Council, the European Economic and Social Committee and the Committee of the Regions
- The Union of Skills.
54
Regulation (EU) [XXX] of the European Parliament and of the Council establishing the Erasmus+
programme for the period 2028-2034, and repealing Regulations (EU) 2021/817 and (EU) 2021/888
(OJ L..p.).
EN 14 EN
established by Regulation (EU) 2017/160155
, the European Fund for Sustainable
Development Plus (EFSD+) established by Regulation (EU) 2021/947, the Ukraine
Guarantee established by Regulation (EU) 2024/792, the financial assistance in the
form of loans established under Regulations (EU) 2024/1449, and (EU) 2025/535, and
the budgetary guarantee and financial assistance under this Instrument, derogations
from Article 216(4), point (a), of Regulation (EU, Euratom) 2024/2509 and from
Article 31(8) of Regulation (EU) 2021/947 are is required. This will make available
the necessary resources to fund the most pressing additional needs of the EU’s
external relations of the moment.
(67) To ensure flexibility, Article 114(2), third subparagraph of Regulation (EU, Euratom)
2024/2509 should not apply to the multiannual actions under this Instrument.
(68) The types of financing and the methods of implementation under this Regulation
should be chosen on the basis of their ability to achieve the specific objectives of the
actions and to deliver results, taking into account, in particular, the costs of controls,
the administrative burden and the expected risk of non-compliance. When making that
choice, the use of lump sums, unit costs and flat rates, as well as financing not linked
to costs of the relevant operation as referred to in Article 125(1), point (a), of
Regulation (EU, Euratom) 2024/2509, should be considered. The Union should be
able to entrust budget implementation tasks under Article 62(1), point (c) (viii) of
Regulation (EU) 2024/2509 to the Union Institute for Security Studies and the
European Security and Defence College to implement actions under the Instrument.
(69) By way of derogation from Article 192(1) of Regulation (EU, Euratom) 2024/2509,
the Union should be able to provide support in the form of grants in a flexible and
timely manner without the need for a call for proposals, for example, in difficult
conditions and cases of urgency and crisis, to support human rights defenders and
other civil society actors. Under the conditions set out in Regulation (EU, Euratom)
2024/2509, grants funded by the Instrument could also be provided to civil society
organisations and other entities which do not have legal personality under the
applicable national law.
(70) Without prejudice to the use of competitive procedures wherever appropriate in
accordance with Article 192(1) of Regulation (EU, Euratom) 2024/2509, grants could
be provided to entities governed by private law from a Member State without a call for
proposals where the relevant project is in the strategic interest of the Union and
supports the objectives of the Instrument. Such a direct award could be justified, for
example, to enable investments or finance feasibility studies in strategic areas such as
critical raw materials, climate change resilience or digital and other infrastructure, in
particular as part of integrated packages, to enhance the Union’s strategic autonomy.
In accordance with Regulation (EU, Euratom) 2024/2509, any such award should
respect the general principles applicable to grants and be duly justified in the award
decision.
(71) In line with the Team Europe approach, actions in indirect management should
preferably be entrusted to the EIB, the EBRD, or a Member State organisation in the
sense of Regulation (EU, Euratom) 2024/2509.
55
Regulation (EU) 2017/1601 of the European Parliament and of the Council of 26 September 2017
establishing the European Fund for Sustainable Development (EFSD), the EFSD Guarantee and the
EFSD Guarantee Fund (OJ L 249, 27.9.2017, p. 1–16, ELI: http://data.europa.eu/eli/reg/2017/1601/oj).
EN 15 EN
(72) In indirect management with partner countries or the bodies they designate where the
Commission retains financial management responsibilities in accordance with Article
157(7), second subparagraph, point (a), of Regulation (EU, Euratom) 2024/2509, the
Commission, when making payments on behalf of the contracting authorities directly
to their recipients should be able to subsequently recover related amounts due directly
from the contracting authorities' recipients. Likewise, in cases of indirect management
where the partner countries or the bodies they designate do not or become unable to
perform the budget implementation tasks entrusted, the Commission should be able to
temporarily take their place and act in their name and on their behalf in indirect
management.
(73) Pursuant to Article 85(1) of Council Decision (EU) 2021/1764, persons and entities
established in overseas countries and territories are eligible for funding subject to the
rules and objectives of the Instrument and possible arrangements applicable to the
Member State to which the relevant overseas country or territory is linked. In order to
reinforce the effectiveness and impact of the Union's action, cooperation between the
partner countries and regions, the overseas countries and territories as well as the
Union outermost regions under Article 349 TFEU should be encouraged in areas of
common interest.
(74) The Instrument should enable the provision of support in the form of budgetary
guarantees and financial assistance. The provisioning and liabilities arising from those
operations and the financial assistance should be supported by appropriations under
the Instrument.
(75) With a view to ensuring consistency, the budgetary guarantee and financial
instruments, including when combined with non-repayable support in blending
operations, and financial assistance under the Instrument should be implemented in
accordance with Title X of Regulation (EU, Euratom) 2024/2509 and with technical
arrangements, terms and conditions established by the Commission for the purposes of
its application.
(76) After the EFSD in 2017-2020 and the EFSD+ in 2021-2027, this is the third
multiannual financial framework where a budgetary guarantee is used to support
external actions. The budgetary guarantee has become a standard tool in the Union’s
financial toolbox and its main rules and procedures are enshrined in Regulation (EU,
Euratom) 2024/2509. Only specific provisions applicable to the budgetary guarantee
under the Instrument are foreseen in this Regulation. On the other hand, recognising
that the investments mobilised by the Union in partner countries may need a flexible
use and combination of the various forms of Union’s funding available under the
Instrument, no particular treatment of blending operations and the budgetary guarantee
under a specific fund, such as EFSD or EFSD+, is foreseen.
(77) To provide for predictability and flexibility, it is necessary to set a maximum amount
of the budgetary guarantee and the maximum amount of the aggregate Union financial
liabilities covering the budgetary guarantee and financial assistance in the form of
loans under the Instrument.
(78) In accordance with Article 214(1) of Regulation (EU, Euratom) 2024/2509, this
Regulation should provide for the review of the provisioning rates. It should therefore
be possible to amend the provisioning rates throughout the multiannual financial
framework period following regular review, which should be based on the
Commission’s risk management framework taking into account sound financial
management.
EN 16 EN
(79) To comply with the requirements of Regulation (EU, Euratom) 2024/2509, this
Regulation should set out the possibility for third parties and partner countries to
contribute to the budgetary guarantee.
(80) It should be possible that the budgetary guarantee authorised under this Regulation
serves as a horizontal delivery tool also for Council Decision (EU) 2021/1764 and
Regulation (Euratom) [XXX] [INSC-D], to provide support under other Union
programmes in accordance with the objectives and eligibility criteria set out in those
programmes. For that purpose, the corresponding provisioning of financial liabilities
should be made from the financial envelope of those other programmes.
(81) To ensure sound financial management and budgetary discipline and to limit
outstanding payments, the provisioning for the budgetary guarantee and financial
assistance should not be committed after the end of the last year of the multiannual
financial framework and should be constituted by the end of the third year after the
end of the multiannual financial framework. Budgetary commitments for that
provisioning should take into account the progress in granting the budgetary guarantee
and financial assistance. The constitution of the provisioning should take into account
the progress in the approval and signature of the financing and investment operations
and in the disbursement of the financial assistance.
(82) In order to promote the participation of eligible implementing entities and counterparts
from partner countries benefiting from the budgetary guarantee or financial
instruments, by way of derogation from Article 211(5) of Regulation (EU, Euratom)
2024/2509, the partner country should not be required to contribute to the budgetary
guarantee or the financial instruments. Moreover, in order to provide flexibility,
increase the attractiveness for the private sector and maximise the impact of the
investments, a derogation from Article 62(1), point (c) and Article 211(5) of
Regulation (EU, Euratom) 2024/2509, should be provided allowing bodies subject to
private law which provide adequate assurance of their financial capacity and which are
neither entrusted with a public service mission nor with the implementation of a
public-private partnership to be eligible implementing entities and counterparts.
(83) Blending and budgetary guarantees play a central role in the Union’s investment
strategy in partners countries. It is, therefore, appropriate to set up a Global Europe
Investment Board to provide strategic and operational guidance to the Commission in
their implementation.
(84) It is appropriate to organise the financial assistance under the diversified funding
strategy provided for in Article 224 of Regulation (EU, Euratom) 2024/2509 and
established as a single funding method therein, which is expected to enhance the
liquidity of Union debt securities and the attractiveness and cost-effectiveness of
Union issuance.
(85) The Commission could provide financial assistance to partners countries in the form of
policy-based loans. The primary purpose of such policy-based loans should be to
support partner country’s reform programmes and catalyse investments. They should
contribute to achieving national policy goals and meeting global challenges. The
conditions applicable to policy-based loans should, where relevant, be aligned to the
conditions of budget support in accordance with Article 241(1) of Regulation (EU,
Euratom) 2024/2509. A debt analysis should be conducted prior to the approval of any
loan. This analysis should assess the country's ability to sustain its debt levels over the
loan term.
EN 17 EN
(86) In order to amend non-essential elements of this Regulation, the power to adopt acts in
accordance with Article 290 TFEU should be delegated to the Commission in respect
of amending the specific objectives listed in Annex II, the percentage of expenditure
fulfilling the criteria of ODA, the maximum amounts of the budgetary guarantee and
the provisioning rates. It is of particular importance that the Commission carries out
appropriate consultations during its preparatory work, including at expert level, and
that those consultations be conducted in accordance with the principles laid down in
the Interinstitutional Agreement of 13 April 2016 on Better Law-Making56
. In
particular, to ensure equal participation in the preparation of delegated acts, the
European Parliament and the Council receive all documents at the same time as
Member States' experts, and their experts systematically have access to meetings of
Commission expert groups dealing with the preparation of delegated acts.
(87) Cooperation with partner countries covered under the Europe pillar occurs in the
context of a special relationship with the Union, including through, where relevant, the
preparation of candidate countries and potential candidates for future accession. Such
cooperation requires the establishment of specific conditions reflecting this highly
ambitious relationship. For this purpose, relevant for Enlargement and Neighbourhood
East partners in the Europe pillar, specific rules related to the relevant performance-
based plans serving as a basis for programming should be established in line with the
correspondingly high ambition of mutual relations between the partner countries and
the Union. In order to ensure uniform conditions for the implementation of such
engagement and for the implementation modalities that are designed to prepare for the
management of internal funds, such as structural, agricultural and rural development
and cross-border cooperation funds, including, where relevant, for indirect
management by the partner countries, implementing powers should be conferred on
the Commission. Those powers should be exercised in accordance with Regulation
(EU) No 182/2011 of the European Parliament and of the Council of 16 February 2011
laying down the rules and general principles concerning mechanisms for control by the
Member States of the Commission's exercise of implementing powers57
. Those
uniform conditions should be amended if developments so require.
(88) In the context of assistance provided to Enlargement and Neighbourhood East partners
in the Europe pillar, cooperation should build on the lessons learned from the
management and implementation of past assistance and performance-based facilities,
including in relation to the relevant performance-based plans, conditionality linked to
rule of law principles and human rights, performance, structures and control systems
to be set up in preparation of accession. Where relevant, financial assistance in the
form of a policy-based loan may be provided to partner countries implementing
performance-based plans.
(89) In order to ensure uniform conditions for the implementation of the Instrument
through the relevant implementing acts, implementing powers should be conferred on
the Commission. Those powers should be exercised in accordance with Regulation
56
Interinstitutional Agreement between the European Parliament, the Council of the European Union and
the European Commission on Better Law-Making (OJ L 123, 12.5.2016, p. 1–14, ELI:
http://data.europa.eu/eli/agree_interinstit/2016/512/oj).
57
Regulation (EU) No 182/2011 of the European Parliament and of the Council of 16 February 2011
laying down the rules and general principles concerning mechanisms for control by Member States of
the Commission’s exercise of implementing powers (OJ L 55, 28.2.2011, p. 13–18, ELI:
http://data.europa.eu/eli/reg/2011/182/oj).
EN 18 EN
(EU) No 182/2011. The Commission may adopt immediately applicable implementing
acts where, in duly justified cases relating to crises or immediate threats to peace,
democracy, the rule of law, human rights or fundamental freedoms, imperative
grounds of urgency so require.
(90) The Instrument should contribute to strengthening awareness, understanding and
perception of the Union in a Team Europe approach in partner countries. The objective
should be to position the Union as a reliable partner that is commensurate with the
scale, scope and ambition of the Union’s political commitment and sustained
investment. This should be achieved through impactful strategic communication, and
in line with Regulation (EU, Euratom) [XXX] [Performance Regulation]58
.
(91) The Instrument is to be implemented in accordance with Regulation (EU, Euratom)
[XXX] [Performance Regulation] 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, 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.
(92) The references to the Union’s external assistance instruments in Article 9 of Decision
2010/427/EU, which are the predecessors to the Instrument established by this
Regulation, should be construed as references to this Regulation. The Commission
should ensure that this Regulation is implemented in accordance with the role of the
European External Action Service as provided in that Decision.
(93) In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom)
No 883/2013 of the European Parliament and of the Council59
, Council Regulation
(Euratom, EC) No 2988/9560
, Council Regulation (Euratom, EC) No 2185/9661
and
Council Regulation (EU) 2017/193962
, 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
58
Regulation (EU) No [XXX] of the European Parliament and of the Council establishing a budget
expenditure tracking and performance framework and other horizontal rules for the Union programmes
and activities. (OJ […], […], p. […]).
59
Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council of 11
September 2013 concerning investigations conducted by the European Anti-Fraud Office (OLAF) and
repealing Regulation (EC) No 1073/1999 of the European Parliament and of the Council and Council
Regulation (Euratom) No 1074/1999 (OJ L 248, 18.9.2013, p. 1, ELI:
http://data.europa.eu/eli/reg/2013/883/2021-01-17).
60
Council Regulation (EC, Euratom) No 2988/95 of 18 December 1995 on the protection of the European
Communities financial interests (OJ L 312, 23.12.95, p. 1,
ELI: http://data.europa.eu/eli/reg/1995/2988/1995-12-23).
61
Council Regulation (Euratom, EC) No 2185/96 of 11 November 1996 concerning on-the-spot checks
and inspections carried out by the Commission in order to protect the European Communities' financial
interests against fraud and other irregularities (OJ L 292,15.11.96, p. 2,
ELI: http://data.europa.eu/eli/reg/1996/2185/oj).
62
Council Regulation (EU) 2017/1939 of 12 October 2017 implementing enhanced cooperation on the
establishment of the European Public Prosecutor’s Office (‘the EPPO’) (OJ L283, 31.10.2017, p. 1,
ELI: http://data.europa.eu/eli/reg/2017/1939/2021-01-10).
EN 19 EN
administrative sanctions. In particular, in accordance with Regulation (EU, Euratom)
No 883/2013 and Regulation (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 Council63
. 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, the EPPO and the European Court of Auditors and to ensure
that any third parties involved in the implementation of Union funds grant equivalent
rights.
(94) This Instrument replaces the programmes established by Regulations (EU) 2021/947,
(EU) 2021/1529, (EU) 2024/792, (EU) 2024/1449 and (EU) 2025/535.
HAVE ADOPTED THIS REGULATION:
TITLE I – GENERAL PROVISIONS
Article 1 – Subject matter
This Regulation establishes Global Europe (the ‘Instrument’).
It lays down the objectives of the Instrument, the budget for the period from 2028 to 2034, the
forms of Union funding and the rules for providing such funding.
Article 2 – Definitions
For the purposes of this Regulation, the following definitions apply:
(1) ‘country indicative programme’ means an indicative programme covering one
partner country;
(2) ‘multi-country indicative programme’ means an indicative programme covering
more than one partner country;
(3) ‘regional indicative programme’ means a multi-country indicative programme
covering more than one partner country within the same geographic area as referred
to in Article 3(1);
(4) ‘trans-regional indicative programme’ means a multi-country indicative programme
covering more than one partner country from different geographic areas as referred
to in Article 3(1);
(5) ‘acceding country’ means a country for which a treaty concerning its accession to the
Union has been signed; for the purposes of this Regulation, references to candidate
countries and potential candidates also include acceding countries;
63
Directive (EU) 2017/1371 of the European Parliament and of the Council of 5 July 2017 on the fight
against fraud to the Union's financial interests by means of criminal law (OJ L 198, 28.7.2017, p. 29,
ELI: http://data.europa.eu/eli/dir/2017/1371/oj).
EN 20 EN
(6) ‘candidate countries and potential candidates’ means any of the following: the
Republic of Albania, Bosnia and Herzegovina, Iceland, Kosovo64
, Montenegro, the
Republic of North Macedonia, the Republic of Serbia, the Republic of Türkiye, the
Republic of Moldova, Ukraine, Georgia, and any other country that would be granted
a candidate or potential candidate status by a European Council decision in the
future;
(7) ‘cross-border cooperation’ means cooperation between: (a) Member States, one or
more partner countries along the external adjacent land and maritime borders of the
Union; (b) two or more candidates or potential candidates covered under the Europe
pillar as referred to in Article 3(1), point (a), of this Regulation.
(8) ‘civil society organisation’ means a wide range of actors with multiple roles and
mandates, which may vary over time and across institutions and countries, and
includes all independent non-State, not-for-profit and non-violent structures, through
which people organise the pursuit of shared objectives and ideals, including political,
cultural, religious, environmental, social or economic,, and which operate at local,
national, regional or international levels, and which comprise urban and rural, formal
and informal organisations;
(9) ‘local authority’ encompasses public institutions with legal personality, which are
components of the State structure, below the level of central government, such as
villages, municipalities, districts, counties, provinces or regions, which are
accountable to citizens and usually composed of a deliberative or policy-making
body, such as a council or assembly, and an executive body, such as a mayor or other
executive officer, which are directly or indirectly elected or selected at local level;
(10) ‘partner country’ means any non-EU country or territory;
(11) ‘effectively established in a country or territory’ means that a legal entity has its
statutory office, central administration or principal place of business in that country
or territory. However, a legal entity having only its statutory office in such a country
or territory must be engaged in an activity which has an effective and continuous link
with the economy of that country or territory;
(12) ‘jointly financed’ means that the total cost of an action is shared among several
entities and the resources are pooled in such a way that it is no longer possible to
identify the source of financing for any given activity undertaken as part of the
action.
(13) ‘developing countries and territories’, means ODA recipients as included in the list
published by the Development Assistance Committee of the Organisation for
Economic Cooperation and Development.
Article 3 – Scope and structure
1. The Instrument shall consist of the following pillars:
(a) Europe;
(b) Middle East, North Africa and the Gulf;
(c) Sub-Saharan Africa;
64
This designation is without prejudice to positions on status and is in line with UNSCR 1244/1999 and
the ICJ Opinion on the Kosovo declaration of independence.
EN 21 EN
(d) Asia and the Pacific;
(e) Americas and the Caribbean;
(f) Global.
Points (a) to (e) of the first subparagraph may cover any partner country listed in Annex I.
Point (f) of the first subparagraph may cover all partner countries as well as overseas
countries and territories linked to a Member State as set out in Annex II to the TFEU.
2. The pillars referred to in paragraph 1, first subparagraph, points (a) to (e) shall encompass:
(a) programmable actions at country, multi-country, regional and trans-regional level;
(b) non-programmable actions at country, multi-country, regional and trans-regional
level, through the following components:
(i) humanitarian aid;
(ii) macro-financial assistance;
(iii) resilience;
(iv) competitiveness;
(v) crisis, peace and foreign policy needs.
3. The pillar referred to in paragraph 1, first subparagraph, point (f) shall encompass:
(a) programmable actions at global level;
(b) non-programmable actions at global level, through the following components:
(i) humanitarian aid;
(ii) resilience;
(iii) competitiveness; and
(iv) crisis, peace and foreign policy needs.
4. Actions under the Instrument shall be implemented primarily under one or more of the
pillars referred to in paragraph 1, first subparagraph, points (a) to (e).
Actions implemented under the pillar referred to in paragraph 1, first subparagraph, point (f),
shall support global initiatives and be complementary to actions funded under paragraph 1,
first subparagraph, points (a) to (e).
Non-programmable actions shall be complementary to programmable actions, and shall be
designed and implemented to enable, where relevant, continuity under programmable actions.
5. Humanitarian aid actions funded under the Instrument shall be implemented pursuant to
Regulation (EC) 1257/96.
Article 4 – Objectives of the Instrument
1.The general objectives of the Instrument are the following:
(a) to uphold and promote the Union’s values and interests worldwide, in order to pursue
the objectives and principles of the Union’s external action, as laid down in Article
3(5) and Articles 8 and 21 TEU;
EN 22 EN
(b) to contribute to the promotion of multilateralism and a rules-based international
order, the achievement of the international commitments and objectives that the
Union has agreed to, in particular the sustainable development goals, the 2030
Agenda, the Paris Agreement and the Kunming-Montreal Global Biodiversity
Framework;
(c) to promote stronger mutually beneficial partnerships with partner countries,
contributing simultaneously to the sustainable development of partner countries and
to the strategic interests of the Union.
2. The specific objectives of the Instrument are set out in Annex II.
The Commission is empowered to adopt delegated acts in accordance with Article 30 to
amend Annex II.
Article 5 – Consistency, coherence, synergies and complementarity
1. In implementing the Instrument, consistency, coherence, synergies and complementarity
with all areas of Union external action, including other external financing instruments, and
with other relevant Union policies and programmes, shall be ensured.
The Union shall strive to ensure policy coherence for sustainable development. It shall take
into account the impact of all internal and external policies on sustainable development and
shall promote increased synergies and complementarities, in particular with trade and
investment, economic cooperation and other sectoral cooperation.
2. The Instrument may contribute to actions that are established and implemented under
Regulations (EU) [XXX] [European Competitiveness Fund], (EU) [XXX] of the European
Parliament and Council [Horizon Europe]65
, and (EU) [XXX] [Connecting Europe Facility],
when those actions are in line with Article 4 of this Regulation.
3. An action that has received a Union contribution from another programme may also receive
a contribution under this Instrument. The rules of the relevant Union programme shall apply
to the corresponding contribution, or a single set of rules may be applied to all contributions
and a single legal commitment may be concluded. If the Union contribution is provided based
on eligible cost, the cumulative support from the Union budget shall not exceed the total
eligible costs of the action and may be calculated on a pro-rata basis in accordance with the
documents setting out the conditions for support.
Article 6 - Budget
1. The total indicative financial envelope for the implementation of the Instrument for the
period from 1 January 2028 to 31 December 2034 shall be EUR 200 309 000 000 in current
prices. It shall be composed of the following indicative amounts:
(a) Europe: EUR 43 174 000 000;
(b) Middle East, North Africa and the Gulf: EUR 42 934 000 000;
(c) Sub-Saharan Africa: EUR 60 531 000 000;
(d) Asia and the Pacific: EUR 17 050 000 000;
65
Regulation (EU) No [XXX] of the European Parliament and of the Council on establishing Horizon
Europe, the Framework Programme for Research and Innovation, for the period 2028-2034 laying down
its rules for participation and dissemination, and repealing Regulation (EU) 2021/695 (OJ L.., p.).
EN 23 EN
(e) Americas and the Caribbean: EUR 9 144 000 000;
(f) Global: EUR 12 668 000 000.
2. Additionally, financial resources for Ukraine shall be made available through the
Instrument in accordance with Article 6 of Council Regulation [(EU, Euratom) 20XX/XXX *
[MFF Regulation].
The financial support to Ukraine in the form of loans shall be available through the Instrument
for an amount of up to EUR 100 000 000 000 for the period from 1 January 2028 to 31
December 2034. The overall amount of disbursements of the loans to Ukraine shall take into
account the amounts made available pursuant to the first subparagraph and the amount
referred to in the third subparagraph.
The sum of the resources made available pursuant to the first and second subparagraph shall
not exceed EUR 100 000 000 000 for the period from 1 January 2028 to 31 December 2034.
Financial resources referred to in the first subparagraph may be used, where appropriate, to
provide support under Regulation (Euratom) [XXX] (INSC-D) for the sole purpose of
financing expenditure for Ukraine. Regulation (Euratom) [XXX] (INSC-D) shall apply to the
use of those funds.
3. The emerging challenges and priorities cushion of EUR 14 808 000 000 shall increase the
amounts referred to in paragraph 1 of this Article in accordance with Article 7.
4. The financial envelope referred to in paragraph 1 of this Article and the financial resources
for Ukraine made available in accordance with Article 6 of Council Regulation [(EU,
Euratom) 20XX/XXX * [MFF Regulation] referred to in paragraph 2 may also be used for
technical and administrative assistance for the implementation of the Instrument, such as
preparatory, monitoring, control, audit and evaluation activities, information and
communication activities, including corporate communication on the political priorities of the
Union in the external area, and corporate information technology systems and platforms, and
all other technical and administrative assistance, including the financing of staff and staff-
related expenses incurred by the Commission for the management of the Instrument at
headquarters and Union delegations.
5. At least 90% of the expenditure under this Instrument shall fulfil the criteria for ODA (the
‘ODA target’), thus contributing to ODA collective commitments, including towards least
developed countries. If a partner country loses ODA eligibility during the implementation
period of the Instrument, expenditure committed in favour of that partner country after the
loss of eligibility shall be excluded from the assessment of the ODA target. The expenditure
referred to in paragraph 2 of this Article shall be excluded from the assessment of the ODA
target.
6. The Commission is empowered to adopt delegated acts to amend the percentage set out in
paragraph 5.
7. Member States, Union institutions, bodies and agencies, partner countries, international
organisations, international financial institutions, or other third parties, may make additional
financial or in-kind contributions to the Instrument. Additional financial contributions shall
constitute external assigned revenue within the meaning of Article 21(2), points (a), (d), or
(e), or Article 21(5) of Regulation (EU, Euratom) 2024/2509.
EN 24 EN
Article 7 - Emerging challenges and priorities cushion
1. The amount referred to in Article 6(3) shall be used where most needed and duly justified,
in particular for the following purposes:
(a) to ensure an appropriate response of the Union in the event of unforeseen
circumstances;
(b) to address new needs or emerging challenges, such as those at the Union’s or its
neighbours’ borders linked to crisis, whether natural or man-made, violent conflict
and post-crisis situations, or migratory pressure and forced displacement;
(c) to promote new Union led or international initiatives or priorities.
2. The Commission shall inform in detail the European Parliament and the Council before it
mobilises the funds of the emerging challenges and priorities cushion and, where appropriate,
shall take into consideration their observations on the nature, objectives and financial amounts
envisaged.
3. The use of those funds shall be decided in accordance with the procedures established in
Articles 17 and 19 or those established in Regulation (EC) No 1257/96.
Article 8 – Policy framework
1. The Union’s policies, as set out in association agreements, partnership and cooperation
agreements, multilateral agreements to which the Union is a party, and other agreements that
establish a legally binding relationship between the Union and partner countries as well as
European Council conclusions, Council conclusions, summit declarations or conclusions of
meetings with partner countries at the level of heads of state or government or ministers,
European Parliament resolutions, communications of the Commission and joint
communications with the High Representative shall constitute the overall policy framework
for the implementation of the Instrument.
2. The Commission shall regularly inform the European Parliament and the Council and, at
the initiative of any of those three institutions, have exchanges of views with them. The
European Parliament may hold regular exchanges of views regarding its own assistance
programmes with the Commission.
Article 9 – General principles
1. The Union shall concentrate its means where they can make the most transformational
impact with a view to supporting sustainable development and catering for the strategic
interests of the Union.
2. The Union shall continue to engage in contexts experiencing extremely high levels of
fragility, conflict areas, and other complex settings.
In situations of crisis, post-crisis or in extreme fragility, due account shall be taken of the
special needs of the population of the partner countries or regions concerned. Where partner
countries or regions are directly involved in, or affected by a situation of crisis, post-crisis or
extreme fragility, special emphasis shall be placed on stepping up support and coordination
amongst all relevant actors to help with the transition from an emergency situation to
sustainable development and stable peace, ensuring consistency between international
cooperation and humanitarian aid in accordance with the humanitarian-development-peace
nexus.
EN 25 EN
3. The Union shall seek to promote, develop and consolidate the principles of democracy,
good governance, the rule of law and respect for human rights and fundamental freedoms on
which it is founded, notably through dialogue and cooperation with partner countries and
regions and with civil society, including through action in multilateral fora.
4. Actions under this Instrument shall apply a human rights-based approach encompassing all
human rights That approach shall be guided by the principles of ‘leaving no one behind’,
equality, non-discrimination on any grounds, including towards persons with disabilities.
5. The Instrument shall promote gender equality and girls’ and women’s empowerment and
prevent and fight violence against women and domestic violence. It shall also give particular
attention to the rights of the child and to the protection and empowerment of youth.
6. The Instrument shall be implemented in full accordance with the Union commitment to the
promotion, protection and fulfilment of all human rights and to the full and effective
implementation of the Beijing Declaration and the Platform for Action66
of the International
Conference on Population and Development and the outcomes of their review conferences
and remains committed to sexual and reproductive health and rights, in this context. The
Instrument shall also support the Union commitment to the promotion, protection and
fulfilment of the right of every individual to have full control over and decide freely and
responsibly on matters related to their sexuality and sexual and reproductive health, free from
discrimination, coercion and violence. It shall also support the need for universal access to
quality and affordable comprehensive sexual and reproductive health information, education,
including comprehensive sexuality education, and health-care services.
7. The Union shall support, as appropriate, the implementation of bilateral, regional and
multilateral cooperation and dialogue, association and trade agreements and partnership
agreements.
The Union shall promote multilateralism and a rules-based approach to global goods and
challenges and shall cooperate with Member States, partner countries, international
organisations and other donors.
In relations with partner countries, their track record in implementing commitments,
international agreements, and contractual relations with the Union shall be taken into account.
8. Cooperation between the Union and the Member States, on the one hand, and partner
countries, on the other, shall be based on and shall promote the development effectiveness
principles, where applicable, across all modalities, namely ownership of development
priorities by partner countries, a focus on results, inclusive development partnerships,
transparency and mutual accountability. The Union shall promote effective and efficient
resource mobilisation and use.
9. In accordance with the principle of inclusive partnership, where appropriate, the
Commission shall ensure that relevant stakeholders of partner countries, including civil
society organisations and local authorities, are duly consulted and have timely access to
relevant information allowing them to play a meaningful role during the design,
implementation and associated monitoring processes of programmes and actions under the
Instrument.
66
Beijing Declaration and Platform for Action
https://www.unwomen.org/sites/default/files/Headquarters/Attachments/Sections/CSW/PFA_E_Final_
WEB.pdf.
EN 26 EN
10. The Commission shall exchange information on a regular basis with civil society within
the Union.
11. The Commission shall also ensure that an enhanced dialogue is pursued with the private
sector.
Article 10 - Mainstreaming
Programmes and actions under the Instrument shall mainstream the fight against climate
change, environmental protection and gender equality, in accordance with Regulation (EU,
Euratom) [XXX] [Performance Regulation]. Those priorities shall be considered in the design
and implementation of actions under the Instrument, with the aim to create co-benefits and
meet multiple objectives in a coherent way.
Article 11 – Team Europe approach
1. The Commission and the Member States shall aim to closely coordinate their actions to
avoid duplication and to improve coherence and complementarity between assistance carried
out under this Instrument and any other assistance provided by the Member States, their
implementing agencies, development finance institutions and export credit agencies as well as
by the EIB and the EBRD.
2. The Commission and the Member States shall aim to ensure timely consultations and
frequent exchanges of information with each other during the different phases of the
implementation cycle, which shall endeavour to jointly identify, discuss and implement
actions, including in terms of information, communication and visibility.
3. The Commission and the Member States, acting in a Team Europe approach, shall aim to
cooperate with like-minded partners and stakeholders, including the pooling of resources, to
jointly contribute to the achievement of common goals.
Article 12 – Migration and forced displacement
1. The Union shall engage with partner countries on the basis of a comprehensive approach
towards migration, in particular to prevent irregular migration, and forced displacement,
including their root causes.
2. This approach shall maximise synergies and build comprehensive partnerships, paying
specific attention to countries of origin, transit and departure in a seamless whole-of-route
approach. It shall combine all appropriate tools and the necessary leverage through a flexible
approach with, as appropriate within this context, possible changes in allocation of funding
related to migration in accordance with the objectives and programming principles of the
Instrument as set out in Articles 4 and 14. It shall take into account effective cooperation and
implementation of Union agreements and arrangements and of dialogues on migration. Those
actions shall be implemented in full respect of international law, including international
human rights and refugee law, Union and national competences.
3. In case the Commission services, in consultation with EEAS, identifies serious
shortcomings in a partner country related in particular to the obligation to readmit its own
nationals from the Member States, the Commission may suspend payments or the
implementation of a programme. In no case the suspension shall affect humanitarian
assistance.
4. To assess the existence of the serious shortcomings referred to in paragraph 3, and
following consultations with the beneficiary country, the Commission shall rely on the
EN 27 EN
assessments carried in accordance with Article 25a of Regulation (EC) No 810/200967
and
with Article 8 of Regulation (EU) 2018/180668
, while taking into account the Union’s overall
relations with the beneficiary country concerned, including in the field of migration, as well
as the principle of proportionality.
5. Where the Commission considers that the reasons justifying the measure taken in
accordance with paragraph 3 no longer apply, the Commission shall lift the suspension.
TITLE II - IMPLEMENTATION OF THE INSTRUMENT
Chapter I – General programming provisions
Article 13 – General programming approach
1. Actions under Article 3(2), point (a) and Article 3(3), point (a) shall be based on
programming.
2. On the basis of Article 8, programming documents shall provide a coherent framework for
cooperation between the Union, partner countries or regions and other partners, consistent
with the overall purpose and scope, objectives and principles set out in this Regulation.
The Commission shall consult other donors and actors, including local authorities,
representatives of civil society and the private sector, where relevant.
The Commission shall inform the European Parliament and the Council about the outcome of
the consultations envisaged under the second subparagraph.
3. The Instrument shall contribute to actions established under Regulation (EU) [XXX]
[Erasmus+]. A single programming document shall be drawn up under this Regulation for the
duration of the multiannual financial framework. Regulation (EU) [XXX] [Erasmus+] shall
apply to the use of those funds.
Article 14 - Geographic programming principles
1. Programming under Article 3(2), point (a), shall be based on the following principles:
(a) actions shall be based, to the extent possible, on a dialogue between the Union,
Member States and the partner countries concerned, including national, regional and
local authorities, and involving civil society;
(b) programming may envisage cooperation activities funded from different allocations
set out in Article 6(1) and from other Union programmes in accordance with the
relevant legal acts.
67
Regulation (EC) No 810/2009 of the European Parliament and of the Council of 13 July 2009
establishing a Community Code on Visas (Visa Code) (OJ L 243, 15.9.2009, p. 1–58,
ELI: http://data.europa.eu/eli/reg/2009/810/2024-06-28).
68
Regulation (EU) 2018/1806 of the European Parliament and of the Council of 14 November 2018
listing the third countries whose nationals must be in possession of visas when crossing the external
borders and those whose nationals are exempt from that requirement (OJ L 303, 28.11.2018, p. 39–58,
ELI: http://data.europa.eu/eli/reg/2018/1806/2025-02-03).
EN 28 EN
2. Programming under Article 3(1), first subparagraph, points (a) to (e) shall provide a
specific, tailor-made framework for cooperation based on, where relevant, the following
elements:
(a) partner countries’ and regions’ priorities, established on the basis of the dialogue
referred to in paragraph 1, taking also into account the national or regional strategy
and plan;
(b) the partnership with the Union, including the promotion of mutual interests and
shared priorities, as well as the level of ambition of commonly agreed objectives;
(c) for candidate countries and potential candidates and partner countries in the
Neighbourhood East region, results in the areas of political reform, economic and
social development and convergence towards the EU acquis;
(d) partner countries and regions’ capacity and commitment to promote shared values
and principles, and to support multilateral alliances and a rules-based international
system;
(e) partner countries and regions’ level of development and commitment to address the
drivers of fragility and irregular migration and forced displacement, including their
root causes;
(f) partner countries and regions’ capacity to mobilise and make effective use of
domestic resources as well as to access financial resources of other actors, including
private sector;
(g) partner countries and regions’ absorption capacity and the potential impact of Union
funding in partner countries and regions.
Article 15 – Geographic programming documents
1. As regards actions under Article 3(2), point (a), the implementation of the Instrument shall
be carried out through multiannual country, multi-country, regional or trans-regional
indicative programmes.
2. The multiannual indicative programmes referred to in paragraph 1 shall set out the priority
areas selected for Union financing, the specific objectives and, where appropriate, the
indicative financial allocations and the methods of implementation.
3. Those multiannual indicative programmes shall be based on:
(a) a national or regional strategy accepted by the Commission as a basis for the
corresponding multiannual indicative programme, at the time of adoption of the latter
document. For Enlargement and Neighbourhood East partners covered under Article
3(1), first subparagraph, point (a), where relevant, this document may take the form
of a performance-based plan and comply with the implementing rules set out in line
with Article 31 of this Regulation.
(b) a framework document laying down the Union policy towards the partner or partners
concerned, including a joint document between the Union and Member States;
(c) a joint document between the Union and the partner or partners concerned setting out
common priorities and mutual commitments.
EN 29 EN
Article 16 – Global programming documents
1. As regards actions under Article 3(3), point (a), the implementation of the Instrument shall
be carried out through multiannual indicative programmes.
2. The multiannual indicative programmes referred to in paragraph 1 shall set out the Union’s
strategy, the priorities selected for Union financing, the specific objectives and the indicative
financial allocations.
Where applicable, resources and intervention priorities shall be laid down for participation in
global initiatives.
Article 17 – Adoption and amendment of multiannual indicative programmes
1. The Commission shall adopt, by means of implementing acts, multiannual indicative
programmes referred to in Articles 15 and 16. Those implementing acts shall be adopted in
accordance with the examination procedure referred to in Article 32(2). That procedure shall
also apply to reviews referred to in paragraph 2 of this Article, which have the effect of
significantly amending the content of the multiannual indicative programme.
2. Multiannual indicative programmes may be reviewed on an ad hoc basis as necessary for
effective implementation, in particular where there are substantive changes in the policy
framework referred to in Article 8 or following a situation of crisis or post-crisis.
3. On duly justified imperative grounds of urgency, such as crises or immediate threats to
peace, democracy, the rule of law, human rights or fundamental freedoms, the Commission
may amend multiannual indicative programmes referred to in Articles 15 and 16 by means of
immediately applicable implementing acts adopted in accordance with the procedure referred
to in Article 32(5).
Chapter II - Action plans, measures and implementation principles
Article 18 - Action plans and measures
1. The Commission shall adopt annual or multiannual action plans and measures. Measures
may take the form of individual measures, special measures, support measures or exceptional
assistance measures. Action plans and measures shall take into account the specific context
and shall specify for each action the objectives pursued, the expected results and relevant
activities, the methods of implementation as well as the budget and any possible support
expenditures.
2. Actions financed by programmable amounts shall be based on programming documents.
Action plans shall be prepared in an inclusive, transparent and timely manner.
3. Where necessary, an action may be adopted as an individual measure before or after the
adoption of action plans. Individual measures financed by programmable amounts shall be
based on programming documents, except in duly justified cases.
4. In the event of unforeseen needs or circumstances, and where funding is not possible from
more appropriate sources, the Commission may adopt special measures not provided for in
the programming documents.
5. The Commission may adopt exceptional assistance measures for crisis, peace and foreign
policy needs actions.
EN 30 EN
An exceptional assistance measure shall have a duration of up to 18 months, which may be
extended twice by a further period of up to six months, up to a total maximum duration of 30
months, in the event of objective and unforeseen obstacles to its implementation.
In cases of protracted crisis and conflict, the Commission may adopt a second exceptional
assistance measure of a duration of up to 18 months. In duly justified cases, further measures
may be adopted where the continuity of the Union’s action is essential and cannot be ensured
by other means.
6. Where support expenditure referred to in Article 6(4) is not included in the action plans or
measures referred to in this Article, the Commission shall adopt support measures, where
applicable.
Article 19 - Adoption of action plans and measures
1. Action plans and measures shall be adopted by means of implementing acts. Those
implementing acts shall be adopted in accordance with the examination procedure referred to
in Article 32(2).
2. The procedure referred to in paragraph 1, second sentence, shall not apply to the following:
(a) action plans and individual measures for which the Union’s funding does not exceed
EUR 10 000 000;
(b) special and support measures for which the Union’s funding does not exceed EUR 20
000 000;
(c) exceptional assistance measures referred to in Article 18(5) as well as action plans
adopted in order to implement crisis, peace and foreign policy needs actions for
which the Union’s funding does not exceed EUR 40 000 000;
(d) technical amendments to action plans and measures, provided that such amendments
do not substantially affect the objectives of the action plan or measure concerned,
such as:
(i) change of method of implementation;
(ii) reassignments of funds between actions contained in an action plan;
(iii) increases of the budget of action plans and measures by not more than 20 % of
this budget;
(e) interest rate and borrowing cost subsidies provided to the beneficiary partner country
linked to financial assistance if duly justified.
When adopted in accordance with this paragraph, action plans and measures, except
exceptional assistance measures for crisis, peace and foreign policy needs, and technical
amendments shall be communicated by the Commission to the European Parliament and to
the Member States through the relevant committee referred to in Article 32(1) within one
month of their adoption.
3. Before the adoption or extension of exceptional assistance measures referred to in
paragraph 2, first subparagraph, point (c), the Commission shall inform the European
Parliament and the Council of the nature and objectives of those measures and of the financial
amounts envisaged. The Commission shall inform the European Parliament and the Council
before making significant substantive changes to exceptional assistance measures already
adopted. The Commission shall take account of the relevant policy approach for the planning
EN 31 EN
and subsequent implementation of such measures, in the interest of consistency of the Union’s
external action.
4. Where duly justified, imperative grounds of urgency, such as crises, including natural or
man-made disasters, or immediate threats to democracy, the rule of law, human rights or
fundamental freedoms so require, the Commission may adopt action plans and measures or
amendments to existing action plans and measures, as immediately applicable implementing
acts, in accordance with the procedure referred to in Article 32(5).
Article 20 - Eligibility rules
1. Subject to paragraphs 10 and 11 of this Article, participants to procurement, grant and prize
award procedures for actions financed under Article 3(1), first subparagraph, points (b) to (e)
shall be nationals of or effectively established in any of the following:
(a) a Member State, an overseas country or territory linked to a Member State as set out
in Annex II to the TFEU, or a member of the European Economic Area;
(b) an acceding country, a candidate country or potential candidate;
(c) a developing country or territory which is not a member of the G-20 group;
(d) a partner country in the Neighbourhood South region as listed in Annex I;
(e) any other partner country, when it is a beneficiary of the action financed under this
Instrument;
(f) a country for which reciprocal access to external funding is established by the
Commission;
(g) a member country of the Organisation for Economic Cooperation and Development,
in the case of contracts implemented in a least developed country as included in the
list of ODA recipients.
2. Subject to paragraphs 10 and 11 of this Article, participants in procurement, grant and prize
award procedures for actions financed under Article 3(1), first subparagraph, point (a) shall be
nationals of, or be effectively established in a country or territory as referred to in paragraph 1
point (a), (b), (d), (e) and (f) of this Article or a partner country in the Eastern Neighbourhood
region as listed in Annex I.
3. Subject to paragraph 10 of this Article, participation in procurement, grant and prize award
procedures for actions financed under Article 3(1) first subparagraph, point (f) and Article 3
(2), point (b) (v) shall be open without limitations.
4. Subject to paragraph 10 of this Article, participation in procurement, grant and prize award
shall also be open to international organisations.
5. Subject to paragraph 10 of this Article, all products financed under the Instrument may
originate from any country or territory.
6. Subject to paragraph 10 of this Article, the eligibility rules laid down in this Article shall
not apply to, and shall not create nationality restrictions for, natural persons employed or
otherwise legally contracted by an eligible contractor or, where applicable, by an eligible
subcontractor.
7. Subject to paragraph 10 of this Article, for actions implemented in direct or indirect
management by entities referred to in Article 62(1), point (c) (ii) to (ix) of Regulation (EU,
Euratom) 2024/2509, the countries and territories that are eligible in accordance with the rules
of such entities for the purpose of participation to procurement, grants and prize award
EN 32 EN
procedures shall be eligible, in addition to the countries and territories that are eligible under
this Article. Products shall originate from the countries and territories eligible in accordance
with the rules of those entities, in addition to the countries and territories eligible to
procurement, grant and prize award procedures under this Article.
Subject to paragraph 10 of this Article for actions implemented by entities not covered under
the previous subparagraph, when such actions are jointly financed with third parties that are
not recipients of these actions, those recipients may decide that the countries and territories
that are eligible under the rules of those third parties for the purpose of participation to
procurement, grant and prize award procedures shall be eligible, in addition to the countries
and territories that are eligible under this Article.
8. Where a third party provides financing to a trust fund established by the Commission or
through external assigned revenues, the eligibility rules in the constitutive act of the trust fund
or in the agreement with the third party in case of external assigned revenues shall apply.
9. Subject to paragraphs 10 and 11, in the case of actions financed under this Instrument and
by another Union programme, or by several pillars of this Instrument, the eligibility rules with
their possible restrictions and extensions under any of those programmes or pillars shall
apply.
10. The eligibility rules laid down in this Article or the type of participants in award
procedures, including with respect to their direct and indirect control by entities of a partner
country, may be restricted where such restrictions are required on account of the specific
nature or objectives of the activity or the application of Union restrictive measures, or where
those restrictions are necessary for the effective implementation of the activity or where such
restrictions are in the strategic interests of the Union. Eligibility restrictions shall apply to
high-risk suppliers, for security reasons.
The eligibility rules laid down in this Article may also be restricted by Union response
measures adopted under the Regulation on the protection of the Union and its Member States
from economic coercion by third countries and Regulation (EU) 2022/1031 of the European
Parliament and of the Council69
.
11. The eligibility rules laid down in this Article may be extended in the case of urgency or
the unavailability of eligible participants in the markets of the countries or territories
concerned, or in other duly substantiated cases where application of the eligibility rules would
make the realisation of an action impossible or exceedingly difficult or where such extension
is in the strategic interests of the Union.
12. In order to promote local capacities, markets and purchases, where Regulation (EU,
Euratom) 2024/2509 provides for an award on the basis of a single tender, priority shall be
given to local and regional economic operators. In all other cases, participation of local and
regional economic operators shall be promoted in accordance with the relevant provisions of
that Regulation. Sustainability and due diligence criteria shall be promoted.
69
Regulation (EU) 2022/1031 of the European Parliament and of the Council of 23 June 2022 on the
access of third-country economic operators, goods and services to the Union’s public procurement and
concession markets and procedures supporting negotiations on access of Union economic operators,
goods and services to the public procurement and concession markets of third countries (International
Procurement Instrument – IPI) (OJ L 173, 30.6.2022, p. 1–16, ELI:
http://data.europa.eu/eli/reg/2022/1031/oj).
EN 33 EN
Article 21 – Excluded activities
Union funding under the Instrument shall not support actions or measures which may result in
the violation of human rights in partner countries.
Article 22 – Carry overs, annual instalments, re-payments, revenue and recoveries from
financial instruments and surpluses from the budgetary guarantee
1. By way of derogation from Article 12(4) of Regulation (EU, Euratom) 2024/2509, unused
commitment and payment appropriations under this Instrument shall be automatically carried-
over and may be committed and used under this Instrument under the corresponding budget
line specified under Article 6(1), respectively, up to 31 December of the following financial
year. The amount carried over shall be used first in the following financial year.
The Commission shall inform the European Parliament and the Council of commitment
appropriations carried-over in accordance with Article 12(6) of Regulation (EU, Euratom)
2024/2509.
2. Budgetary commitments for actions extending over more than one financial year may be
broken down over several years into annual instalments, in accordance with Article 112(2) of
Regulation (EU, Euratom) 2024/2509.
Article 114(2), third subparagraph of Regulation (EU, Euratom) 2024/2509 shall not apply to
the multiannual actions referred to in the first subparagraph of this paragraph. The
Commission shall automatically decommit any portion of a budgetary commitment for an
action which, by 31 December of the fifth year following that of the budgetary commitment,
has not been used for the purpose of pre-financing or making interim payments, or for which
no certified statement of expenditure or any payment request has been submitted.
3. If the Regulation enters into force after 1.01.2028: From 1 January 2028, by way of
derogation from Article 212(3), first, second and fourth subparagraph of Regulation (EU,
Euratom) 2024/2509, and without prejudice to Article 12(4) of Regulation (EU) 2024/792
revenue, repayments and recoveries from financial instruments for external action established
under basic acts adopted before 2021, under Regulations (EU) 2021/1529, (EU) 2021/947 and
(EU) 2024/792, as well as under this Regulation, may be used to provide Union support
under this Regulation.
By way of derogation from Article 21(3), point (f) of Regulation (EU, Euratom)
2024/2509and from Article 12(4) of Regulation (EU) 2024/792, the resources referred to in
the first sub-paragraph shall be assigned to the budget line of origin of the Instrument and
constitute external assigned revenue within the meaning of Article 21(5) Regulation (EU,
Euratom) 2024/2509.
4. If the Regulation enters into force after 1.01.2028: From 1 January 2028, in accordance
with Article 14(3) of Decision (EU) 2022/1628 and by way of derogation from Article 31(8)
of Regulation (EU) 2021/947, any surplus of provisions in the Guarantee Fund for external
actions established by Regulation (EC, Euratom) 480/2009 may be used to provide Union
support under this Regulation.
If the Regulation enters into force after 1.01.2028: From 1 January 2028, by way of
derogation from Article 216(4), point (a) of Regulation 2024/2509, and without prejudice to
Article 12(5) of Regulation (EU) 2024/792 and to Article 14(3) of Decision (EU) 2022/1628,
any surplus of provisions for the budgetary guarantees and financial assistance established
under Regulations (EU) 2017/1601, (EU) 2021/947, (EU) 2024/792, (EU) 2024/1449, (EU)
2025/535 and this Regulation, may be used to provide Union support under this Regulation.
EN 34 EN
By way of derogation from Article 12(5) of Regulation (EU) 2024/792, the resources referred
to in the first sub-paragraph shall be assigned to the budget line of origin of the Instrument
and constitute external assigned revenue within the meaning of Article 21(5) of Regulation
2024/2509.
Chapter III – Implementation toolbox
Article 23 - Implementation and forms of Union funding
1. The Instrument shall be implemented either directly or indirectly through any of the entities
listed in Article 62(1), point (c), of Regulation (EU, Euratom) 2024/2509 including those
within the meaning of point (c) (ix). The Commission may also entrust budget
implementation tasks to the Union Institute for Security Studies and the European Security
and Defence College in accordance with Article 62(1), point (c) (viii) of Regulation (EU,
Euratom) 2024/2509.
2. Union funding may be provided through the types of financing laid down in Regulation
(EU, Euratom) 2024/2509, including contributions to trust funds set up by the Commission, in
accordance with Article 238 of Regulation (EU, Euratom) 2024/2509, and those specifically
authorised in this Instrument. The budgetary guarantee, financial instruments, including when
combined with grants or with other forms of non-repayable support in blending operations,
and financial assistance under the Instrument shall be implemented in accordance with Title X
of Regulation (EU, Euratom) 2024/2509.
3. When working with civil society organisations and stakeholders of partner countries such
as local authorities, the Commission shall take into account their specificities, including their
needs and the relevant context, when defining the financing modalities, the type of
contribution, the participation, the evaluation and award modalities and the administrative
provisions for the management of grants, with a view to reaching and best responding to the
widest possible range of such stakeholders. Specific modalities shall be encouraged in
accordance with Regulation (EU, Euratom) 2024/2509, such as financial framework
partnership agreements, financial support to third parties, grants awarded without a call for
proposals, or simplified forms of funding referred to in Article 125(1) of Regulation (EU,
Euratom) 2024/2509.
4. By way of derogation from Article 198 of Regulation (EU, Euratom) 2024/2509, grants
may be awarded without a call for proposals in the following cases:
(a) low-value grants to human rights defenders to finance urgent protection actions and
needs, including through mechanisms for the protection of human rights defenders at
risk, as well as to mediators and other civil society actors involved in crisis and
armed conflict related dialogue, conflict resolution, reconciliation and peacebuilding,
where appropriate without the need for co-financing;
(b) grants, where appropriate without the need for co-financing, to finance actions in the
most difficult conditions where the publication of a call for proposals would be
inappropriate, including situations where there is a serious lack of fundamental
freedoms, including violation of human rights, threats to democratic institutions,
escalation of crisis or armed conflict, where human security is most at risk or where
human rights organisations and defenders, mediators and other civil society actors
involved in crisis and armed conflict related dialogue, reconciliation and
peacebuilding operate under the most difficult conditions; such grants shall not
exceed EUR 1 000 000 and their duration shall not exceed 18 months, which may be
EN 35 EN
extended by a further 12 months in the event of objective and unforeseen obstacles to
their implementation;
(c) grants to the Global Campus of Human Rights;
(d) low value grants to civil society organisations using, to the extent possible,
simplified forms of funding in accordance with Article 125 of Regulation (EU,
Euratom) 2024/2509.
(e) where necessary and duly justified in the action plans and measures referred to in
Article 18, grants to legal entities governed by private law which are effectively
established in a Member State to facilitate investments that are in the strategic
interest of the Union and support the objectives of the Instrument.
5. In areas pertaining to the protection of human rights and democracy and support to civil
society actors, the Union may provide assistance independently of the consent of governments
and other public authorities of the partner countries concerned; those actions shall mainly
support civil society actors, taking into account forms and methods of implementation, as
referred to in paragraph 4 of this Article.
6. Budget support, including through sector reform performance contracts, shall be based on
country ownership, mutual accountability and the commitment of partner countries, taking
into account their record and progress with regard to universal values, democracy, human
rights and the rule of law, and aims to strengthen partnerships between the Union and partner
countries. It shall include reinforced policy dialogue, capacity building and improved
governance, complementing partners’ efforts to collect more and to spend better in order to
support sustainable, inclusive growth and decent job creation, including for young people
poverty eradication, inequality reduction, and to build and consolidate democracies and
peaceful societies. Budget support shall also contribute to gender equality.
Any decision to provide budget support shall be based on budget support policies agreed by
the Union, a clear set of eligibility criteria and a careful assessment of the risks and benefits.
Budget support shall be differentiated in such a way as to respond better to the political,
economic, social and environmental context of the partner country, taking into account
situations of fragility.
When providing budget support in accordance with Article 241 of Regulation (EU, Euratom)
2024/2509, the Commission shall clearly define and monitor criteria for budget support
conditionality, including progress in reforms and transparency, and shall support the
development of parliamentary control, national audit capacities and increased transparency
and public access to information.
Disbursement of the budget support shall be based on indicators demonstrating satisfactory
progress being made towards achieving the objectives agreed with the partner country.
6. In accordance with Article 196 (2), second subparagraph, point (a), of Regulation (EU,
Euratom) 2024/2509, in duly justified cases specified in the action plans and measures
referred to in Article 18, activities supported under the Instrument and the underlying costs
incurred in 2028 may be considered eligible as of 1 January 2028, even if those activities were
implemented and those costs were incurred before the grant application was submitted.
7. Implementation of actions in indirect management, including through financial instruments,
budgetary guarantees and blending operations under the Instrument shall be entrusted
whenever possible and in accordance with Article 157(1), first subparagraph of Regulation
(EU, Euratom) 2024/2509, to the EIB, the EBRD, or a Member State organisation, possibly
EN 36 EN
combined with additional other forms of financial support, both from Member States and third
parties.
8. Taxes, duties and charges incurred when implementing Union funds under this Regulation,
imposed by partner countries, may be eligible for financing under the Instrument, under the
conditions laid down in Regulation (EU, Euratom) 2024/2509, with the exception of taxes,
duties and charges specifically targeting external action financing.
9. For the purposes of Article 153(3) of Regulation (EU, Euratom) 2024/2509, the evaluation
committee may be composed partially or fully of external experts.
10. In the case of indirect management with partner countries, bodies they have designated or
partner countries’ organisations or bodies at regional or global level where the Commission
retains financial management responsibilities in accordance with Article 157(7), second
subparagraph, point (a), of Regulation (EU, Euratom) 2024/2509, the Commission shall,
where necessary and without prejudice to the responsibilities of the contracting authorities,
recover amounts due from the contracting authorities' recipients in accordance with Articles
101 to 106 of Regulation (EU, Euratom) 2024/2509 with the exception of Article 101(7), (8)
and (9) thereof, including by means of a decision enforceable under the same conditions as
those laid down in Article 299 TFEU. The financing agreement shall contain provisions to
that end.
Where such partner country, the body the partner country has designated or the partner
countries’ organisation or body at regional or global level fails to fulfil its budget
implementation tasks or the obligations, principles, objectives and rules which condition the
exercise of the indirect management, the Commission may take any steps that are necessary,
including temporarily or definitively take the entity’s place and act in the name and on behalf
of the former in indirect management. In such a case, the Commission may receive, from the
resources allocated to the partner country in question, financial compensation for the
additional administrative workload incurred.
11. Joint procurement within the meaning of Article 168 of Regulation (EU, Euratom)
2024/2509 financed under this Regulation, may be conducted with any partner country.
12. Cooperation between the Union and its partners may include participation in structures set
up for concerting programming with other donors, or for governing the implementation of
actions, as well as entering into joint declarations or statements for the purpose of enhancing
the visibility of the Union’s contribution and ensuring effective budget implementation and
coordination, as well as financing agreements concluded with partner countries’ organisations
or bodies at regional or global level.
Article 24 - Budgetary guarantees and financial assistance: maximum Union support,
financing and borrowings
1. The Union may provide support in the form of a budgetary guarantee up to a maximum
amount of EUR 95 000 000 000 in current prices. The amounts of financial assistance
implemented as macro-financial assistance in the form of loans and as policy-based loans
referred to in Article 23(2) as well as the amounts of the loans provided under Regulation
(Euratom) [XXX] (INSC-D) shall reduce the maximum amount of the budgetary guarantee.
2. The provisioning rate for the budgetary guarantee and financial assistance referred to in
paragraph 1 shall range between 9 % and 50 % depending on the type of operations. The
provisioning rate shall be 9% for the financial assistance and for budgetary guarantee
covering sovereign risks associated with lending operations.
EN 37 EN
3. The Union support to Ukraine in the form of budgetary guarantee and financial assistance
shall not count toward the maximum amount referred to in paragraph 1 of this Article.
The Union may provide support to Ukraine in the form of a budgetary guarantee up to EUR
48 000 000 000 in current prices. The provisioning rate for the budgetary guarantee to
guarantee operations supporting Ukraine shall initially be set at 70 %.
No provisioning shall be constituted and, by way of derogation from Article 214(1) of
Regulation (EU, Euratom) 2024/2509, no provisioning rate shall be set for the loans to
Ukraine.
4. The Commission shall review the provisioning rates under paragraphs 2 and 3 of this
Article every year in accordance with the assessment referred to in Article 41(5), point (g), of
Regulation (EU, Euratom) 2024/2509 and in line with the Commission’s risk management
framework.
5. The Commission is empowered to adopt delegated acts in accordance with Article 30 to
amend paragraphs 2 and 3 of this Article in order to adjust the provisioning rates therein, and
to increase the maximum amounts referred to in paragraphs 1 and 3 of this Article by up to
20% and 30% of those amounts respectively.
6. Without prejudice to Article 6(7), specific contributions to the budgetary guarantee,
financial instruments or financial assistance may be made by Member States, partner
countries and other third parties in accordance with Articles 211(2) and 221(2) of Regulation
(EU, Euratom) 2024/2509. Such contributions to the budgetary guarantee or financial
assistance shall result in an additional amount of the budgetary guarantee or financial
assistance.
7. Where contributions referred to in paragraph 6 are made in the form of cash, they shall
constitute external assigned revenue within the meaning of Article 21(2), points (a), (d) and
(e), and Article 21(5) of Regulation (EU, Euratom) 2024/2509.
8. The budgetary guarantee established in accordance with paragraphs 1 and 3 of this Article
may be used, within the maximum amounts referred to in paragraphs 1 and 3 of this Article,
to provide support under Council Decision (EU) 2021/1764 and Regulation (Euratom) [XXX]
(INSC-D), in accordance with the objectives and eligibility criteria set out in those
programmes. For that purpose, the provisioning shall be financed from the financial envelopes
of those other Union programmes.
9. The amounts referred to in Article 6(1), point (a) to (e) shall be used for the provisioning of
the budgetary guarantee and financial assistance referred to in paragraph 1 of this Article. The
provisioning of the Union support to Ukraine in the form of budgetary guarantee referred to in
paragraph 3 shall be financed by the financial resources made available in accordance with
Article 6 of Regulation Council Regulation [(EU, Euratom) 20XX/XXX * [MFF Regulation]
referred to in Article 6(2), including where the budgetary guarantee is provided for activities
under Regulation (Euratom) [XXX] (INSC-D).
10. The provisioning referred to in paragraphs 8 and 9 of this Article shall not be committed
later than at the end of the last year of the multiannual financial framework.
11. In accordance with Article 214(2) of Regulation (EU, Euratom) 2024/2509, the
provisioning referred to in paragraphs 8 and 9 of this Article shall be constituted until three
years after the end of the multiannual financial framework and shall take into account the
progress in the approval and signature of the financing and investment operations or in the
disbursement of the financial assistance as well as the risk profile of the operations.
EN 38 EN
12. The Commission shall be empowered on behalf of the Union to borrow the necessary
funds to implement financial assistance provided under this Regulation. The Commission
shall borrow the funds on the capital markets or from financial institutions in accordance with
Article 224 of Regulation (EU, Euratom) 2024/2509.
Article 25 - Implementation of the budgetary guarantee and financial instruments
1. The budgetary guarantee shall be used to guarantee counterparts’ sovereign, sub-sovereign
and private operations.
2. Where partner countries contribute to financial instruments or the budgetary guarantee,
eligible implementing entities or counterparts from the countries concerned may also be
eligible implementing entities or counterparts. By way of derogation from Article 211(5),
third subparagraph of Regulation (EU, Euratom) 2024/2509, eligible implementing entities or
counterparts from partner countries benefitting from the budgetary guarantee or financial
instruments may also be eligible.
3. By way of derogation from Article 62(1), first subparagraph, point (c), and Article 211(5)
of Regulation (EU, Euratom) 2024/2509, where financial instruments or the budgetary
guarantee are implemented in indirect management, bodies which provide adequate assurance
of their financial capacity and governed by private law of a Member State, a partner country
benefitting from the financial instruments or the budgetary guarantee, or a partner country
which has contributed to the financial instruments or the budgetary guarantee shall be eligible.
4. The Commission shall ensure the effective, efficient and fair use of available resources
among eligible implementing entities and counterparts, including small and medium-sized
counterparts, while promoting cooperation between them and taking due account of their
capacities, added value and experience.
5. In order to ensure complementarity, the Commission may request any relevant information
from counterparts about their operations not covered by the budgetary guarantee referred to in
Article 24.
6. A Global Europe Investment Board (the ‘Investment Board’) shall provide strategic and
operational guidance to the Commission in the implementation of the budgetary guarantee
referred to in Article 24 and blending. The Investment Board shall adopt its rules of
procedure. The Investment Board shall meet at least once a year and, when possible, adopt
opinions by consensus.
The Investment Board shall be composed of representatives of the Commission and of the
High Representative, of all Member States and of the EIB. The European Parliament shall
have observer status. Contributors, eligible implementing entities and counterparts, partner
countries, relevant regional organisations and other stakeholders may be given observer
status, where appropriate. The Investment Board shall be co-chaired by the Commission and
the High Representative.
Article 26 - Implementation of policy-based loans
1. The Commission shall adopt decisions, by means of implementing acts, making available
the policy-based loan amount to a partner country and setting out the availability period of the
loan which shall not go beyond three years after the end of the multiannual financial
framework. Those implementing acts shall be adopted in accordance with the examination
procedure referred to in Article 32(2). If that decision is part of an action plan or measure,
Articles 18 and 19 shall apply.
EN 39 EN
2. In addition to the elements laid down in Article 223(4) of Regulation (EU, Euratom)
2024/2509, loan agreements for policy-based loans shall lay down the maximum loan amount,
the availability period, the maximum duration of each disbursement of the loan and the
detailed terms and conditions of the support. Such agreements may also contain an amount of
pre-financing and rules on clearing of pre-financing.
Article 27 – Capital participation in development finance institutions
The amounts referred to in Article 6(1), points (a) to (e), may be used to contribute to the
capital endowment of European and other development finance institutions.
Article 28 – Cross-Border Cooperation
1. Cross-border cooperation shall cover cooperation along external adjacent land and
maritime borders, transnational cooperation over larger transnational territories or around sea-
basins, as well as interregional cooperation.
2. The pillars referred to in Article 3(1), points (a) and (b) may contribute to cross-border
cooperation programmes referred to in paragraph 1 of this Article co-financed by the
Regulation (EU, Euratom) [XXX] of the European Parliament and Council [National and
Regional Partnerships Regulation]. Up to 3% of the financial envelope for the pillars referred
to in Article 3(1), point (a) may be indicatively allocated to support those programmes.
3. Contributions to cross-border cooperation programmes shall be determined and used
pursuant to Article XX {Cross-fund provisions – external CBC programmes} of the
Regulation (EU, Euratom) [XXX] [National and Regional Partnerships].
TITLE III – FINAL PROVISIONS
Article 29 – Extension of geographic scope
1. In duly justified cases and where the action to be implemented is of a global, trans-regional
or regional nature, the Commission may decide, within the relevant multiannual indicative
programmes or within the relevant action plans or measures to extend the scope of actions to
overseas countries and territories linked to a Member State as set out in Annex II to the TFEU
in order to ensure the coherence and effectiveness of Union financing or to foster regional or
trans-regional cooperation.
2. The Commission may include a specific financial allocation to assist partner countries and
regions to strengthen their cooperation with neighbouring Union outermost regions and with
overseas countries and territories linked to a Member State as set out in Annex II to the
TFEU. To that end, the Instrument, may contribute, where appropriate and on the basis of
reciprocity and proportionality as regards the level of funding from the Council Decision (EU)
2021/1764 or the Regulation (EU, Euratom) [XXX] [National and Regional Partnerships] , to
actions implemented by a partner country or region or any other entity under this Regulation,
or by a country, territory or any other entity under the Council Decision (EU) 2021/1764 or
by a Union outermost region in the frame of joint operational programmes or to interregional
cooperation programmes or measures established and implemented under Regulation (EU,
Euratom) [XXX] [National and Regional Partnerships].
EN 40 EN
Article 30 – Exercise of the delegation
1. The power to adopt delegated acts is conferred on the Commission subject to the conditions
laid down in this Article.
2. The power to adopt delegated acts to amend Article 6(5), Article 24(1), (2) and (3) and
Annex II shall be conferred on the Commission for the period of validity of this Regulation.
3. The delegation of power referred to in this Article may be revoked at any time by the
European Parliament or by the Council. A decision to revoke shall put an end to the
delegation of power specified in that decision. It shall take effect the day following the
publication of the decision in the Official Journal of the European Union or at a later date
specified therein. It shall not affect the validity of any delegated acts already in force.
4. Before adopting a delegated act, the Commission shall consult experts designated by each
Member State in accordance with the principles laid down in the Interinstitutional Agreement
of 13 April 2016 on Better Law-Making.
5. As soon as it adopts a delegated act, the Commission shall notify it simultaneously to the
European Parliament and to the Council.
6. A delegated act adopted pursuant to this Article shall enter into force only if no objection
has been expressed either by the European Parliament or to the Council within a period of two
months of notification of that act to the European Parliament and to the Council or if, before
the expiry of that period, the European Parliament and the Council have both informed the
Commission that they will not object. That period shall be extended by two months at the
initiative of the European Parliament or of the Council.
Article 31 – Adoption of further implementing rules for the Europe pillar
For Enlargement and Neighbourhood East partners in the pillar referred to in Article 3(1),
point (a), the Commission shall adopt an implementing act establishing uniform conditions
for implementing this Regulation, in relation to the design and content of the performance-
based plans, performance, structures and control systems to be set up in preparation of
accession, also in the context of the management of structural, agricultural and cross-border
cooperation funds. This implementing act shall be adopted in accordance with the
examination procedure referred to in Article 32(2).
Article 32 – Committee procedure
1. The Commission shall be assisted by a committee. That committee shall be a committee
within the meaning of Regulation (EU) No 182/2011. The committee may convene in
different formats.
2. Where reference is made to this paragraph, Article 5 of Regulation (EU) No 182/2011 shall
apply.
3. The rules of procedure of the committee shall provide for proportionate time limits
allowing committee members early and effective opportunities to examine the draft
implementing acts and express their views, in accordance with Article 3 of Regulation (EU)
No 182/2011.
4. Where the opinion of the committee is to be obtained by a written procedure, that
procedure shall be terminated without result when, within the time-limit for delivery of the
opinion, the chair of the committee so decides or a simple majority of committee members so
requests.
EN 41 EN
5. Where reference is made to this paragraph, Article 8 of Regulation (EU) No 182/2011, in
conjunction with Article 5 thereof, shall apply.
6. The adopted decision shall remain in force for the duration of the adopted or modified
document, action plan or measure.
7. When relevant, an observer from the EIB shall be invited to attend the meetings of the
Committee with regard to questions concerning the EIB.
8. Member States may request the examination of any other matter concerning the
implementation of the Instrument.
Article 33 – European External Action Service clause
This Regulation shall be applied in accordance with Decision 2010/427/EU, in particular
Articles 3 and 9 thereof.
Article 34 – Repeal and transitional provisions
1. Regulations (EU) 2021/947, (EU) 2021/1529, (EU) 2024/792, (EU) 2024/1449 and (EU)
2025/535 are repealed with effect from [1 January 2028].
2. This Regulation shall not affect the continuation or modification of actions initiated
pursuant to Regulations (EC) No 1085/200670
, Regulation (EU) No 231/201471
, Regulation
(EU) 2021/1529, Regulation (EU) 2021/947, Regulation (EU) 2024/792, Regulation (EU)
2024/1449, and Regulation (EU) 2025/535, which shall continue to apply to those actions
until their closure. However, Article 23 of this Regulation shall apply to actions under
Regulation (EU) 2021/1529 and Regulation (EU) 2021/947 instead of Articles 26 and 27 of
Regulation (EU) 2021/947.
3. The financial envelope for the Instrument may also cover technical and administrative
assistance expenditures necessary to ensure the transition between this Regulation and the
measures adopted under Regulations (EU) 2021/947, (EU) 2021/1529, (EU) 2024/1449.
4. The financial envelope for the Instrument may cover activities related to the preparation of
any future related Regulation.
5. If necessary, appropriations may be entered in the budget beyond 2034 to cover the
expenditures provided for in Article 6(4), to enable the management of actions not completed
by 31 December 2034.
6. The financial envelopes referred to in Article 6(1), point (a) to (e) and the financial
resources made available in accordance with Article 6 of Council Regulation [(EU, Euratom)
20XX/XXX * [MFF Regulation] referred to in Article 6(2) may finance the replenishment of
the provisioning of the budgetary guarantees authorised under Regulation (EU) 2017/1601
and Regulation (EU) 2024/792, of the budgetary guarantees and financial assistance
authorised under Regulation (EU) 2021/947 and under basic acts whose provisioning is
governed by Regulation (EC, Euratom) No 480/2009, as well as financial assistance
authorised under Regulation (EU) 2024/1449 and under Regulation (EU) 2025/535.
70
Council Regulation (EC) No 1085/2006 of 17 July 2006 establishing an Instrument for Pre-Accession
Assistance (IPA) (OJ L 210, 31.7.2006, p. 82–93, ELI: http://data.europa.eu/eli/reg/2006/1085/oj).
71
Regulation (EU) No 231/2014 of the European Parliament and of the Council of 11 March 2014
establishing an Instrument for Pre-accession Assistance (IPA II) (OJ L 77, 15.3.2014, p. 11–26, ELI:
http://data.europa.eu/eli/reg/2014/231/oj).
EN 42 EN
Article 35 – Entry into force and application
This Regulation shall enter into force on the day of its publication in the Official Journal of
the European Union.
It shall apply from 1 January 2028.
This Regulation shall be binding in its entirety and directly applicable in all Member States.
Done at Brussels,
For the European Parliament For the Council
The President The President
EN 1 EN
LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT
1. FRAMEWORK OF THE PROPOSAL/INITIATIVE................................................. 3
1.1. Title of the proposal/initiative...................................................................................... 3
1.2. Policy area(s) concerned .............................................................................................. 3
1.3. Objective(s).................................................................................................................. 3
1.3.1. General objective(s) ..................................................................................................... 3
1.3.2. Specific objective(s)..................................................................................................... 3
1.3.3. Expected result(s) and impact...................................................................................... 3
1.3.4. Indicators of performance ............................................................................................ 3
1.4. The proposal/initiative relates to:................................................................................. 4
1.5. Grounds for the proposal/initiative .............................................................................. 4
1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for
roll-out of the implementation of the initiative............................................................ 4
1.5.2. Added value of EU involvement (it may result from different factors, e.g.
coordination gains, legal certainty, greater effectiveness or complementarities). For
the purposes of this section 'added value of EU involvement' is the value resulting
from EU action, that is additional to the value that would have been otherwise
created by Member States alone. ................................................................................. 4
1.5.3. Lessons learned from similar experiences in the past.................................................. 4
1.5.4. Compatibility with the multiannual financial framework and possible synergies with
other appropriate instruments....................................................................................... 5
1.5.5. Assessment of the different available financing options, including scope for
redeployment................................................................................................................ 5
1.6. Duration of the proposal/initiative and of its financial impact .................................... 6
1.7. Method(s) of budget implementation planned............................................................. 6
2. MANAGEMENT MEASURES................................................................................... 8
2.1. Monitoring and reporting rules .................................................................................... 8
2.2. Management and control system(s) ............................................................................. 8
2.2.1. Justification of the budget implementation method(s), the funding implementation
mechanism(s), the payment modalities and the control strategy proposed.................. 8
2.2.2. Information concerning the risks identified and the internal control system(s) set up
to mitigate them............................................................................................................ 8
2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between
the control costs and the value of the related funds managed), and assessment of the
expected levels of risk of error (at payment & at closure)........................................... 8
2.3. Measures to prevent fraud and irregularities................................................................ 9
3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE............ 10
3.1. Heading(s) of the multiannual financial framework and expenditure budget line(s)
affected....................................................................................................................... 10
EN 2 EN
3.2. Estimated financial impact of the proposal on appropriations................................... 12
3.2.1. Summary of estimated impact on operational appropriations.................................... 12
3.2.1.1. Appropriations from voted budget............................................................................. 12
3.2.1.2. Appropriations from external assigned revenues....................................................... 17
3.2.2. Estimated output funded from operational appropriations......................................... 22
3.2.3. Summary of estimated impact on administrative appropriations............................... 24
3.2.3.1. Appropriations from voted budget .............................................................................. 24
3.2.3.2. Appropriations from external assigned revenues....................................................... 24
3.2.3.3. Total appropriations ................................................................................................... 24
3.2.4. Estimated requirements of human resources.............................................................. 25
3.2.4.1. Financed from voted budget....................................................................................... 25
3.2.4.2. Financed from external assigned revenues ................................................................ 26
3.2.4.3. Total requirements of human resources ..................................................................... 26
3.2.5. Overview of estimated impact on digital technology-related investments................ 28
3.2.6. Compatibility with the current multiannual financial framework.............................. 28
3.2.7. Third-party contributions ........................................................................................... 28
3.3. Estimated impact on revenue ..................................................................................... 29
4. DIGITAL DIMENSIONS.......................................................................................... 29
4.1. Requirements of digital relevance.............................................................................. 30
4.2. Data ............................................................................................................................ 30
4.3. Digital solutions ......................................................................................................... 31
4.4. Interoperability assessment........................................................................................ 31
4.5. Measures to support digital implementation.............................................................. 32
EN 1 EN
1. FRAMEWORK OF THE PROPOSAL/INITIATIVE
1.1. Title of the proposal/initiative
Global Europe
1.2. Policy area(s) concerned
External Action
1.3. Objective(s)
1.3.1. General objective(s)
The general objective of the proposed Instrument, Global Europe, is to uphold and
promote the Union’s values, principles and interests worldwide in order to pursue the
objectives and principles of the Union’s external action, as laid down in Article 3(5),
Articles 8 and 21 of the Treaty on European Union (TEU).
1.3.2. Specific objective(s)
The specific objectives of the Instrument are spelt out in Annex II.
1.3.3. Expected result(s) and impact
Specify the effects which the proposal/initiative should have on the beneficiaries/groups targeted.
Global Europe will contribute to the objectives of the EU’s external action, by
promoting mutually beneficial partnerships with third countries, contributing
simultaneously to the sustainable development of third countries and to the Union’s
strategic interests. Global Europe will also allow the Union to be better positioned to
address global challenges.
1.3.4. Indicators of performance
Specify the indicators for monitoring progress and achievements.
The output and result indicators for the purpose of monitoring progress and
achievements of this programme will correspond to the common indicators provided
under Regulation (EU, Euratom) [XXX] [Performance Regulation].
1.4. The proposal/initiative relates to:
 a new action
 a new action following a pilot project / preparatory action72
 the extension of an existing action
 a merger or redirection of one or more actions towards another/a new action
1.5. Grounds for the proposal/initiative
1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for
roll-out of the implementation of the initiative
The objective of the proposed Instrument, Global Europe, is to uphold and promote
the Union’s values, principles and interests worldwide in order to pursue the
72
As referred to in Article 58(2), point (a) or (b) of the Financial Regulation.
EN 2 EN
objectives and principles of the Union’s external action, as laid down in Article 3(5),
Articles 8 and 21 of the Treaty on European Union (TEU).
Global Europe will contribute to the objectives of the EU’s external action, by
promoting mutually beneficial partnerships with third countries, contributing
simultaneously to the sustainable development of third countries and to the Union’s
strategic interests. Global Europe will also allow the Union to be better positioned to
address global challenges.
1.5.2. Added value of EU involvement (it may result from different factors, e.g.
coordination gains, legal certainty, greater effectiveness or complementarities). For
the purposes of this section 'added value of EU involvement' is the value resulting
from EU action, that is additional to the value that would have been otherwise
created by Member States alone.
Reasons for action at EU level (ex-ante)
The international landscape has changed significantly over the last years, appearing
far less predictable and stable. Russia's war of aggression against Ukraine, including
its global impact, instability and conflict in the Middle East, pandemics, trade
tensions, economic coercion, competition on technology and access to critical raw
materials and the US administration’s disengagement from development cooperation,
humanitarian aid and multilateral institutions represent significant geopolitical and
geoeconomic challenges both for the EU and partner countries. Furthermore, the gap
to reach the Sustainable Development Goals (SDGs) by 2030 continues to widen,
global fragility is on the rise, and the impacts of climate change and biodiversity loss
continue to increase. These challenges require the EU to continue adapting its
external action financing.
EU’s external action financing seeks to partner with third countries, as well as
promote multilateral solutions to global challenges. It enables the EU to defend its
interests, to promote its values and standards, to support the objectives of its internal
policies, ensure its security and protect its citizens. The mid-term evaluation of EU's
External Financing Instruments for the 2021 - 2027 multiannual financial framework
confirmed the added value that the External Financing Instruments bring to EU’s
external relations, as they provide a more integrated and sizable offer to partner
countries, improving their capacity to address shared priorities with the EU and
contributing to sustainable development.
As a party to most multilateral processes, the EU can engage with multilateral and
regional partners in key policy areas. Compared to its Member States acting
separately, the EU, together with Member States, can achieve greater impact by
coordinating common positions and speaking with a stronger voice. As a world’s
leading proponent and defender of multilateral and rule-based global governance
system, the EU has credibility as an honest broker and defender of core international
human rights instruments. This leverage in multilateral and regional fora also enables
the Union to project globally its policies and values, as well as influence the shaping
of global norms and regulatory standards. The EU’s financial commitment is an
integral part of the overall engagement in several multilateral agreements (e.g.
climate and biodiversity).
Through the increased use of budgetary guarantees and blending operations, the EU
incentivises and pools together public and private investments, including to the
benefit of countries and sectors having difficult access to financial markets. Finally,
EN 3 EN
the EU triggers collaboration among development financial institutions. Macro-
financial assistance provides much needed financing for countries experiencing
balance of payments crises, with favourable conditions.
Expected generated EU added value (ex-post)
The expected added value generated by Global Europe should follow on from the
findings of the mid-term evaluation of EU's External Financing Instruments for the
2021 - 2027 Multiannual Financial Framework. Global Europe should allow to
consolidate and streamline external action financing, enabling the Union to protect
its interests abroad and adapt to evolving circumstances and needs. The Union shall
strive to ensure policy coherence, taking into account the impact of all internal and
external policies and promoting increased synergies and complementarities.
Global Europe shall provide all the tools for the EU to effectively operate in its
external action. The readiness of this toolbox will ensure that the most appropriate
tools are deployed in every circumstance depending on the objectives and the
situation on the ground, with the possibility to adapt to evolving contexts.
This will harness the potential of mutually beneficial partnerships packages targeted
for individual partner countries.
1.5.3. Lessons learned from similar experiences in the past
The mid-term evaluation on the EU’s external financing instruments confirms that
the current instruments are largely fit for purpose. The evaluation corroborates that
NDICI-Global Europe is on track to deliver against the objectives it was expected to
fulfil at the time of its adoption. Moreover, the objectives of NDICI-Global Europe
continue to be relevant and the instrument effectively serves the roll-out the Global
Gateway strategy. In a similar vein, the mid-term evaluation shows that IPA III has
demonstrated its general effectiveness as a pre-accession instrument and is likewise
on track to meet its objectives. The instrument is aligned with the enlargement
methodology and mirrors EU policy developments, such as the focus on green,
digital and economic priorities.
However, following years of instability in the EU’s neighbourhood and beyond, the
geopolitical stakes for the EU are far higher than when the 2021-2027 MFF was
adopted. The EU operates in a highly volatile and unpredictable environment,
characterised by geopolitical rivalry, geoeconomic competition, strategic
dependencies, competitiveness challenges, the worsening triple planetary crisis of
climate change, biodiversity loss and pollution, and increasing global fragility. This
changing geopolitical landscape and a string of poly-crises have exposed some
architectural weaknesses in the design of the external financing instruments.
Simultaneously, the link between EU external and internal policies has become
increasingly relevant and is currently not sufficiently catered for – neither in the
external nor in the internal financing instruments - and the interplay of external and
internal financing instruments is sub-optimal.
As a result, while current external financing instruments are effective in delivering
on their expected results, the changing geopolitical landscape and the era of poly-
crises have exposed some architectural weaknesses in their design. Partner country,
regional and global contexts evolve rapidly while the split between stand-alone pre-
programmed and pre-earmarked instruments is not conducive to swift adaptation.
Different strands of external action financing are currently fragmented into different
EN 4 EN
financing instruments. The financial and operational barriers between different
instruments hamper synergic approaches at the regional level (i.e. humanitarian-
development-peace nexus), flexibility in reacting to evolving priorities and interplay
between the Enlargement and Neighbourhood policies. There are therefore gains to
be made, in terms of overall synergy and flexibility, in ensuring a common source of
funding for most of the Union external action instruments, while preserving the
capacity of the Union to conduct a principled humanitarian aid policy under Article
214 TFEU. While the budget to finance the Union’s humanitarian aid operations
should be made available under this Instrument, such operations should therefore
continue to be implemented in accordance with Council Regulation (EC) No
1257/96.
Lastly, the Communication on ‘the road to the next multiannual financial framework’
strives for external action financing that is better aligned with the EU’s strategic
interests. However, the existing toolbox (intervention modalities) is not sufficient to
advance them.
1.5.4. Compatibility with the multiannual financial framework and possible synergies with
other appropriate instruments
When implementing this Regulation, consistency with other areas of external action
and with other relevant EU policies will be ensured, together with policy coherence
for development. As incorporated in the 2030 Agenda, this means taking into
account the impact of all policies on sustainable development at all levels —
nationally, within the EU, in other countries and at global level.
The Regulation is enabling in nature, which allows it to cater for different policy
objectives in synergy with other Union policies. Moreover, synergies with actions
under other EU programmes should be sought, in order to maximise the impact of
combined interventions. In particular, articulation with the European
Competitiveness Fund will be crucial to take various work streams (e.g. critical raw
materials and related value chains, economic security and the Clean Industrial Deal)
to the next level. Synergies with the Union’s strategic interests is strenghtened also
by the updated toolbox. Finally, the implementation of this Regulation will be
monitored and evaluated through the performance framework for the post-2027
MFF, ensuring increased coherence between different Union programmes in
monitoring and evaluation.
1.5.5. Assessment of the different available financing options, including scope for
redeployment
EN 5 EN
1.6. Duration of the proposal/initiative and of its financial impact
 limited duration
–  in effect from [DD/MM]YYYY to [DD/MM]YYYY
–  financial impact from YYYY to YYYY for commitment appropriations and
from YYYY to YYYY for payment appropriations.
 unlimited duration
– Implementation with a start-up period from YYYY to YYYY,
– followed by full-scale operation.
1.7. Method(s) of budget implementation planned
 Direct management by the Commission
–  by its departments, including by its staff in the Union delegations;
–  by the executive agencies
 Shared management with the Member States
 Indirect management by entrusting budget implementation tasks to:
–  third countries or the bodies they have designated
–  international organisations and their agencies (to be specified)
–  the European Investment Bank and the European Investment Fund
–  bodies referred to in Articles 70 and 71 of the Financial Regulation
–  public law bodies
–  bodies governed by private law with a public service mission to the extent that
they are provided with adequate financial guarantees
–  bodies governed by the private law of a Member State that are entrusted with
the implementation of a public-private partnership and that are provided with
adequate financial guarantees
–  bodies or persons entrusted with the implementation of specific actions in the
common foreign and security policy pursuant to Title V of the Treaty on
European Union, and identified in the relevant basic act
– bodies established in a Member State, governed by the private law of a
Member State or Union law and eligible to be entrusted, in accordance with
sector-specific rules, with the implementation of Union funds or budgetary
guarantees, to the extent that such bodies are controlled by public law bodies or
by bodies governed by private law with a public service mission, and are provided
with adequate financial guarantees in the form of joint and several liability by the
controlling bodies or equivalent financial guarantees and which may be, for each
action, limited to the maximum amount of the Union support.
Comments
External expenditure requires the ability to use all foreseen management modes as relevant
and decided during the implementation.
EN 1 EN
MANAGEMENT MEASURES
2.1. Monitoring and reporting rules
An implementation report will be published by the Commission no later than four
years after the start of the programme’s implementation, in order to assess the
progress made towards the achievement of their objectives, in line with Regulation
(EU, Euratom) [XXX] [Performance Regulation]. A retrospective evaluation will be
carried out by the Commission at the latest three years after the end of the MFF
period with a view to assessing the effectiveness, efficiency, relevance, coherence
and Union added value of the programme.
2.2. Management and control system(s)
2.2.1. Justification of the budget implementation method(s), the funding implementation
mechanism(s), the payment modalities and the control strategy proposed
Budget implementation methods
Regarding the management modes, there are no fundamental changes foreseen and
the experience acquired by the Commission services and implementing actors under
the predecessor programmes will contribute to better results in the future.
The actions to be financed under this Regulation will be implemented under direct
management by the Commission from headquarters and/or through the Union
delegations and under indirect management by any of the entities listed in article
62(1)(c) of the Financial Regulation in order to better achieve the objectives of the
Regulation.
Concerning indirect management, as stated in Article 157 of the Financial
Regulation, the Commission must ensure a level of protection of the EU’s financial
interests equivalent to the one under direct management. An ex ante pillar assessment
of the entities' systems and procedures will be carried out, in accordance with the
principle of proportionality and with due consideration for the nature of the action
and the financial risks involved. Where the implementation requires so or there have
been reservations expressed in Annual Activities Reports, action plans with specific
mitigation measures will be defined and implemented. Additionally, appropriate
supervisory measures imposed by the Commission may accompany the
implementation.
Budget support will also be used.
Innovative financial instruments including in partnership with the European
Investment Bank (EIB), Member States’ financial institutions and other international
financial institutions will be used for blending activities. The possibility to use trust
funds continues to be enabled by the Financial Regulation.
The internal control and management process is designed to provide reasonable
assurance regarding the achievement of objectives in the effectiveness and efficiency
of the operations, the reliability of the financial reporting and compliance with the
relevant legislative and procedural framework.
Effectiveness and efficiency
To ensure the effectiveness and efficiency of the operations (and to mitigate the high
level of risk in the external assistance environment), in addition to all the elements of
the Commission wide strategic policy and planning process, internal audit
EN 2 EN
environment and other requirements of the Commission's Internal Control
Framework, the implementing services will continue to have a tailored aid
management framework in operation under all the instruments which will include:
– A devolved management of the majority of external assistance by Union
delegations in the field.
– Clear and formalised lines of financial accountability (from the Delegated
Authorising officer (Director General)) by means of a sub-delegation from the Sub-
delegated Authorising Officer (Director) at headquarters to the Head of Delegation;
– Regular reporting from Union Delegations to Headquarters, including an annual
Statement of Assurance by the Head of Delegation;
– Provision of a substantial programme of training for staff both at headquarters and
in delegations,
– Significant Headquarters/Delegation support and guidance (including via
internet);
– Regular supervision missions to Delegations every 3 to 6 years;
– A project and programme cycle management methodology including: quality
support tools for the design of the intervention, the delivery method, financing
mechanism, management system, assessment and selection of any implementing
partners, etc.; programme and project management, monitoring and reporting tools
for effective implementation including regular external on-the-spot monitoring of
projects; and significant evaluation and audit components. Simplifications will be
sought by extending, where appropriate and feasible, the use of simplified cost
options. There will be a continuation of a risk-differentiated controls approach in
accordance with the underlying risks.
Financial Reporting and Accounting
The implementing services will continue to pursue the highest standards of
accounting and financial reporting using the Commission's corporate financial
system (SUMMA) as well as external aid specific tools such OPSYS.
In relation to compliance with the relevant legislative and procedural framework,
compliance control methods are set out in section 2.3 (measures to prevent fraud and
irregularities).
2.2.2. Information concerning the risks identified and the internal control system(s) set up
to mitigate them
The operational environment of cooperation under this instrument is characterised by
the risks of not achieving the instrument's objectives, sub-optimal financial
management and/or of not complying with the applicable rules (legality and
regularity errors) related to:
– Economic and political instability and natural disasters and extreme climatic
events that may lead to difficulties and delays in the design and implementation
of interventions, particularly in fragile states;
– limited institutional and administrative capacity in partner countries that may
lead to difficulties and delays in the design and implementation of
interventions;
EN 3 EN
– geographically dispersed interventions (covering approximately many states,
territories and regions) may pose logistical and resource challenges to
monitoring - particularly any 'on-the-spot' follow-up of activities;
– diversity of potential partners or beneficiaries with their diverse internal control
structures and capacities can fragment and therefore reduce the effectiveness
and efficiency of the Commission's available resources to support and monitor
implementation;
– limited availability of qualititative and quantitative data on the outcomes and
impact of external assistance implementation in partner countries may hinder
the Commission's ability to report on and be accountable for results.
In order to deal with the risk of financial errors, the Commission will perform the
appropriate ex ante and ex post controls. When possible and applicable the
performance of systems audits will work as a tool to identify root causes of errors in
the entities’ control systems and trigger the necessary mitigating measures.
Moreover, to strengthen its effectiveness in preventing errors, management
deficiencies and irregulairies, the Commission is setting up a system for an ongoing
targeted risk assessment at contract and at entity level. Key factors increasing the
likelihood of a high error rate and a negative impact on sound financial management,
in particular linked also to historical data of previous controls and monitoring haven
been identified and aggregated in a risk profiling dashboard. The dashboard will
provide an important tool to target more effectively future controls, monitoring
efforts and other means of mitigation to sensibly reduce the risks of errors,
management deficiencies and irregularities.
Given the high risk environment, the systems need to anticipate a significant
occurrence of potential compliance errors in transactions and build in a high level of
prevention, detection and correction controls as early as possible, before or during, in
the payment process. This means in practice that compliance controls will place most
reliance on significant ex-ante checks on a multi-annual basis by both external
auditors and Commission staff in the field before final project payments (while still
executing some ex-post audits), going well beyond the financial safeguards required
by the Financial Regulation. This framework include:
– Ex-ante transaction checks performed by Commission staff;
– Audits and verifications (both mandatory and risk based) including the
European Court of Auditors;
– Retrospective checks (on a risk basis) and recoveries;
2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between
the control costs and the value of the related funds managed), and assessment of the
expected levels of risk of error (at payment & at closure)
The internal control/management costs planned for the overall (operational +
administrative) commitments on the expenditure portfolio financed by the General
Budget of the EU for the period 2028-2034 refers only to the costs of the
Commission, excluding Member States or entrusted entities. Entrusted entities can
withhold up to 7 % for the administration of funds, which could partially be used for
control purposes. These management costs take into account all staff at headquarters
and in delegations, infrastructure, travel, training, monitoring, evaluation and audit
contracts (including those launched by beneficiaries).
EN 4 EN
While improvements in the nature and targeting of management activities and
compliance checks in relation to the portfolio will continue to be pursued, these costs
are globally necessary to effectively and efficiently achieve the objectives of the
instruments at a minimal risk of non compliance (below 2% residual error). They are
significantly less than risks involved in removing or scaling back internal controls in
this high risk area.
The compliance objective for the Instrument is on one side to maintain the historic
level of risk of non-compliance (error rate) and on the other to at less than 2% the
residual 'net' level of error (on a multi-annual basis after all planned controls and
corrections have been executed on closed contracts). Where weaknesses are
identified, targeted corrective measures will be implemented in the light of ensuring
minimum error rates.
2.3. Measures to prevent fraud and irregularities
There are no fundamental changes foreseen in the measures to prevent fraud and
irregularities, and the experience acquired by the Commission services and
implementing actors under the predecessor programmes will contribute to better
results in the future. The Compliance framework is made up inter alia of the
following significant components:
Preventative measures
– Compulsory core training covering fraud issues for aid management staff and
auditors;
– Provision of guidance (including via internet) including existing manual of
procedures such as the Companion, PRAG and the Financial Management
Toolkit (for implementing partners);
– Ex-ante assessment to ensure that appropriate anti-fraud measures to prevent
and detect fraud in the management of Union funds are in place in the
authorities managing the relevant funds under joint and decentralised
management);
– Ex-ante screening of the anti-fraud mechanisms available in the partner country
as part of the assessment of the eligibility criterion of public finance
management for receiving budget support (i.e. active commitment to fight
fraud and corruption, adequate inspection authorities, sufficient judicial
capacity and efficient response and sanction mechanisms);
– Effective anti-fraud mechanisms to prevent and detect fraud, corruption, and
other illegal activities affecting the financial interests of the Union, including
cyber-attacks, particularly in relation to new financial instruments such as
blending, financing not linked to cost (FNLC), and/or budgetary guarantees,
using digital tools and technologies.
Detective and corrective measures
– Suspension of EU funding where there is a serious fraud case, including large
scale corruption, until the authorities have taken appropriate action with a view
to correcting and preventing such fraud in the future;
– EDES (Early Detection Exclusion System);
– Suspension/termination of contract;
EN 5 EN
– Exclusion procedure.
Anti-fraud strategies of the services concerned, aligned with the objectives and
priorities of the Commission's anti-fraud strategy (CAFS) and its corresponding
Action Plan ensures that the systems used for spending EU funds in third countries
enable relevant data to be retrieved with a view to feeding this data into fraud risk
assessment and management (e.g. double funding, inflation of costs, rigged tender
procedures, conflict of interest, collusion); and wherever necessary, networking
groups and adequate IT/digital tools aimed at early detection and prevention of fraud
risks and fraud cases related to the external aid sector could be set up.
EN 1 EN
3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE
3.1. Heading(s) of the multiannual financial framework and expenditure budget
line(s) affected
Heading 3 of multiannual
financial framework –
Neighbourhood and the
world
Budget line
Type of
expenditure
Number
Diff./Non-diff.
07 01 Support expenditure for Global Europe cluster
Non-diff.
07 01 01 Support expenditure for Global Europe
excluding Ukraine Non-diff.
07 01 02 Support expenditure for support to Ukraine Non-diff.
07 02 Europe Pillar Diff.
07 02 01 Enlargement – Preparation for accession Diff.
07 02 02 Eastern Neighbourhood - Programmes Diff.
07 02 03 Western Europe - Programmes Diff.
07 02 04 Support to Ukraine Diff.
07 02 10 Europe – Crisis, peace and foreign policy needs Diff.
07 02 11 Europe – Humanitarian Aid Diff.
07 02 12 Europe – Resilience Diff.
07 02 13 Europe - Competitiveness Diff.
07 02 14 Europe – MFA grants Diff.
07 02 20 Europe – Provisioning of the Common
Provisioning Fund
Diff.
07 02 30 Europe – Territorial and Cross-Border
Cooperation
Diff.
07 03 Middle East, North Africa and the Gulf Pillar Diff.
07 03 01 Middle East - Programmes Diff.
07 03 02 North Africa - Programmes Diff.
07 03 03 The Gulf - Programmes Diff.
EN 2 EN
07 03 10 Middle East, North Africa and the Gulf – Crisis,
peace and foreign policy needs
Diff.
07 03 11 Middle East, North Africa and the Gulf –
Humanitarian Aid
Diff.
07 02 12 Middle East, North Africa and the Gulf –
Resilience
Diff.
07 02 13 Middle East, North Africa and the Gulf –
Competitiveness
Diff.
07 03 14 Middle East, North Africa and the Gulf – MFA
grants
Diff.
07 03 20 Middle East, North Africa and the Gulf –
Provisioning of the Common Provisioning Fund
Diff.
07 03 30 Middle East, North Africa and the Gulf –
Territorial and Cross-Border Cooperation
Diff.
07 04 Sub-Saharan Africa Pillar Diff.
07 04 01 West Africa - Programmes Diff.
07 04 02 East and Central Africa Programmes Diff.
07 04 03 Southern Africa and Indian Ocean -
Programmes
Diff.
07 04 10 Sub-Saharan Africa – Crisis, peace and foreign
policy needs
Diff.
07 04 11 Sub-Saharan Africa – Humanitarian Aid Diff.
07 04 12 Sub-Saharan Africa – Resilience Diff.
07 04 13 Sub-Saharan Africa – Competitiveness Diff.
07 04 14 Sub-Saharan Africa – MFA grants Diff.
07 04 20 Sub-Saharan Africa – Provisioning of the
Common Provisioning Fund
Diff.
07 05 Asia and the Pacific Pillar Diff.
07 05 01 Central Asia - Programmes Diff.
07 05 02 South and East Asia - Programmes Diff.
07 05 03 The Pacific - Programmes Diff.
07 05 10 Asia and the Pacific – Crisis, peace and foreign
policy needs
Diff.
EN 3 EN
07 05 11 Asia and the Pacific – Humanitarian Aid Diff.
07 05 12 Asia and the Pacific – Resilience Diff.
07 05 13 Asia and the Pacific - Competitiveness Diff.
07 05 14 Asia and the Pacific – MFA grants Diff.
07 05 20 Asia and the Pacific – Provisioning of the
Common Provisioning Fund
Diff.
07 06 Americas and the Caribbean Pillar Diff.
07 06 01 Americas - Programmes Diff.
07 06 02 The Caribbean - Programmes Diff.
07 06 10 Americas and the Caribbean – Crisis, peace and
foreign policy needs
Diff.
07 06 11 Americas and the Caribbean – Humanitarian
Aid
Diff.
07 06 12 Americas and the Caribbean – Resilience Diff.
07 06 13 Americas and the Caribbean - Competitiveness Diff.
07 06 14 Americas and the Caribbean – MFA grants Diff.
07 06 20 Americas and the Caribbean – Provisioning of
the Common Provisioning Fund
Diff.
07 07 Global Pillar Diff.
07 07 01 Global Programmes Diff.
07 07 10 Global - Crisis, peace and foreign policy needs Diff.
07 07 11 Global – Humanitarian Aid Diff.
07 07 12 Global - Resilience Diff.
07 07 13 Global - Competitiveness Diff.
07 08 Emerging challenges and priorities cushion Diff.
07 09 Completion of previous external action
programmes
Diff.
07 09 99 Completion of previous actions Diff.
07 09 99 01 Completion of previous actions under the
Neighbourhood, Development and International
Cooperation Instrument
Diff.
EN 4 EN
07 09 99 02 Completion of previous actions under
Humanitarian Aid
Diff.
07 09 99 03 Completion of previous actions under the
Instrument for Pre-Accession Assistance
Diff.
07 09 99 04 Completion of previous actions under the
Reform and Growth Facility for Western Balkans
Diff.
07 09 99 05 Completion of previous actions under the
Ukraine Facility
Diff.
[1]
Diff. = Differentiated appropriations / Non-diff. = Non-differentiated appropriations.
3.2. Estimated financial impact of the proposal on appropriations
3.2.1. Summary of estimated impact on operational appropriations
–  The proposal/initiative does not require the use of operational appropriations
–  The proposal/initiative requires the use of operational appropriations, as
explained below
3.2.1.1. Appropriations from voted budget
EUR million (to three decimal places)
Heading of multiannual financial
framework
3 Neighbourhood and the world
TOTAL MFF 2028-2034
Operational appropriations
07 02 (Europe Pillar)
Commitments (1a) 43,174
Payments (2a) p.m.
07 03 (Middle East, North Africa and
the Gulf Pillar)
Commitments (1b) 42,934
Payments (2b) p.m.
07 04 (Sub-Saharan Africa Pillar)
Commitments (1c) 60,531
Payments (2c) p.m.
07 05 (Asia and the Pacific Pillar)
Commitments (1d) 17,050
Payments (2d) p.m.
07 06 (Americas and the Caribbean
Pillar)
Commitments (1e) 9,144
Payments (2e) p.m.
07 07 (Global Pillar)
Commitments (1f) 12,668
Payments (2f) p.m.
07 08 (Emerging challenges and
priorities cushion)
Commitments (1g) 14,808
Payments (2g) p.m.
Appropriations of an administrative nature financed from the envelope of the programme
EN 5 EN
07 01 (Support expenditure for the
Global Europe cluster)
(3) pm
TOTAL appropriations Commitments
=1a+1b+1c+1d+
1e+1f+1g+3 200,309
Payments
=2a+2b+2c+2d+
2e+2f+2g+3 p.m.
Out of the Total appropriations above, an indicative amount of EUR 25 000 000 000 will be
dedicated to finance Humanitarian Aid actions. Considering that humanitarian aid is
unprogrammable and needs-driven tool, the allocations per pillar are to be determined at a
later stage, including through the annual budget procedure.
TOTAL MFF 2028-
2034
TOTAL operational appropriations
Commitments (4) p.m.
Payments (5) p.m.
TOTAL appropriations of an administrative nature
financed from the envelope for specific programmes
(6) p.m.
TOTAL appropriations under
HEADING 3
Commitments =4+6 200,309
of the multiannual financial framework Payments =5+6 p.m.
Heading of multiannual
financial framework
4 ‘Administrative expenditure’
DG: <…….>
Year Year Year Year Year Year Year TOT
AL
MFF
2028-
2034
2028 2029 2030 2031 2032 2033 2034
 Human resources
424.7
86
424.
786
424.
786
424.
786
424.
786
424.
786
424.
786
2973.
502
 Other administrative expenditure
81.17
7
81.1
77
81.1
77
81.1
77
81.1
77
81.1
77
81.1
77
568.2
42
TOTAL
DG
<…….>
505.9
63
505.
963
505.
963
505.
963
505.
963
505.
963
505.
963
3541.
744
DG: <…….> Year Year Year Year Year Year Year TOT
EN 6 EN
2028 2029 2030 2031 2032 2033 2034
AL
MFF
2028-
2034
 Human resources 0 0 0 0 0 0 0 0
 Other administrative expenditure 0 0 0 0 0 0 0 0
TOTAL
DG
<…….>
Appropriations 0 0 0 0 0 0 0 0
TOTAL appropriations under
HEADING 4 of the
multiannual financial
framework
(Total
commit
ments
= Total
payme
nts)
505.9
63
505.
963
505.
963
505.
963
505.
963
505.
963
505.
963
3541.
744
EUR million (to three decimal places)
Year Year Year Year Year Year Year TOTA
L MFF
2028-
2034
2028 2029 2030 2031 2032 2033 2034
TOTAL
appropriation
s under
HEADINGS 1
to 4
Commitment
s 0 0 0 0 0 0 0 0
of the
multiannual
financial
framework
Payments 0 0 0 0 0 0 0 0
3.2.1.2. Appropriations from external assigned revenues
EUR million (to three decimal places)
Heading of multiannual
financial framework
Num
ber
DG:
<…….>
Year Year
Y
e
a
r
Y
e
a
r
Y
e
a
r
Y
e
a
r
Y
e
a
r
T
O
T
A
L
M
F
F
2
0
2
8
-
2
0
2028 2029
2
0
3
0
2
0
3
1
2
0
3
2
2
0
3
3
2
0
3
4
EN 7 EN
3
4
Operational appropriations
Budg
et
line
Commitments (1a) 0
Payments (2a) 0
Budg
et
line
Commitments (1b) 0
Payments (2b) 0
Appropriations of an administrative nature financed from the envelope of specific programmes
Budg
et
line
(3) 0
TOT
AL
appr
opri
ation
s
Commitments =1a+1b+3 0 0 0 0 0 0 0 0
for
DG
<…
….>
Payments =2a+2b+3 0 0 0 0 0 0 0 0
Year Year Year Year Year Year Year TOTA
L
MFF
2028-
2034
2028 2029 2030 2031 2032 2033 2034
TOTAL
operational
appropriations
Commitme
nts
(4) 0 0 0 0 0 0 0 0
Payments (5) 0 0 0 0 0 0 0 0
TOTAL appropriations of
an administrative nature
financed from the envelope
for specific programmes
(6) 0 0 0 0 0 0 0 0
TOTAL
appropriatio
ns under
HEADING
<….>
Commitme
nts
=4+6 0 0 0 0 0 0 0 0
of the
multiannual
financial
framework
Payments =5+6 0 0 0 0 0 0 0 0
Heading of multiannual
financial framework
4 ‘Administrative expenditure’
EUR million (to three decimal places)
EN 8 EN
DG: <…….>
Year Year Year Year Year Year Year TOT
AL
MFF
2028-
2034
2028 2029 2030 2031 2032 2033 2034
 Human resources 0 0 0 0 0 0 0 0
 Other administrative expenditure 0 0 0 0 0 0 0 0
TOTAL
DG
<…….>
Appropriations 0 0 0 0 0 0 0 0
DG: <…….>
Year Year Year Year Year Year Year TOT
AL
MFF
2028-
2024
2028 2029 2030 2031 2032 2033 2034
 Human resources 0 0 0 0 0 0 0 0
 Other administrative expenditure 0 0 0 0 0 0 0 0
TOTAL
DG
<…….>
Appropriations 0 0 0 0 0 0 0 0
TOTAL appropriations under
HEADING 4 of the
multiannual financial
framework
(Total
commit
ments =
Total
payment
s)
0 0 0 0 0 0 0 0
EUR million (to three decimal places)
Year Year Year Year Year Year Year TOTA
L MFF
2028-
2034
2028 2029 2030 2031 2032 2033 2034
TOTAL
appropriation
s under
HEADINGS 1
to 7
Commitment
s 0 0 0 0 0 0 0 0
of the
multiannual
financial
framework
Payments 0 0 0 0 0 0 0 0
3.2.3. Summary of estimated impact on administrative appropriations
–  The proposal/initiative does not require the use of appropriations of an
administrative nature
–  The proposal/initiative requires the use of appropriations of an administrative
nature, as explained below
3.2.3.1. Appropriations from voted budget
EN 9 EN
VOTED
APPROPRIATIONS
Year Year Year Year Year Year Year TOTAL
2028 -
2034
2028 2029 2030 2031 2032 2033 2034
HEADING 4
Human resources 424.786 424.786 424.786 424.786 424.786 424.786 424.786 2.973.502
Other administrative
expenditure
81.177 81.177 81.177 81.177 81.177 81.177 81.177 568.242
Subtotal HEADING 4 505.963 505.963 505.963 505.963 505.963 505.963 505.963 3.541.744
Outside HEADING 4
Human resources 453.486 453.486 453.486 453.486 453.486 453.486 453.486 3.174.402
Other expenditure of an
administrative nature
p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.
Subtotal outside
HEADING 4
453.486 453.486 453.486 453.486 453.486 453.486 453.486 3.174.402
TOTAL 959.449 959.449 959.449 959.449 959.449 959.449 959.449 6.716.146
3.2.3.3. Total appropriations
TOTAL
VOTED APPROPRIATIONS +
EXTERNAL ASSIGNED REVENUES
Year Year Year Year Year Year Year TOTA
L 2028
- 2034
2028 2029 2030 2031 2032 2033 2034
HEADING 4
Human resources 424.786
424.78
6
424.7
86
424.7
86
424.7
86
424.7
86
424.7
86
2.973.50
2
Other administrative expenditure 81.177 81.177
81.17
7
81.17
7
81.17
7
81.17
7
81.17
7
568.242
Subtotal HEADING 4 505.963
505.96
3
505.9
63
505.9
63
505.9
63
505.9
63
505.9
63
3.541.74
4
Outside HEADING 4
Human resources 453.486
453.48
6
453.4
86
453.4
86
453.4
86
453.4
86
453.4
86
3.174.40
2
Other expenditure of an administrative nature 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000
Subtotal outside HEADING 4 453.486
453.48
6
453.4
86
453.4
86
453.4
86
453.4
86
453.4
86
3.174.40
2
TOTAL 959.449
959.44
9
959.4
49
959.4
49
959.4
49
959.4
49
959.4
49
6.716.14
6
The appropriations required for human resources and other expenditure of an administrative nature
will be met by appropriations from the DG that are already assigned to management of the action
and/or have been redeployed within the DG, together, if necessary, with any additional allocation
which may be granted to the managing DG under the annual allocation procedure and in the light of
budgetary constraints.
3.2.4. Estimated requirements of human resources
–  The proposal/initiative does not require the use of human resources
–  The proposal/initiative requires the use of human resources, as explained
below
3.2.4.1. Financed from voted budget
Estimate to be expressed in full-time equivalent units (FTEs)
EN 10 EN
VOTED
APPROPRIATIONS
Year Year Year Year Year Year Year
2028 2029 2030 2031 2032 2033 2034
 Establishment plan posts (officials and temporary staff)
20 01 02 01 (Headquarters and
Commission’s Representation
Offices)
1 347 1 347 1 347 1 347 1 347 1 347 1 347
20 01 02 03 (EU Delegations) 469 469 469 469 469 469 469
01 01 01 01 (Indirect research) 0 0 0 0 0 0 0
01 01 01 11 (Direct research) 0 0 0 0 0 0 0
Other budget lines (specify) 0 0 0 0 0 0 0
• External staff (inFTEs)
20 02 01 (AC, END from the
‘global envelope’)
208 208 208 208 208 208 208
20 02 03 (AC, AL, END and
JPD in the EU Delegations)
42 42 42 42 42 42 42
Support line
- at
Headquarters
786 786 786 786 786 786 786
[XX.01.YY.YY]
- in EU
Delegations
2 580 2 580 2 580 2 580 2 580 2 580 2 580
01 01 01 02 (AC, END - Indirect
research)
0 0 0 0 0 0 0
01 01 01 12 (AC, END - Direct
research)
0 0 0 0 0 0 0
Other budget lines (specify) -
Heading 4
0 0 0 0 0 0 0
Other budget lines (specify) -
Outside Heading 4
0 0 0 0 0 0 0
TOTAL 5 432 5 432 5 432 5 432 5 432 5 432 5 432
3.2.4.3. Total requirements of human resources
TOTAL VOTED
APPROPRIATIONS
+
EXTERNAL ASSIGNED
REVENUES
Year Year Year Year Year Year Year
2028 2029 2030 2031 2032 2033 2034
 Establishment plan posts (officials and temporary staff)
20 01 02 01 (Headquarters and
Commission’s Representation
Offices)
1 347 1 347 1 347 1 347 1 347 1 347 1 347
20 01 02 03 (EU Delegations) 469 469 469 469 469 469 469
01 01 01 01 (Indirect research) 0 0 0 0 0 0 0
01 01 01 11 (Direct research) 0 0 0 0 0 0 0
Other budget lines (specify) 0 0 0 0 0 0 0
• External staff (in full time equivalent units)
20 02 01 (AC, END from the
‘global envelope’)
208 208 208 208 208 208 208
20 02 03 (AC, AL, END and
JPD in the EU Delegations)
42 42 42 42 42 42 42
Support line
- at
Headquarters
786 786 786 786 786 786 786
EN 11 EN
[XX.01.YY.YY]
- in EU
Delegations
2 580 2 580 2 580 2 580 2 580 2 580 2 580
01 01 01 02 (AC, END - Indirect
research)
0 0 0 0 0 0 0
01 01 01 12 (AC, END - Direct
research)
0 0 0 0 0 0 0
Other budget lines (specify) -
Heading 7
0 0 0 0 0 0 0
Other budget lines (specify) -
Outside Heading 7
0 0 0 0 0 0 0
TOTAL 5 432 5 432 5 432 5 432 5 432 5 432 5 432
The staff required to implement the proposal (in FTEs):
To be covered
by current staff
available in the
Commission
services
Exceptional additional staff
To be financed
under Heading 4
or Research
To be financed
from BA line
To be financed
from fees
Establishment
plan posts
1 675 141 N/A
External staff
(CA, SNEs,
INT)
3 302 - 314
Description of tasks to be carried out by:
Officials and temporary staff
External staff
3.2.5. Overview of estimated impact on digital technology-related investments
Compulsory: the best estimate of the digital technology-related investments entailed
by the proposal/initiative should be included in the table below.
Exceptionally, when required for the implementation of the proposal/initiative, the
appropriations under Heading 4 should be presented in the designated line.
The appropriations under Headings 1-3 should be reflected as “Policy IT expenditure
on operational programmes”. This expenditure refers to the operational budget to be
used to re-use/ buy/ develop IT platforms/ tools directly linked to the implementation
of the initiative and their associated investments (e.g. licences, studies, data storage
etc). The information provided in this table should be consistent with details
presented under Section 4 “Digital dimensions”.
TOTAL Digital
and IT
appropriations
Year Year Year Year Year Year Year
TOTAL
MFF
2028 -
EN 12 EN
2028 2029 2030 2031 2032 2033 2034 2034
HEADING 4
IT expenditure *
(corporate)
44.542 44.542 44.542 44.542 44.542 44.542 44.542 311.797
Subtotal
HEADING 4
44.542 44.542 44.542 44.542 44.542 44.542 44.542 311.797
Outside HEADING 4
Policy IT
expenditure on
operational
programmes
0 0 0 0 0 0 0 0
Subtotal outside
HEADING 4
0 0 0 0 0 0 0 0
TOTAL 0 0 0 0 0 0 0 0
The corporate IT expenditure under Heading 4 is calculated by multiplying the FTEs by
EUR 8 200 per FTE
3.2.6. Compatibility with the current multiannual financial framework
The proposal/initiative:
–  can be fully financed through redeployment within the relevant heading of the
multiannual financial framework (MFF)
–  requires use of the unallocated margin under the relevant heading of the MFF
and/or use of the special instruments as defined in the MFF Regulation
–  requires a revision of the MFF
3.2.7. Third-party contributions
The proposal/initiative:
–  does not provide for co-financing by third parties
–  provides for the co-financing by third parties estimated below:
Appropriations in EUR million (to three decimal places)
Year Year Year Year Year Year Year
Total
2028 2029 2030 2031 2032 2033 2034
Specify the co-
financing body
TOTAL
appropriations
co-financed
EN 13 EN
[1]
Outputs are products and services to be supplied (e.g. number of student exchanges financed, number of
km of roads built, etc.).
[2]
As described in Section 1.3.2. ‘Specific objective(s)’
3.3. Estimated impact on revenue
4. DIGITAL DIMENSIONS
4.1. Requirements of digital relevance
4.2. Data
4.3. Digital solutions
4.4. Interoperability assessment
4.5. Measures to support digital implementation