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BUDGETARY ASSESSMENT (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 for the period 2028 to 2034

BUDG-AD-785475

Committee on Budgets · Rapporteur: Rasmus Andresen

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The Committee on Budgets gives its budgetary assessment of the proposed Global Europe regulation for 2028 to 2034, which merges most external financing instruments and combines programmable and non-programmable support. It says the programme envelope should rise from EUR 200 309 000 000 to EUR 225 000 000 000 in current prices, and calls for minimum allocations, dedicated thematic pillars and a spending target for least developed countries. It asks for continued support to Ukraine, with debt service costs placed above the multiannual financial framework ceilings and outside the Ukraine Reserve. It demands a detailed budgetary nomenclature, approval rights over cushions and large transfers, and safeguards for Parliament's legislative and budgetary powers, including on external assigned revenue and policy-based lending. It calls for grants over guarantees in fragile and least developed countries, limits on blended finance, and protection of the EU's financial interests with cooperation with OLAF, the ECA and the EPPO.

Committee position. The Committee on Budgets proposes that the lead committees amend the proposal to raise the envelope, set minimum allocations and thematic pillars, add a budgetary nomenclature annex, strengthen parliamentary oversight, and place Ukraine debt service costs above the MFF ceilings.

Key points

  1. The proposal merges most external financing instruments, combines programmable and non-programmable support, and adds flexibility to react to unforeseen developments.
  2. The programme envelope should be increased from EUR 200 309 000 000 to EUR 225 000 000 000 in current prices (EUR 198 627 925 000 in 2025 constant prices).
  3. Support for Ukraine should stay coherent, transparent and effective, distinguishing pre-accession assistance from reconstruction, and debt service costs must sit above the MFF ceilings and outside the Ukraine Reserve.
  4. The limited and indicative budgetary breakdown should be replaced by guaranteed minimum allocations for humanitarian aid, development, human development including global health and education, and pre-accession support.
  5. Dedicated thematic pillars are needed for human rights and democracy, civil society organisations, stability and peace, plus a spending target for least developed countries.
  6. Grants should foster human development, climate and biodiversity action; no borrowing cost subsidies should count towards the 90 % Official Development Assistance target.
  7. An annex defining the budgetary nomenclature should be added, with dedicated thematic and country-specific budget lines, and no EU trust funds should be created.
  8. Mobilisation of the emerging challenges and priorities cushion and transfers between pillars exceeding 10 % of annual appropriations require approval of the budgetary authority.
  9. Budgetary guarantees, blending and loans should complement other support, with a ceiling for blended finance operations, ex ante assessments, additionality, due diligence, and dedicated funding for technical assistance.
  10. Decommitments and carried-over amounts should return to the budget line of origin, and reflows and surpluses from budgetary guarantees should stay within the same Global Europe chapter.
  11. Substantive policy choices must be set in the basic act, with non-essential elements adopted through delegated acts, and the budgetary authority's role in policy-based lending reinforced.
  12. External assigned revenue must be clearly regulated and scrutinised, with possible contributions from Member States and third countries and possible use of immobilised Russian assets for Ukraine.

Who is affected

  • Ukraine: continued financial support, including for recovery and reconstruction, with debt service costs outside the Ukraine Reserve.
  • Least developed countries: a spending target and preference for grants over guarantees.
  • Entities receiving EU funds: must cooperate with OLAF, the ECA and, as appropriate, the EPPO.
  • Private entities in investment operations: must meet high standards of due diligence, transparency and accountability.
  • Member States and third countries: the programme should provide for additional contributions.

Figures and deadlines

  • EUR 200 309 000 000: current programme envelope proposed by the Commission.
  • EUR 225 000 000 000 in current prices (EUR 198 627 925 000 in 2025 constant prices): proposed increased envelope.
  • 90 %: Official Development Assistance target that borrowing cost subsidies should not count towards.
  • 10 % of annual appropriations: threshold above which transfers between pillars require approval of the budgetary authority.
  • 12 March 2026: date the Court of Auditors published opinion 07/2026 on the proposal.

Legal basis: Article 322 of the Treaty on the Functioning of the European Union.