Ettepanek - COM(2026) 1002

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EUROPEAN COMMISSION

Brussels, 18.5.2026

COM(2026) 1002 final

2026/0120 (BUD)

Proposal for a

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

on the mobilisation of the European Union Solidarity Fund to provide assistance

to Romania regarding the floods at the end of May 2025, Cyprus following the wildfires

in July 2025 and Spain following the wildfires in August 2025

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EXPLANATORY MEMORANDUM

1. CONTEXT OF THE PROPOSAL

This decision covers the mobilisation of the European Union Solidarity Fund (hereinafter

referred to as ‘the EUSF’) in accordance with Council Reglation (EC) No 2012/20021

(hereinafter referred to as ‘the EUSF Regulation’) for an amount of EUR 144 099 756 to

provide assistance to Romania following the floods at the end of May 2025, Cyprus following

the wildfires in July 2025 and Spain following the wildfires in August 2025.

This mobilisation is accompanied by DEC No 8/2026 that proposes to transfer the necessary

amount from the European Solidarity Reserve (hereinafter referred as ‘the ESR’) reserve line

to the EUSF operational budget line, both in commitments and payments appropriations.

2. INFORMATION AND CONDITIONS

2.1 Romania – regional natural disaster: floods starting on 27 May 2025

(1) On 14 August 2025, Romania submitted an application for a financial contribution

from the EUSF to finance emergency and recovery operations following the floods

starting on 27 May 2025. On 26 September 2025 and on 24 March 2026, Romania

submitted additional clarifications regarding the data and the information provided in

the EUSF application.

(2) Romania applied for a contribution from the EUSF within the deadline of 12 weeks

after the first damage caused by the disaster occurred on 27 May 2025. The

application contains all the information required under Article 4 of the EUSF

Regulation.

(3) The disaster is of natural origin and therefore falls within the field of application of

the EUSF.

(4) The Romanian authorities submitted the application under the ‘regional natural

disaster’ criterion as laid down in Article 2(3) of the EUSF Regulation, which is any

natural disaster in a region at NUTS level 2 of an eligible State resulting in direct

damage exceeding 1.5% of that region’s gross domestic product (GDP). The

Romanian authorities estimate the total direct damage caused by the disaster at EUR

573.59 million. According to the third subparagraph of Article 2(3) of the EUSF

regulation, where the natural disaster concerns several regions at NUTS level 2, the

threshold shall be applied to the average GDP of those regions weighted according to

the share of total damage in each region. The direct damage expressed as a

percentage of the total weighted regional GDP of the Centru, Sud Muntenia and

Nord Est regions is 1.8%. This amount exceeds 1.5% of the total weighted regional

GDP of the Centru, Sud Muntenia and Nord Est regions2.

(5) The total direct damage is the basis for the calculation of the amount of the financial

contribution from the EUSF. The financial contribution may only be used for

essential emergency and recovery operations as defined in Article 3 of the EUSF

Regulation.

1 Council Regulation (EC) No 2012/2002 of 11 November 2002 establishing the European Union

Solidarity Fund (OJ L 311, 14.11.2002, p. 3, ELI: http://data.europa.eu/eli/reg/2002/2012/oj). 2 The application was submitted in 2025 therefore the applicable threshold is the 2025 threshold.

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(6) Romania did not request the payment of an advance pursuant to Article 4a of the

EUSF Regulation.

(7) Between 26 May and early June 2025, Romania experienced several days of heavy

rains which subsequently led to flooding in the Centru, Sud Muntenia and Nord Est

regions. The greatest damage was recorded at the Praid Salt Mine, where, on 27

May, flood water from the Corund river dissolved part of the riverbed, severely

damaging the hydrotechnical infrastructure of the area and penetrated into the salt

mine. The entire salt mine was flooded with water which compromised the stability

of the salt support pillars and endangered the mine’s structural integrity. In other

parts of the abovementioned regions, hail and strong winds caused widespread

infrastructure damage. The storms also disrupted the functioning of public services

and left thousands of households without electricity.

(8) The Romanian authorities requested the assistance of a team of experts related to

structural issues of the Praid Salt Mine through the European Union Civil Protection

Mechanism. A team of 8 experts from Germany, Hungary, the Netherlands, Spain, as

well as a Liason Officer from the EU’s Emergency Response Coordination Centre

were deployed for a week to help analyse the situation of the Praid Salt Mine. The

key findings of the experts were presented to the Romanian authorities on 10 June.

(9) Romania estimated the cost of operations eligible under Article 3(2) of the EUSF

Regulation at EUR 449.71 million and presented the costs broken down by type of

operation. The largest share of the cost of emergency operations concerns the

restoration of the working order of infrastructure and plants in the fields of energy,

water and wastewater, telecommunications, transport, health, and education

amounting to EUR 227.09 million. The second-largest share of cost concerns the cost

of securing preventive infrastructure and the protection of cultural heritage amounts

to EUR 177.64 million. The third-largest share of cost concerns the cleaning up of

the disaster-stricken area amounts to EUR 26.04 million. The fourth-largest share of

cost concerns the cost of rescue services and the provision of temporary

accommodation amounts to EUR 18.94 million.

(10) Romania transposed Directive 2007/60/EC of the European Parliament and of the

Council (the Floods Directive) primarily through the National Strategy for Flood

Risk Management in the Medium and Long Term (2010-2035) adopted via

Government Decision 846 of 11 August 2010.

(11) At the date of submitting the application, Romania was not subject to infringement

proceedings concerning Union legislation relating to the nature of the disaster.

2.2 Cyprus – major natural disaster: wildfires in July 2025

(1) On 14 October 2025, Cyprus submitted an application for a financial contribution

from the EUSF to finance emergency and recovery operations following the wildfires

in July 2025.

(2) Cyprus applied for a contribution from the EUSF within the deadline of 12 weeks

after the first damage caused by the disaster occurred on 23 July 2025. The

application contains all the information required under Article 4 of the EUSF

Regulation.

(3) The disaster is of natural origin and therefore falls within the field of application of

the EUSF.

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(4) The Cypriot authorities estimate the total direct damage caused by the disaster at

EUR 253.69 million. The Commission accepted EUR 252.68 million as plausible

total direct damage. This amount exceeds the ‘major natural disaster’ threshold for

Cyprus of 0.6% of its Gross National Income, which was EUR 170.05 million in

20253. Therefore, the disaster qualifies as a ‘major natural disaster’ according to

Article 2(2) of the EUSF Regulation.

(5) The total direct damage is the basis for the calculation of the amount of the financial

contribution from the EUSF. The financial contribution may only be used for

essential emergency and recovery operations as defined in Article 3 of the EUSF

Regulation.

(6) Cyprus requested the payment of an advance pursuant to Article 4a of the EUSF

Regulation. On the basis of the preliminary assessment, the Commission concluded

that the conditions for paying an advance from the EUSF were met. Therefore, an

advance of EUR 2 317 465 was awarded by Commission Implementing Decision

C(2025) 8276 of 3 December 2025. The advance was paid to Cyprus on 29

December 2025.

(7) During the summer of 2025, Cyprus experienced a combination of prolonged

drought, extreme heatwaves and strong winds which created the conditions for two

unprecedented wildfires in the Limassol and Pafos regions in July. Thousands of

residents were forced to evacuate due to the Limassol wildfires. Several schools and

health establishments had to reduce their services and close to 900 private properties

were destroyed. Meanwhile, the Pafos wildfire caused serious economic losses in the

agricultural sector, the environment and threatened the socio-economic stability of

rural communities. The wildfires also led to 2 fatalities.

(8) The Cypriot authorities requested assistance for the Limassol fires through the

European Union Civil Protection Mechanism. Several EU Member States expressed

their readiness to offer support. On 24 July 2025, Cyprus accepted Greece’s offer

which swiftly provided one Ground Forest Firefighting module.

(9) Cyprus estimated the cost of operations eligible under Article 3(2) of the EUSF

Regulation at EUR 84.25 million and presented the costs broken down by type of

operation. The largest share of cost concerns the restoration of the working order of

infrastructure and plants in the fields of energy, water, wastewater, telecoms and

transport amounting to EUR 66.9 million. The second-largest share of cost concerns

temporary accommodation and rescue services amounting to EUR 8.77 million. The

third-largest share of cost concerns the cleaning up of the disaster-stricken area

amounting to EUR 5.88 million. The fourth-largest share of cost concerns securing

preventive infrastructure and the protection of cultural heritage amounting to EUR

2.7 million.

(10) At the date of submitting the application Cyprus was not subject to infringement

proceedings concerning Union legislation relating to the nature of the disaster.

2.3 Spain – major natural disaster: wildfires in August 2025

(1) On 30 October 2025, Spain submitted an application for a financial contribution from

the EUSF to finance emergency and recovery operations following the wildfires in

August 2025.

3 The application was submitted in 2025 therefore the applicable threshold is the 2025 threshold.

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(2) Spain applied for a contribution from the EUSF within the deadline of 12 weeks after

the first damage caused by the disaster occurred on 8 August 2025. The application

contains all the information required under Article 4 of the EUSF Regulation.

(3) The disaster is of natural origin and therefore falls within the field of application of

the EUSF.

(4) The Spanish authorities estimate the total direct damage caused by the disaster at

EUR 4 318.27 million. This amount exceeds the ‘major natural disaster’ threshold

for Spain, which was EUR 3 958.44 million in 20254 (EUR 3 billion in 2011 prices).

Therefore, the disaster qualifies as a ‘major natural disaster’ according to Article 2(2)

of the EUSF Regulation.

(5) The total direct damage is the basis for the calculation of the amount of the financial

contribution from the EUSF. The financial contribution may only be used for

essential emergency and recovery operations as defined in Article 3 of the EUSF

Regulation.

(6) Spain requested the payment of an advance pursuant to Article 4a of the EUSF

Regulation. On the basis of the preliminary assessment, the Commission concluded

that the conditions for paying an advance from the EUSF were met. Therefore, an

advance of EUR 30 137 714 will be awarded by the Commission Implementing

Decision currently under adoption.

(7) During the summer of 2025, Spain experienced a combination of prolonged drought,

extreme heatwaves and three waves of severe wildfires. At least 243 forest fires were

recorded in 16 Autonomous Communities. The fires caused significant

environmental, social, and economic damages, destroying the livelihood of many

citizens, especially in rural areas. Numerous people had to be evacuated from their

homes. The wildfires also led to 8 fatalities. This application relates to the damages

of the third and most destructive wave of fires which began on 8 August.

(8) The Spanish authorities requested assistance through the European Union Civil

Protection Mechanism. Nine Member States provided support in the form of

firefighting airplanes, helicopters, firefighters, vehicles, tools and heavy machinery

to several Spanish regions.

(9) Spain estimated the cost of operations eligible under Article 3(2) of the EUSF

Regulation at EUR 121.1 million and presented the costs broken down by type of

operation. The largest share of cost concerns the cleaning up of the disaster-stricken

area amounting to EUR 52.61 million. The second-largest share of cost concerns the

restoration of the working order of infrastructure and plants in the fields of water,

wastewater, telecommunications, education and transport, including cultural heritage,

amounting to EUR 29.44 million. The third share of cost concerns temporary

accommodation and rescue services amounting to EUR 39.05 million.

(10) At the date of submitting the application Spain was not subject to infringement

proceedings concerning Union legislation relating to the nature of the disaster.

2.4 Conclusion

In light of the considerations set out above and following the assessment of the submitted

information, the Commission concludes that the disasters referred to in the application

4 The application was submitted in 2025 therefore the applicable threshold is the 2025 threshold.

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submitted by Romania, Cyprus and Spain meet the conditions set out in the EUSF Regulation

for mobilising the EUSF.

3. FINANCING

The EUSF was established on the principle of solidarity, and accordingly, the Commission

applies a progressive approach to its aid allocation. Consequently, the portion of the damage

exceeding the threshold for mobilising the EUSF for a ‘major natural disaster’ (i.e. 0.6% of

GNI or EUR 3 billion in 2011 prices, whichever is the lower amount, cf. Article 2(2) EUSF

Regulation) should give rise to higher aid intensity than the portion of the damage below the

threshold. That means that the aid amount for a country affected by a disaster complying with

the conditions for a ‘major natural disaster’ is calculated by adding up two amounts: 2.5% of

total direct damage under the threshold and 6% for the part of the total direct damage above

the threshold. The rate applied for defining the aid amounts for a ‘regional natural disaster’,

which remains below the national threshold, is 2.5% of the total direct damage.

This methodology for calculating EUSF aid was set out in the 2002-2003 Annual Report on

the EUSF and accepted by the European Parliament and the Council. The EUSF contribution

may not exceed the estimated total cost of eligible operations.

Applying the methodology outlined above, the Commission has evaluated the EUSF aid in

response to the three applications, submitted by Romania, Cyprus and Spain, regarding the

floods and wildfires that occurred in 2025.

The Commission therefore proposes to the budgetary authority to mobilise the following

amounts:

Disaster

Total direct

damage

Applied

threshold

2.5% of total

direct damage

[up to the

threshold for

major

disasters]

6% of total

direct damage

[above the

threshold for

major

disasters]

Proposed

EUSF aid

Advance

payments

Balance to

be paid

(EUR) (EUR) (EUR) (EUR) (EUR) (EUR) (EUR)

Romania – floods 573,587,000 477,819,000 14,339,675 NA 14,339,675

not

requested 14,339,675

regional disaster

Cyprus – wildfire 252,680,561 170,046,000 4,251,150 4,958,074 9,209,223 2,317,465 6,891,758

major disaster

Spain – wildfire 4,318,268,632 3,958,436,000 98,960,900 21,589,958 120,550,858 30,137,714 90,413,144

major disaster

TOTAL 144,099,756 32,455,179 111,644,577

Council Regulation (EU, Euratom) No 2020/2093 of 17 December 2020 laying down the

multiannual financial framework for the years 2021-20275 (hereafter ‘the MFF Regulation’),

allows for the mobilisation of the EUSF in the context of the Solidarity and Emergency Aid

Reserve (SEAR). Council Regulation (EU, Euratom) 2024/7656 (hereafter the amended MFF

5 OJ L 433I, 22.12.2020, p. 11, ELI: http://data.europa.eu/eli/reg/2020/2093/oj. 6 Council Regulation (EU, Euratom) 2024/765 of 29 February 2024 amending Regulation (EU, Euratom)

2020/2093 laying down the multiannual financial framework for the years 2021 to 2027. OJ C 433I,

22.12.2020, p. 28.

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Regulation’) split the SEAR in two separate instruments: the European Solidarity Reserve and

the Emergency Aid Reserve.

The European Solidarity Reserve with an annual amount of EUR 1 016 million in 2018 prices

(corresponding to EUR 1 190.4 million in 2026 prices) will be used for assistance to respond

to emergency situations covered by the EUSF. Point 10 of the Interinstitutional Agreement of

16 December 2020 between the European Parliament, the Council and the Commission on

budgetary discipline, on cooperation on budgetary matters and on sound financial

management as well as on new own resources, including a roadmap towards the introduction

of new own resources7, lays down the modalities for the mobilisation of the EUSF in the

context of the SEAR.

In order to avoid an early depletion of the annual allocation, Article 3(7) of the EUSF

Regulation and Article 9(2), second subparagraph of the amended MFF Regulation stipulate

that 25% of the annual EUSF allocation must remain available on 1 October of each year

(end-of-year-cushion). In 2026, this amount corresponds to EUR 297.6 million.

Moreover, according to Article 4a(4) of the EUSF Regulation, the amount of EUR 50 million

has already been inscribed in the General Budget 2026 (in commitments and payments) for

the payment of possible advances. Both Cyprus8 and Spain requested and were granted

advance payments of EUR 2.32 million and EUR 30.14 million, respectively.

In accordance with Article 9(2) of the amended MFF Regulation, any portion of the annual

amount not used in a given year n may be used up to year n+1. The amount of EUR 21.3

million has been carried over from 2025 to 2026, of which EUR 20.85 million are available

for the payment of possible advances9.

In conclusion, the total available amount on the reserve line before 1 October is EUR 843.25

million (excluding advances and end-of-year cushion), which is sufficient to cover the

proposed amount for mobilisation.

7 OJ C 433I, 22.12.2020, p. 28 8 The advance payment to Cyprus was made from the 2025 allocation on 29 December 2025. 9 In addition, EUR 976 million were carried over from 2025, already mobilised for Slovakia, Moldova,

Bosnia and Herzegovina, Spain, and France in line with the Decision (EU) 2025/1525 and Decision

(EU) 2025/2403. The corresponding payments will be made in the course of 2026. Payments to

Slovakia, Spain and France are scheduled in the second quarter of 2026, and to Moldova and Bosnia

and Herzegovina in December 2026.

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Available EUSF resources in 2026 (EUR)

Total annual allocation in 2026 1,190,405,931

Carry-over from 2025 incl. unused advances (+) 21,304,355

End-of-year cushion, available after 1 October (-) 297,601,483

Total amount currently available before 1 October, of which: 914,108,803

o Amount to be used for possible advances10 70,854,849

o Amount available for the current mobilisation decision 843,253,954

Amount proposed for mobilisation, only balance to be paid 111,644,577

Remaining amount for future applications incl. advances and end-of-year cushion11 1,100,065,709

10 The EUR 70.85 million available for possible advances includes EUR 50 million inscribed in the

General Budget 2026 for advances and EUR 20.85 million of unused advances carried over from 2025

to 2026. Of this amount, an advance payment of EUR 30.14 million will be awarded to Spain by the

Commission Implementing Decision under adoption. 11 Includes EUR 30.14 million for Spain’s advance payment.

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2026/0120 (BUD)

Proposal for a

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

on the mobilisation of the European Union Solidarity Fund to provide assistance

to Romania regarding the floods at the end of May 2025, Cyprus following the wildfires

in July 2025 and Spain following the wildfires in August 2025

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty on the Functioning of the European Union,

Having regard to Council Regulation (EC) No 2012/2002 of 11 November 2002 establishing

the European Union Solidarity Fund1, and in particular Article 4(3) thereof,

Having regard to the Interinstitutional Agreement of 16 December 2020 between the

European Parliament, the Council of the European Union and the European Commission on

budgetary discipline, on cooperation in budgetary matters and on sound financial management

as well as on new own resources, including a roadmap towards the introduction of new own

resources2, and in particular point (10) thereof,

Having regard to the proposal from the European Commission,

Whereas:

(1) The European Union Solidarity Fund ('the Fund') aims to enable the Union to respond

in a rapid, efficient and flexible manner to emergency situations in order to show

solidarity with the population of regions struck by major or regional natural disasters

or major public health emergency.

(2) The Fund is not to exceed the ceilings laid down in Article 9 of Council Regulation

(EU, Euratom) 2020/20933.

(3) On 14 August 2025, Romania submitted an application to mobilise the Fund following

the floods at the end of May and the beginning of June 2025.

(4) On 14 October 2025, Cyprus submitted an application to mobilise the Fund following

the wildfires in July 2025.

(5) On 30 October 2025, Spain submitted an application to mobilise the Fund following

the wildfires in August 2025.

(6) Those applications meet the conditions for providing a financial contribution from the

Fund, as laid down in Article 4 of Regulation (EC) No 2012/2002.

1 OJ L 311, 14.11.2002, p. 3, ELI: http://data.europa.eu/eli/reg/2002/2012/oj. 2 OJ L 433I, 22.12.2020, p. 28, ELI: http://data.europa.eu/eli/agree_interinstit/2020/1222/oj. 3 Council Regulation (EU, Euratom) 2020/2093 of 17 December 2020 laying down the multiannual

financial framework for the years 2021 to 2027 (OJ L 433I, 22.12.2020, p. 11, ELI:

http://data.europa.eu/eli/reg/2020/2093/oj).

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(7) The Fund should therefore be mobilised to provide a financial contribution to

Romania, Cyprus and Spain.

(8) In order to ensure that the Union financial assistance can be made available as rapidly

as possible to the Member States affected and to avoid any delay in the mobilisation of

the European Union Solidarity Fund, this Decision should enter into force as a matter

of urgency on the day of its publication in the Official Journal of the European Union

and should apply from the date of its adoption,

HAVE ADOPTED THIS DECISION:

Article 1

For the general budget of the Union, the European Union Solidarity Fund shall be mobilised

as follows in commitment and payment appropriations in relation to natural disasters:

(a) the amount of EUR 14 339 675 shall be provided to Romania following the

floods at the end of May and the beginning of June 2025;

(b) the amount of EUR 9 209 223 shall be provided to Cyprus following the

wildfires in July 2025;

(c) the amount of EUR 120 550 858 shall be provided to Spain following the

wildfires in August 2025.

Article 2

This Decision shall enter into force on the day of its publication in the Official Journal of the

European Union.

It shall apply from [the date of its adoption].

Done at Brussels,

For the European Parliament For the Council

The President The President