COM(2025) 542 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

EN EN

EUROPEAN COMMISSION

Brussels, 16.7.2025

COM(2025) 542 final

2025/0542 (COD)

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

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EXPLANATORY MEMORANDUM

1. CONTEXT OF THE PROPOSAL

• Reasons and objectives

In line with the Commission Political Guidelines for 2024 - 2029, the EU is committed to

achieving a safer and more secure Europe. The Commission has followed up on this

commitment by adopting on 1 April 2025 the Protect EU Strategy which aims at meeting

citizens’ expectations in the field of security, by protecting them from various crime threats

which may also have their origin outside the EU. It provides a comprehensive framework to

strengthen internal security, which will need to be supported with concrete actions against

hybrid threats, potential disruptions to critical infrastructure, such as energy interconnectors or

cross-border communication cables, and supply chains, organised crime networks, terrorist

threats, extremism and radicalisation, as well as cyberattacks, and foreign manipulation of

information.

For this, the Member States must be adequately supported, within a coherent yet flexible

financing framework, embedding the core elements of the new approach and focusing on

essential measures providing Union added value. Measures to enhance coordination and

cooperation between police and judicial authorities and other competent authorities should be

privileged, given their relevance in the areas of preventing and combating crime, racism and

xenophobia. Cooperation with the Union agencies and bodies, especially as regards the

exchange of information, is also essential to prevent and combat security-related, such as

terrorism and serious and organised crime.

The EU Security threat picture is stark and has an inherent cross-border dimension. The EU is

increasingly threatened by powerful organised criminal groups, nurtured online and

infiltrating the legal economy using their illicit assets. Furthermore, terrorism remain a threat

to the EU also fuelled by regional crisis. At the same time, hybrid threat from hostile foreign

actors has shown to be an increasingly worrying phenomenon that requires a continuous

effort. Finally, trafficking of vulnerable persons is an area of concern. Traffickers may also

engage in cross-border crimes such as smuggling or trafficking of drugs and firearms. This

requires a strong, coordinated Union response, based on a holistic approach, pooling together

with relevant actors, such as the European industrial sector and civil society, and

encompassing several policy areas, including the EU’s external action. As set out in the

ProtectEU Strategy, security considerations need to be integrated and mainstreamed across all

EU legislation, policies and programmes, including EU external action. Cooperation and the

funding of internal security-relevant actions in or in relation to third countries should be

envisaged, while ensuring full coherence and complementarity with the activities supported

under the Union’s external financing instruments established in accordance with Regulation

(EU) […] [Global Europe].

The proposal aims to address the need for greater flexibility in the management of the Union

support, including a stronger performance orientation, as well as enhanced simplification for

all actors involved in its implementation. For this, strict complementarity is enforced with the

proposal for Regulation (EU) […] establishing the European Fund for economic, social and

territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and security,

introducing new mechanisms for the allocation and implementation of EU funding for shared,

direct and indirect management. As challenges in the area of internal security are constantly

evolving, there is also a need to respond to pressing needs and changes in policy and Union

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priorities, and to steer funding towards actions with a high level of Union added value, in

particular through an EU Facility offering flexibility in the management of the Union support.

The present proposal, together with the proposal for a Regulation (EU) […] establishing the

Union Support for asylum, migration and integration and the proposal for a Regulation (EU)

[…] establishing the Union support for the Schengen area, for European integrated border

management and for the common policy on visas, provide the specific legal framework for the

Union action in the areas of efficient management of migration, European integrated border

management at the external borders, well-functioning Schengen area and European visa

policy, and internal security. These three Regulations complement each other and the proposal

for Regulation (EU) […] establishing the European Fund for economic, social and territorial

cohesion, agriculture and rural, fisheries and maritime, prosperity and security, through which

they will be implemented.

The proposed Regulation builds on the Regulation (EU) 2021/11491 while taking into account

new policy developments and the need to provide an agile response to evolving challenges

concerning internal security, both within the Union and in cooperation with other countries.

• Consistency with existing policy provisions

The Union support for internal security will work in strict complementarity with the other

policies under the scope of the proposal for Regulation (EU) […] establishing the European

Fund for economic, social and territorial cohesion, agriculture and rural, fisheries and

maritime, prosperity and security, thus fostering synergies between these policies. However,

an intensified EU policy on internal security needs action across the full spectrum of the tools

at its disposal, including activities of relevant Union decentralised agencies.

The six Home Affairs decentralised Agencies (Frontex, Europol, EUAA, eu-LISA, EUDA

and Cepol) play an important and increasing role in the implementation of the Home Affairs

policies. It is essential to ensure coherence between policy strategies set out at EU level and

the operational activities of the decentralised agencies, thereby also maximising the

contribution to the EU policy objectives from the EU funding provided to the decentralised

agencies. The operational role of the decentralised agencies may require further strengthening,

accompanied by a corresponding increase of funding.

• Consistency with other Union policies

Internal security relies on the synergies and coherence with relevant EU policies such as

migration and border management, justice, and the Union external policies supporting third

countries, especially under Regulation (EU) [Global Europe], which cover a wide range of

areas with important links to internal policies, including internal security. Union support for

the external dimension of internal security should first and foremost be provided by Global

Europe. To support the competitiveness agenda, investments based on innovative methods or

new technologies, including measures aiming to test and validate the outcome of Union-

funded research projects should also be considered.

2. LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY

• Legal basis

Article 3(2) of the Treaty on European Union provides that ‘the Union shall offer its citizens

an area of freedom, security and justice without internal frontiers, in which the free movement

1 Regulation (EU) 2021/1149 of the European Parliament and of the Council of 7 July 2021 establishing

the Internal Security Fund (OJ 251, 15.07.2021, p.194).

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of persons is ensured in conjunction with appropriate measures with respect to external border

controls, asylum, immigration and the prevention and combating of crime’.

Union action is justified on the grounds of the objectives referred to in Article 67 of the

Treaty on the Functioning of the European Union (TFEU), which sets out the means to

constitute an area of freedom, security and justice. Attention is also drawn to Article 80 of the

TFEU, which underlines that the Union policies and their implementation are to be governed

by the principle of solidarity and the fair sharing of responsibility, including its financial

implications, between the Member States.

This Regulation is based on Articles 82(1), 84 and 87(2) TFEU, which constitute compatible

legal bases in the light of the specific rules that apply to decision-making under Title V of Part

Three of TFEU.

• Variable geometry

This Regulation is based on legal bases under Title V of Part Three TFEU, concerning the

area of freedom, security and justice. As a consequence, the application of the Regulation to

Denmark and Ireland is subject to special provisions laid down in Protocol No 21 and

Protocol No 22 annexed to the TEU and the TFEU.

In accordance with Articles 1 and 2 of Protocol No 22, Denmark does not take part in the

adoption by the Council of measures proposed pursuant to Title V of Part Three TFEU, and

such measures are not binding upon or applicable in Denmark.

In accordance with Articles 1 and 2 of Protocol No 21, Ireland does not take part in the

adoption by the Council of measures proposed pursuant to Title V of Part Three TFEU, and

such measures are not binding on or applicable in Ireland. However, Ireland may choose to

take part in the adoption and application of any such proposed measure. In addition, anytime

after the adoption of such a measure, Ireland may accept the measure, subject to the

completion of procedures referred to in Article 4 of Protocol No 21.

• Subsidiarity (for non-exclusive competence)

The objectives of the proposal cannot be achieved by Member States acting alone, as the

challenges are of a cross-border nature, and not limited to single Member States or to a subset

of Member States. Union support creates added value by promoting a common approach

across Member States when implementing EU acquis and standards and fostering

collaboration and timely exchange of information between Member States on transnational

issues.

• Proportionality

The proposal does not go beyond what is necessary to achieve the objectives mentioned under

section 1. It falls within the scope for action in the area of freedom, security and justice, as

defined in Title V of the TFEU. The objectives and corresponding Union support are

proportional to what the Union support aims to achieve.

• Choice of the instrument

The most appropriate instrument for operating the current proposal is a Regulation of the

European Parliament and of the Council establishing the Union support for internal security

for the period from 1 January 2028 to 31 December 2034 and complementing the proposal for

Regulation (EU) […] establishing the European Fund for economic, social and territorial

cohesion, agriculture and rural, fisheries and maritime, prosperity and security.

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3. RESULTS OF RETROSPECTIVE EVALUATIONS, STAKEHOLDER

CONSULTATIONS AND IMPACT ASSESSMENTS

• Retrospective evaluations/fitness checks of existing legislation

The preliminary outcomes of the ongoing ex-post evaluation of the Internal Security Fund-

Police (ISF-P) for the 2014-2020 programming period confirm that the ISF-P contributed both

to enhancing Member States’ capabilities to combat cross-border, serious and organised

crime, including terrorism, and to enhance Member States’ capacity to manage security-

related risks and crises. The ISF-P has proven to be efficient and demonstrated effective

management and control mechanisms to safeguard the EU’s financial interests. The ISF-P

introduced several changes aimed at simplifying the ISF-P management and reducing

administrative burden. The evaluation preliminary concludes that despite some progress,

further steps are needed to enhance efficiency and ensure administrative processes are

proportionate to the funding provided.

The preliminary outcomes of the mid-term evaluation of the Internal Security Fund (ISF) for

the 2021-2027 programming period confirm that the monitoring and evaluation framework for

the ISF has seen significant improvements compared to the 2014-2020 period. Member States

continue to report a high administrative burden. Simplified cost options have contributed to

reducing administrative burden, yet their implementation is not systematically applied to

optimise spending. The ISF’s architecture was considered fit for purpose, as it has enhanced

internal coherence by fostering complementarity across components. The ISF was also

considered coherent with the Asylum Migration and Integration Fund (AMIF) and the Border

Management and Visa Instrument (BMVI) under the Home Affairs Funds, other EU Funds,

particularly Horizon Europe, the European Social Fund Plus (ESF+) and the Justice

Programme as well as with other programmes applicable to relevant European industrial

sectors and civil society such as the Single Market Programme, Digital Europe Programme.

The evaluation concludes that the ISF has addressed the needs it was meant to address and has

been able to respond to new challenges and developments in the policy area. The ISF has

fostered a unified framework for addressing cross-border internal security challenges, and

encouraged knowledge exchange, and the promotion of best practices. Actions supported

through the ISF Thematic Facility have generated high EU added value advance operational

cooperation between law enforcement and judicial authorities, cooperation with third

countries and international organisations, as well stakeholders from the private sector and

civil society sector. As in the case of BMVI, evaluation concludes that there is room for going

further in simplifying the delivery of funding, and explaining better to Managing Authorities

how the performance framework can contribute to the efficient management of the

programmes.

• Stakeholder consultations

The Commission actively engaged with the stakeholders in the process of the initiative,

notably through dedicated events and public consultation activities, as detailed in the

corresponding chapter of the explanatory memorandum of the proposal for Regulation (EU)

[…] establishing the European Fund for economic, social and territorial cohesion, agriculture

and rural, fisheries and maritime, prosperity and security.

• External expertise

Information about the Commission’s use of external expertise is provided in the

corresponding chapter of the explanatory memorandum of the proposal for Regulation (EU)

[…] establishing the European Fund for economic, social and territorial cohesion, agriculture

and rural, fisheries and maritime, prosperity and security.

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• Impact assessment

Information about the Commission’s Impact Assessment is provided in the corresponding

chapter of the explanatory memorandum of the proposal for Regulation (EU) […] establishing

the European Fund for economic, social and territorial cohesion, agriculture and rural,

fisheries and maritime, prosperity and security.

• Simplification

The initiative is expected to contribute to a significant reduction of administrative burden and

costs, as well as improved efficiency in the implementation of Union support, see also the

corresponding chapter of the explanatory memorandum of the proposal for Regulation (EU)

[…] establishing the European Fund for economic, social and territorial cohesion, agriculture

and rural, fisheries and maritime, prosperity and security.

• Fundamental rights

The Union support will be implemented in compliance with the Charter of Fundamental

Rights of the European Union and the principle of the rule of law, as set out in Article 2(a) of

Regulation (EU, Euratom) 2020/2092, see also the corresponding section in the Explanatory

Memorandum accompanying the Commission proposal for the proposal for Regulation (EU)

[…] establishing the European Fund for economic, social and territorial cohesion, agriculture

and rural, fisheries and maritime, prosperity and security.

4. BUDGETARY IMPLICATIONS

The indicative financial envelope for the implementation of the objectives under the Union

support is set at EUR 6 843 331 500 for the period from 2028 to 2034 in current prices. It

shall be implemented in compliance with the horizontal rules for the National and Regional

Partnership Plans laid down in Regulation (EU) […] establishing the European Fund for

economic, social and territorial cohesion, agriculture and rural, fisheries and maritime,

prosperity and security.

5. OTHER ELEMENTS

• Implementation plans and monitoring, evaluation and reporting arrangements

The Union support under this proposal will be implemented though shared management by

the Member States and direct and indirect management by the Commission. The

implementation of the Union support will be monitored through the performance framework

applicable for the 2028-2034 multiannual financial framework set out in the proposal for

Regulation (EU) […] establishing a budget expenditure tracking and performance framework

and other horizontal rules of the Union programmes and activities.

• Detailed explanation of the specific provisions of the proposal

The proposed Regulation defines in Article 1 the scope of the Union support for internal

security for the period from 1 January 2028 to 31 December 2034. For this, essential

definitions are given in Article 2, and four objectives are set out in Article 3, which will be

achieved through Union support provided under the horizontal rules of the European Fund for

economic, social and territorial cohesion, agriculture and rural, fisheries and maritime,

prosperity and security established by Regulation (EU) […]. These objectives refer to the

areas of Union and Member States capabilities for preventing and combating of serious and

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organised crime; Member States’ resilience against hybrid threats and other hostile acts;

exchange of information among relevant actors; operational law enforcement cooperation.

In Article 4 the proposal lays down provisions for the financing of the Union support.

Article 5 lays down transitional provisions. The date of the entry into force of the proposed

Regulation is set in Article 6, which also stipulated that the Regulation will be binding in its

entirety and directly applicable in all Member States in accordance with the Treaties from 1

January 2028.

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2025/0542 (COD)

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

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 82(1), 84 and 87(2) 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 Committee2,

Having regard to the opinion of the Committee of the Regions3,

Acting in accordance with the ordinary legislative procedure4,

Whereas:

(1) Internal security is fundamental to ensuring citizens’ safety, protecting their

fundamental rights, and fostering the strength of, and the trust in, our economies,

societies and democracies. While national security remains a competence of Member

States, protecting it requires cooperation and coordination at Union level. The Union’s

objective of ensuring a high level of security within an area of freedom, security and

justice pursuant to Article 67(3) of the Treaty on the Functioning of the European

Union (TFEU) should be achieved through measures aiming at preventing and

combating crime, racism and xenophobia, and through measures for coordination and

cooperation between police and judicial authorities and other competent authorities.

(2) Internal security is a shared endeavour to which the Union institutions, relevant Union

agencies and Member States should jointly contribute. To contribute to the

development and implementation of an effective and genuine Security Union, Member

States should be provided with adequate financial resources. This Union support will

be provided under the horizontal rules of the European Fund for economic, social and

territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and

security established by Regulation (EU) […].

(3) This Regulation lays down the objectives of the Union support. In order that a high

level of security throughout the Union can be achieved in the best possible way,

Member States should ensure that their National and Regional Partnership Plans

address each of the objectives set out by this Regulation.

(4) The amounts to be allocated per Member State should be set out by the Commission in

accordance with the allocation methodology laid down in Regulation (EU) […]

2 OJ C , , p. . 3 OJ C , , p. . 4 Position of the European Parliament of […] and position of the Council of […].

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establishing the European Fund for economic, social and territorial cohesion,

agriculture and rural, fisheries and maritime, prosperity and security through a single

implementing decision. That decision should as a rule also cover the amounts under

the Regulation (EU) […] establishing the European Fund for economic, social and

territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and

security, the Regulation (EU) […] establishing the Union Support for asylum,

migration and integration and the Regulation (EU) […] establishing the Union support

for the Schengen area, for European integrated border management and for the

common policy on visas.

(5) The Union support should build on the results and investments in the area of internal

security from the previous programming periods: the Prevention of and Fight Against

Crime (ISEC) programme, the Prevention, Preparedness and Consequence

Management of Terrorism and other Security-related risks (CIPS) programme for the

period 2007-2013, and the instrument for police cooperation, preventing and

combating crime, and crisis management as part of the Internal Security Fund for the

period 2014-2020, established by Regulation (EU) No 513/2014 of the European

Parliament and of the Council5, and the Internal Security Fund for the period 2021-

2027, established by Regulation (EU) 2021/1149 of the European Parliament and the

Council6.

(6) In a rapidly evolving security threat and geopolitical landscape, the Commission

defined the common priorities for a safer and more secure Europe in the ‘ProtectEU

Strategy’7. The geopolitical context in Europe has significantly changed, and it has

profoundly affected the interconnectedness of the EU’s internal and external security.

Security threats are increasingly global and complex, stemming from criminals’ ability

to operate across borders, exploit social and economic disparities, and navigate

between the physical and digital worlds. At the same time, new digital technologies

and artificial intelligence offer significant opportunities to enhance law enforcement

and judicial capabilities and address these evolving threats effectively.

(7) The Union support should concentrate on actions for which Union intervention can

bring greater added value compared with action by Member States alone. Security has

an inherently cross-border dimension and therefore a strong, coordinated Union

response is required. Therefore, the Member States National and Regional Partnership

Plans should contribute to effectively addressing the challenges identified in the

context of the ‘ProtectEU Strategy’. In line with the shared priorities identified at

Union level to ensure a high level of security in the Union, the Union support should

concern measures aimed at addressing the main security threats and, in particular, at

preventing and combating serious and organised crime, including terrorism, violent

extremism, and cybercrime.

5 Regulation (EU) No 513/2014 of the European Parliament and of the Council of 16 April 2014

establishing, as part of the Internal Security Fund, the instrument for financial support for police

cooperation, preventing and combating crime, and crisis management and repealing Council Decision

2007/125/JHA (OJ L 150, 20.5.2014, p. 93, ELI: http://data.europa.eu/eli/reg/2014/513/oj)). 6 Regulation (EU) 2021/1149 of the European Parliament and of the Council of 7 July 2021 establishing

the Internal Security Fund (OJ 251, 15.07.2021, p.194,ELI: http://data.europa.eu/eli/reg/2021/1149/oj). 7 Communication COM(2025) 148 final of 1.4.2025 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.

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(8) The Union support should finance measures of Member States in the field of crime

prevention, joint training of staff and police cooperation, as well as judicial

cooperation in criminal matters involving Member States’ competent authorities and

Union agencies and bodies, especially as regards the exchange of information,

increased operational cooperation and support for necessary efforts to strengthen

capabilities to prevent and combat terrorism and serious and organised crime. The

Union support should not cover operating costs and activities related to the essential

functions of the Member States concerning the maintenance of law and order and the

safeguarding of internal and national security.

(9) Security is the bedrock upon which all our freedoms are built and that Member States

ability to guarantee security for the citizens is contingent on a unified European

approach. As set out in the ProtectEU Strategy, security considerations need to be

integrated and mainstreamed across all EU legislation, policies and programmes,

including EU external action. The Union support under this Regulation should

contribute to address these considerations.

(10) In its conclusions of 26 June 20258, the European Council recalled that serious and

organised crime, terrorism, radicalization and violent extremism, both online and

offline, represent a major threat to European citizens and the security of Member

States. The European Council also underlined the threat posed by the criminal

infiltration of legal business structures that has a detrimental impact on public finances

and the Single Market. The European Council called the Union Institutions and the

Member States to mobilise all available resources at national and EU level and to take

further action to strengthen law enforcement and judicial cooperation, including on

effective access to data for law enforcement purposes and by ensuring information

exchange, and through cooperation with third countries.

(11) To prevent and combat internal security threats, the Union support should strengthen

Member States’ capabilities to prevent and combat serious and organised crime,

terrorism, violent extremism and radicalisation, child sexual abuse and exploitation,

cybercrime and actions addressing digital and technological security challenges, the

resilience of critical infrastructure online threats, security threats in the maritime

domain, trafficking in human beings, migrants smuggling, illicit drugs trafficking,

illicit arms trafficking, money laundering, asset recovery and financial crime,

environmental crime, counterfeiting of means of payment and crimes affecting the

Union’s financial interests, assisting and protecting victims of crime, protecting public

spaces, and addressing CBRN-E related security threats and managing incidents,

including through increased cooperation and information exchange between public

authorities, relevant Union bodies, offices or agencies, civil society and private

partners in different Member States. The Union support should also contribute to

Member States’ acquisition and implementation of innovative methods and

technologies in the field of internal security, in particular those supported by

Regulation (EU) […] establishing the European Competitiveness Fund and Regulation

(EU) […] establishing the EU Framework Programme for Research. In addition, in a

changing global political landscape, the external dimension of the area of freedom,

security and justice is of key importance. Therefore, the Union support should also

contribute to the strengthening of cooperation and partnership with third countries,

serving the interests of internal Union policies.

8 Council conclusions, EUCO 12/25 of 26 June 2025.

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(12) The Union support should contribute to ensuring consistency, coherence, synergies

and complementarities between the Union’s internal and external policies, in line with

the mainstreaming of security. In that context, the Union support under this Regulation

should in particular, contribute to combating and preventing serious and organised

crime, including drug trafficking, trafficking in human beings, and cross-border

criminal smuggling networks. Union support under this Regulation may also include

support to the relevant resources of the EU delegations in duly justified cases, and be

coordinated between the Member States and the Commission in programming and

implementation stages.

(13) As challenges in the area of security are constantly evolving, there is a need to adapt

the allocation of Union support under this Regulation to changes in internal and

external security threats and a need to steer funding towards the priorities with the

highest Union added value. To respond to pressing needs and to changes in policy and

Union priorities, and to steer funding towards actions with a high level of Union added

value, part of the Union support under this Regulation should be implemented in

direct, shared and indirect management via the EU Facility established pursuant to

Regulation (EU) […] establishing the European Fund for economic, social and

territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and

security. The EU Facility offers flexibility in the management of the Union support,

and, for shared management, it should be implemented through the Member States’

National and Regional Partnership Plans.

(14) The Commission and the Member States should ensure that the knowledge, expertise

and experience of relevant Union bodies, offices and agencies are taken into account

in the development of Member States’ National and Regional Plans and when

implementing measures or addressing challenges in relation to internal security. Where

appropriate, the Commission should also be able to involve the relevant Union bodies,

offices and agencies in activities aiming to ensure that the measures supported by the

Union support comply with the relevant Union acquis and agreed Union priorities.

(15) There is a need to maximise the impact of Union funding by mobilising, pooling and

leveraging public and private financial resources. The Union support should promote a

whole of society approach, encouraging the active and meaningful involvement of the

European industrial sector, as well as civil society, including non-governmental

organisations, in the development and implementation of security policy, where

relevant with the involvement of other relevant actors, Union bodies, Union agencies

and international organisations in relation to the objectives of the Union support.

However, it should be ensured that the Union support is not used to delegate statutory

or public tasks to private actors.

(16) Europe must protect its security interest against suppliers which could represent a

persistent security risk due to the potential interference from third countries as well as

their cybersecurity practices. It is therefore necessary to reduce the risk of persisting

dependency on high-risk suppliers in the internal market, as they could have

potentially serious negative impacts on security for users, companies and

authorities across the EU and the EU’s critical infrastructure in terms of the integrity

of data and services as well as the availability of service. This exclusion should be

based on a proportionate risk assessment and associated mitigation measures as

defined in the Union policies and laws.

(17) The Member States may build on the principle of partnership in the implementation of

the Union support to ensure continuity in the governance approach.

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(18) All actions supported in accordance with the Union support under this Regulation

should be implemented in compliance with the rights and principles enshrined in the

Union acquis and the Charter of Fundamental Rights of the European Union and

should be in line with the international obligations of the Union and the Member

States arising from the international instruments to which they are party.

(19) In accordance with Articles 1 and 2 of Protocol No 22 on the position of Denmark,

annexed to the Treaty on European Union (TEU) and to the TFEU, Denmark is not

taking part in the adoption of this Regulation and is not bound by it or subject to its

application.

(20) [In accordance with Article 3 of Protocol No 21 on the position of the United

Kingdom and Ireland in respect of the area of freedom, security and justice, annexed

to the Treaty on European Union (TEU) and the TFEU, Ireland has notified [, by letter

of …,] its wish to take part in the adoption and application of this Regulation.

OR

In accordance with Articles 1 and 2 of Protocol No 21 on the position of the United

Kingdom and Ireland in respect of the area of freedom, security and justice, annexed

to the Treaty of the European Union (TEU) and to the TFEU, and without prejudice to

Article 4 of that Protocol, Ireland is not taking part in the adoption of this Regulation

and is not bound by it or subject to its application],

HAVE ADOPTED THIS REGULATION:

Article 1

Subject matter

This Regulation lays down the objectives and financing of the Union support for internal

security for the period from 1 January 2028 to 31 December 2034. This Union support shall

be provided under the horizontal rules of the European Fund for economic, social and

territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and security

established by Regulation (EU) […].

Article 2

Definitions

For the purposes of this Regulation, the following definitions apply:

(1) ‘competent authorities’ means the Member State authorities responsible for the

prevention, detection and investigation of criminal offences, as referred to in Article

87(1) TFEU, including police, customs and other specialised law enforcement

services;

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(2) ‘prevention’, in relation to crime, means all measures that are intended to reduce or

otherwise contribute to reducing crime and citizens’ feeling of insecurity, as referred

to in Article 2(2) of Council Decision 2009/902/JHA9;

(3) ‘exchange of information’ means the secure collection, storage, processing, analysis

and transfer of, and access to, information relevant to the authorities referred to in

Article 87 of the TFEU as well as to Europol, and other relevant Union agencies and

bodies in relation to the prevention, detection, investigation and prosecution of

criminal offences, in particular cross-border serious and organised crime, including

cybercrime and terrorism;

(4) ‘organised crime’ means punishable conduct relating to participation in a criminal

organisation, as defined in Article 1, point (1) of Council Framework Decision

2008/841/JHA10;

(5) ‘terrorism’ means any of the intentional acts and offences referred to in Directive

(EU) 2017/541 of the European Parliament and of the Council11;

(6) ‘radicalisation’ means a phased and complex process leading to violent extremism

and terrorism and in which an individual or a group of individuals embraces a radical

ideology or belief that accepts, uses or condones violence, including acts of

terrorism, to reach a specific political, religious or ideological goal;

(7) ‘cybercrime’ means either crimes whose commission necessarily involves

information and communications technology systems (ICT systems), which are the

tools for committing those crime or their primary targets (cyber-dependent crimes),

or traditional crimes which can be increased in scale or reach by the use of

computers, computer networks or other ICT systems (cyber-enabled crimes);

(8) ‘operational law enforcement cooperation’ means the operational cooperation

between the authorities of two or more of the Member States referred to in Article

87(3) TFEU or the operation of the competent authorities of one Member State in the

territory of another Member State, as referred to in Article 89 TFEU;

(9) ‘hybrid threat’ means all harmful activities, including information manipulation,

cyberattacks and instrumentalization of migrants, that are planned and carried out

with malign intent in a coordinated manner with the aim of undermining a Member

State or any of its institutions.

Article 3

Objectives for the Union support for internal security

1. In order to ensure a high level of internal security in the Union, the support shall

contribute to the following objectives:

9 Council Decision 2009/902/JHA of 30 November 2009 setting up a European Crime Prevention

Network (EUCPN) and repealing Decision 2001/427/JHA (OJ L 321, 8.12.2009, p. 44, ELI:

http://data.europa.eu/eli/dec/2009/902/oj). 10 Council Framework Decision 2008/841/JHA of 24 October 2008 on the fight against organised crime,

(OJ L 300, 11.11.2008, p. 42, ELI: http://data.europa.eu/eli/dec_framw/2008/841/oj). 11 Directive (EU) 2017/541 of the European Parliament and of the Council of 15 March 2017 on

combating terrorism and replacing Council Framework Decision 2002/475/JHA and amending Council

Decision 2005/671/JHA, (OJ L 88, 31.3.2017, p. 6, ELI: http://data.europa.eu/eli/dir/2017/541/oj).

EN 13 EN

(a) strengthening the Union’s and Member States’ capabilities in relation to

preventing and combating serious and organised crime, online and offline,

including terrorism, violent extremism, cybercrime, child sexual abuse and

exploitation, and hybrid threats, as well as in relation to protecting citizens and

public spaces from attacks, including through innovative methods and new

technologies in the area of internal security;

(b) fostering Member States’ capabilities by enhancing the resilience of critical

entities against hostile acts, and managing security-related incidents, risks and

crises, also by means of interoperable critical communication systems;

(c) improving and facilitating the exchange of information between and within

competent authorities and relevant Union bodies, offices and agencies and,

where appropriate, with third countries, international organisations and private

parties;

(d) improving and intensifying operational law enforcement cooperation, including

joint operations, between competent authorities in relation to preventing and

combating serious and organised crime, online and offline, including terrorism,

violent extremism, cybercrime, child sexual abuse and exploitation, hybrid

threats, as well as in relation to protecting citizens and public spaces from

attacks;

The Union support shall be implemented in a manner fully consistent with the

objectives set out in Regulation (EU) […] establishing the European Fund for

economic, social and territorial cohesion, agriculture and rural, fisheries and

maritime, prosperity and security.

2. The Member States shall ensure that the priorities of their National and Regional

Partnership Plans include actions to achieve each of the objectives of the Union

support under this Regulation, and that the allocation of resources between objectives

is proportionate to the identified challenges and needs.

Article 4

Financing

1. The indicative financial envelope for the implementation of the objectives set out in

Article 3 for the period from 2028 to 2034 is set at EUR 6 843 331 500 in current

prices. It shall be implemented in compliance with the horizontal rules for the

National and Regional Partnership Plans laid down in Regulation (EU) […]

establishing the European Fund for economic, social and territorial cohesion,

agriculture and rural, fisheries and maritime, prosperity and security.

2. The Commission shall adopt an implementing act to establish the amount per

Member State by applying the allocation methodology set out in Section B, Annex I

of Regulation (EU) […] establishing the European Fund for economic, social and

territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and

security.

3. In addition, the budgetary appropriations for the objectives set out in Article 3 of this

Regulation, implemented through the EU Facility under Title IV of Regulation (EU)

[…] establishing the European Fund for economic, social and territorial cohesion,

agriculture and rural, fisheries and maritime, prosperity and security, shall be

EN 14 EN

established in the framework of the annual budgetary procedure provided for in

Article 314 TFEU.

4. For measures that relate to the objectives set out in Article 3 of this Regulation,

where the Commission concludes that those measures comply with the requirements

laid down in this Regulation and Regulation (EU) […] establishing the European

Fund for economic, social and territorial cohesion, agriculture and rural, fisheries and

maritime, prosperity and security, and where the Commission proposes a Council

implementing decision approving the National and Regional Partnership Plan of the

concerned Member State in accordance with the procedure set out in Article 23 of

Regulation (EU) […] establishing the European Fund for economic, social and

territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and

security, it shall make a proposal for a Council implementing decision on the

approval of those measures.

5. When making a proposal for a Council implementing decision on the measures that

relate to the objectives set out in Article 3 of this Regulation, the Commission

proposal shall lay down the elements referred to in Article 23(4) of the Regulation

(EU) […] establishing the European Fund for economic, social and territorial

cohesion, agriculture and rural, fisheries and maritime, prosperity and security, with

regard to the objectives set out in Article 3.

6. The Council shall adopt the implementing decision referred to in paragraph 4, as a

rule, within four weeks of the adoption of the Commission proposal and together

with the implementing decisions referred to in Article 23, paragraph (1) [Commission

proposal and Council implementing decision] of Regulation (EU) […] establishing

the European Fund for economic, social and territorial cohesion, agriculture and

rural, fisheries and maritime, prosperity and security.

7. Article 24 of the Regulation (EU) […] establishing the European Fund for economic,

social and territorial cohesion, agriculture and rural, fisheries and maritime,

prosperity and security on the amendment of Plans shall apply, provided that the

Commission proposal and the Council Implementing Decision approving

amendments of the elements listed in Article 23(4) only cover the objectives referred

to in Article 3 of this Regulation.

Article 5

Transitional provisions

This Regulation shall not affect the continuation or modification of the actions initiated under

Regulation (EU) 2021/1149, which shall continue to apply to the actions concerned until their

closure.

Article 6

Entry into force and application

This Regulation shall enter into force on the [twentieth] day following that of its publication

in the Official Journal of the European Union.

EN 15 EN

It shall apply from the date of application of Regulation (EU) […] establishing the European

Fund for economic, social and territorial cohesion, agriculture and rural, fisheries and

maritime, prosperity and security for the period 2028-2034.

This Regulation shall be binding in its entirety and directly applicable in the Member States in

accordance with the Treaties.

Done at Brussels,

For the European Parliament For the Council

The President The President

    Resolutsiooni liik: Riigikantselei resolutsioon Viide: Siseministeerium /  / ; Riigikantselei /  / 2-5/25-01533

Resolutsiooni teema: Euroopa Parlamendi ja nõukogu määrus, millega luuakse liidu toetusmehhanism sisejulgeoleku valdkonnas perioodiks 2028-2034 (COM (2025) 542 final)

Adressaat: Siseministeerium Ülesanne: Tulenevalt Riigikogu kodu- ja töökorra seaduse § 152` lg 1 p 2 ning Vabariigi Valitsuse reglemendi § 3 lg 4 palun valmistada ette Vabariigi Valitsuse seisukoha ja otsuse eelnõu järgneva algatuse kohta, kaasates seejuures olulisi huvigruppe ja osapooli: - 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, COM(2025)542

EISi toimiku nr: 25-0513 Tähtaeg: 14.11.2025

Adressaat: Justiits- ja Digiministeerium, Kliimaministeerium, Majandus- ja Kommunikatsiooniministeerium, Rahandusministeerium, Riigikantselei Ülesanne: Palun esitada oma sisend Siseministeeriumile seisukohtade kujundamiseks antud eelnõu kohta (eelnõude infosüsteemi (EIS) kaudu). Tähtaeg: 29.09.2025

Lisainfo: Eelnõu on kavas arutada valitsuse 27.11.2025 istungil ja Vabariigi Valitsuse reglemendi § 6 lg 6 kohaselt sellele eelneval nädalal (19.11.2025) EL koordinatsioonikogus. Esialgsed materjalid EL koordinatsioonikoguks palume esitada hiljemalt 14.11.2025.

Kinnitaja: Merli Vahar, Euroopa Liidu asjade direktori asetäitja Kinnitamise kuupäev: 15.08.2025 Resolutsiooni koostaja: Sandra Metste [email protected],  

.

14.08.2025

Euroopa Parlamendi ja nõukogu määrus, millega luuakse liidu toetusmehhanism sisejulgeoleku valdkonnas perioodiks 2028-

2034 (COM (2025) 542 final)

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

Otsuse ettepanek koordinatsioonikogule

Kujundada seisukoht

Kaasvastutaja sisendi tähtpäev 29.09.2025

KOKi esitamise tähtpäev 19.11.2025

VV esitamise tähtpäev 27.11.2025

Peavastutaja: Siseministeerium

Kaasvastutajad: Rahandusministeerium, Riigikantselei (strateegiabüroo, JRKB), Justiits- ja Digiministeerium, Kliimaministeerium, Majandus- ja Kommunikatsiooniministeerium

Seisukoha valitsusse toomise alus ja põhjendus

Algatuse vastuvõtmisega kaasneks oluline majanduslik või sotsiaalne mõju (RKKTS § 152¹ lg 1 p 2)

Sisukokkuvõte

16. juulil 2025 tuli Euroopa Komisjon välja määruse ettepanekuga, millega luuakse liidu toetusmehhanism sisejulgeoleku valdkonnas perioodiks 2028-2034. EL rahastamine võimaldab tugevdada õiguskaitseasutuste suutlikkust võidelda terrorismi ja organiseeritud kuritegevuse vastu nii internetis kui ka väljaspool seda.

Sisejulgeoleku fondide vahendite planeerimine ja kasutuselevõtt on kavandatud nn riigi plaani (national and regional partnership plan, lühidalt NRP) määruse COM(2025)565 reeglite kohaselt ning toimub jagatud juhtimine põhimõttel. Riigiplaani (NRP) määruse eesmärk on suurendada ELi rahastuse paindlikkust, lihtsustada fondide kasutamist,

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vähendada halduskoormust ning tugevdada tulemuspõhisust ja selle kohta kujundab seisukohad Rahandusministeerium.

Sisejulgeoleku valdkonna indikatiivne eelarve 2028-2034 eelarveperioodiks on 6,8 miljardit eurot. Lisandub rände peadirektoraadi rahastus EL ametitele. Sisevaldkonna fondide jaotusvõtmes on Euroopa Komisjon pakkunud suuremat koefitsienti idapiirile. Eesti rahastus siseturvalisuse fondidest kokku suureneks komisjoni esialgse ettepaneku kohaselt 0,8 miljardi euroni.

Kas EL algatus reguleerib karistusi või haldustrahve? Ei

Kas nähakse ette uue asutuse loomine (järelevalvelised või muud asutused)? Ei

Kas lahenduse rakendamine vajab IT-arendusi? Ei

Eesmärgid

EL eelarve toetus on kavandatud järgmiste eesmärkide elluviimiseks:

(a) Liidu ja liikmesriikide suutlikkuse tugevdamine raske ja organiseeritud kuritegevuse ennetamisel ja tõkestamisel, sealhulgas võitlemisel terrorismi, vägivaldse äärmusluse, küberkuritegevuse, laste seksuaalse kuritarvitamise ja ärakasutamise ning hübriidohtude vastu. Samuti kodanike ja avaliku ruumi kaitsmisel rünnakute eest, sealhulgas uuenduslike meetodite ja uute tehnoloogiate abil;

(b) liikmesriikide suutlikkuse suurendamine, tugevdades elutähtsate üksuste vastupanuvõimet vaenulike tegude vastu ning julgeolekuga seotud vahejuhtumite, riskide ja kriiside juhtimist, muu hulgas koostalitlusvõimeliste kriitilise side süsteemide abil;

(c) teabevahetuse parandamine ja hõlbustamine pädevate asutuste ning asjakohaste liidu asutuste ja ametite vahel ning vajaduse korral ka kolmandate riikide, rahvusvaheliste organisatsioonide ja eraosapooltega;

(d) operatiivse õiguskaitsealase koostöö parandamine ja tõhustamine, sealhulgas pädevate asutuste ühiste operatsioonide kaudu.

Mõju ja sihtrühm

Fondi eesmärgid ja asjakohased meetmed on seotud peamiselt „Siseturvalisuse arengukava 2021–2030“ (edaspidi STAK) elluviimisega. STAKi prioriteedid on turvalise elukeskkonna loomine, sh vägivalla vähendamine, sisejulgeoleku tagamine, sh võitlus organiseeritud kuritegevusega ja kriisiks valmisolek, kiire ja professionaalne abi, kodakondsus-, rände- ja identiteedihalduspoliitika, mis tagab Eesti arengu, ning arukas ja uuenduslik sisejulgeolek.

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Eesti katsumuste peamised märksõnad hõlmavad enamikku sisejulgeolekufondi eesmärkidest: küberkuritegevus, rahapesu ja terrorismi rahastamine, terrorism ja radikaliseerumine, raske ja organiseeritud kuritegevus, uimastikaubandus, finantsuurimine, korruptsioon, kuritegeliku vara avastamine ja konfiskeerimine, inimkaubandus, laste (seksuaalne) väärkohtlemine ja ärakasutamine, kohtuekspertiisi suutlikkus, kriisiennetus, hädaolukorraks valmisolek, vastupidavus kriisi ajal ja küberrünnakute ning keemiliste, bioloogiliste, radioloogiliste ja tuuma- ja lõhkeainete (edaspidi CBRNE) tõrjumine. Probleemide lahendamiseks võetakse STAK kohaselt järgmisi meetmeid: info- ja sidetehnoloogia arendamine, nutikad ja uuenduslikud tehnoloogilised vahendid, suurem analüütiline suutlikkus, (operatiivne) koostöö ametiasutuste vahel ning parem riiklik suutlikkus, mis saavutatakse muu hulgas koolituse ja asjakohase varustuse soetamise kaudu. Märksõnad on ka ennetamine, varajane hoiatamine ja teadlikkuse suurendamine. Julgeolekuteemalised teadusuuringud on olulised, et töötada välja uuenduslikke meetodeid ja võtta kasutusele uut tehnoloogiat.

Kaasamine

Fondi seirekomisjoni koosseisu kuuluvad valdkonna partner- ja katusorganisatsioonid.