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REPORT (COM(2025)0551 – C100175/2025 – 2025/0227(COD))

On the proposal for a regulation of the European Parliament and of the Council establishing Global Europe

A-10-2026-0277

Committee on Foreign Affairs Committee on Development · Rapporteur: Michael Gahler, Robert Biedroń

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Parliament's amended version of the proposed regulation establishing Global Europe sets up a single external financing instrument for 2028 to 2034 with a total indicative envelope of EUR 225 000 000 000. It organises funding into six pillars (Europe; Middle East, North Africa and the Gulf; Sub-Saharan Africa; Asia and the Pacific; Americas and the Caribbean; Global) with programmable and non-programmable actions. It sets minimum shares for humanitarian aid, official development assistance, social inclusion, gender equality and climate objectives, and creates an emerging challenges and priorities cushion. It provides loans and a budgetary guarantee for Ukraine and other partners, with the EIB as primary financial partner, and sets rules on eligibility, implementation, oversight and evaluation.

Committee position. The committees adopt Parliament's first-reading position amending the Commission proposal, setting the EUR 225 000 000 000 envelope, pillar allocations, spending targets, Ukraine loans and guarantees, and stronger parliamentary oversight and evaluation rules.

Key points

  1. The Instrument's total indicative envelope for 1 January 2028 to 31 December 2034 is EUR 225 000 000 000 in current prices, split into indicative amounts per pillar.
  2. At least 30% of expenditure under each geographic pillar must go to common horizontal objectives: human rights, democracy and rule of law; civil society; peace, stability and conflict prevention.
  3. At least 93% of expenditure must meet ODA criteria; at least 20% of ODA must go to fragile and conflict-affected situations and least developed countries, and at least 20% to social inclusion and human development.
  4. At least 85% of actions must have gender equality as a principal or significant objective, at least 5% as a principal objective, with targeted funding for women's rights organisations.
  5. A minimum of EUR 25 000 000 000 is guaranteed for humanitarian aid, as a floor and not a ceiling, with additional needs met from the emerging challenges and priorities cushion.
  6. At least 30% of the overall financial envelope is expected to go to climate and environmental objectives.
  7. Support to Ukraine includes loans of up to EUR 100 000 000 000 and a budgetary guarantee of up to EUR 48 000 000 000, with debt service costs financed over and above the multiannual financial framework ceilings.
  8. The Union may provide a budgetary guarantee of up to EUR 95 000 000 000, with provisioning rates between 9% and 50%, and up to EUR 20 billion from the Union budget may provision guarantees for partners other than Ukraine.
  9. The EIB is recognised as the primary strategic financial partner and receives a total of EUR 36 billion, including guarantee shares and blending and technical assistance resources.
  10. Funding may be suspended where democracy, human rights or the rule of law degrade, and may not support actions contrary to international law, fossil fuel investment or entities undermining Union values.
  11. A Global Europe Dialogue with Parliament is convened twice a year, Parliament has two representatives on the Global Europe Investment Board, and the Commission reports annually by 31 March.
  12. The Commission must evaluate the Instrument at least at mid-term, conduct impact assessments of 10% of actions and distributional impact assessments of at least 10% of interventions.

Who is affected

  • Partner countries and regions receiving EU external funding, which must meet conditions on reforms, human rights and democratic standards.
  • Ukraine, which receives loans, guarantees and reconstruction support tied to its accession path and accountability efforts.
  • Candidate countries and potential candidates, whose funding is conditional on sustained and verifiable progress and can be reduced or suspended for democratic backsliding.
  • Civil society organisations, local authorities and independent media, which get dedicated funding, consultation rights and simplified access.
  • The EIB and other implementing partners, which implement guarantees, blending and technical assistance under agreed conditions.

Figures and deadlines

  • EUR 225 000 000 000 in current prices (EUR 198 627 925 000 in 2025 constant prices): total indicative envelope for 2028-2034.
  • EUR 25 000 000 000: guaranteed minimum for humanitarian aid, a floor and not a ceiling.
  • EUR 14 808 000 000: emerging challenges and priorities cushion.
  • Up to EUR 100 000 000 000: loans to Ukraine for 2028-2034.
  • EUR 95 000 000 000: maximum budgetary guarantee; provisioning rate between 9% and 50%.
  • EUR 48 000 000 000: budgetary guarantee for Ukraine, with an initial provisioning rate of 70%.
  • EUR 36 billion to the EIB, including EUR 19 billion and EUR 13,5 billion in guarantee shares and EUR 2,3 billion and EUR 1,2 billion for blending and technical assistance.
  • At least 93% of expenditure must meet ODA criteria; at least 30% of the envelope to climate and environmental objectives; at least 85% of actions with gender equality as principal or significant objective.

Legal basis: Articles 209 and 212, and Article 322(1) of the Treaty on the Functioning of the European Union.