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DRAFT REPORT (COM(2025)0542 – C10178/2025 – 2025/0542(COD))

On the proposal for a regulation of the European Parliament and of the Council establishing the Union support for internal security for the period from 2028 to 2034

LIBE-PR-788869

Committee on Civil Liberties, Justice and Home Affairs · Rapporteur: Assita Kanko

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This is the rapporteur's draft report on the Commission proposal for a regulation establishing Union support for internal security for 2028 to 2034. It adopts a first-reading position and tables amendments to the proposal. The amendments add hybrid threats, radicalisation, victim support and fundamental rights compliance to the regulation's objectives, and change how the Commission approves national plans, from a Council implementing decision to a delegated act. The rapporteur supports the overall architecture of the 2028-2034 multiannual financial framework and proposes clarifications to align the instrument with internal security challenges and allow scrutiny of EU funds.

Committee position. The rapporteur supports the overall architecture of the 2028-2034 multiannual financial framework and proposes clarifications to the Internal Security Regulation to align it with pressing internal security challenges and allow proper scrutiny of EU funds. She tables amendments adding hybrid threats, radicalisation, victim support and fundamental rights safeguards, and replacing the Council implementing decision on national plans with a Commission delegated act.

Key points

  1. Parliament adopts its first-reading position on the proposed internal security regulation and calls on the Commission to refer the matter to Parliament again if it substantially amends the proposal.
  2. The amendments state that the regulation lays down the objectives of Union support for internal security, and that member states should ensure their National and Regional Partnership Plans address each objective.
  3. The amendments add that Union support should cover measures helping to avoid the introduction of temporary internal border controls or the lifting of such controls.
  4. A new recital states that the Union and member states face hybrid threats combining conventional and non-conventional means, and that actions to prevent, detect and respond to them should be supported.
  5. A new recital says member states should also address in their national plans challenges identified by EMPACT, EU-SOCTA and IOCTA.
  6. The amendments state that the Union should strengthen its strategic autonomy and develop capacity to design and deploy its own internal security technologies, embedding fundamental rights, data protection and rule-of-law safeguards by design.
  7. The definition of 'hybrid threat' is amended to include sabotage and other means of political interference and economic pressure, and to cover harm to a member state's institutions or the Union and its institutions.
  8. The objectives are amended to add radicalisation alongside terrorism, violent extremism, cybercrime, child sexual abuse and exploitation, and hybrid threats, and to add a new objective on support, protection and assistance for victims of serious and organised crime.
  9. A new article requires all supported actions to comply with the rights and principles of the Union acquis and the Charter of Fundamental Rights and with the Union's and member states' international obligations.
  10. The amendments replace the Council implementing decision approving National and Regional Partnership Plans with a Commission delegated act, and set out the exercise of that delegation, including a two-month objection period for Parliament and the Council.
  11. The rapporteur supports objectives on preventing and combating serious and organised crime, resilience of critical entities, information exchange, law enforcement cooperation and victim support.
  12. The rapporteur notes that under the NRP regulation proposal member states may derogate from partnership and multi-level governance rules in home affairs and may reallocate funds between the three instruments under conditions.

Who is affected

  • Member states, which must ensure their National and Regional Partnership Plans address each objective and may reallocate funds between the three home affairs instruments.
  • The Commission, which would approve national plans by delegated act and consult experts designated by each member state.
  • Law enforcement and judicial authorities, whose operational cooperation and information exchange the support aims to improve.
  • Victims of serious and organised crime, including vulnerable victims, who would receive strengthened support, protection and assistance.
  • Schengen associated countries, which are supposed to participate through financial contributions agreed in bilateral arrangements with the EU.

Figures and deadlines

  • €81 billion: total allocations for Justice and Home Affairs under the proposed new budgetary framework, set to triple compared to the current framework.
  • EUR €6,8 billion: the budget foreseen in the Commission proposal for the period 2028 to 2034.
  • 2028-2034: the period covered by the proposed regulation and the multiannual financial framework.
  • Two months: the period for Parliament or the Council to object to a delegated act after notification.
  • 26 June 2025: the date of the European Council conclusions recalled in the amended recital.
  • 19 February 2026: the date of the European Economic and Social Committee opinion.
  • 13 April 2016: the date of the Interinstitutional Agreement on Better Law-Making.

Legal basis: Article 294(2) and Articles 82(1), 84 and 87(2) of the Treaty on the Functioning of the European Union.