Kiri

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EUROPEAN COMMISSION

Brussels, 16.7.2025

COM(2025) 551 final

2025/0227 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

establishing Global Europe

{SWD(2025) 552} - {SWD(2025) 553} - {SEC(2025) 548}

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EXPLANATORY MEMORANDUM

1.CONTEXT OF THE PROPOSAL

•Reasons for and objectives of the proposal

This proposal is made in the context of the external heading of the multiannual financial

framework (MFF) 2028-2034. The communication ‘The road to the next multiannual

financial framework’1, sets the main priorities and principles of EU external action under the

EU budget, which aims to be simpler, more focused, more flexible, with a greater impact and

to deliver on EU priorities.

The international landscape has changed significantly over the last years, appearing far less

predictable and stable. The impact of the current geopolitical instability on the EU and on

partner countries is increasing, notably following Russia’s war of aggression against Ukraine,

the conflicts in the Middle East, the US administration’s disengagement from external aid, the

increasing risk of pandemics, the trade tensions, and the technology competition. These

challenges, along with the widening gap to reach the Sustainable Development Goals (SDGs)

by 2030, require the EU to adapt its external action financing to better serve its strategic

interests and address current and future crises.

The objective of the proposed Instrument, Global Europe, is to uphold and promote the

Union’s values, principles and interests worldwide to pursue the objectives and principles of

the Union’s external action, as laid down in Article 3(5), Articles 8 and 21 of the Treaty on

European Union (TEU). Global Europe will contribute to the objectives of the EU’s external

action, by promoting mutually beneficial partnerships with partner countries, contributing

simultaneously to the sustainable development of partner countries and to the Union’s

strategic interests. Global Europe will also allow the Union to be better positioned to address

global challenges.

The proposed Instrument is based on four main guiding principles, which are further detailed

in the different sections of this document.

– Simplification of the architecture of the external heading, through one main instrument for

EU external action and with a horizontal Performance Regulation2 for the entire MFF,

covering monitoring, reporting, evaluation and communication.

– Coherence of action, with increased geographisation, more focus on coherence,

consistency and complementarity between internal and external programmes, as well as a

stronger Team Europe approach.

– Flexibility of the instrument, preserving some of the flexibilities of NDICI-Global Europe

including its general reserve (the cushion), financial flexibilities and the possibility to

adopt delegated acts, and increasing them through the reduction of targets and easier

budgetary transfers between and within pillars, as well as budgetary flexibilities among

MFFs (below more details on architecture and on flexibilities).

1 Communication (COM/2025/46 final) from the Commission to the European Parliament, the European

Council and the Council, the European Economic and Social Committee and the Committee of the

Regions – “The road to the next multiannual financial framework”. 2 Regulation (EU) No …/… of the European Parliament and of the Council establishing a budget

expenditure tracking and performance framework and other horizontal rules for the Union programmes

and activities (OJ […], […], p. […]).

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– Impact of EU action, with a strengthened toolbox allowing to build comprehensive

packages; with a streamlined and more efficient guarantee and blending framework, and a

stronger promotion of European interests.

To further simplify, increase coherence and ensure the effectiveness of the Union's

external action, Global Europe serves a wide range of policies, namely the enlargement,

neighbourhood, international partnerships and humanitarian aid policies, maintaining the

specificities of each policy, fostered through a broad array of tools. Through this proposal the

EU will continue to deliver on the objectives of pre-accession, to engage with partner

countries, including in complex settings and to provide humanitarian assistance. The proposed

instrument will also provide increased economic and trade opportunities to the mutual benefit

of the Union and partner countries, support sustainable development, promote human rights,

gender equality and EU multilateral engagement, fight the root causes of irregular migration,

forced displacement, instability climate change, and protect the environment. The general

objectives of the Instrument are detailed in Article 4 of the proposed Regulation and the

specific objectives are specified and detailed in Annex II.

Building on the experience of the NDICI-Global Europe that superseded eleven former

Regulations, in line with the priorities set out in the communication ‘The road to the next

multiannual financial framework’ and as concluded in the impact assessment accompanying

this Regulation, Global Europe incorporates and builds on:

– The Regulations (EU) 2021/947 establishing Neighbourhood, Development and

International Cooperation – Global Europe (NDICI-Global Europe), amending and

repealing Decision No 466/2014/EU and repealing Regulation (EU) 2017/1601 and

Council Regulation (EC, Euratom) No 480/2009;

– The Regulation (EU) 2021/1529 establishing the Instrument for Pre-Accession assistance

(IPA III);

– The Regulation (EU) 2024/792 of the European Parliament and of the Council of 29

February 2024 establishing the Ukraine Facility;

– The Regulation (EU) 2024/1449 of the European Parliament and of the Council of 14 May

2024 on establishing the Reform and Growth Facility for the Western Balkans;

– The Regulation (EU) 2025/535 of the European Parliament and of the Council of 18 March

2025 establishing the Reform and Growth Facility for the Republic of Moldova.

Given the magnitude and unpredictability of the needs, reconstruction and pre-accession

assistance for Ukraine will be financed above the MFF ceilings (the so-called ‘headroom’

of the MFF) and be implemented through Global Europe. Furthermore, humanitarian aid

actions will be funded under Global Europe and implemented in line with the Humanitarian

Aid Regulation3. Moreover, macro-financial assistance could be provided to countries

experiencing balance of payments crises and will be funded under Global Europe. Global

Europe will be the main instrument of the external heading, complemented by the association

of the overseas countries and territories with the Union established by Council Decision (EU)

2021/17644 as well as the Common Foreign and Security Policy budget. Furthermore, the

3 Council Regulation (EC) No 1257/96 concerning humanitarian aid (OJ L 163, 2.7.1996, p. 1–6,

ELI: http://data.europa.eu/eli/reg/1996/1257/oj). 4 Council Decision (EU) 2021/1764 of 5 October 2021 on the association of the Overseas Countries and

Territories with the European Union including relations between the European Union on the one hand,

and Greenland and the Kingdom of Denmark on the other (Decision on the Overseas Association,

including Greenland) (OJ L 355, 7.10.2021, p. 6, ELI: http://data.europa.eu/eli/dec/2021/1764/oj).

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Instrument will be implemented in accordance with the horizontal Performance Regulation, as

detailed in chapter 5 ‘Other elements’ of this document.

In a global context where the Union is confronted with high geopolitical and geoeconomic

competition, marked by global challenges, ranging from climate change to tensions around

scarce resources, continuing migratory pressure or economic and trade disruptions, in addition

to security threats and fragility, external action has to continuously and rapidly react to

emerging needs, as well as to act to advance strategic priorities, in order to effectively

pursue the Union’s and partners’ priorities. The Instrument is built to combine the need of

predictability with the need to adjust rapidly to an evolving geopolitical context.

Coherence and complementarity of action will be ensured, enhancing the geographisation

principle introduced under NDICI-Global Europe. The internal architecture of the proposed

Instrument follows this principle and is composed of five geographic pillars and a global

pillar, each of which is composed of a programmable and non-programmable component.

The Instrument will be implemented primarily through the five geographic programmable

components, complemented by the geographic non-programmable components. The global

pillar will focus on global initiatives and will be complementary to the geographic pillars. The

six pillars are supported by an unallocated emerging challenges and priorities cushion, to

increase flexibility as well as the ability of the Union to respond to unforeseen needs and

adapt its partnerships to emerging priorities, building on the experience of the European

Development Funds and NDICI-Global Europe.

The recent evaluation of the external instruments (2014-2020 and 2021-2027)5 confirmed that

the external financing instruments under the current MFF are largely fit for purpose and

delivering against their objectives. Nevertheless, it noted that the changing geopolitical

landscape has also exposed some architectural weaknesses in their design, in particular as

regards their flexibility. On NDICI-Global Europe, the evaluation stressed that it could still

better contribute to an integrated approach balancing EU interests, partnerships and values,

further reconciling the objectives of the EU’s internal and external thematic policies. On IPA

III, the above evaluation highlighted that the instrument's flexibility has been limited by the

fact that annual planning has, through implementation, prevailed over strategic multi-annual

programming. The lessons learned together with the increasing volatile geopolitical context

have prompted the Commission to further simplify the architecture of the external financing

instruments and provide more flexibility. The Global Europe proposal also preserves

flexibilities already allowed under NDICI-Global Europe and IPA III, concerning carry-overs

of funds Furthermore, reflows generated by financial instruments and surplus of budgetary

guarantees will be available to be reused under this Instrument. Other elements enhancing

flexibility are the possibility of adopting delegated acts, already foreseen under NDICI-Global

Europe and the easier budgetary transfers between and within pillars under the architecture of

Global Europe. Furthermore, the proposed instrument does not include thematic targets. A

target on official development assistance spending is present in the Global Europe proposal.

•Consistency with existing policy provisions in the policy area

As mentioned above, the Global Europe proposal serves under one instrument a wide range of

policies, namely the enlargement, neighbourhood, international partnerships and humanitarian

aid policies, maintaining the specificities of each policy. This proposal provides an enabling

5 Evaluation of the EU's External Financing Instruments for the 2014 - 2020 and 2021 - 2027

Multiannual Financial Frameworks; Register of Commission Documents - COM(2024)208. This

evaluation consisted of both the mid-term evaluation of the EU’s External Financing Instruments of the

2021-2027 MFF and the final evaluation of the 2014-2020 MFF External Financing Instruments.

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framework through which external action policies and international commitments can be

implemented. The main international commitments include the 2030 Agenda for Sustainable

Development6, the Paris Agreement on Climate Change7, the Kunming-Montreal Global

Biodiversity Framework8, the Addis Ababa Action Agenda9, the Sendai Framework for

Disaster Risk Reduction (2015-2030)10, the Istanbul Convention on violence against women11

and the Pact for the Future12. Within the EU, the policy framework includes the Treaty

provisions on external action, association agreements, partnership and cooperation

agreements, multilateral agreements to which the Union is a party, and other agreements that

establish a legally binding relationship between the Union and partner countries as well as

European Council conclusions, Council conclusions, summit declarations or conclusions of

meetings with partner countries at the level of heads of state or government or ministers,

European Parliament resolutions, communications of the Commission and joint

communications with the High Representative of the Union for Foreign Affairs and Security

Policy.

•Consistency with other Union policies

Consistency and complementarity will be ensured among the Union’s external financing

instruments, in particular with Humanitarian aid (funded under Global Europe), the

association of the overseas countries and territories with the Union, the Common Foreign and

Security Policy and the European Peace Facility (which is financed outside the Union

budget), as well as the European Instrument for International Nuclear Safety Cooperation-

Decommissioning.

Global Europe will provide support aimed at credibly and effectively preparing candidate

countries and potential candidates for future EU membership. The fulfilment of this ambition

calls for aligning, to the extent possible, the design of pre-accession support under Global

Europe with the orientations of relevant internal programmes.

Funding from Global Europe should also be used to foster the establishment of people-to-

people partnerships based on common interests and intergenerational fairness and strengthen

skills development, innovation and cultural diversity through cooperation in the fields of

education, youth and research, in a way that is consistent with the Erasmus+ Regulation.

Furthermore, in this framework, consistency and complementarity will also be ensured with

6 “Transforming our world: the 2030 Agenda for Sustainable Development”, adopted at the United

Nations Sustainable Development Summit on 25 September 2015 (A/RES/70/1). 7 Council Decision (EU) 2016/1841 of 5 October 2016 on the conclusion, on behalf of the European

Union, of the Paris Agreement adopted under the United Nations Framework Convention on Climate

Change. 8 “The Kunming-Montreal Global Biodiversity Framework”, adopted by the 15th conference of Parties

(COP 15) to the Convention on Biological Diversity (CBD) on 19 December 2022. 9 “Addis Ababa Action Agenda of the Third International Conference on Financing for Development”,

adopted on 16 June 2015 and endorsed by the United Nations General Assembly on 27 July 2015

(A/RES/69/313). 10 “Sendai Framework for Disaster Risk Reduction”, adopted on 18 March 2015 and endorsed by the

United Nations General Assembly on 3 June 2015 (A/RES/69/283). 11 “Council of Europe Convention on preventing and combating violence against women and domestic

violence”, (CETS No. 210) entered into force on 1 August 2014,

https://www.coe.int/en/web/conventions/full-list?module=treaty-detail&treatynum=210. 12 “The Pact for the Future”, adopted by the United Nations General Assembly on 22 September 2024

(A/RES/79/1).

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trade and investment, economic cooperation, migration, security and other sectoral

cooperation.

In particular, serving the new economic foreign policy and in synergy with the European

Competitiveness Fund, the Instrument will enhance the Union’s competitiveness by

responding to economic challenges and swiftly seize opportunities to support Union

competitiveness, including via the support to the external dimension of Union internal

policies. This will harness the potential of mutually beneficial partnerships for sustainable

development in the Union and in partner countries alike.

Moreover, it will contribute to boost resilience and promote stability by addressing fragility in

a humanitarian-development-peace nexus approach, balance of payment crises as well as

post-conflict recovery and reconstruction needs.

2.LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY

•Legal basis

Part Five, Title III, Chapters 1, 2 of the Treaty on the Functioning of the European Union,

provides the legal framework for cooperation with partner countries.

This proposal is based on Articles 209, 212 and 322 of the Treaty on the Functioning of the

European Union. It is presented by the Commission in accordance with the procedure laid

down in Article 294 of the Treaty on the Functioning of the European Union.

•Subsidiarity (for non-exclusive competence)

The EU’s external action financing seeks to cooperate with partner countries, as well as to

promote multilateral solutions to global challenges. It enables the EU to defend its interests, to

promote its values and standards, to support the objectives of its internal policies, ensure its

security and protect its citizens. It should focus more on strengthening the Union’s

competitiveness and reducing its dependencies, notably through securing critical supply

chains. Moreover, it is in the EU’s own interest to preserve its role of a trusted global player.

The above-mentioned evaluation of the external instruments (2014-2020 and 2021-2027

MFFs) confirmed the added value that the external financing instruments bring to EU’s

external relations, as they provide a more integrated and sizable offer to partner countries,

improving their capacity to address shared priorities with the EU and contributing to

sustainable development.

As a party to most multilateral processes, the EU can engage with multilateral and regional

partners in key policy areas. Compared to its Member States acting separately, the EU,

together with Member States, can achieve greater impact by coordinating common positions

and speaking with a stronger voice. As a world’s leading proponent and defender of

multilateral and rule-based global governance system, the EU has credibility as an honest

broker and defender of core international human right instruments. This leverage in

multilateral and regional fora also enables the Union to project globally its policies and

values, as well as influence the shaping of global norms and regulatory standards. The EU’s

financial commitment is an integral part of the overall engagement in several multilateral

agreements (e.g. climate and biodiversity).

Through the increased use of budgetary guarantees, financial instruments and blending

operations, the EU incentivises and pools together public and private investments, including

to the benefit of countries and sectors having difficult access to financial markets, investments

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promoting economic resilience, and private sector development. EU non-action would widen

the SDGs financing investment gap and further deteriorate the situation of fragile countries

while weakening the EU as a geopolitical and geoeconomic actor and as global player in

multilateral fora.

Finally, the EU triggers collaboration among development financial institutions. Macro-

financial assistance provides much needed financing for countries experiencing balance of

payments crises, with favourable conditions.

•Proportionality

In line with the principle of proportionality, the proposed Regulation does not go beyond what

is necessary to achieve its objectives.

•Choice of the instrument

In accordance with Articles 209, 212 of the Treaty on the Functioning of the European Union,

which set out the ordinary legislative procedure to be used to adopt measures for

implementing cooperation with partner countries, the proposal takes the form of a Regulation,

ensuring its uniform application, binding nature in its entirety and direct applicability. The

legislative financial and digital statement enclosed with this proposal shows the budgetary

implications and the human and administrative resources required.

3.RESULTS OF EX-POST EVALUATIONS, STAKEHOLDER CONSULTATIONS

AND IMPACT ASSESSMENTS

•Ex-post evaluations/fitness checks of existing legislation

The mid-term evaluation of the external financing instruments under the 2021-2027 MFF

concluded that they were largely fit for purpose and on track to delivery against their

objectives they were expected to fulfil at the time of their adoption and these objectives

continue to be relevant.

NDICI – Global Europe

The mid-term evaluation also noted that in the evolving geopolitical context, NDICI-Global

Europe and its enhanced flexibility proved its relevance to pursue EU priorities as well as to

provide support to partner countries notably in the context of the COVID-19 pandemic, the

Russian war of aggression against Ukraine and the migratory pressures. It also enabled the EU

to promote its internal policies and priorities in a more coherent manner towards the external

world, while it needed to better contribute to an integrated approach balancing EU interests,

partnerships and values. In terms of simplification gains, the mid-term evaluation stressed that

NDICI-Global Europe provides a unified legal basis for a large share of the EU’s external

interventions. By superseding a large number of the instruments of the past MFF, it had

brought about a major increase in coherence and complementarity.

The mid-term evaluation mentioned that the various flexibility features in the NDICI-Global

Europe had proved their relevance. However, the NDICI-Global Europe cushion had almost

been depleted in the first three years of implementation, showing a mismatch between

available funds and actual needs. Moreover, NDICI-Global Europe was not designed to

support countries at war at the scale needed by Ukraine. Therefore, a new financing

instrument, the Ukraine Facility was adopted for period 2024-27, to support Ukraine both in

the face of Russia’s war of aggression and on Ukraine’s path towards EU membership. In

general terms, the mid-term evaluation concluded that to better exploit windows of

opportunity and maximise scope for EU leverage, differentiated response strategies may be

required.

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IPA III

The mid-term evaluation noted that IPA III had demonstrated its general effectiveness as a

pre-accession instrument. The instrument was considered aligned with the new enlargement

methodology, with the fundamentals of the EU accession process at the forefront. The mid-

term evaluation also emphasised that IPA III had been effective in promoting socio-economic

development and leveraging necessary investments under the Economic and Investment Plan,

while there was a need to further accelerate convergence with the EU. The mid-term

evaluation noted furthermore that while IPA III was designed as a performance-based

instrument both in terms of scope and intensity of assistance, balancing the performance

assessment with the fair share principle had limited the financial reward to well-performing

beneficiaries.

The mid-term evaluation noted that IPA III had been flexible in responding to exceptional

external events despite the lack of a similar cushion as in the NDICI-Global Europe

instrument. The absence of pre-set country financial envelopes had provided the required

flexibility to programme assistance according to urgent and evolving needs.

•Stakeholder consultation

For the mid-term evaluation and the impact assessment for this proposal, the consultation

approach involved collecting input from a wide range of stakeholders on the external

financing instruments. The open public consultations for both the mid-term evaluation and

the impact assessment targeted all types of stakeholders, including citizens. The summary

report on the results of the consultation carried out in the framework of the mid-term

evaluation has been published on the “Have Your Say” website13 and it provides an overview

of the received contributions. The synopsis report of the open public consultation in view of

the impact assessment for Global Europe can be found in Annex 2 of the impact assessment.

A targeted consultation was also undertaken for the mid-term evaluation, to gather the views

of specific categories of stakeholders. In the context of targeted consultations, EU Member

States experts, development agencies of the EU Member States, civil society and local

authorities’ networks and platforms, Development Financial Institutions, and the United

Nations were consulted through dedicated meetings. The summary of these targeted

consultations can be found in the synopsis report of the stakeholder consultation, in annex V

of the the mid-term evaluation14.

•Collection and use of expertise

The mid-term evaluation report and associated staff working document were largely based on

the independent study carried out by external consultants15. All five compulsory evaluation

criteria (i.e. effectiveness, efficiency, relevance, coherence and the EU added value) were

assessed in this study. The evaluation criteria of impact and sustainability were also covered.

13 Financing for European action outside EU borders – evaluation of the instruments (2014-2020 & 2021-

2027). 14 Evaluation of the European Union's external financing instruments (2014-2020 and 2021-2027)

(Annexes), p. 101. 15 Evaluation of the European Union's external financing instruments (2014-2020 and 2021-2027);

Independent study in support of the evaluation Volume I, Synthesis report, Publications Office of the

European Union.

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The evaluation methods used included: (i) a review of documentation and analytical data; (ii)

more than 340 interviews(iii) a series of targeted surveys; (iv) targeted consultations and an

open public consultation, as explained above. This mix of qualitative and quantitative

methods, using both primary and secondary sources of evidence, provided a comprehensive

evidence base for the evaluation. This expertise was also used as evidence base for the impact

assessment of this proposal, together with the results of the open public consultations as

explained above.

•Impact assessment

As regards the impact assessment accompanying this proposal, the Regulatory Scrutiny Board

provided on 13 June 2025 its opinion without qualification, referring to the specific approach

related to the MFF process16.. Following the Board’s opinion, the impact assessment was

revised in order to integrate its recommendations.

The general objective of the impact assessment was to design external financing instruments

that effectively advance the EU’s strategic interests while being responsive to fragility and

crisis situations. In this respect, the balance between flexibility and predictability was the

fundamental policy parameter for the design of possible policy options. The following options

were examined in this context:

• Option 1: A fully flexible external financing instrument based exclusively on strategic

priorities defined annually, with no multiannual planning. Ukraine-related support for pre-

accession and reconstruction needs would be covered above MFF ceilings.

• Option 2: An external financing instrument based on indicative geographic and global

envelopes covering programmable and non-programmable funding for multiannual planning,

balancing flexibility and predictability. Ukraine-related support for pre-accession and

reconstruction needs would be covered above the MFF ceilings.

• Option 3: An external financing instrument based on indicative geographic and global

envelopes covering programmable and non-programmable funding for multiannual planning,

balancing flexibility and predictability. Pre-accession needs for Ukraine would be covered by

this instrument inside MFF ceilings while the reconstruction needs of Ukraine would be

covered above the MFF ceilings.

Based on the analysis of impacts and comparison, Option 2 emerged as the preferred choice.

The analysis of effectiveness, coherence and efficiency of the three options against the

baseline was made by using the specific objectives of the impact assessment. Options 2 stood

out due to its flexibility-predictability equilibrium that best supported these objectives,

providing credible support to Ukraine in an uncertain context while protecting the external

instrument’s ability to deliver on needs and priorities in other geographical areas.

In terms of expected impact, both Options 2 and 3 are more likely than Option 1 to support

the promotion of EU strategic interests and the sustainable development of partner countries.

Options 2 and 3 would also likely better address the interlinkages between the different SDGs,

balancing the three dimensions of sustainable development (economic, social, and

environmental). They enhance coherence between internal and external policies on the one

hand and between external policies on the other. The geographisation principle, including the

16 The main elements of the Board’s opinion and the associated modifications made to the impact

assessment are further described in annex 1 of the impact assessment.

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use of regional envelopes under the geographic pillars, facilitates alignment with the EU's

strategic goals (e.g. via Global Gateway, Comprehensive Partnerships, Clean Trade and

Investment Partnerships, other similar partnerships). This alignment also allows for more

coordinated efforts in addressing social, economic and environmental challenges, thus

ensuring that policies are mutually reinforcing rather than working in silos or at unintended

cross purposes. In this respect, Options 2 and 3 have the capacity to better integrate policy

objectives like competitiveness, economic security, resilient value chains, and environmental

sustainability, given that these goals are strategically pursued together.

As compared to Option 3, Option 2 would ensure continuity with the Ukraine Facility’s

approach, address short, medium and long-term needs comprehensively, and cover the

interlinkages between Ukraine’s accession path and post-war reconstruction. Furthermore,

Option 2 would allow to strike a balance between providing credible support to Ukraine in an

uncertain context while protecting the external instrument’s ability to deliver on needs and

priorities in other geographical areas.

Building on these considerations, option 2 has been retained for this proposal.

•Regulatory fitness and simplification

The proposal provides a simplification from the REFIT point of view. Further streamlining a

number of instruments within one broad instrument as detailed above will reduce financial

and operational barriers that exist under current instruments. Simplification thus contributes to

clearer processes and management of resources. In terms of aligning rules, horizontal

provisions from the Performance Regulation will provide the new instrument and the other

programmes under the MFF with a coherent and harmonised framework and will make it

easier for partners and implementing agents to understand.

•Fundamental rights

One of the Treaty-based general objectives of the EU’s external action (Article 3(5) and

Articles 8 and 21 TEU) is to support and promote democracy, the rule of law and respect for

human rights. The Instrument aims to apply a human rights-based approach guided by the

principles of ‘leaving no one behind’, equality and non-discrimination on any grounds. The

rights-based approach encompasses all human rights, whether civil and political or economic,

social and cultural in order to integrate human rights principles into all activities supported by

EU external action. The support to Human Rights and Democracy, and to Civil Society

Organisations, which was mostly channelled through dedicated thematic programmes in

NDICI-Global Europe, remains a priority under the Instrument, channelled both through the

geographic pillars to maximise impact and through the global pillar for global initiatives.

4.BUDGETARY IMPLICATIONS

The European Commission proposes to allocate an indicative financial envelope of EUR 200

309 000 000 (in current prices) to Global Europe for 2028-2034. Additionally, financial

resources for Ukraine shall be made available in accordance with Article 6 of Council

Regulation [(EU, Euratom) 20XX/XXX * [MFF Regulation]]. The detailed estimated

financial impact of this proposal is presented in the legislative financial and digital statement

enclosed with this proposal.

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5.OTHER ELEMENTS

•Implementation plans and monitoring, evaluation and reporting arrangements

The Instrument should be implemented in accordance with the above-mentioned horizontal

Performance Regulation for the entire MFF, which establishes the rules for the expenditure

tracking and the performance framework for the budget, including rules for ensuring a

uniform application of the principles of ‘do no significant harm’ and gender equality referred

to in Article 33(2), points (d) and (f) of Regulation (EU, Euratom) 2024/250917 (Financial

Regulation) respectively, rules for monitoring and reporting on the performance of Union

programmes and activities, rules for establishing a Single Gateway, rules for the evaluation of

the programmes, as well as other horizontal provisions applicable to all Union programmes

such as those on information, communication and visibility.

•Detailed explanation of the specific provisions of the proposal

The proposed Instrument (Global Europe) contains derogations from the provisions of the

Financial Regulation, which are justified in several recitals, namely:

Recital 37 – on the non-establishment of a provisioning rate for loans to Ukraine under this

Instrument.

Recital 64 – on the possibility to reuse Global Europe funds carried-over. Furthermore, the

recital refers to the possibility to reuse under Global Europe, reflows generated by financial

instruments.

Recital 65 – on the possibility to increase the resources available for Global Europe, by

assigning to it the surpluses related to the current and legacy budgetary guarantees and

financial assistance in the external action.

Recitals 68 and 69 – on the possibility to provide support in the form of grants in a flexible

and timely manner without the need for a call for proposals, including to private sector

entities from Member States.

Recital 81 – on the possibility to promote the participation of eligible entities or persons and

counterparts from partner countries benefiting from the budgetary guarantee or financial

instruments, and to increase the attractiveness for the private sector and maximise the impact

of the investments by extending the eligibility for the budgetary guarantee to entities without

a public service mission.

TITLE I: GENERAL PROVISIONS

Article 1 (Subject matter) - defines the Instrument created by the Regulation, which is one of

the EU programmes for external action.

Article 2 (Definitions) - contains definitions of the basic terminology used in the Regulation.

Article 3 (Scope and structure) - describes the structure of the Instrument, composed of five

geographic pillars and one global pillar. It clarifies the internal structure of the pillars, divided

in programmable and non-programmable components, detailing the nature of non-

programmable actions. The Article also establishes the geographic scope of each pillar and

explains the complementarity of the pillars and of the components.

17 Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September

2024 on the financial rules applicable to the general budget of the Union (OJ L, 2024/2509, 26.9.2024,

ELI: http://data.europa.eu/eli/reg/2024/2509/oj).

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The countries and territories covered under the geographic pillars are listed in Annex I.

Article 4 (Objectives of the Instrument) - sets out the general objectives, applicable to all

pillars of the Instrument, as well as the specific objectives detailed in Annex II.

Article 5 (Consistency, coherence, synergies and complementarity) - explains the relationship

between this Instrument and all areas of external action, together with its synergy, consistency

and complementarity with internal EU programmes.

Article 6 (Budget) - refers to the overall envelope for the Instrument and gives a detailed

indicative breakdown by pillar and specifies the sources of support for Ukraine. It also refers

to the ‘emerging challenges and priorities cushion’, which may increase the amounts referred

to in the Article.

Article 7 (Emerging challenges and priorities cushion) - refers to the purposes of the emerging

challenges and priorities cushion. A provision is included to inform the European Parliament

and the Council on the use of the emerging challenges and priorities cushion and to take their

observations into account.

Article 8 (Policy framework) - refers to the overall policy framework for the implementation

of the Instrument. Existing agreements, strategies, conclusions, resolutions and other similar

documents determine the policy on which implementation of the Instrument would be based.

A provision is included to inform the European Parliament and the Council and have

exchanges of views with them.

Article 9 (General principles) - lists the various principles applicable to the whole Instrument,

such as focusing on transformational impact, catering for the strategic interests of the Union,

keeping the Union’s engagement in extremely fragile and complex settings contexts, as well

as promoting democracy, good governance, the rule of law, respect for human rights and

fundamental freedoms, gender equality, women and youth empowerment. The Article also

underlines the importance of the development effectiveness principle and of the involvement

and dialogue with civil society organisations and local authorities as well as the private sector.

Article 10 (Mainstreaming) – details how the fight against climate change, environment

protection and gender equality should be mainstreamed in the implementation of the

Instrument.

Article 11 (Team Europe Approach) - sets out the objective, the modalities and the ambition

of the Team Europe approach, which aims to further coordinate the actions, and pooling

resources for common goals.

Article 12 (Migration and forced displacement) - illustrates the comprehensive approach

toward irregular migration, forced displacement and their root causes.

TITLE II – IMPLEMENTATION OF THE INSTRUMENT

Groups chapters related to the implementation of the Instrument, which includes the

multiannual programming.

Chapter I — General programming provisions (Articles 13-17) covers the various provisions

on multiannual programming, notably the general approach, principles for geographic

programmes, the content of programming documents, and the procedure for adopting them.

Chapter II — Action plans, measures and implementing principles (Articles 18-22) illustrate

the action plans and measures which can be adopted, and the respective procedures. Article 22

contains provisions on flexibilities.

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Chapter III – Implementation toolbox (Article 23 - 28) covers the available tools to deliver

against the objectives of the Instrument, notably budgetary guarantees, blending and financial

assistance.

TITLE IV–- FINAL PROVISIONS

Title III (Articles 29-35). Article 30 of this Title covers the exercise of the delegation of

powers, to amend Article 6(5), Article 24(1), (2) and (3) and Annex II. Article 31 illustrate the

additional implementing rules for the Europe pillar. Article 32 sets up the committee, pursuant

to Regulation (EU) No 182/2011. That committee is in charge of delivering an opinion on

multiannual programming documents and annual work programmes (action plans and

measures). The proposal has two annexes, as follows:

- Annex I — List of countries and territories

- Annex II — Specific objectives

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2025/0227 (COD)

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

establishing Global Europe

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 209 and 212, and Article 322(1) 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 Committee18,

Having regard to the opinion of the Committee of the Regions19,

Having regard to the opinion of the Court of Auditors,

Acting in accordance with the ordinary legislative procedure,

Whereas:

(1) This Regulation aims at establishing the programme Global Europe (the ‘Instrument’)

with a view to upholding and promoting the Union’s values, principles and interests

worldwide in order to pursue the objectives and principles of the Union’s external

action, as laid down in Article 3(5) and Articles 8 and 21 of the Treaty on European

Union (TEU).

(2) In accordance with Article 21 TEU, the Union is to ensure consistency between the

different areas of its external action and between these and its other policies, as well as

to work for a high degree of cooperation in all fields of international relations. To

increase coherence and ensure the effectiveness of the Union’s external action, the

Instrument should serve a wide range of Union policies, in particular the enlargement,

neighbourhood, international partnerships, humanitarian aid policies, and the external

aspects of its other policies, fostered through a broad array of tools.

(3) In accordance with Article 9 of Council Decision 2010/427/EU20, the High

Representative of the Union for Foreign Affairs and Security Policy (the ‘High

Representative’), in its capacity of Vice-President of the Commission, shall ensure the

overall political coordination of the Union’s external action, ensuring its unity,

consistency and effectiveness, in particular through the implementation of the present

Instrument.

18 OJ L.., p.. 19 OJ L.., p. 20 Council Decision 2010/427/EU of 26 July 2010 establishing the organisation and functioning of the

European External Action Service (OJ L 201, 3.8.2010, p. 30, ELI:

http://data.europa.eu/eli/dec/2010/427/oj).

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(4) The implementation of the Instrument should be guided by the Strategic Agendas of

the European Council, relevant European Parliament resolutions and the Political

Guidelines of the Commission, which set the Union’s vision, strategic orientations and

priorities. While leveraging the Union’s power and partnerships, the external action

implemented under the Instrument should protect and promote Union values,

strengthen peace and security and bolster preparedness, prosperity and

competitiveness of the Union. To advance the Union’s priorities and interests in its

external action, the Union should work in partnership with partner countries and

international organisations.

(5) The Instrument should contribute to ensuring consistency, coherence, synergies and

complementarity between the Union’s internal and external policies and between its

external policies in order to simultaneously promote the Union’s fundamental and

strategic interests and sustainable development in partner countries and support the

achievement of its global commitments.

(6) The main approach for actions financed under the Instrument should be through

geographic programmable actions at country, multi-country, regional and trans-

regional level, in order to maximise the impact of the Union’s assistance. That

approach should be complemented, where relevant, by non-programmable geographic

actions, including actions concerning humanitarian aid, macro-financial assistance,

addressing crisis, peace and foreign policy needs, and enhancing resilience and

competitiveness, as well as global programmable and non-programmable actions.

(7) Geographic programmable actions should frame the Union’s cooperation with partner

countries and regions in the medium and long-term to build mutually beneficial

partnerships.

(8) While the budget to finance the Union’s humanitarian aid operations should be made

available under this Instrument, such operations should be implemented in accordance

with the Humanitarian Aid Instrument established by Council Regulation (EC) No

1257/9621.

(9) While the budgetary resources to finance the Union’s macro-financial assistance

should be made available under this Instrument, such operations should be

implemented as per Article 212 and Article 213 of the Treaty on the Functioning of

the European Union TFEU.

(10)

(11) Resilience actions should enable the Union to step up its cooperation where needed in

light of the volatility of the external context. They should be flexible including in

responding to and reinforcing actions addressing fragility, crisis and supporting the

humanitarian-development-peace nexus, address post-conflict recovery and

reconstruction needs as well as balance of payment crises.

(12) Competitiveness actions should enable the Union to respond to economic challenges

and swiftly seize opportunities to support Union competitiveness, including via the

support to the external dimension of Union internal policies. Where relevant, they

should contribute to building comprehensive mutually beneficial packages with

partner countries.

21 Council Regulation (EC) No 1257/96 of 20 June 1996 concerning humanitarian aid (OJ L 163,

2.7.1996, p. 1–6, ELI: http://data.europa.eu/eli/reg/1996/1257/oj).

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(13) Crisis, peace and foreign policy needs should include actions allowing the Union to

respond to exceptional and unforeseen situations or imperative foreign policy interest,

including where there is a threat to peace, democracy, law and order, the protection of

human rights and fundamental freedoms. Those actions should be designed for an

effective, efficient, integrated and conflict-sensitive Union response to achieve peace,

stability and conflict-prevention in situations of urgency, crisis, fragility, hybrid

threats, emerging crisis or natural disasters including the security and safety of

individuals, in particular those exposed to sexual and gender-based violence, in

situations of instability; or threatening to escalate into armed conflict or to severely

destabilise the partner country or countries concerned. They should also support

innovative initiatives to address foreign policy needs across political, economic and

security issues and enable the Union to act where there is a window of opportunity to

achieve its objectives, which are difficult to address by other means.

(14) The Instrument should build on the actions previously supported under Regulations of

the European Parliament and of the Council (EU) 2021/94722, (EU) 2021/152923, (EU)

2024/79224, (EU) 2024/144925, (EU) 2025/53526.

(15) The Instrument should contribute to the objectives of the Union’s external action, by

promoting mutually beneficial partnerships with partner countries, contributing

simultaneously to the sustainable development of partner countries and to the Union’s

strategic interests. It should allow the Union to be better positioned to address global

challenges, including the fight against climate change and biodiversity protection. It

should also provide increased economic and trade opportunities to the mutual benefit

of the Union and partner countries.

(16) Union action should promote respect for and be rooted in international human rights

law, including the Universal Declaration of Human Rights adopted by the United

Nations General Assembly on 10 December 1948, and in international humanitarian

law, and should be guided by the universality and indivisibility of human rights.

(17) Article 49 TEU provides that any European state that respects the values of respect for

human dignity, freedom, democracy, equality, the rule of law, as well as respect for

human rights, including the rights of persons belonging to minorities, and is

committed to promoting those values may apply to become a member of the Union.

Those values are common to Member States in a society in which pluralism, non-

22 Regulation (EU) 2021/947 of the European Parliament and of the Council of 9 June 2021 establishing

the Neighbourhood, Development and International Cooperation Instrument – Global Europe,

amending and repealing Decision No 466/2014/EU of the European Parliament and of the Council and

repealing Regulation (EU) 2017/1601 of the European Parliament and of the Council and Council

Regulation (EC, Euratom) No 480/2009 (OJ L 209, 14.6.2021, p. 1–78, ELI:

http://data.europa.eu/eli/reg/2021/947/oj). 23 Regulation (EU) 2021/1529 of the European Parliament and of the Council of 15 September 2021

establishing the Instrument for Pre-Accession assistance (IPA III) (OJ L 330, 20.9.2021, p. 1–26, ELI:

http://data.europa.eu/eli/reg/2021/1529/oj). 24 Regulation (EU) 2024/792 of the European Parliament and of the Council of 29 February 2024

establishing the Ukraine Facility (OJ L, 2024/792, 29.2.2024, ELI:

http://data.europa.eu/eli/reg/2024/792/oj). 25 Regulation (EU) 2024/1449 of the European Parliament and of the Council of 14 May 2024 on

establishing the Reform and Growth Facility for the Western Balkans (OJ L, 2024/1449, 24.5.2024,

ELI: http://data.europa.eu/eli/reg/2024/1449/oj). 26 Regulation (EU) 2025/535 of the European Parliament and of the Council of 18 March 2025

establishing the Reform and Growth Facility for the Republic of Moldova (OJ L, 2025/535, 21.3.2025,

ELI: http://data.europa.eu/eli/reg/2025/535/oj).

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discrimination, tolerance, justice, solidarity, equality between women and men,

intergenerational fairness and cultural diversity prevail. The enlargement process is

built on established criteria, fair and rigorous conditionality and the principle of own

merits. A European state which has applied to join the Union can become a member of

the Union only when it has been confirmed that it fully meets the accession criteria

established at the Copenhagen European Council in June 1993 (the ‘Copenhagen

criteria’) and provided that the Union has the capacity to integrate the new member. A

firm commitment to ‘fundamentals first’ approach, which requires a strong focus on

the rule of law, the fight against organised crime, fundamental rights, the functioning

of democratic institutions and public administration reform, as well as on economic

criteria, remains essential. Progress depends on each candidate country’s and potential

candidate’s implementation of the necessary reforms to align with the Union acquis.

(18) The enlargement policy of the Union is a strategic investment in peace, security,

stability and prosperity in Europe and allows the Union to be better positioned to

address global challenges. It also provides increased economic and trade opportunities

to the mutual benefit of the Union and the aspiring Member States, while ensuring a

gradual transformation of the partner countries. The prospect of Union membership

has a powerful transformative effect, embedding positive democratic, political,

economic and societal change. It is in the common interest of the Union and its

partners to advance efforts to reform their political, legal and economic systems with a

view to their future Union membership and to support their accession process.

(19) Since the beginning of Russia’s unprovoked and unjustified war of aggression against

Ukraine on 24 February 2022, the Union, its Member States and European financial

institutions have mobilised unprecedented support for Ukraine’s economic, social and

financial resilience. The scale of damage caused to Ukraine requires significant and

flexible support to Ukraine to maintain functions of its government, provide public

services, as well as to support the recovery, reconstruction and modernisation of the

country. The Instrument should provide the framework for assistance for the fast

recovery, reconstruction and modernisation of the country, to mobilise investments

and enhance access to finance, as well as to facilitate Ukraine’s alignment with Union

standards and values on its way to accession to the Union. Ukraine’s path towards

accession should be closely intertwined with reconstruction efforts. Support under the

Instrument should, to the extent possible, be integrated into international efforts

towards a financial architecture for the recovery of Ukraine and be coordinated with

relevant donors and international financial institutions to ensure proper coordination

and complementarity of support.

(20) In accordance with Article 8(1) TEU, the Union is to develop a special relationship

with neighbouring countries, aiming to establish an area of prosperity and good

neighbourliness, founded on the values of the Union and characterised by close and

peaceful relations based on cooperation.

(21) The Union should conclude mutually beneficial and tailored partnerships focusing on

strategic priorities and fostering regional cooperation in the Neighbourhood East,

including the Black Sea region and helping mitigate challenges posed by Russia’s war

of aggression against Ukraine.

(22) The Union should develop a more focused approach to the Middle East, North Africa

and the Gulf, taking into account the inter-relations among these regions. It should

deepen relations with the Middle East, North Africa and Gulf regions, in line with the

respective strategic frameworks and formal agreements, in particular through mutually

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beneficial and tailored partnerships in areas of mutual interests, respecting the values

and principles of the Union.

(23) The Union’s international partnerships aim at developing relations and build

partnerships with partner countries, notably to reduce and, in the long term, eradicate

poverty in line with the primary objective of the Union’s development cooperation

policy set out in Article 208 TFEU. The Union’s international partnerships also

contribute to other objectives of the Union’s external action, in particular to the

safeguarding of the Union’s values and fundamental interests, to foster the sustainable

economic, social and environmental development of partner countries.

(24) The implementation of the Instrument should support the Global Gateway strategy27,

the Union’s external investment strategy to advance the sustainable development goals

together with partner countries. As a main pillar of the Union’s economic foreign

policy, it aims at boosting the development of secure and quality infrastructure in

partner countries to create sustainable prosperity, decent jobs, thereby strengthening

connections between the Union and its partners, while also benefiting the EU strategic

and economic interests. This strategy leverages investments in secure infrastructure

with a focus on digitalisation, climate and energy, transport, health, and education and

research. It supports countries which seek to enhance their resilience in a sustainable

manner, while strengthening partnerships that are important for the Union’s open

strategic autonomy. Global Gateway is also a value-based offer that promotes high

social, environmental, governance and financial standards, and upholds democracy,

the rule of law and human rights.

(25) The Union should engage in contexts experiencing extremely high levels of fragility,

conflict areas, and other complex settings, supporting them through a differentiated

approach to address the root causes of fragility while providing access to basic

services and promoting the resilience of populations, along the humanitarian-

development-peace nexus.

(26) The Instrument should contribute to preserving peace, preventing conflicts and

strengthening international security. In line with the ProtectEU Strategy28, the

Instrument should contribute to a coherent and comprehensive approach to security to

enhance the Union’s security.

(27) The Instrument should strengthen democratic resilience in partner countries, including

by countering foreign information manipulation and interference, empowering free

and pluralistic media, promoting citizens’ engagement, ensuring the fairness and

integrity of electoral and other democratic processes, and by engaging in public

diplomacy activities.

(28) In accordance with the Sendai Framework for Disaster Risk Reduction 2015-2030

adopted at the Third UN World Conference on Disaster Risk Reduction on 18 March

201529, recognition should be given to the need to move away from crisis response and

27 Joint Communication (JOIN/2021/30 final) to the European Parliament, the Council, the European

Economic and Social Committee, the Committee of the Regions and the European Investment Bank -

The Global Gateway. 28 Communication (COM/2025/148 final) 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. 29 “Sendai Framework for Disaster Risk Reduction”, adopted on 18 March 2015 and endorsed by the

United Nations General Assembly on 3 June 2015 (A/RES/69/283).

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containment to a more structural, long-term approach that more effectively addresses

situations of fragility, natural and man-made disasters, and protracted crises. Greater

emphasis and collective approaches are required on risk reduction, disaster risk

management, early warning, prevention, mitigation and preparedness, and further

efforts are required to enhance swift response and a durable recovery. This instrument

should support reforms and investments that strengthen disaster risk and crisis

management, invest in climate resilience, and enhance the resilience of vital societal

functions. The Instrument should therefore contribute to strengthening the

humanitarian-development-peace nexus.

(29) Since the objectives of this Regulation cannot be sufficiently achieved by the Member

States but can be better achieved at Union level, the Union may adopt measures, in

accordance with the principle of subsidiarity as set out in Article 5 TEU. In

accordance with the principle of proportionality as set out in that Article, this

Regulation does not go beyond what is necessary in order to achieve those objectives.

(30) The Instrument should contribute to the collective Union objective of providing 0.7 %

of gross national income as official development assistance (‘ODA’), established by

the Development Assistance Committee of the OECD, within the timeframe of the

2030 Agenda adopted by the United Nations in September 201530 (the ‘2030

Agenda’), by supporting realistic and verifiable actions to meet this commitment, on

which progress should continue to be monitored and reported. It should also promote

mutually beneficial partnerships for sustainable development, including through the

mobilisation of private resources. The whole support of the Instrument to sustainable

development – including the mobilised private finance - should be monitored through

the Total Official Support for Sustainable Development.

(31) The Instrument should contribute to the Union collective target of reaching 0.2 % of

gross national income as ODA to least developed countries within the timeframe of

the 2030 Agenda, by supporting realistic, verifiable actions to meet this commitment,

on which progress should continue to be monitored and reported.

(32) The Instrument should enhance the Union’s competitiveness, in particular by

contributing to the sustainability, resilience and diversification of value and supply

chains, reflecting high standards of responsible business practice, and by increasing

economic opportunities. Consistency between the implementation of the Union’s

trade, economic security, and industrial policies and the Instrument should be ensured,

including synergies with Clean Trade and Investment Partnerships. In particular, in

order to harness the potential of mutually beneficial partnerships for sustainable

development in the Union and partner countries, synergies should be fostered between

the Instrument and the Union’s European Competitiveness Fund, established by

Regulation (EU) [XXX] by the European Parliament and Council31, as well as the

Connecting Europe Facility, established by Regulation (EU) [XXX] by the European

30 "Transforming our world: the 2030 Agenda for Sustainable Development", adopted at the United

Nations Sustainable Development Summit on 25 September 2015 (A/RES/70/1). 31 Regulation (EU) No [XXX] of the European Parliament and of the Council on establishing the

European Competitiveness Fund (‘ECF’), including the specific programme for defence research and

innovation activities, and repealing Regulations (EU) 2021/522, (EU) 2021/694, (EU) 2021/696, (EU)

2021/697, (EU) 2021/783, (EU) 2023/588, (EU) 2023/1525, (EU) 2023/2418, (EU) (EDIP) (OJ L.., p.)

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Parliament and Council 32, in supporting projects of common interest between Member

States and partner countries, for the part of the project on the territory of the partner

country.

(33) Complementarity should be ensured among the Union’s external financing

instruments, in particular with Council Decision (EU) 2021/176433 on the association

of the overseas countries and territories with the Union, the European Instrument for

International Nuclear Safety Cooperation - Decommissioning established by Council

Regulation (Euratom) [XXX] [INSC-D]34, the common foreign and security policy

including, where relevant, the Common Security and Defence Policy, and the

European Peace Facility, established by Council Decision (CFSP) 2015/50935, which

is financed outside the Union budget.

(34) The Union should seek the most efficient use of available resources among its

financing instruments. In this respect, the Instrument should allow for both

contributions to and from other Union programmes, as well as the combination of

funding with them. This should contribute to the Union’s priorities and interests as

well as to sustainable development in the Union’s partner countries. This includes

coherence and complementarity with macro-financial assistance, where relevant.

(35) This Regulation should lay down an indicative financial envelope for the Instrument.

For the purpose of this Regulation, current prices are calculated by applying a fixed

2% deflator.

(36) In a rapidly changing economic, social and geopolitical environment, recent

experience has shown the need for a more flexible multiannual financial framework

and Union spending programmes. To that effect, and in line with the objectives of this

Regulation, the funding should duly consider the evolving policy needs and Union’s

priorities as identified in relevant documents published by the Commission, in Council

conclusions and European Parliament resolutions while ensuring sufficient

predictability for the budget implementation.

(37) Council Regulation (EU, Euratom) …/…36 (MFF Regulation) allows to mobilise the

necessary appropriations in the Union budget over and above the ceilings of the

multiannual financial framework to honour the debt liabilities of the Union related to

the loans to Ukraine. This financially enables the authorisation under this Regulation

32 Regulation (EU) No [XXX] of the European Parliament and of the Council on establishing the

Connecting Europe Facility for the period 2028-2034, amending Regulation (EU) 2024/1679 and

repealing Regulation (EU) 2021/1153 (OJ […], […], p. […]). 33 Council Decision (EU) 2021/1764 of 5 October 2021 on the association of the Overseas Countries and

Territories with the European Union including relations between the European Union on the one hand,

and Greenland and the Kingdom of Denmark on the other (Decision on the Overseas Association,

including Greenland) (OJ L 355, 7.10.2021, p. 6, ELI: http://data.europa.eu/eli/dec/2021/1764/oj). 34 Council Regulation (Euratom) [XXX] of [ establishing the European Instrument for International

Nuclear Safety Cooperation and Decommissioning and repealing Regulations (Euratom) 2021/100 and

(Euratom) 2021/948 (OJ […], […], p. […]). 35 Council Decision (CFSP) 2021/509 of 22 March 2021 establishing a European Peace Facility, and

repealing Decision (CFSP) 2015/528 (OJ L 102, 24.3.2021, p. 14–62) 36 Council Regulation (EU, Euratom) …/… of … laying down the multiannual financial framework for

the years 2028 to 2034 (OJ L.., p.).

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of financial assistance to Ukraine in the form of loans in accordance with Article

223(1) of Regulation (EU, Euratom) 2024/250937.

(38) In view of the budgetary coverage under the Regulation (EU, Euratom) …/… (MFF

Regulation), it is appropriate not to reduce the maximum amount of the aggregate

Union financial liabilities covering budgetary guarantees and financial assistance in

the form of loans under this Regulation by the amount of financial assistance in the

form of loans provided to Ukraine under this Regulation. It is also appropriate not to

establish provisioning and, by way of derogation from Article 214(1) of Regulation

(EU, Euratom) 2024/2509, not to set a provisioning rate for loans to Ukraine under

this Instrument.

(39) As for Union support to Ukraine other than in the form of loans, this Regulation

should be financed by the (Ukraine Reserve) as provided for in the Council Regulation

[(EU, Euratom) 20XX/XXX * [MFF Regulation] for the period from 1 January 2028

to 31 December 2034. The commitment appropriations and corresponding payment

appropriations from the (Ukraine Reserve) should be mobilised annually through the

budget procedure. Additionally, it should be possible to use appropriations mobilised

for the purposes of this Regulation from the reserve referred to in Article 6 of

Regulation Council Regulation [(EU, Euratom) 20XX/XXX * [MFF Regulation] ) to

provide support to Ukraine under Regulation (Euratom) […] (INSC-D).

(40) In the framework of the Union’s restrictive measures, adopted on the basis of Article

29 TEU and 215(2) TFEU, no funds or economic resources may be made available,

directly or indirectly, to or for the benefit of designated natural or legal persons,

entities or bodies. Therefore, such natural or legal persons, entities or bodies, as well

as legal persons, entities or bodies owned or controlled by them should not be

supported by the Instrument.

(41) In a global context where the Union is confronted with high geopolitical and

geoeconomic competition, marked by global challenges, ranging from climate change

and biodiversity loss to tensions around scarce resources, technological dependencies,

continuing migratory pressure or economic and trade disruptions, in addition to

security threats and fragility, external action has to continuously and rapidly react to

emerging needs, as well as to act to advance strategic priorities, in order to effectively

pursue the Union’s and partners’ priorities. To increase the ability of the Union to

respond to unforeseen needs and adapt its partnerships to emerging priorities, building

on the experience of the European Development Funds and Regulation (EU)

2021/947, an amount should be left unallocated as an emerging challenges and

priorities cushion. It should be mobilised in accordance with the procedures

established in this Regulation.

(42) The overall context for action should be the pursuit of a rules-based and value-based

global order, with multilateralism as its key principle and the United Nations (UN) at

its core. The 2030 Agenda, together with the Paris Agreement adopted under the

United Nations Framework Convention on Climate Change38 (the ‘Paris Agreement’),

37 Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September

2024 on the financial rules applicable to the general budget of the Union (OJ L, 2024/2509, 26.9.2024,

ELI: http://data.europa.eu/eli/reg/2024/2509/oj). 38 Council Decision (EU) 2016/1841 of 5 October 2016 on the conclusion, on behalf of the European

Union, of the Paris Agreement adopted under the United Nations Framework Convention on Climate

Change (OJ L 282, 19.10.2016, p. 1–3, ELI: http://data.europa.eu/eli/dec/2016/1841/oj).

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the Kunming-Montreal Global Biodiversity Framework39, the Addis Ababa Action

Agenda of the Third International Conference on Financing for Development40 and the

Pact for the Future41, is the international community’s response to global challenges

and trends in relation to sustainable development. The Instrument should pay

particular attention to interlinkages between sustainable development goals and to

integrated actions that can create co-benefits and meet multiple objectives in a

coherent way.

(43) The Instrument should support the implementation of the Samoa Partnership

Agreement between the Union and its Member States, of the one part, and the

Members of the Organisation of the African, Caribbean and Pacific States, of the other

part42, signed in Samoa on 15 November 2023 and provisionally applied as from 1

January 2024. The Instrument should also support the continuation of the established

cooperation between the Union and these specific regions, for example with the

African Union in line with the EU-AU joint vision for 2030.

(44) The Union should ensure policy coherence for development as required by Article 208

TFEU. The Union should take account of the objectives of development cooperation

in the Union policies that are likely to affect developing countries and territories.

Ensuring policy coherence for sustainable development requires taking into account

the impact of all Union policies on sustainable development at all levels — nationally,

within the Union, in other countries and at global level.

(45) In accordance with its international commitments, the Union should apply the

development effectiveness principles, namely ownership of development priorities by

developing countries and territories, a focus on results, inclusive development

partnerships, transparency and mutual accountability. In that regard, the Union and its

Member States should maximise the value added of their collective assistance for

partner countries and regions. The implementation of the Instrument should be guided

by its expected results namely outputs, outcomes and impacts.

(46) The Union should foster close consultation with local authorities and civil society, as

well as support their participation in contributing to sustainable development and to

the implementation of the sustainable development goals at local level. The Union

should also support an enabling environment for civil society, in which these

organisations can carry out their work effectively. The Instrument should provide

Union support to civil society organisations and local authorities in order to pursue the

values, interests and objectives of the Union. Civil society organisations and local

authorities should be duly consulted and have timely access to relevant information

allowing them to be adequately engaged.

39 “The Kunming-Montreal Global Biodiversity Framework”, adopted by the 15th conference of Parties

(COP 15) to the Convention on Biological Diversity (CBD) on 19 December 2022. 40 “Addis Ababa Action Agenda of the Third International Conference on Financing for Development”,

adopted on 16 June 2015 and endorsed by the United Nations General Assembly on 27 July 2015

(A/RES/69/313). 41 “The Pact for the Future”, adopted by the United Nations General Assembly on 22 September 2024

(A/RES/79/1). 42 Council Decision (EU) 2023/2861 of 20 July 2023 on the signing, on behalf of the European Union, and

provisional application of the Partnership Agreement between the European Union and its Member

States, of the one part, and the Members of the Organisation of African, Caribbean and Pacific States,

of the other part (OJ L, 2023/2861, 28.12.2023, ELI: http://data.europa.eu/eli/dec/2023/2861/oj).

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(47) The implementation of the Instrument should be guided by the principles of gender

equality, women and girls’ empowerment and of preventing and combating violence

against women and domestic violence and should seek to protect and promote

women’s rights in line with the Roadmap on Women’s Rights43, Gender Equality

Strategy44, EU Gender Action Plans, relevant Council conclusions and international

conventions, including the Istanbul Convention on violence against women45.

Strengthening gender equality and women’s empowerment in the Union’s external

action and increasing efforts to reach the minimum standards of performance indicated

by the EU Gender Action Plans should lead to a gender sensitive and transformative

approach in all Union external action and international cooperation. Gender equality

and women’s and girls’ empowerment should be mainstreamed under the Instrument

and adequately reflected across all the actions.

(48) The Instrument should support children and youth as key agents of change, giving

particular attention to their needs and empowerment. It should seek to prevent and

combat discrimination-based on age, ethnic origin, religion and belief, disability or

sexual orientation. It should promote the rights of persons with disabilities, in line with

the UN Convention to the Rights of Persons with Disabilities46.

(49) Recognising that the triple planetary crisis of climate, biodiversity loss and pollution

have worsened over the last decade and cannot be solved by the Union alone, by

supporting international cooperation the Instrument should play an essential role to

meet multilaterally agreed climate and environmental goals. In that regard, the Union

should support the most vulnerable countries, in particular the small island developing

states and the least developed countries.

(50) Reflecting the importance of tackling climate change in line with the Union’s

commitments to implement the Paris Agreement and the Kunming-Montreal Global

Biodiversity Framework and to achieve the sustainable development goals, the

Instrument should contribute to mainstreaming climate action in the Union policies.

Relevant actions should be identified during the implementation of the Instrument, and

the overall contribution from the Instrument should be part of relevant monitoring

evaluations and review processes. The Instrument should contribute to halting and

reversing the decline of biodiversity building on the interlinkages between climate and

biodiversity goals.

(51) Union action in the area of climate change and biodiversity should support a just

transition to a climate-neutral, climate resilient, resource efficient and circular

economy. It should notably favour the adherence to and implementation of the Paris

Agreement, the UN Framework Convention on Climate Change, the UN Convention

on Biological Diversity, the UN Convention to Combat Desertification and the

43 Communication (COM/2025/97 final) from the Commission to the European Parliament, the Council,

the European Economic and Social Committee and the Committee of the Regions - A Roadmap for

Women's Rights. 44 Communication (COM/2020/152 final) from the Commission to the European Parliament, the Council,

the European Economic and Social Committee and the Committee of the Regions – A Union of

Equality: Gender Equality Strategy 2020-2025. 45 “Council of Europe Convention on preventing and combating violence against women and domestic

violence”, (CETS No. 210) entered into force on 1 August 2014,

https://www.coe.int/en/web/conventions/full-list?module=treaty-detail&treatynum=210. 46 Convention on the Rights of Persons with Disabilities (CRPD), entered into force on 3 May 2008

https://social.desa.un.org/issues/disability/crpd/convention-on-the-rights-of-persons-with-disabilities-

crpd#Fulltext.

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Agreement on the Conservation and Sustainable Use of Marine Biological Diversity of

Areas beyond National Jurisdiction. In particular, funding allocated in the context of

the Instrument should be coherent with and support the long-term temperature goal of

the Paris Agreement of limiting the increase in the global average temperature to well

below 2°C above pre-industrial levels while pursuing efforts to limit the temperature

increase to 1.5°C. The Instrument should be coherent with the objective to increase the

ability to adapt to the adverse effects of climate change, reduce vulnerability, foster

climate resilience and align with the objectives of the Kunming-Montreal Global

Biodiversity Framework. In line with the European Ocean Pact47, the Instrument

should promote the preservation of the ocean and strengthen international rules-based

ocean governance. Particular attention should be given to actions that create co-

benefits and meet multiple objectives, including for climate, biodiversity and the

environment.

(52) Article 33(2), point (d), of Regulation (EU, Euratom) 2024/2509 requires programmes

and activities to be implemented, where feasible and appropriate, without doing

significant harm to the environmental objectives set out in Article 9 of Regulation

(EU) 2020/85248 (the ‘do no significant harm principle’). To ensure a consistent

implementation of that principle throughout the budget, the Instrument should apply

the do no significant harm principle in line with the common rules established by

Regulation (EU, Euratom) [XXX] of the European Parliament and Council

[Performance Regulation] and following the single technical guidance ('do no

significant harm guidance'),

(53) The Instrument should promote digital cooperation with partner countries and their

digital transition, in line with the International Digital Strategy for the European

Union49 and the Competitiveness Compass50.

(54) In accordance with Article 210 TFEU, the Union and its Member States should

increase their collective impact by bringing together to the fullest possible range their

respective resources and capacities.

(55) The Union’s and Member States’ international cooperation policies should operate in a

Team Europe approach51, thereby complementing and reinforcing each other to

improve the effectiveness, impact and value added of their collective assistance.

(56) The Union, its Member States, Member States’ implementing agencies and financial

institutions, including development finance institutions and Member States export

credit agencies, the European Investment Bank (the ‘EIB’) and the European Bank for

Reconstruction and Development (the ‘EBRD’) should seek to support partner

47 Communication (COM/2025/281 final) from the Commission to the European Parliament, the Council,

the European Economic and Social Committee and the Committee of the Regions – The European

Ocean Pact. 48 Regulation (EU) 2020/852 of the European Parliament and of the Council of 18 June 2020 on the

establishment of a framework to facilitate sustainable investment, and amending Regulation (EU)

2019/2088 (OJ L 198, 22.6.2020, p. 13–43, ELI: http://data.europa.eu/eli/reg/2020/852/oj). 49 Joint Communication (JOIN/2025/140 final) to the European Parliament and the Council – An

International Digital Strategy for the European Union. 50 Communication (COM/2025/30 final) from the Commission to the European Parliament, the European

Council, the Council, the European Economic and Social Committee and the Committee of the Regions

- A Competitiveness Compass for the EU. 51 Joint Communication (JOIN/2024/25 final) to the European Parliament, the Council, the European

Economic and Social Committee, the Committee of the Regions and the European Investment Bank -

Building sustainable international partnerships as a Team Europe.

EN 12 EN

countries and Union strategic interests outside the Union through jointly identified and

implemented actions. This approach should be inclusive and open to like-minded

partners and stakeholders to pool resources and jointly contribute to the achievement

of common goals including through the use of the budgetary guarantee and blending.

(57) The Union should favour a constructive engagement on all aspects of migration and

forced displacement, working to ensure that migration takes place in a safe and well-

regulated manner and support is provided to forcibly displaced people and their host

communities. It is essential to further step up cooperation on migration with partner

countries while respecting competences of Member States, reaping the benefits of

orderly, safe, regular and responsible migration and effectively addressing irregular

migration. Such cooperation should contribute to mitigating the impact of forced

displacement, ensuring access to international protection, addressing the root causes of

irregular migration and of forced displacement, enhancing border management and

pursuing efforts to prevent irregular migration, fighting against trafficking in human

beings and migrant smuggling, and working on dignified and sustainable returns,

readmission and reintegration where relevant, on the basis of mutual accountability

and full respect of humanitarian and human rights obligations under international and

Union law, and by engaging with diasporas and supporting legal migration pathways.

Therefore, partner countries’ effective cooperation with the Union in this area should

be an integral element of the Instrument. Increased coherence between migration,

asylum, return and external policies is important to ensure that the Union’s external

assistance supports partner countries to manage migration more effectively towards

sustainable development. The Instrument should contribute to a coordinated, holistic

and structured approach to migration, maximising synergies and applying the

necessary leverage.

(58) The Instrument should enable the Union, in cooperation with Member States, to

comprehensively respond to challenges, needs and opportunities related to migration

and forced displacement in a way that is coherent with and complementary to Union

migration and asylum policy. Migration-related actions under the Instrument should

contribute to the effective implementation of Union agreements and dialogues on

migration with partner countries by encouraging cooperation relying on a flexible

incitative approach and supported by a coordination mechanism under the Instrument.

The coordination mechanism should enable ongoing and emerging migration and

forced displacement challenges to be addressed under the Instrument, using all

appropriate components through flexible funding, while respecting its financial

envelopes and relying on their flexible implementation. Those actions should be

implemented in full respect of international law, including international human rights,

international humanitarian law and refugee law, and Union and national competences.

(59) Under the Instrument, the Union should address human rights and democratic

governance at all levels, including through election observation missions, in line with

the EU Action Plan on Human Rights and Democracy52. Where relevant, Union

assistance in areas pertaining to the protection of human rights and democratic values

and principles and support to civil society actors should be independent from the

consent of the governments and public authorities of the partner countries concerned.

As the respect for democracy, human rights and the rule of law is essential for sound

financial management and effective Union funding as referred to in Regulation (EU,

52 Joint Communication (JOIN/2020/5 final) to the European Parliament and the Council - EU Action

Plan on Human Rights and Democracy 2020-2024.

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Euratom) 2024/2509, assistance could be suspended in the event of degradation in

democracy, human rights or the rule of law in third countries.

(60) Funding under the Instrument should be used to finance actions for the international

dimension of the Erasmus+ programme, including in line with the Union of Skills53.

The multiannual programming of the international dimension of Erasmus+ under this

Instrument should be implemented in accordance with the procedures established in

Regulation (EU) [XXX] of the European Parliament and Council [Erasmus+

Regulation]54.

(61) The Instrument should contribute to foster international cultural relations and

recognise the role of culture in promoting the Union’s values.

(62) Regulation (EU, Euratom) 2024/2509 applies to this Instrument. It lays down the rules

on the establishment and the implementation of the general budget of the European

Union, including the rules on grants, prizes, non-financial donations, procurement,

indirect management, financial assistance, financial instruments and budgetary

guarantees.

(63) Annual or multi-annual action plans and measures referred to in this Regulation should

constitute work programmes within the meaning of Regulation (EU, Euratom)

2024/2509. Annual or multi-annual action plans should consist of a set of measures

grouped into one document.

(64) Rules on effective establishment or nationality, or the type of participants in award

procedures, including with respect to their direct and indirect control by entities of a

partner country, as well as the origin of products may be restricted, including where

such restrictions are in the strategic interests of the Union. Such restrictions could, for

example, apply to high-risk suppliers, where relevant.

(65) While respecting the principle that the Union budget is set annually, external volatility

requires to preserve the flexibilities already allowed under Regulation (EU) 2021/947

concerning carry-overs. By way of derogation from Article 12(4) of Regulation (EU,

Euratom) 2024/2509, to ensure the efficient use of the Union funds both for Union

citizens and the partner countries, thus maximising the Union funds available for the

Union’s external action interventions, carry-overs stemming from the Instrument

should be available to be reused under this Instrument. By way of derogation from

Article 212(3) of Regulation (EU, Euratom) 2024/2509, revenue, repayments and

recoveries from financial instruments established by external action programmes

under this or preceding multiannual financial frameworks should be available to be

reused under this Instrument. This will make available the necessary resources to fund

the most pressing additional needs of the EU’s external relations of the moment.

(66) To increase the resources available for the Instrument by assigning to it the surpluses

related to the Guarantee Fund for external actions established by Regulation (EC,

Euratom) No 480/2009, the European Fund for Sustainable Development (EFSD)

53 Communication (COM/2025/90 final) from the Commission to the European Parliament, the European

Council, the Council, the European Economic and Social Committee and the Committee of the Regions

- The Union of Skills. 54 Regulation (EU) [XXX] of the European Parliament and of the Council establishing the Erasmus+

programme for the period 2028-2034, and repealing Regulations (EU) 2021/817 and (EU) 2021/888

(OJ L..p.).

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established by Regulation (EU) 2017/160155, the European Fund for Sustainable

Development Plus (EFSD+) established by Regulation (EU) 2021/947, the Ukraine

Guarantee established by Regulation (EU) 2024/792, the financial assistance in the

form of loans established under Regulations (EU) 2024/1449, and (EU) 2025/535, and

the budgetary guarantee and financial assistance under this Instrument, derogations

from Article 216(4), point (a), of Regulation (EU, Euratom) 2024/2509 and from

Article 31(8) of Regulation (EU) 2021/947 are is required. This will make available

the necessary resources to fund the most pressing additional needs of the EU’s

external relations of the moment.

(67) To ensure flexibility, Article 114(2), third subparagraph of Regulation (EU, Euratom)

2024/2509 should not apply to the multiannual actions under this Instrument.

(68) The types of financing and the methods of implementation under this Regulation

should be chosen on the basis of their ability to achieve the specific objectives of the

actions and to deliver results, taking into account, in particular, the costs of controls,

the administrative burden and the expected risk of non-compliance. When making that

choice, the use of lump sums, unit costs and flat rates, as well as financing not linked

to costs of the relevant operation as referred to in Article 125(1), point (a), of

Regulation (EU, Euratom) 2024/2509, should be considered. The Union should be

able to entrust budget implementation tasks under Article 62(1), point (c) (viii) of

Regulation (EU) 2024/2509 to the Union Institute for Security Studies and the

European Security and Defence College to implement actions under the Instrument.

(69) By way of derogation from Article 192(1) of Regulation (EU, Euratom) 2024/2509,

the Union should be able to provide support in the form of grants in a flexible and

timely manner without the need for a call for proposals, for example, in difficult

conditions and cases of urgency and crisis, to support human rights defenders and

other civil society actors. Under the conditions set out in Regulation (EU, Euratom)

2024/2509, grants funded by the Instrument could also be provided to civil society

organisations and other entities which do not have legal personality under the

applicable national law.

(70) Without prejudice to the use of competitive procedures wherever appropriate in

accordance with Article 192(1) of Regulation (EU, Euratom) 2024/2509, grants could

be provided to entities governed by private law from a Member State without a call for

proposals where the relevant project is in the strategic interest of the Union and

supports the objectives of the Instrument. Such a direct award could be justified, for

example, to enable investments or finance feasibility studies in strategic areas such as

critical raw materials, climate change resilience or digital and other infrastructure, in

particular as part of integrated packages, to enhance the Union’s strategic autonomy.

In accordance with Regulation (EU, Euratom) 2024/2509, any such award should

respect the general principles applicable to grants and be duly justified in the award

decision.

(71) In line with the Team Europe approach, actions in indirect management should

preferably be entrusted to the EIB, the EBRD, or a Member State organisation in the

sense of Regulation (EU, Euratom) 2024/2509.

55 Regulation (EU) 2017/1601 of the European Parliament and of the Council of 26 September 2017

establishing the European Fund for Sustainable Development (EFSD), the EFSD Guarantee and the

EFSD Guarantee Fund (OJ L 249, 27.9.2017, p. 1–16, ELI: http://data.europa.eu/eli/reg/2017/1601/oj).

EN 15 EN

(72) In indirect management with partner countries or the bodies they designate where the

Commission retains financial management responsibilities in accordance with Article

157(7), second subparagraph, point (a), of Regulation (EU, Euratom) 2024/2509, the

Commission, when making payments on behalf of the contracting authorities directly

to their recipients should be able to subsequently recover related amounts due directly

from the contracting authorities' recipients. Likewise, in cases of indirect management

where the partner countries or the bodies they designate do not or become unable to

perform the budget implementation tasks entrusted, the Commission should be able to

temporarily take their place and act in their name and on their behalf in indirect

management.

(73) Pursuant to Article 85(1) of Council Decision (EU) 2021/1764, persons and entities

established in overseas countries and territories are eligible for funding subject to the

rules and objectives of the Instrument and possible arrangements applicable to the

Member State to which the relevant overseas country or territory is linked. In order to

reinforce the effectiveness and impact of the Union's action, cooperation between the

partner countries and regions, the overseas countries and territories as well as the

Union outermost regions under Article 349 TFEU should be encouraged in areas of

common interest.

(74) The Instrument should enable the provision of support in the form of budgetary

guarantees and financial assistance. The provisioning and liabilities arising from those

operations and the financial assistance should be supported by appropriations under

the Instrument.

(75) With a view to ensuring consistency, the budgetary guarantee and financial

instruments, including when combined with non-repayable support in blending

operations, and financial assistance under the Instrument should be implemented in

accordance with Title X of Regulation (EU, Euratom) 2024/2509 and with technical

arrangements, terms and conditions established by the Commission for the purposes of

its application.

(76) After the EFSD in 2017-2020 and the EFSD+ in 2021-2027, this is the third

multiannual financial framework where a budgetary guarantee is used to support

external actions. The budgetary guarantee has become a standard tool in the Union’s

financial toolbox and its main rules and procedures are enshrined in Regulation (EU,

Euratom) 2024/2509. Only specific provisions applicable to the budgetary guarantee

under the Instrument are foreseen in this Regulation. On the other hand, recognising

that the investments mobilised by the Union in partner countries may need a flexible

use and combination of the various forms of Union’s funding available under the

Instrument, no particular treatment of blending operations and the budgetary guarantee

under a specific fund, such as EFSD or EFSD+, is foreseen.

(77) To provide for predictability and flexibility, it is necessary to set a maximum amount

of the budgetary guarantee and the maximum amount of the aggregate Union financial

liabilities covering the budgetary guarantee and financial assistance in the form of

loans under the Instrument.

(78) In accordance with Article 214(1) of Regulation (EU, Euratom) 2024/2509, this

Regulation should provide for the review of the provisioning rates. It should therefore

be possible to amend the provisioning rates throughout the multiannual financial

framework period following regular review, which should be based on the

Commission’s risk management framework taking into account sound financial

management.

EN 16 EN

(79) To comply with the requirements of Regulation (EU, Euratom) 2024/2509, this

Regulation should set out the possibility for third parties and partner countries to

contribute to the budgetary guarantee.

(80) It should be possible that the budgetary guarantee authorised under this Regulation

serves as a horizontal delivery tool also for Council Decision (EU) 2021/1764 and

Regulation (Euratom) [XXX] [INSC-D], to provide support under other Union

programmes in accordance with the objectives and eligibility criteria set out in those

programmes. For that purpose, the corresponding provisioning of financial liabilities

should be made from the financial envelope of those other programmes.

(81) To ensure sound financial management and budgetary discipline and to limit

outstanding payments, the provisioning for the budgetary guarantee and financial

assistance should not be committed after the end of the last year of the multiannual

financial framework and should be constituted by the end of the third year after the

end of the multiannual financial framework. Budgetary commitments for that

provisioning should take into account the progress in granting the budgetary guarantee

and financial assistance. The constitution of the provisioning should take into account

the progress in the approval and signature of the financing and investment operations

and in the disbursement of the financial assistance.

(82) In order to promote the participation of eligible implementing entities and counterparts

from partner countries benefiting from the budgetary guarantee or financial

instruments, by way of derogation from Article 211(5) of Regulation (EU, Euratom)

2024/2509, the partner country should not be required to contribute to the budgetary

guarantee or the financial instruments. Moreover, in order to provide flexibility,

increase the attractiveness for the private sector and maximise the impact of the

investments, a derogation from Article 62(1), point (c) and Article 211(5) of

Regulation (EU, Euratom) 2024/2509, should be provided allowing bodies subject to

private law which provide adequate assurance of their financial capacity and which are

neither entrusted with a public service mission nor with the implementation of a

public-private partnership to be eligible implementing entities and counterparts.

(83) Blending and budgetary guarantees play a central role in the Union’s investment

strategy in partners countries. It is, therefore, appropriate to set up a Global Europe

Investment Board to provide strategic and operational guidance to the Commission in

their implementation.

(84) It is appropriate to organise the financial assistance under the diversified funding

strategy provided for in Article 224 of Regulation (EU, Euratom) 2024/2509 and

established as a single funding method therein, which is expected to enhance the

liquidity of Union debt securities and the attractiveness and cost-effectiveness of

Union issuance.

(85) The Commission could provide financial assistance to partners countries in the form of

policy-based loans. The primary purpose of such policy-based loans should be to

support partner country’s reform programmes and catalyse investments. They should

contribute to achieving national policy goals and meeting global challenges. The

conditions applicable to policy-based loans should, where relevant, be aligned to the

conditions of budget support in accordance with Article 241(1) of Regulation (EU,

Euratom) 2024/2509. A debt analysis should be conducted prior to the approval of any

loan. This analysis should assess the country's ability to sustain its debt levels over the

loan term.

EN 17 EN

(86) In order to amend non-essential elements of this Regulation, the power to adopt acts in

accordance with Article 290 TFEU should be delegated to the Commission in respect

of amending the specific objectives listed in Annex II, the percentage of expenditure

fulfilling the criteria of ODA, the maximum amounts of the budgetary guarantee and

the provisioning rates. It is of particular importance that the Commission carries out

appropriate consultations during its preparatory work, including at expert level, and

that those consultations be conducted in accordance with the principles laid down in

the Interinstitutional Agreement of 13 April 2016 on Better Law-Making56. In

particular, to ensure equal participation in the preparation of delegated acts, the

European Parliament and the Council receive all documents at the same time as

Member States' experts, and their experts systematically have access to meetings of

Commission expert groups dealing with the preparation of delegated acts.

(87) Cooperation with partner countries covered under the Europe pillar occurs in the

context of a special relationship with the Union, including through, where relevant, the

preparation of candidate countries and potential candidates for future accession. Such

cooperation requires the establishment of specific conditions reflecting this highly

ambitious relationship. For this purpose, relevant for Enlargement and Neighbourhood

East partners in the Europe pillar, specific rules related to the relevant performance-

based plans serving as a basis for programming should be established in line with the

correspondingly high ambition of mutual relations between the partner countries and

the Union. In order to ensure uniform conditions for the implementation of such

engagement and for the implementation modalities that are designed to prepare for the

management of internal funds, such as structural, agricultural and rural development

and cross-border cooperation funds, including, where relevant, for indirect

management by the partner countries, implementing powers should be conferred on

the Commission. Those powers should be exercised in accordance with Regulation

(EU) No 182/2011 of the European Parliament and of the Council of 16 February 2011

laying down the rules and general principles concerning mechanisms for control by the

Member States of the Commission's exercise of implementing powers57. Those

uniform conditions should be amended if developments so require.

(88) In the context of assistance provided to Enlargement and Neighbourhood East partners

in the Europe pillar, cooperation should build on the lessons learned from the

management and implementation of past assistance and performance-based facilities,

including in relation to the relevant performance-based plans, conditionality linked to

rule of law principles and human rights, performance, structures and control systems

to be set up in preparation of accession. Where relevant, financial assistance in the

form of a policy-based loan may be provided to partner countries implementing

performance-based plans.

(89) In order to ensure uniform conditions for the implementation of the Instrument

through the relevant implementing acts, implementing powers should be conferred on

the Commission. Those powers should be exercised in accordance with Regulation

56 Interinstitutional Agreement between the European Parliament, the Council of the European Union and

the European Commission on Better Law-Making (OJ L 123, 12.5.2016, p. 1–14, ELI:

http://data.europa.eu/eli/agree_interinstit/2016/512/oj). 57 Regulation (EU) No 182/2011 of the European Parliament and of the Council of 16 February 2011

laying down the rules and general principles concerning mechanisms for control by Member States of

the Commission’s exercise of implementing powers (OJ L 55, 28.2.2011, p. 13–18, ELI:

http://data.europa.eu/eli/reg/2011/182/oj).

EN 18 EN

(EU) No 182/2011. The Commission may adopt immediately applicable implementing

acts where, in duly justified cases relating to crises or immediate threats to peace,

democracy, the rule of law, human rights or fundamental freedoms, imperative

grounds of urgency so require.

(90) The Instrument should contribute to strengthening awareness, understanding and

perception of the Union in a Team Europe approach in partner countries. The objective

should be to position the Union as a reliable partner that is commensurate with the

scale, scope and ambition of the Union’s political commitment and sustained

investment. This should be achieved through impactful strategic communication, and

in line with Regulation (EU, Euratom) [XXX] [Performance Regulation]58.

(91) The Instrument is to be implemented in accordance with Regulation (EU, Euratom)

[XXX] [Performance Regulation] which establishes the rules for the expenditure

tracking and the performance framework for the budget, including rules for ensuring a

uniform application of the principles of ‘do no significant harm’ and gender equality

referred to in Article 33(2), points (d) and (f), of Regulation (EU, Euratom) 2024/2509

respectively, rules for monitoring and reporting on the performance of Union

programmes and activities, rules for establishing a Union funding portal, rules for the

evaluation of the programmes, rules for the evaluation of the programmes, as well as

other horizontal provisions applicable to all Union programmes such as those on

information, communication and visibility.

(92) The references to the Union’s external assistance instruments in Article 9 of Decision

2010/427/EU, which are the predecessors to the Instrument established by this

Regulation, should be construed as references to this Regulation. The Commission

should ensure that this Regulation is implemented in accordance with the role of the

European External Action Service as provided in that Decision.

(93) In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom)

No 883/2013 of the European Parliament and of the Council59, Council Regulation

(Euratom, EC) No 2988/9560, Council Regulation (Euratom, EC) No 2185/9661 and

Council Regulation (EU) 2017/193962, the financial interests of the Union are to be

protected through proportionate measures, including the prevention, detection,

correction and investigation of irregularities and fraud, the recovery of funds lost,

wrongly paid or incorrectly used and, where appropriate, the imposition of

58 Regulation (EU) No [XXX] of the European Parliament and of the Council establishing a budget

expenditure tracking and performance framework and other horizontal rules for the Union programmes

and activities. (OJ […], […], p. […]). 59 Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council of 11

September 2013 concerning investigations conducted by the European Anti-Fraud Office (OLAF) and

repealing Regulation (EC) No 1073/1999 of the European Parliament and of the Council and Council

Regulation (Euratom) No 1074/1999 (OJ L 248, 18.9.2013, p. 1, ELI:

http://data.europa.eu/eli/reg/2013/883/2021-01-17). 60 Council Regulation (EC, Euratom) No 2988/95 of 18 December 1995 on the protection of the European

Communities financial interests (OJ L 312, 23.12.95, p. 1,

ELI: http://data.europa.eu/eli/reg/1995/2988/1995-12-23). 61 Council Regulation (Euratom, EC) No 2185/96 of 11 November 1996 concerning on-the-spot checks

and inspections carried out by the Commission in order to protect the European Communities' financial

interests against fraud and other irregularities (OJ L 292,15.11.96, p. 2,

ELI: http://data.europa.eu/eli/reg/1996/2185/oj). 62 Council Regulation (EU) 2017/1939 of 12 October 2017 implementing enhanced cooperation on the

establishment of the European Public Prosecutor’s Office (‘the EPPO’) (OJ L283, 31.10.2017, p. 1,

ELI: http://data.europa.eu/eli/reg/2017/1939/2021-01-10).

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administrative sanctions. In particular, in accordance with Regulation (EU, Euratom)

No 883/2013 and Regulation (Euratom, EC) No 2185/96, the European Anti-Fraud

Office (‘OLAF’) may carry out investigations, including on-the-spot checks and

inspections, with a view to establishing whether there has been fraud, corruption or

any other illegal activity affecting the financial interests of the Union. In accordance

with Regulation (EU) 2017/1939, the European Public Prosecutor's Office (‘EPPO’)

may investigate and prosecute fraud and other illegal activities affecting the financial

interests of the Union as provided for in Directive (EU) 2017/1371 of the European

Parliament and of the Council63. In accordance with Regulation (EU, Euratom)

2024/2509, any person or entity receiving Union funds is to fully cooperate in the

protection of the Union’s financial interests, to grant the necessary rights and access to

the Commission, OLAF, the EPPO and the European Court of Auditors and to ensure

that any third parties involved in the implementation of Union funds grant equivalent

rights.

(94) This Instrument replaces the programmes established by Regulations (EU) 2021/947,

(EU) 2021/1529, (EU) 2024/792, (EU) 2024/1449 and (EU) 2025/535.

HAVE ADOPTED THIS REGULATION:

TITLE I – GENERAL PROVISIONS

Article 1 – Subject matter

This Regulation establishes Global Europe (the ‘Instrument’).

It lays down the objectives of the Instrument, the budget for the period from 2028 to 2034, the

forms of Union funding and the rules for providing such funding.

Article 2 – Definitions

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

(1) ‘country indicative programme’ means an indicative programme covering one

partner country;

(2) ‘multi-country indicative programme’ means an indicative programme covering

more than one partner country;

(3) ‘regional indicative programme’ means a multi-country indicative programme

covering more than one partner country within the same geographic area as referred

to in Article 3(1);

(4) ‘trans-regional indicative programme’ means a multi-country indicative programme

covering more than one partner country from different geographic areas as referred

to in Article 3(1);

(5) ‘acceding country’ means a country for which a treaty concerning its accession to the

Union has been signed; for the purposes of this Regulation, references to candidate

countries and potential candidates also include acceding countries;

63 Directive (EU) 2017/1371 of the European Parliament and of the Council of 5 July 2017 on the fight

against fraud to the Union's financial interests by means of criminal law (OJ L 198, 28.7.2017, p. 29,

ELI: http://data.europa.eu/eli/dir/2017/1371/oj).

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(6) ‘candidate countries and potential candidates’ means any of the following: the

Republic of Albania, Bosnia and Herzegovina, Iceland, Kosovo64, Montenegro, the

Republic of North Macedonia, the Republic of Serbia, the Republic of Türkiye, the

Republic of Moldova, Ukraine, Georgia, and any other country that would be granted

a candidate or potential candidate status by a European Council decision in the

future;

(7) ‘cross-border cooperation’ means cooperation between: (a) Member States, one or

more partner countries along the external adjacent land and maritime borders of the

Union; (b) two or more candidates or potential candidates covered under the Europe

pillar as referred to in Article 3(1), point (a), of this Regulation.

(8) ‘civil society organisation’ means a wide range of actors with multiple roles and

mandates, which may vary over time and across institutions and countries, and

includes all independent non-State, not-for-profit and non-violent structures, through

which people organise the pursuit of shared objectives and ideals, including political,

cultural, religious, environmental, social or economic,, and which operate at local,

national, regional or international levels, and which comprise urban and rural, formal

and informal organisations;

(9) ‘local authority’ encompasses public institutions with legal personality, which are

components of the State structure, below the level of central government, such as

villages, municipalities, districts, counties, provinces or regions, which are

accountable to citizens and usually composed of a deliberative or policy-making

body, such as a council or assembly, and an executive body, such as a mayor or other

executive officer, which are directly or indirectly elected or selected at local level;

(10) ‘partner country’ means any non-EU country or territory;

(11) ‘effectively established in a country or territory’ means that a legal entity has its

statutory office, central administration or principal place of business in that country

or territory. However, a legal entity having only its statutory office in such a country

or territory must be engaged in an activity which has an effective and continuous link

with the economy of that country or territory;

(12) ‘jointly financed’ means that the total cost of an action is shared among several

entities and the resources are pooled in such a way that it is no longer possible to

identify the source of financing for any given activity undertaken as part of the

action.

(13) ‘developing countries and territories’, means ODA recipients as included in the list

published by the Development Assistance Committee of the Organisation for

Economic Cooperation and Development.

Article 3 – Scope and structure

1. The Instrument shall consist of the following pillars:

(a) Europe;

(b) Middle East, North Africa and the Gulf;

(c) Sub-Saharan Africa;

64 This designation is without prejudice to positions on status and is in line with UNSCR 1244/1999 and

the ICJ Opinion on the Kosovo declaration of independence.

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(d) Asia and the Pacific;

(e) Americas and the Caribbean;

(f) Global.

Points (a) to (e) of the first subparagraph may cover any partner country listed in Annex I.

Point (f) of the first subparagraph may cover all partner countries as well as overseas

countries and territories linked to a Member State as set out in Annex II to the TFEU.

2. The pillars referred to in paragraph 1, first subparagraph, points (a) to (e) shall encompass:

(a) programmable actions at country, multi-country, regional and trans-regional level;

(b) non-programmable actions at country, multi-country, regional and trans-regional

level, through the following components:

(i) humanitarian aid;

(ii) macro-financial assistance;

(iii) resilience;

(iv) competitiveness;

(v) crisis, peace and foreign policy needs.

3. The pillar referred to in paragraph 1, first subparagraph, point (f) shall encompass:

(a) programmable actions at global level;

(b) non-programmable actions at global level, through the following components:

(i) humanitarian aid;

(ii) resilience;

(iii) competitiveness; and

(iv) crisis, peace and foreign policy needs.

4. Actions under the Instrument shall be implemented primarily under one or more of the

pillars referred to in paragraph 1, first subparagraph, points (a) to (e).

Actions implemented under the pillar referred to in paragraph 1, first subparagraph, point (f),

shall support global initiatives and be complementary to actions funded under paragraph 1,

first subparagraph, points (a) to (e).

Non-programmable actions shall be complementary to programmable actions, and shall be

designed and implemented to enable, where relevant, continuity under programmable actions.

5. Humanitarian aid actions funded under the Instrument shall be implemented pursuant to

Regulation (EC) 1257/96.

Article 4 – Objectives of the Instrument

1.The general objectives of the Instrument are the following:

(a) to uphold and promote the Union’s values and interests worldwide, in order to pursue

the objectives and principles of the Union’s external action, as laid down in Article

3(5) and Articles 8 and 21 TEU;

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(b) to contribute to the promotion of multilateralism and a rules-based international

order, the achievement of the international commitments and objectives that the

Union has agreed to, in particular the sustainable development goals, the 2030

Agenda, the Paris Agreement and the Kunming-Montreal Global Biodiversity

Framework;

(c) to promote stronger mutually beneficial partnerships with partner countries,

contributing simultaneously to the sustainable development of partner countries and

to the strategic interests of the Union.

2. The specific objectives of the Instrument are set out in Annex II.

The Commission is empowered to adopt delegated acts in accordance with Article 30 to

amend Annex II.

Article 5 – Consistency, coherence, synergies and complementarity

1. In implementing the Instrument, consistency, coherence, synergies and complementarity

with all areas of Union external action, including other external financing instruments, and

with other relevant Union policies and programmes, shall be ensured.

The Union shall strive to ensure policy coherence for sustainable development. It shall take

into account the impact of all internal and external policies on sustainable development and

shall promote increased synergies and complementarities, in particular with trade and

investment, economic cooperation and other sectoral cooperation.

2. The Instrument may contribute to actions that are established and implemented under

Regulations (EU) [XXX] [European Competitiveness Fund], (EU) [XXX] of the European

Parliament and Council [Horizon Europe]65, and (EU) [XXX] [Connecting Europe Facility],

when those actions are in line with Article 4 of this Regulation.

3. An action that has received a Union contribution from another programme may also receive

a contribution under this Instrument. The rules of the relevant Union programme shall apply

to the corresponding contribution, or a single set of rules may be applied to all contributions

and a single legal commitment may be concluded. If the Union contribution is provided based

on eligible cost, the cumulative support from the Union budget shall not exceed the total

eligible costs of the action and may be calculated on a pro-rata basis in accordance with the

documents setting out the conditions for support.

Article 6 - Budget

1. The total indicative financial envelope for the implementation of the Instrument for the

period from 1 January 2028 to 31 December 2034 shall be EUR 200 309 000 000 in current

prices. It shall be composed of the following indicative amounts:

(a) Europe: EUR 43 174 000 000;

(b) Middle East, North Africa and the Gulf: EUR 42 934 000 000;

(c) Sub-Saharan Africa: EUR 60 531 000 000;

(d) Asia and the Pacific: EUR 17 050 000 000;

65 Regulation (EU) No [XXX] of the European Parliament and of the Council on establishing Horizon

Europe, the Framework Programme for Research and Innovation, for the period 2028-2034 laying down

its rules for participation and dissemination, and repealing Regulation (EU) 2021/695 (OJ L.., p.).

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(e) Americas and the Caribbean: EUR 9 144 000 000;

(f) Global: EUR 12 668 000 000.

2. Additionally, financial resources for Ukraine shall be made available through the

Instrument in accordance with Article 6 of Council Regulation [(EU, Euratom) 20XX/XXX *

[MFF Regulation].

The financial support to Ukraine in the form of loans shall be available through the Instrument

for an amount of up to EUR 100 000 000 000 for the period from 1 January 2028 to 31

December 2034. The overall amount of disbursements of the loans to Ukraine shall take into

account the amounts made available pursuant to the first subparagraph and the amount

referred to in the third subparagraph.

The sum of the resources made available pursuant to the first and second subparagraph shall

not exceed EUR 100 000 000 000 for the period from 1 January 2028 to 31 December 2034.

Financial resources referred to in the first subparagraph may be used, where appropriate, to

provide support under Regulation (Euratom) [XXX] (INSC-D) for the sole purpose of

financing expenditure for Ukraine. Regulation (Euratom) [XXX] (INSC-D) shall apply to the

use of those funds.

3. The emerging challenges and priorities cushion of EUR 14 808 000 000 shall increase the

amounts referred to in paragraph 1 of this Article in accordance with Article 7.

4. The financial envelope referred to in paragraph 1 of this Article and the financial resources

for Ukraine made available in accordance with Article 6 of Council Regulation [(EU,

Euratom) 20XX/XXX * [MFF Regulation] referred to in paragraph 2 may also be used for

technical and administrative assistance for the implementation of the Instrument, such as

preparatory, monitoring, control, audit and evaluation activities, information and

communication activities, including corporate communication on the political priorities of the

Union in the external area, and corporate information technology systems and platforms, and

all other technical and administrative assistance, including the financing of staff and staff-

related expenses incurred by the Commission for the management of the Instrument at

headquarters and Union delegations.

5. At least 90% of the expenditure under this Instrument shall fulfil the criteria for ODA (the

‘ODA target’), thus contributing to ODA collective commitments, including towards least

developed countries. If a partner country loses ODA eligibility during the implementation

period of the Instrument, expenditure committed in favour of that partner country after the

loss of eligibility shall be excluded from the assessment of the ODA target. The expenditure

referred to in paragraph 2 of this Article shall be excluded from the assessment of the ODA

target.

6. The Commission is empowered to adopt delegated acts to amend the percentage set out in

paragraph 5.

7. Member States, Union institutions, bodies and agencies, partner countries, international

organisations, international financial institutions, or other third parties, may make additional

financial or in-kind contributions to the Instrument. Additional financial contributions shall

constitute external assigned revenue within the meaning of Article 21(2), points (a), (d), or

(e), or Article 21(5) of Regulation (EU, Euratom) 2024/2509.

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Article 7 - Emerging challenges and priorities cushion

1. The amount referred to in Article 6(3) shall be used where most needed and duly justified,

in particular for the following purposes:

(a) to ensure an appropriate response of the Union in the event of unforeseen

circumstances;

(b) to address new needs or emerging challenges, such as those at the Union’s or its

neighbours’ borders linked to crisis, whether natural or man-made, violent conflict

and post-crisis situations, or migratory pressure and forced displacement;

(c) to promote new Union led or international initiatives or priorities.

2. The Commission shall inform in detail the European Parliament and the Council before it

mobilises the funds of the emerging challenges and priorities cushion and, where appropriate,

shall take into consideration their observations on the nature, objectives and financial amounts

envisaged.

3. The use of those funds shall be decided in accordance with the procedures established in

Articles 17 and 19 or those established in Regulation (EC) No 1257/96.

Article 8 – Policy framework

1. The Union’s policies, as set out in association agreements, partnership and cooperation

agreements, multilateral agreements to which the Union is a party, and other agreements that

establish a legally binding relationship between the Union and partner countries as well as

European Council conclusions, Council conclusions, summit declarations or conclusions of

meetings with partner countries at the level of heads of state or government or ministers,

European Parliament resolutions, communications of the Commission and joint

communications with the High Representative shall constitute the overall policy framework

for the implementation of the Instrument.

2. The Commission shall regularly inform the European Parliament and the Council and, at

the initiative of any of those three institutions, have exchanges of views with them. The

European Parliament may hold regular exchanges of views regarding its own assistance

programmes with the Commission.

Article 9 – General principles

1. The Union shall concentrate its means where they can make the most transformational

impact with a view to supporting sustainable development and catering for the strategic

interests of the Union.

2. The Union shall continue to engage in contexts experiencing extremely high levels of

fragility, conflict areas, and other complex settings.

In situations of crisis, post-crisis or in extreme fragility, due account shall be taken of the

special needs of the population of the partner countries or regions concerned. Where partner

countries or regions are directly involved in, or affected by a situation of crisis, post-crisis or

extreme fragility, special emphasis shall be placed on stepping up support and coordination

amongst all relevant actors to help with the transition from an emergency situation to

sustainable development and stable peace, ensuring consistency between international

cooperation and humanitarian aid in accordance with the humanitarian-development-peace

nexus.

EN 25 EN

3. The Union shall seek to promote, develop and consolidate the principles of democracy,

good governance, the rule of law and respect for human rights and fundamental freedoms on

which it is founded, notably through dialogue and cooperation with partner countries and

regions and with civil society, including through action in multilateral fora.

4. Actions under this Instrument shall apply a human rights-based approach encompassing all

human rights That approach shall be guided by the principles of ‘leaving no one behind’,

equality, non-discrimination on any grounds, including towards persons with disabilities.

5. The Instrument shall promote gender equality and girls’ and women’s empowerment and

prevent and fight violence against women and domestic violence. It shall also give particular

attention to the rights of the child and to the protection and empowerment of youth.

6. The Instrument shall be implemented in full accordance with the Union commitment to the

promotion, protection and fulfilment of all human rights and to the full and effective

implementation of the Beijing Declaration and the Platform for Action66 of the International

Conference on Population and Development and the outcomes of their review conferences

and remains committed to sexual and reproductive health and rights, in this context. The

Instrument shall also support the Union commitment to the promotion, protection and

fulfilment of the right of every individual to have full control over and decide freely and

responsibly on matters related to their sexuality and sexual and reproductive health, free from

discrimination, coercion and violence. It shall also support the need for universal access to

quality and affordable comprehensive sexual and reproductive health information, education,

including comprehensive sexuality education, and health-care services.

7. The Union shall support, as appropriate, the implementation of bilateral, regional and

multilateral cooperation and dialogue, association and trade agreements and partnership

agreements.

The Union shall promote multilateralism and a rules-based approach to global goods and

challenges and shall cooperate with Member States, partner countries, international

organisations and other donors.

In relations with partner countries, their track record in implementing commitments,

international agreements, and contractual relations with the Union shall be taken into account.

8. Cooperation between the Union and the Member States, on the one hand, and partner

countries, on the other, shall be based on and shall promote the development effectiveness

principles, where applicable, across all modalities, namely ownership of development

priorities by partner countries, a focus on results, inclusive development partnerships,

transparency and mutual accountability. The Union shall promote effective and efficient

resource mobilisation and use.

9. In accordance with the principle of inclusive partnership, where appropriate, the

Commission shall ensure that relevant stakeholders of partner countries, including civil

society organisations and local authorities, are duly consulted and have timely access to

relevant information allowing them to play a meaningful role during the design,

implementation and associated monitoring processes of programmes and actions under the

Instrument.

66Beijing Declaration and Platform for Action

https://www.unwomen.org/sites/default/files/Headquarters/Attachments/Sections/CSW/PFA_E_Final_

WEB.pdf.

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10. The Commission shall exchange information on a regular basis with civil society within

the Union.

11. The Commission shall also ensure that an enhanced dialogue is pursued with the private

sector.

Article 10 - Mainstreaming

Programmes and actions under the Instrument shall mainstream the fight against climate

change, environmental protection and gender equality, in accordance with Regulation (EU,

Euratom) [XXX] [Performance Regulation]. Those priorities shall be considered in the design

and implementation of actions under the Instrument, with the aim to create co-benefits and

meet multiple objectives in a coherent way.

Article 11 – Team Europe approach

1. The Commission and the Member States shall aim to closely coordinate their actions to

avoid duplication and to improve coherence and complementarity between assistance carried

out under this Instrument and any other assistance provided by the Member States, their

implementing agencies, development finance institutions and export credit agencies as well as

by the EIB and the EBRD.

2. The Commission and the Member States shall aim to ensure timely consultations and

frequent exchanges of information with each other during the different phases of the

implementation cycle, which shall endeavour to jointly identify, discuss and implement

actions, including in terms of information, communication and visibility.

3. The Commission and the Member States, acting in a Team Europe approach, shall aim to

cooperate with like-minded partners and stakeholders, including the pooling of resources, to

jointly contribute to the achievement of common goals.

Article 12 – Migration and forced displacement

1. The Union shall engage with partner countries on the basis of a comprehensive approach

towards migration, in particular to prevent irregular migration, and forced displacement,

including their root causes.

2. This approach shall maximise synergies and build comprehensive partnerships, paying

specific attention to countries of origin, transit and departure in a seamless whole-of-route

approach. It shall combine all appropriate tools and the necessary leverage through a flexible

approach with, as appropriate within this context, possible changes in allocation of funding

related to migration in accordance with the objectives and programming principles of the

Instrument as set out in Articles 4 and 14. It shall take into account effective cooperation and

implementation of Union agreements and arrangements and of dialogues on migration. Those

actions shall be implemented in full respect of international law, including international

human rights and refugee law, Union and national competences.

3. In case the Commission services, in consultation with EEAS, identifies serious

shortcomings in a partner country related in particular to the obligation to readmit its own

nationals from the Member States, the Commission may suspend payments or the

implementation of a programme. In no case the suspension shall affect humanitarian

assistance.

4. To assess the existence of the serious shortcomings referred to in paragraph 3, and

following consultations with the beneficiary country, the Commission shall rely on the

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assessments carried in accordance with Article 25a of Regulation (EC) No 810/200967 and

with Article 8 of Regulation (EU) 2018/180668, while taking into account the Union’s overall

relations with the beneficiary country concerned, including in the field of migration, as well

as the principle of proportionality.

5. Where the Commission considers that the reasons justifying the measure taken in

accordance with paragraph 3 no longer apply, the Commission shall lift the suspension.

TITLE II - IMPLEMENTATION OF THE INSTRUMENT

Chapter I – General programming provisions

Article 13 – General programming approach

1. Actions under Article 3(2), point (a) and Article 3(3), point (a) shall be based on

programming.

2. On the basis of Article 8, programming documents shall provide a coherent framework for

cooperation between the Union, partner countries or regions and other partners, consistent

with the overall purpose and scope, objectives and principles set out in this Regulation.

The Commission shall consult other donors and actors, including local authorities,

representatives of civil society and the private sector, where relevant.

The Commission shall inform the European Parliament and the Council about the outcome of

the consultations envisaged under the second subparagraph.

3. The Instrument shall contribute to actions established under Regulation (EU) [XXX]

[Erasmus+]. A single programming document shall be drawn up under this Regulation for the

duration of the multiannual financial framework. Regulation (EU) [XXX] [Erasmus+] shall

apply to the use of those funds.

Article 14 - Geographic programming principles

1. Programming under Article 3(2), point (a), shall be based on the following principles:

(a) actions shall be based, to the extent possible, on a dialogue between the Union,

Member States and the partner countries concerned, including national, regional and

local authorities, and involving civil society;

(b) programming may envisage cooperation activities funded from different allocations

set out in Article 6(1) and from other Union programmes in accordance with the

relevant legal acts.

67 Regulation (EC) No 810/2009 of the European Parliament and of the Council of 13 July 2009

establishing a Community Code on Visas (Visa Code) (OJ L 243, 15.9.2009, p. 1–58,

ELI: http://data.europa.eu/eli/reg/2009/810/2024-06-28). 68 Regulation (EU) 2018/1806 of the European Parliament and of the Council of 14 November 2018

listing the third countries whose nationals must be in possession of visas when crossing the external

borders and those whose nationals are exempt from that requirement (OJ L 303, 28.11.2018, p. 39–58,

ELI: http://data.europa.eu/eli/reg/2018/1806/2025-02-03).

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2. Programming under Article 3(1), first subparagraph, points (a) to (e) shall provide a

specific, tailor-made framework for cooperation based on, where relevant, the following

elements:

(a) partner countries’ and regions’ priorities, established on the basis of the dialogue

referred to in paragraph 1, taking also into account the national or regional strategy

and plan;

(b) the partnership with the Union, including the promotion of mutual interests and

shared priorities, as well as the level of ambition of commonly agreed objectives;

(c) for candidate countries and potential candidates and partner countries in the

Neighbourhood East region, results in the areas of political reform, economic and

social development and convergence towards the EU acquis;

(d) partner countries and regions’ capacity and commitment to promote shared values

and principles, and to support multilateral alliances and a rules-based international

system;

(e) partner countries and regions’ level of development and commitment to address the

drivers of fragility and irregular migration and forced displacement, including their

root causes;

(f) partner countries and regions’ capacity to mobilise and make effective use of

domestic resources as well as to access financial resources of other actors, including

private sector;

(g) partner countries and regions’ absorption capacity and the potential impact of Union

funding in partner countries and regions.

Article 15 – Geographic programming documents

1. As regards actions under Article 3(2), point (a), the implementation of the Instrument shall

be carried out through multiannual country, multi-country, regional or trans-regional

indicative programmes.

2. The multiannual indicative programmes referred to in paragraph 1 shall set out the priority

areas selected for Union financing, the specific objectives and, where appropriate, the

indicative financial allocations and the methods of implementation.

3. Those multiannual indicative programmes shall be based on:

(a) a national or regional strategy accepted by the Commission as a basis for the

corresponding multiannual indicative programme, at the time of adoption of the latter

document. For Enlargement and Neighbourhood East partners covered under Article

3(1), first subparagraph, point (a), where relevant, this document may take the form

of a performance-based plan and comply with the implementing rules set out in line

with Article 31 of this Regulation.

(b) a framework document laying down the Union policy towards the partner or partners

concerned, including a joint document between the Union and Member States;

(c) a joint document between the Union and the partner or partners concerned setting out

common priorities and mutual commitments.

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Article 16 – Global programming documents

1. As regards actions under Article 3(3), point (a), the implementation of the Instrument shall

be carried out through multiannual indicative programmes.

2. The multiannual indicative programmes referred to in paragraph 1 shall set out the Union’s

strategy, the priorities selected for Union financing, the specific objectives and the indicative

financial allocations.

Where applicable, resources and intervention priorities shall be laid down for participation in

global initiatives.

Article 17 – Adoption and amendment of multiannual indicative programmes

1. The Commission shall adopt, by means of implementing acts, multiannual indicative

programmes referred to in Articles 15 and 16. Those implementing acts shall be adopted in

accordance with the examination procedure referred to in Article 32(2). That procedure shall

also apply to reviews referred to in paragraph 2 of this Article, which have the effect of

significantly amending the content of the multiannual indicative programme.

2. Multiannual indicative programmes may be reviewed on an ad hoc basis as necessary for

effective implementation, in particular where there are substantive changes in the policy

framework referred to in Article 8 or following a situation of crisis or post-crisis.

3. On duly justified imperative grounds of urgency, such as crises or immediate threats to

peace, democracy, the rule of law, human rights or fundamental freedoms, the Commission

may amend multiannual indicative programmes referred to in Articles 15 and 16 by means of

immediately applicable implementing acts adopted in accordance with the procedure referred

to in Article 32(5).

Chapter II - Action plans, measures and implementation principles

Article 18 - Action plans and measures

1. The Commission shall adopt annual or multiannual action plans and measures. Measures

may take the form of individual measures, special measures, support measures or exceptional

assistance measures. Action plans and measures shall take into account the specific context

and shall specify for each action the objectives pursued, the expected results and relevant

activities, the methods of implementation as well as the budget and any possible support

expenditures.

2. Actions financed by programmable amounts shall be based on programming documents.

Action plans shall be prepared in an inclusive, transparent and timely manner.

3. Where necessary, an action may be adopted as an individual measure before or after the

adoption of action plans. Individual measures financed by programmable amounts shall be

based on programming documents, except in duly justified cases.

4. In the event of unforeseen needs or circumstances, and where funding is not possible from

more appropriate sources, the Commission may adopt special measures not provided for in

the programming documents.

5. The Commission may adopt exceptional assistance measures for crisis, peace and foreign

policy needs actions.

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An exceptional assistance measure shall have a duration of up to 18 months, which may be

extended twice by a further period of up to six months, up to a total maximum duration of 30

months, in the event of objective and unforeseen obstacles to its implementation.

In cases of protracted crisis and conflict, the Commission may adopt a second exceptional

assistance measure of a duration of up to 18 months. In duly justified cases, further measures

may be adopted where the continuity of the Union’s action is essential and cannot be ensured

by other means.

6. Where support expenditure referred to in Article 6(4) is not included in the action plans or

measures referred to in this Article, the Commission shall adopt support measures, where

applicable.

Article 19 - Adoption of action plans and measures

1. Action plans and measures shall be adopted by means of implementing acts. Those

implementing acts shall be adopted in accordance with the examination procedure referred to

in Article 32(2).

2. The procedure referred to in paragraph 1, second sentence, shall not apply to the following:

(a) action plans and individual measures for which the Union’s funding does not exceed

EUR 10 000 000;

(b) special and support measures for which the Union’s funding does not exceed EUR 20

000 000;

(c) exceptional assistance measures referred to in Article 18(5) as well as action plans

adopted in order to implement crisis, peace and foreign policy needs actions for

which the Union’s funding does not exceed EUR 40 000 000;

(d) technical amendments to action plans and measures, provided that such amendments

do not substantially affect the objectives of the action plan or measure concerned,

such as:

(i) change of method of implementation;

(ii) reassignments of funds between actions contained in an action plan;

(iii) increases of the budget of action plans and measures by not more than 20 % of

this budget;

(e) interest rate and borrowing cost subsidies provided to the beneficiary partner country

linked to financial assistance if duly justified.

When adopted in accordance with this paragraph, action plans and measures, except

exceptional assistance measures for crisis, peace and foreign policy needs, and technical

amendments shall be communicated by the Commission to the European Parliament and to

the Member States through the relevant committee referred to in Article 32(1) within one

month of their adoption.

3. Before the adoption or extension of exceptional assistance measures referred to in

paragraph 2, first subparagraph, point (c), the Commission shall inform the European

Parliament and the Council of the nature and objectives of those measures and of the financial

amounts envisaged. The Commission shall inform the European Parliament and the Council

before making significant substantive changes to exceptional assistance measures already

adopted. The Commission shall take account of the relevant policy approach for the planning

EN 31 EN

and subsequent implementation of such measures, in the interest of consistency of the Union’s

external action.

4. Where duly justified, imperative grounds of urgency, such as crises, including natural or

man-made disasters, or immediate threats to democracy, the rule of law, human rights or

fundamental freedoms so require, the Commission may adopt action plans and measures or

amendments to existing action plans and measures, as immediately applicable implementing

acts, in accordance with the procedure referred to in Article 32(5).

Article 20 - Eligibility rules

1. Subject to paragraphs 10 and 11 of this Article, participants to procurement, grant and prize

award procedures for actions financed under Article 3(1), first subparagraph, points (b) to (e)

shall be nationals of or effectively established in any of the following:

(a) a Member State, an overseas country or territory linked to a Member State as set out

in Annex II to the TFEU, or a member of the European Economic Area;

(b) an acceding country, a candidate country or potential candidate;

(c) a developing country or territory which is not a member of the G-20 group;

(d) a partner country in the Neighbourhood South region as listed in Annex I;

(e) any other partner country, when it is a beneficiary of the action financed under this

Instrument;

(f) a country for which reciprocal access to external funding is established by the

Commission;

(g) a member country of the Organisation for Economic Cooperation and Development,

in the case of contracts implemented in a least developed country as included in the

list of ODA recipients.

2. Subject to paragraphs 10 and 11 of this Article, participants in procurement, grant and prize

award procedures for actions financed under Article 3(1), first subparagraph, point (a) shall be

nationals of, or be effectively established in a country or territory as referred to in paragraph 1

point (a), (b), (d), (e) and (f) of this Article or a partner country in the Eastern Neighbourhood

region as listed in Annex I.

3. Subject to paragraph 10 of this Article, participation in procurement, grant and prize award

procedures for actions financed under Article 3(1) first subparagraph, point (f) and Article 3

(2), point (b) (v) shall be open without limitations.

4. Subject to paragraph 10 of this Article, participation in procurement, grant and prize award

shall also be open to international organisations.

5. Subject to paragraph 10 of this Article, all products financed under the Instrument may

originate from any country or territory.

6. Subject to paragraph 10 of this Article, the eligibility rules laid down in this Article shall

not apply to, and shall not create nationality restrictions for, natural persons employed or

otherwise legally contracted by an eligible contractor or, where applicable, by an eligible

subcontractor.

7. Subject to paragraph 10 of this Article, for actions implemented in direct or indirect

management by entities referred to in Article 62(1), point (c) (ii) to (ix) of Regulation (EU,

Euratom) 2024/2509, the countries and territories that are eligible in accordance with the rules

of such entities for the purpose of participation to procurement, grants and prize award

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procedures shall be eligible, in addition to the countries and territories that are eligible under

this Article. Products shall originate from the countries and territories eligible in accordance

with the rules of those entities, in addition to the countries and territories eligible to

procurement, grant and prize award procedures under this Article.

Subject to paragraph 10 of this Article for actions implemented by entities not covered under

the previous subparagraph, when such actions are jointly financed with third parties that are

not recipients of these actions, those recipients may decide that the countries and territories

that are eligible under the rules of those third parties for the purpose of participation to

procurement, grant and prize award procedures shall be eligible, in addition to the countries

and territories that are eligible under this Article.

8. Where a third party provides financing to a trust fund established by the Commission or

through external assigned revenues, the eligibility rules in the constitutive act of the trust fund

or in the agreement with the third party in case of external assigned revenues shall apply.

9. Subject to paragraphs 10 and 11, in the case of actions financed under this Instrument and

by another Union programme, or by several pillars of this Instrument, the eligibility rules with

their possible restrictions and extensions under any of those programmes or pillars shall

apply.

10. The eligibility rules laid down in this Article or the type of participants in award

procedures, including with respect to their direct and indirect control by entities of a partner

country, may be restricted where such restrictions are required on account of the specific

nature or objectives of the activity or the application of Union restrictive measures, or where

those restrictions are necessary for the effective implementation of the activity or where such

restrictions are in the strategic interests of the Union. Eligibility restrictions shall apply to

high-risk suppliers, for security reasons.

The eligibility rules laid down in this Article may also be restricted by Union response

measures adopted under the Regulation on the protection of the Union and its Member States

from economic coercion by third countries and Regulation (EU) 2022/1031 of the European

Parliament and of the Council69.

11. The eligibility rules laid down in this Article may be extended in the case of urgency or

the unavailability of eligible participants in the markets of the countries or territories

concerned, or in other duly substantiated cases where application of the eligibility rules would

make the realisation of an action impossible or exceedingly difficult or where such extension

is in the strategic interests of the Union.

12. In order to promote local capacities, markets and purchases, where Regulation (EU,

Euratom) 2024/2509 provides for an award on the basis of a single tender, priority shall be

given to local and regional economic operators. In all other cases, participation of local and

regional economic operators shall be promoted in accordance with the relevant provisions of

that Regulation. Sustainability and due diligence criteria shall be promoted.

69 Regulation (EU) 2022/1031 of the European Parliament and of the Council of 23 June 2022 on the

access of third-country economic operators, goods and services to the Union’s public procurement and

concession markets and procedures supporting negotiations on access of Union economic operators,

goods and services to the public procurement and concession markets of third countries (International

Procurement Instrument – IPI) (OJ L 173, 30.6.2022, p. 1–16, ELI:

http://data.europa.eu/eli/reg/2022/1031/oj).

EN 33 EN

Article 21 – Excluded activities

Union funding under the Instrument shall not support actions or measures which may result in

the violation of human rights in partner countries.

Article 22 – Carry overs, annual instalments, re-payments, revenue and recoveries from

financial instruments and surpluses from the budgetary guarantee

1. By way of derogation from Article 12(4) of Regulation (EU, Euratom) 2024/2509, unused

commitment and payment appropriations under this Instrument shall be automatically carried-

over and may be committed and used under this Instrument under the corresponding budget

line specified under Article 6(1), respectively, up to 31 December of the following financial

year. The amount carried over shall be used first in the following financial year.

The Commission shall inform the European Parliament and the Council of commitment

appropriations carried-over in accordance with Article 12(6) of Regulation (EU, Euratom)

2024/2509.

2. Budgetary commitments for actions extending over more than one financial year may be

broken down over several years into annual instalments, in accordance with Article 112(2) of

Regulation (EU, Euratom) 2024/2509.

Article 114(2), third subparagraph of Regulation (EU, Euratom) 2024/2509 shall not apply to

the multiannual actions referred to in the first subparagraph of this paragraph. The

Commission shall automatically decommit any portion of a budgetary commitment for an

action which, by 31 December of the fifth year following that of the budgetary commitment,

has not been used for the purpose of pre-financing or making interim payments, or for which

no certified statement of expenditure or any payment request has been submitted.

3. If the Regulation enters into force after 1.01.2028: From 1 January 2028, by way of

derogation from Article 212(3), first, second and fourth subparagraph of Regulation (EU,

Euratom) 2024/2509, and without prejudice to Article 12(4) of Regulation (EU) 2024/792

revenue, repayments and recoveries from financial instruments for external action established

under basic acts adopted before 2021, under Regulations (EU) 2021/1529, (EU) 2021/947 and

(EU) 2024/792, as well as under this Regulation, may be used to provide Union support

under this Regulation.

By way of derogation from Article 21(3), point (f) of Regulation (EU, Euratom)

2024/2509and from Article 12(4) of Regulation (EU) 2024/792, the resources referred to in

the first sub-paragraph shall be assigned to the budget line of origin of the Instrument and

constitute external assigned revenue within the meaning of Article 21(5) Regulation (EU,

Euratom) 2024/2509.

4. If the Regulation enters into force after 1.01.2028: From 1 January 2028, in accordance

with Article 14(3) of Decision (EU) 2022/1628 and by way of derogation from Article 31(8)

of Regulation (EU) 2021/947, any surplus of provisions in the Guarantee Fund for external

actions established by Regulation (EC, Euratom) 480/2009 may be used to provide Union

support under this Regulation.

If the Regulation enters into force after 1.01.2028: From 1 January 2028, by way of

derogation from Article 216(4), point (a) of Regulation 2024/2509, and without prejudice to

Article 12(5) of Regulation (EU) 2024/792 and to Article 14(3) of Decision (EU) 2022/1628,

any surplus of provisions for the budgetary guarantees and financial assistance established

under Regulations (EU) 2017/1601, (EU) 2021/947, (EU) 2024/792, (EU) 2024/1449, (EU)

2025/535 and this Regulation, may be used to provide Union support under this Regulation.

EN 34 EN

By way of derogation from Article 12(5) of Regulation (EU) 2024/792, the resources referred

to in the first sub-paragraph shall be assigned to the budget line of origin of the Instrument

and constitute external assigned revenue within the meaning of Article 21(5) of Regulation

2024/2509.

Chapter III – Implementation toolbox

Article 23 - Implementation and forms of Union funding

1. The Instrument shall be implemented either directly or indirectly through any of the entities

listed in Article 62(1), point (c), of Regulation (EU, Euratom) 2024/2509 including those

within the meaning of point (c) (ix). The Commission may also entrust budget

implementation tasks to the Union Institute for Security Studies and the European Security

and Defence College in accordance with Article 62(1), point (c) (viii) of Regulation (EU,

Euratom) 2024/2509.

2. Union funding may be provided through the types of financing laid down in Regulation

(EU, Euratom) 2024/2509, including contributions to trust funds set up by the Commission, in

accordance with Article 238 of Regulation (EU, Euratom) 2024/2509, and those specifically

authorised in this Instrument. The budgetary guarantee, financial instruments, including when

combined with grants or with other forms of non-repayable support in blending operations,

and financial assistance under the Instrument shall be implemented in accordance with Title X

of Regulation (EU, Euratom) 2024/2509.

3. When working with civil society organisations and stakeholders of partner countries such

as local authorities, the Commission shall take into account their specificities, including their

needs and the relevant context, when defining the financing modalities, the type of

contribution, the participation, the evaluation and award modalities and the administrative

provisions for the management of grants, with a view to reaching and best responding to the

widest possible range of such stakeholders. Specific modalities shall be encouraged in

accordance with Regulation (EU, Euratom) 2024/2509, such as financial framework

partnership agreements, financial support to third parties, grants awarded without a call for

proposals, or simplified forms of funding referred to in Article 125(1) of Regulation (EU,

Euratom) 2024/2509.

4. By way of derogation from Article 198 of Regulation (EU, Euratom) 2024/2509, grants

may be awarded without a call for proposals in the following cases:

(a) low-value grants to human rights defenders to finance urgent protection actions and

needs, including through mechanisms for the protection of human rights defenders at

risk, as well as to mediators and other civil society actors involved in crisis and

armed conflict related dialogue, conflict resolution, reconciliation and peacebuilding,

where appropriate without the need for co-financing;

(b) grants, where appropriate without the need for co-financing, to finance actions in the

most difficult conditions where the publication of a call for proposals would be

inappropriate, including situations where there is a serious lack of fundamental

freedoms, including violation of human rights, threats to democratic institutions,

escalation of crisis or armed conflict, where human security is most at risk or where

human rights organisations and defenders, mediators and other civil society actors

involved in crisis and armed conflict related dialogue, reconciliation and

peacebuilding operate under the most difficult conditions; such grants shall not

exceed EUR 1 000 000 and their duration shall not exceed 18 months, which may be

EN 35 EN

extended by a further 12 months in the event of objective and unforeseen obstacles to

their implementation;

(c) grants to the Global Campus of Human Rights;

(d) low value grants to civil society organisations using, to the extent possible,

simplified forms of funding in accordance with Article 125 of Regulation (EU,

Euratom) 2024/2509.

(e) where necessary and duly justified in the action plans and measures referred to in

Article 18, grants to legal entities governed by private law which are effectively

established in a Member State to facilitate investments that are in the strategic

interest of the Union and support the objectives of the Instrument.

5. In areas pertaining to the protection of human rights and democracy and support to civil

society actors, the Union may provide assistance independently of the consent of governments

and other public authorities of the partner countries concerned; those actions shall mainly

support civil society actors, taking into account forms and methods of implementation, as

referred to in paragraph 4 of this Article.

6. Budget support, including through sector reform performance contracts, shall be based on

country ownership, mutual accountability and the commitment of partner countries, taking

into account their record and progress with regard to universal values, democracy, human

rights and the rule of law, and aims to strengthen partnerships between the Union and partner

countries. It shall include reinforced policy dialogue, capacity building and improved

governance, complementing partners’ efforts to collect more and to spend better in order to

support sustainable, inclusive growth and decent job creation, including for young people

poverty eradication, inequality reduction, and to build and consolidate democracies and

peaceful societies. Budget support shall also contribute to gender equality.

Any decision to provide budget support shall be based on budget support policies agreed by

the Union, a clear set of eligibility criteria and a careful assessment of the risks and benefits.

Budget support shall be differentiated in such a way as to respond better to the political,

economic, social and environmental context of the partner country, taking into account

situations of fragility.

When providing budget support in accordance with Article 241 of Regulation (EU, Euratom)

2024/2509, the Commission shall clearly define and monitor criteria for budget support

conditionality, including progress in reforms and transparency, and shall support the

development of parliamentary control, national audit capacities and increased transparency

and public access to information.

Disbursement of the budget support shall be based on indicators demonstrating satisfactory

progress being made towards achieving the objectives agreed with the partner country.

6. In accordance with Article 196 (2), second subparagraph, point (a), of Regulation (EU,

Euratom) 2024/2509, in duly justified cases specified in the action plans and measures

referred to in Article 18, activities supported under the Instrument and the underlying costs

incurred in 2028 may be considered eligible as of 1 January 2028, even if those activities were

implemented and those costs were incurred before the grant application was submitted.

7. Implementation of actions in indirect management, including through financial instruments,

budgetary guarantees and blending operations under the Instrument shall be entrusted

whenever possible and in accordance with Article 157(1), first subparagraph of Regulation

(EU, Euratom) 2024/2509, to the EIB, the EBRD, or a Member State organisation, possibly

EN 36 EN

combined with additional other forms of financial support, both from Member States and third

parties.

8. Taxes, duties and charges incurred when implementing Union funds under this Regulation,

imposed by partner countries, may be eligible for financing under the Instrument, under the

conditions laid down in Regulation (EU, Euratom) 2024/2509, with the exception of taxes,

duties and charges specifically targeting external action financing.

9. For the purposes of Article 153(3) of Regulation (EU, Euratom) 2024/2509, the evaluation

committee may be composed partially or fully of external experts.

10. In the case of indirect management with partner countries, bodies they have designated or

partner countries’ organisations or bodies at regional or global level where the Commission

retains financial management responsibilities in accordance with Article 157(7), second

subparagraph, point (a), of Regulation (EU, Euratom) 2024/2509, the Commission shall,

where necessary and without prejudice to the responsibilities of the contracting authorities,

recover amounts due from the contracting authorities' recipients in accordance with Articles

101 to 106 of Regulation (EU, Euratom) 2024/2509 with the exception of Article 101(7), (8)

and (9) thereof, including by means of a decision enforceable under the same conditions as

those laid down in Article 299 TFEU. The financing agreement shall contain provisions to

that end.

Where such partner country, the body the partner country has designated or the partner

countries’ organisation or body at regional or global level fails to fulfil its budget

implementation tasks or the obligations, principles, objectives and rules which condition the

exercise of the indirect management, the Commission may take any steps that are necessary,

including temporarily or definitively take the entity’s place and act in the name and on behalf

of the former in indirect management. In such a case, the Commission may receive, from the

resources allocated to the partner country in question, financial compensation for the

additional administrative workload incurred.

11. Joint procurement within the meaning of Article 168 of Regulation (EU, Euratom)

2024/2509 financed under this Regulation, may be conducted with any partner country.

12. Cooperation between the Union and its partners may include participation in structures set

up for concerting programming with other donors, or for governing the implementation of

actions, as well as entering into joint declarations or statements for the purpose of enhancing

the visibility of the Union’s contribution and ensuring effective budget implementation and

coordination, as well as financing agreements concluded with partner countries’ organisations

or bodies at regional or global level.

Article 24 - Budgetary guarantees and financial assistance: maximum Union support,

financing and borrowings

1. The Union may provide support in the form of a budgetary guarantee up to a maximum

amount of EUR 95 000 000 000 in current prices. The amounts of financial assistance

implemented as macro-financial assistance in the form of loans and as policy-based loans

referred to in Article 23(2) as well as the amounts of the loans provided under Regulation

(Euratom) [XXX] (INSC-D) shall reduce the maximum amount of the budgetary guarantee.

2. The provisioning rate for the budgetary guarantee and financial assistance referred to in

paragraph 1 shall range between 9 % and 50 % depending on the type of operations. The

provisioning rate shall be 9% for the financial assistance and for budgetary guarantee

covering sovereign risks associated with lending operations.

EN 37 EN

3. The Union support to Ukraine in the form of budgetary guarantee and financial assistance

shall not count toward the maximum amount referred to in paragraph 1 of this Article.

The Union may provide support to Ukraine in the form of a budgetary guarantee up to EUR

48 000 000 000 in current prices. The provisioning rate for the budgetary guarantee to

guarantee operations supporting Ukraine shall initially be set at 70 %.

No provisioning shall be constituted and, by way of derogation from Article 214(1) of

Regulation (EU, Euratom) 2024/2509, no provisioning rate shall be set for the loans to

Ukraine.

4. The Commission shall review the provisioning rates under paragraphs 2 and 3 of this

Article every year in accordance with the assessment referred to in Article 41(5), point (g), of

Regulation (EU, Euratom) 2024/2509 and in line with the Commission’s risk management

framework.

5. The Commission is empowered to adopt delegated acts in accordance with Article 30 to

amend paragraphs 2 and 3 of this Article in order to adjust the provisioning rates therein, and

to increase the maximum amounts referred to in paragraphs 1 and 3 of this Article by up to

20% and 30% of those amounts respectively.

6. Without prejudice to Article 6(7), specific contributions to the budgetary guarantee,

financial instruments or financial assistance may be made by Member States, partner

countries and other third parties in accordance with Articles 211(2) and 221(2) of Regulation

(EU, Euratom) 2024/2509. Such contributions to the budgetary guarantee or financial

assistance shall result in an additional amount of the budgetary guarantee or financial

assistance.

7. Where contributions referred to in paragraph 6 are made in the form of cash, they shall

constitute external assigned revenue within the meaning of Article 21(2), points (a), (d) and

(e), and Article 21(5) of Regulation (EU, Euratom) 2024/2509.

8. The budgetary guarantee established in accordance with paragraphs 1 and 3 of this Article

may be used, within the maximum amounts referred to in paragraphs 1 and 3 of this Article,

to provide support under Council Decision (EU) 2021/1764 and Regulation (Euratom) [XXX]

(INSC-D), in accordance with the objectives and eligibility criteria set out in those

programmes. For that purpose, the provisioning shall be financed from the financial envelopes

of those other Union programmes.

9. The amounts referred to in Article 6(1), point (a) to (e) shall be used for the provisioning of

the budgetary guarantee and financial assistance referred to in paragraph 1 of this Article. The

provisioning of the Union support to Ukraine in the form of budgetary guarantee referred to in

paragraph 3 shall be financed by the financial resources made available in accordance with

Article 6 of Regulation Council Regulation [(EU, Euratom) 20XX/XXX * [MFF Regulation]

referred to in Article 6(2), including where the budgetary guarantee is provided for activities

under Regulation (Euratom) [XXX] (INSC-D).

10. The provisioning referred to in paragraphs 8 and 9 of this Article shall not be committed

later than at the end of the last year of the multiannual financial framework.

11. In accordance with Article 214(2) of Regulation (EU, Euratom) 2024/2509, the

provisioning referred to in paragraphs 8 and 9 of this Article shall be constituted until three

years after the end of the multiannual financial framework and shall take into account the

progress in the approval and signature of the financing and investment operations or in the

disbursement of the financial assistance as well as the risk profile of the operations.

EN 38 EN

12. The Commission shall be empowered on behalf of the Union to borrow the necessary

funds to implement financial assistance provided under this Regulation. The Commission

shall borrow the funds on the capital markets or from financial institutions in accordance with

Article 224 of Regulation (EU, Euratom) 2024/2509.

Article 25 - Implementation of the budgetary guarantee and financial instruments

1. The budgetary guarantee shall be used to guarantee counterparts’ sovereign, sub-sovereign

and private operations.

2. Where partner countries contribute to financial instruments or the budgetary guarantee,

eligible implementing entities or counterparts from the countries concerned may also be

eligible implementing entities or counterparts. By way of derogation from Article 211(5),

third subparagraph of Regulation (EU, Euratom) 2024/2509, eligible implementing entities or

counterparts from partner countries benefitting from the budgetary guarantee or financial

instruments may also be eligible.

3. By way of derogation from Article 62(1), first subparagraph, point (c), and Article 211(5)

of Regulation (EU, Euratom) 2024/2509, where financial instruments or the budgetary

guarantee are implemented in indirect management, bodies which provide adequate assurance

of their financial capacity and governed by private law of a Member State, a partner country

benefitting from the financial instruments or the budgetary guarantee, or a partner country

which has contributed to the financial instruments or the budgetary guarantee shall be eligible.

4. The Commission shall ensure the effective, efficient and fair use of available resources

among eligible implementing entities and counterparts, including small and medium-sized

counterparts, while promoting cooperation between them and taking due account of their

capacities, added value and experience.

5. In order to ensure complementarity, the Commission may request any relevant information

from counterparts about their operations not covered by the budgetary guarantee referred to in

Article 24.

6. A Global Europe Investment Board (the ‘Investment Board’) shall provide strategic and

operational guidance to the Commission in the implementation of the budgetary guarantee

referred to in Article 24 and blending. The Investment Board shall adopt its rules of

procedure. The Investment Board shall meet at least once a year and, when possible, adopt

opinions by consensus.

The Investment Board shall be composed of representatives of the Commission and of the

High Representative, of all Member States and of the EIB. The European Parliament shall

have observer status. Contributors, eligible implementing entities and counterparts, partner

countries, relevant regional organisations and other stakeholders may be given observer

status, where appropriate. The Investment Board shall be co-chaired by the Commission and

the High Representative.

Article 26 - Implementation of policy-based loans

1. The Commission shall adopt decisions, by means of implementing acts, making available

the policy-based loan amount to a partner country and setting out the availability period of the

loan which shall not go beyond three years after the end of the multiannual financial

framework. Those implementing acts shall be adopted in accordance with the examination

procedure referred to in Article 32(2). If that decision is part of an action plan or measure,

Articles 18 and 19 shall apply.

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2. In addition to the elements laid down in Article 223(4) of Regulation (EU, Euratom)

2024/2509, loan agreements for policy-based loans shall lay down the maximum loan amount,

the availability period, the maximum duration of each disbursement of the loan and the

detailed terms and conditions of the support. Such agreements may also contain an amount of

pre-financing and rules on clearing of pre-financing.

Article 27 – Capital participation in development finance institutions

The amounts referred to in Article 6(1), points (a) to (e), may be used to contribute to the

capital endowment of European and other development finance institutions.

Article 28 – Cross-Border Cooperation

1. Cross-border cooperation shall cover cooperation along external adjacent land and

maritime borders, transnational cooperation over larger transnational territories or around sea-

basins, as well as interregional cooperation.

2. The pillars referred to in Article 3(1), points (a) and (b) may contribute to cross-border

cooperation programmes referred to in paragraph 1 of this Article co-financed by the

Regulation (EU, Euratom) [XXX] of the European Parliament and Council [National and

Regional Partnerships Regulation]. Up to 3% of the financial envelope for the pillars referred

to in Article 3(1), point (a) may be indicatively allocated to support those programmes.

3. Contributions to cross-border cooperation programmes shall be determined and used

pursuant to Article XX {Cross-fund provisions – external CBC programmes} of the

Regulation (EU, Euratom) [XXX] [National and Regional Partnerships].

TITLE III – FINAL PROVISIONS

Article 29 – Extension of geographic scope

1. In duly justified cases and where the action to be implemented is of a global, trans-regional

or regional nature, the Commission may decide, within the relevant multiannual indicative

programmes or within the relevant action plans or measures to extend the scope of actions to

overseas countries and territories linked to a Member State as set out in Annex II to the TFEU

in order to ensure the coherence and effectiveness of Union financing or to foster regional or

trans-regional cooperation.

2. The Commission may include a specific financial allocation to assist partner countries and

regions to strengthen their cooperation with neighbouring Union outermost regions and with

overseas countries and territories linked to a Member State as set out in Annex II to the

TFEU. To that end, the Instrument, may contribute, where appropriate and on the basis of

reciprocity and proportionality as regards the level of funding from the Council Decision (EU)

2021/1764 or the Regulation (EU, Euratom) [XXX] [National and Regional Partnerships] , to

actions implemented by a partner country or region or any other entity under this Regulation,

or by a country, territory or any other entity under the Council Decision (EU) 2021/1764 or

by a Union outermost region in the frame of joint operational programmes or to interregional

cooperation programmes or measures established and implemented under Regulation (EU,

Euratom) [XXX] [National and Regional Partnerships].

EN 40 EN

Article 30 – Exercise of the delegation

1. The power to adopt delegated acts is conferred on the Commission subject to the conditions

laid down in this Article.

2. The power to adopt delegated acts to amend Article 6(5), Article 24(1), (2) and (3) and

Annex II shall be conferred on the Commission for the period of validity of this Regulation.

3. The delegation of power referred to in this Article may be revoked at any time by the

European Parliament or by the Council. A decision to revoke shall put an end to the

delegation of power specified in that decision. It shall take effect the day following the

publication of the decision in the Official Journal of the European Union or at a later date

specified therein. It shall not affect the validity of any delegated acts already in force.

4. Before adopting a delegated act, the Commission shall consult experts designated by each

Member State in accordance with the principles laid down in the Interinstitutional Agreement

of 13 April 2016 on Better Law-Making.

5. As soon as it adopts a delegated act, the Commission shall notify it simultaneously to the

European Parliament and to the Council.

6. A delegated act adopted pursuant to this Article shall enter into force only if no objection

has been expressed either by the European Parliament or to the Council within a period of two

months of notification of that act to the European Parliament and to the Council or if, before

the expiry of that period, the European Parliament and the Council have both informed the

Commission that they will not object. That period shall be extended by two months at the

initiative of the European Parliament or of the Council.

Article 31 – Adoption of further implementing rules for the Europe pillar

For Enlargement and Neighbourhood East partners in the pillar referred to in Article 3(1),

point (a), the Commission shall adopt an implementing act establishing uniform conditions

for implementing this Regulation, in relation to the design and content of the performance-

based plans, performance, structures and control systems to be set up in preparation of

accession, also in the context of the management of structural, agricultural and cross-border

cooperation funds. This implementing act shall be adopted in accordance with the

examination procedure referred to in Article 32(2).

Article 32 – Committee procedure

1. The Commission shall be assisted by a committee. That committee shall be a committee

within the meaning of Regulation (EU) No 182/2011. The committee may convene in

different formats.

2. Where reference is made to this paragraph, Article 5 of Regulation (EU) No 182/2011 shall

apply.

3. The rules of procedure of the committee shall provide for proportionate time limits

allowing committee members early and effective opportunities to examine the draft

implementing acts and express their views, in accordance with Article 3 of Regulation (EU)

No 182/2011.

4. Where the opinion of the committee is to be obtained by a written procedure, that

procedure shall be terminated without result when, within the time-limit for delivery of the

opinion, the chair of the committee so decides or a simple majority of committee members so

requests.

EN 41 EN

5. Where reference is made to this paragraph, Article 8 of Regulation (EU) No 182/2011, in

conjunction with Article 5 thereof, shall apply.

6. The adopted decision shall remain in force for the duration of the adopted or modified

document, action plan or measure.

7. When relevant, an observer from the EIB shall be invited to attend the meetings of the

Committee with regard to questions concerning the EIB.

8. Member States may request the examination of any other matter concerning the

implementation of the Instrument.

Article 33 – European External Action Service clause

This Regulation shall be applied in accordance with Decision 2010/427/EU, in particular

Articles 3 and 9 thereof.

Article 34 – Repeal and transitional provisions

1. Regulations (EU) 2021/947, (EU) 2021/1529, (EU) 2024/792, (EU) 2024/1449 and (EU)

2025/535 are repealed with effect from [1 January 2028].

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

pursuant to Regulations (EC) No 1085/200670, Regulation (EU) No 231/201471, Regulation

(EU) 2021/1529, Regulation (EU) 2021/947, Regulation (EU) 2024/792, Regulation (EU)

2024/1449, and Regulation (EU) 2025/535, which shall continue to apply to those actions

until their closure. However, Article 23 of this Regulation shall apply to actions under

Regulation (EU) 2021/1529 and Regulation (EU) 2021/947 instead of Articles 26 and 27 of

Regulation (EU) 2021/947.

3. The financial envelope for the Instrument may also cover technical and administrative

assistance expenditures necessary to ensure the transition between this Regulation and the

measures adopted under Regulations (EU) 2021/947, (EU) 2021/1529, (EU) 2024/1449.

4. The financial envelope for the Instrument may cover activities related to the preparation of

any future related Regulation.

5. If necessary, appropriations may be entered in the budget beyond 2034 to cover the

expenditures provided for in Article 6(4), to enable the management of actions not completed

by 31 December 2034.

6. The financial envelopes referred to in Article 6(1), point (a) to (e) and the financial

resources made available in accordance with Article 6 of Council Regulation [(EU, Euratom)

20XX/XXX * [MFF Regulation] referred to in Article 6(2) may finance the replenishment of

the provisioning of the budgetary guarantees authorised under Regulation (EU) 2017/1601

and Regulation (EU) 2024/792, of the budgetary guarantees and financial assistance

authorised under Regulation (EU) 2021/947 and under basic acts whose provisioning is

governed by Regulation (EC, Euratom) No 480/2009, as well as financial assistance

authorised under Regulation (EU) 2024/1449 and under Regulation (EU) 2025/535.

70 Council Regulation (EC) No 1085/2006 of 17 July 2006 establishing an Instrument for Pre-Accession

Assistance (IPA) (OJ L 210, 31.7.2006, p. 82–93, ELI: http://data.europa.eu/eli/reg/2006/1085/oj). 71 Regulation (EU) No 231/2014 of the European Parliament and of the Council of 11 March 2014

establishing an Instrument for Pre-accession Assistance (IPA II) (OJ L 77, 15.3.2014, p. 11–26, ELI:

http://data.europa.eu/eli/reg/2014/231/oj).

EN 42 EN

Article 35 – Entry into force and application

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

the European Union.

It shall apply from 1 January 2028.

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

Done at Brussels,

For the European Parliament For the Council

The President The President

EN 1 EN

LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT

1. FRAMEWORK OF THE PROPOSAL/INITIATIVE ................................................. 3

1.1. Title of the proposal/initiative ...................................................................................... 3

1.2. Policy area(s) concerned .............................................................................................. 3

1.3. Objective(s) .................................................................................................................. 3

1.3.1. General objective(s) ..................................................................................................... 3

1.3.2. Specific objective(s) ..................................................................................................... 3

1.3.3. Expected result(s) and impact ...................................................................................... 3

1.3.4. Indicators of performance ............................................................................................ 3

1.4. The proposal/initiative relates to: ................................................................................. 4

1.5. Grounds for the proposal/initiative .............................................................................. 4

1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for

roll-out of the implementation of the initiative ............................................................ 4

1.5.2. Added value of EU involvement (it may result from different factors, e.g.

coordination gains, legal certainty, greater effectiveness or complementarities). For

the purposes of this section 'added value of EU involvement' is the value resulting

from EU action, that is additional to the value that would have been otherwise

created by Member States alone. ................................................................................. 4

1.5.3. Lessons learned from similar experiences in the past .................................................. 4

1.5.4. Compatibility with the multiannual financial framework and possible synergies with

other appropriate instruments ....................................................................................... 5

1.5.5. Assessment of the different available financing options, including scope for

redeployment ................................................................................................................ 5

1.6. Duration of the proposal/initiative and of its financial impact .................................... 6

1.7. Method(s) of budget implementation planned ............................................................. 6

2. MANAGEMENT MEASURES................................................................................... 8

2.1. Monitoring and reporting rules .................................................................................... 8

2.2. Management and control system(s) ............................................................................. 8

2.2.1. Justification of the budget implementation method(s), the funding implementation

mechanism(s), the payment modalities and the control strategy proposed .................. 8

2.2.2. Information concerning the risks identified and the internal control system(s) set up

to mitigate them............................................................................................................ 8

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between

the control costs and the value of the related funds managed), and assessment of the

expected levels of risk of error (at payment & at closure) ........................................... 8

2.3. Measures to prevent fraud and irregularities ................................................................ 9

3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE ............ 10

3.1. Heading(s) of the multiannual financial framework and expenditure budget line(s)

affected ....................................................................................................................... 10

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3.2. Estimated financial impact of the proposal on appropriations ................................... 12

3.2.1. Summary of estimated impact on operational appropriations.................................... 12

3.2.1.1. Appropriations from voted budget ............................................................................. 12

3.2.1.2. Appropriations from external assigned revenues ....................................................... 17

3.2.2. Estimated output funded from operational appropriations......................................... 22

3.2.3. Summary of estimated impact on administrative appropriations ............................... 24

3.2.3.1. Appropriations from voted budget .............................................................................. 24

3.2.3.2. Appropriations from external assigned revenues ....................................................... 24

3.2.3.3. Total appropriations ................................................................................................... 24

3.2.4. Estimated requirements of human resources.............................................................. 25

3.2.4.1. Financed from voted budget....................................................................................... 25

3.2.4.2. Financed from external assigned revenues ................................................................ 26

3.2.4.3. Total requirements of human resources ..................................................................... 26

3.2.5. Overview of estimated impact on digital technology-related investments ................ 28

3.2.6. Compatibility with the current multiannual financial framework.............................. 28

3.2.7. Third-party contributions ........................................................................................... 28

3.3. Estimated impact on revenue ..................................................................................... 29

4. DIGITAL DIMENSIONS .......................................................................................... 29

4.1. Requirements of digital relevance .............................................................................. 30

4.2. Data ............................................................................................................................ 30

4.3. Digital solutions ......................................................................................................... 31

4.4. Interoperability assessment ........................................................................................ 31

4.5. Measures to support digital implementation .............................................................. 32

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1. FRAMEWORK OF THE PROPOSAL/INITIATIVE

1.1. Title of the proposal/initiative

Global Europe

1.2. Policy area(s) concerned

External Action

1.3. Objective(s)

1.3.1. General objective(s)

The general objective of the proposed Instrument, Global Europe, is to uphold and

promote the Union’s values, principles and interests worldwide in order to pursue the

objectives and principles of the Union’s external action, as laid down in Article 3(5),

Articles 8 and 21 of the Treaty on European Union (TEU).

1.3.2. Specific objective(s)

The specific objectives of the Instrument are spelt out in Annex II.

1.3.3. Expected result(s) and impact

Specify the effects which the proposal/initiative should have on the beneficiaries/groups targeted.

Global Europe will contribute to the objectives of the EU’s external action, by

promoting mutually beneficial partnerships with third countries, contributing

simultaneously to the sustainable development of third countries and to the Union’s

strategic interests. Global Europe will also allow the Union to be better positioned to

address global challenges.

1.3.4. Indicators of performance

Specify the indicators for monitoring progress and achievements.

The output and result indicators for the purpose of monitoring progress and

achievements of this programme will correspond to the common indicators provided

under Regulation (EU, Euratom) [XXX] [Performance Regulation].

1.4. The proposal/initiative relates to:

 a new action

 a new action following a pilot project / preparatory action72

 the extension of an existing action

 a merger or redirection of one or more actions towards another/a new action

1.5. Grounds for the proposal/initiative

1.5.1. Requirement(s) to be met in the short or long term including a detailed timeline for

roll-out of the implementation of the initiative

The objective of the proposed Instrument, Global Europe, is to uphold and promote

the Union’s values, principles and interests worldwide in order to pursue the

72 As referred to in Article 58(2), point (a) or (b) of the Financial Regulation.

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objectives and principles of the Union’s external action, as laid down in Article 3(5),

Articles 8 and 21 of the Treaty on European Union (TEU).

Global Europe will contribute to the objectives of the EU’s external action, by

promoting mutually beneficial partnerships with third countries, contributing

simultaneously to the sustainable development of third countries and to the Union’s

strategic interests. Global Europe will also allow the Union to be better positioned to

address global challenges.

1.5.2. Added value of EU involvement (it may result from different factors, e.g.

coordination gains, legal certainty, greater effectiveness or complementarities). For

the purposes of this section 'added value of EU involvement' is the value resulting

from EU action, that is additional to the value that would have been otherwise

created by Member States alone.

Reasons for action at EU level (ex-ante)

The international landscape has changed significantly over the last years, appearing

far less predictable and stable. Russia's war of aggression against Ukraine, including

its global impact, instability and conflict in the Middle East, pandemics, trade

tensions, economic coercion, competition on technology and access to critical raw

materials and the US administration’s disengagement from development cooperation,

humanitarian aid and multilateral institutions represent significant geopolitical and

geoeconomic challenges both for the EU and partner countries. Furthermore, the gap

to reach the Sustainable Development Goals (SDGs) by 2030 continues to widen,

global fragility is on the rise, and the impacts of climate change and biodiversity loss

continue to increase. These challenges require the EU to continue adapting its

external action financing.

EU’s external action financing seeks to partner with third countries, as well as

promote multilateral solutions to global challenges. It enables the EU to defend its

interests, to promote its values and standards, to support the objectives of its internal

policies, ensure its security and protect its citizens. The mid-term evaluation of EU's

External Financing Instruments for the 2021 - 2027 multiannual financial framework

confirmed the added value that the External Financing Instruments bring to EU’s

external relations, as they provide a more integrated and sizable offer to partner

countries, improving their capacity to address shared priorities with the EU and

contributing to sustainable development.

As a party to most multilateral processes, the EU can engage with multilateral and

regional partners in key policy areas. Compared to its Member States acting

separately, the EU, together with Member States, can achieve greater impact by

coordinating common positions and speaking with a stronger voice. As a world’s

leading proponent and defender of multilateral and rule-based global governance

system, the EU has credibility as an honest broker and defender of core international

human rights instruments. This leverage in multilateral and regional fora also enables

the Union to project globally its policies and values, as well as influence the shaping

of global norms and regulatory standards. The EU’s financial commitment is an

integral part of the overall engagement in several multilateral agreements (e.g.

climate and biodiversity).

Through the increased use of budgetary guarantees and blending operations, the EU

incentivises and pools together public and private investments, including to the

benefit of countries and sectors having difficult access to financial markets. Finally,

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the EU triggers collaboration among development financial institutions. Macro-

financial assistance provides much needed financing for countries experiencing

balance of payments crises, with favourable conditions.

Expected generated EU added value (ex-post)

The expected added value generated by Global Europe should follow on from the

findings of the mid-term evaluation of EU's External Financing Instruments for the

2021 - 2027 Multiannual Financial Framework. Global Europe should allow to

consolidate and streamline external action financing, enabling the Union to protect

its interests abroad and adapt to evolving circumstances and needs. The Union shall

strive to ensure policy coherence, taking into account the impact of all internal and

external policies and promoting increased synergies and complementarities.

Global Europe shall provide all the tools for the EU to effectively operate in its

external action. The readiness of this toolbox will ensure that the most appropriate

tools are deployed in every circumstance depending on the objectives and the

situation on the ground, with the possibility to adapt to evolving contexts.

This will harness the potential of mutually beneficial partnerships packages targeted

for individual partner countries.

1.5.3. Lessons learned from similar experiences in the past

The mid-term evaluation on the EU’s external financing instruments confirms that

the current instruments are largely fit for purpose. The evaluation corroborates that

NDICI-Global Europe is on track to deliver against the objectives it was expected to

fulfil at the time of its adoption. Moreover, the objectives of NDICI-Global Europe

continue to be relevant and the instrument effectively serves the roll-out the Global

Gateway strategy. In a similar vein, the mid-term evaluation shows that IPA III has

demonstrated its general effectiveness as a pre-accession instrument and is likewise

on track to meet its objectives. The instrument is aligned with the enlargement

methodology and mirrors EU policy developments, such as the focus on green,

digital and economic priorities.

However, following years of instability in the EU’s neighbourhood and beyond, the

geopolitical stakes for the EU are far higher than when the 2021-2027 MFF was

adopted. The EU operates in a highly volatile and unpredictable environment,

characterised by geopolitical rivalry, geoeconomic competition, strategic

dependencies, competitiveness challenges, the worsening triple planetary crisis of

climate change, biodiversity loss and pollution, and increasing global fragility. This

changing geopolitical landscape and a string of poly-crises have exposed some

architectural weaknesses in the design of the external financing instruments.

Simultaneously, the link between EU external and internal policies has become

increasingly relevant and is currently not sufficiently catered for – neither in the

external nor in the internal financing instruments - and the interplay of external and

internal financing instruments is sub-optimal.

As a result, while current external financing instruments are effective in delivering

on their expected results, the changing geopolitical landscape and the era of poly-

crises have exposed some architectural weaknesses in their design. Partner country,

regional and global contexts evolve rapidly while the split between stand-alone pre-

programmed and pre-earmarked instruments is not conducive to swift adaptation.

Different strands of external action financing are currently fragmented into different

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financing instruments. The financial and operational barriers between different

instruments hamper synergic approaches at the regional level (i.e. humanitarian-

development-peace nexus), flexibility in reacting to evolving priorities and interplay

between the Enlargement and Neighbourhood policies. There are therefore gains to

be made, in terms of overall synergy and flexibility, in ensuring a common source of

funding for most of the Union external action instruments, while preserving the

capacity of the Union to conduct a principled humanitarian aid policy under Article

214 TFEU. While the budget to finance the Union’s humanitarian aid operations

should be made available under this Instrument, such operations should therefore

continue to be implemented in accordance with Council Regulation (EC) No

1257/96.

Lastly, the Communication on ‘the road to the next multiannual financial framework’

strives for external action financing that is better aligned with the EU’s strategic

interests. However, the existing toolbox (intervention modalities) is not sufficient to

advance them.

1.5.4. Compatibility with the multiannual financial framework and possible synergies with

other appropriate instruments

When implementing this Regulation, consistency with other areas of external action

and with other relevant EU policies will be ensured, together with policy coherence

for development. As incorporated in the 2030 Agenda, this means taking into

account the impact of all policies on sustainable development at all levels —

nationally, within the EU, in other countries and at global level.

The Regulation is enabling in nature, which allows it to cater for different policy

objectives in synergy with other Union policies. Moreover, synergies with actions

under other EU programmes should be sought, in order to maximise the impact of

combined interventions. In particular, articulation with the European

Competitiveness Fund will be crucial to take various work streams (e.g. critical raw

materials and related value chains, economic security and the Clean Industrial Deal)

to the next level. Synergies with the Union’s strategic interests is strenghtened also

by the updated toolbox. Finally, the implementation of this Regulation will be

monitored and evaluated through the performance framework for the post-2027

MFF, ensuring increased coherence between different Union programmes in

monitoring and evaluation.

1.5.5. Assessment of the different available financing options, including scope for

redeployment

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1.6. Duration of the proposal/initiative and of its financial impact

 limited duration

–  in effect from [DD/MM]YYYY to [DD/MM]YYYY

–  financial impact from YYYY to YYYY for commitment appropriations and

from YYYY to YYYY for payment appropriations.

 unlimited duration

– Implementation with a start-up period from YYYY to YYYY,

– followed by full-scale operation.

1.7. Method(s) of budget implementation planned

 Direct management by the Commission

–  by its departments, including by its staff in the Union delegations;

–  by the executive agencies

 Shared management with the Member States

 Indirect management by entrusting budget implementation tasks to:

–  third countries or the bodies they have designated

–  international organisations and their agencies (to be specified)

–  the European Investment Bank and the European Investment Fund

–  bodies referred to in Articles 70 and 71 of the Financial Regulation

–  public law bodies

–  bodies governed by private law with a public service mission to the extent that

they are provided with adequate financial guarantees

–  bodies governed by the private law of a Member State that are entrusted with

the implementation of a public-private partnership and that are provided with

adequate financial guarantees

–  bodies or persons entrusted with the implementation of specific actions in the

common foreign and security policy pursuant to Title V of the Treaty on

European Union, and identified in the relevant basic act

– bodies established in a Member State, governed by the private law of a

Member State or Union law and eligible to be entrusted, in accordance with

sector-specific rules, with the implementation of Union funds or budgetary

guarantees, to the extent that such bodies are controlled by public law bodies or

by bodies governed by private law with a public service mission, and are provided

with adequate financial guarantees in the form of joint and several liability by the

controlling bodies or equivalent financial guarantees and which may be, for each

action, limited to the maximum amount of the Union support.

Comments

External expenditure requires the ability to use all foreseen management modes as relevant

and decided during the implementation.

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MANAGEMENT MEASURES

2.1. Monitoring and reporting rules

An implementation report will be published by the Commission no later than four

years after the start of the programme’s implementation, in order to assess the

progress made towards the achievement of their objectives, in line with Regulation

(EU, Euratom) [XXX] [Performance Regulation]. A retrospective evaluation will be

carried out by the Commission at the latest three years after the end of the MFF

period with a view to assessing the effectiveness, efficiency, relevance, coherence

and Union added value of the programme.

2.2. Management and control system(s)

2.2.1. Justification of the budget implementation method(s), the funding implementation

mechanism(s), the payment modalities and the control strategy proposed

Budget implementation methods

Regarding the management modes, there are no fundamental changes foreseen and

the experience acquired by the Commission services and implementing actors under

the predecessor programmes will contribute to better results in the future.

The actions to be financed under this Regulation will be implemented under direct

management by the Commission from headquarters and/or through the Union

delegations and under indirect management by any of the entities listed in article

62(1)(c) of the Financial Regulation in order to better achieve the objectives of the

Regulation.

Concerning indirect management, as stated in Article 157 of the Financial

Regulation, the Commission must ensure a level of protection of the EU’s financial

interests equivalent to the one under direct management. An ex ante pillar assessment

of the entities' systems and procedures will be carried out, in accordance with the

principle of proportionality and with due consideration for the nature of the action

and the financial risks involved. Where the implementation requires so or there have

been reservations expressed in Annual Activities Reports, action plans with specific

mitigation measures will be defined and implemented. Additionally, appropriate

supervisory measures imposed by the Commission may accompany the

implementation.

Budget support will also be used.

Innovative financial instruments including in partnership with the European

Investment Bank (EIB), Member States’ financial institutions and other international

financial institutions will be used for blending activities. The possibility to use trust

funds continues to be enabled by the Financial Regulation.

The internal control and management process is designed to provide reasonable

assurance regarding the achievement of objectives in the effectiveness and efficiency

of the operations, the reliability of the financial reporting and compliance with the

relevant legislative and procedural framework.

Effectiveness and efficiency

To ensure the effectiveness and efficiency of the operations (and to mitigate the high

level of risk in the external assistance environment), in addition to all the elements of

the Commission wide strategic policy and planning process, internal audit

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environment and other requirements of the Commission's Internal Control

Framework, the implementing services will continue to have a tailored aid

management framework in operation under all the instruments which will include:

– A devolved management of the majority of external assistance by Union

delegations in the field.

– Clear and formalised lines of financial accountability (from the Delegated

Authorising officer (Director General)) by means of a sub-delegation from the Sub-

delegated Authorising Officer (Director) at headquarters to the Head of Delegation;

– Regular reporting from Union Delegations to Headquarters, including an annual

Statement of Assurance by the Head of Delegation;

– Provision of a substantial programme of training for staff both at headquarters and

in delegations,

– Significant Headquarters/Delegation support and guidance (including via

internet);

– Regular supervision missions to Delegations every 3 to 6 years;

– A project and programme cycle management methodology including: quality

support tools for the design of the intervention, the delivery method, financing

mechanism, management system, assessment and selection of any implementing

partners, etc.; programme and project management, monitoring and reporting tools

for effective implementation including regular external on-the-spot monitoring of

projects; and significant evaluation and audit components. Simplifications will be

sought by extending, where appropriate and feasible, the use of simplified cost

options. There will be a continuation of a risk-differentiated controls approach in

accordance with the underlying risks.

Financial Reporting and Accounting

The implementing services will continue to pursue the highest standards of

accounting and financial reporting using the Commission's corporate financial

system (SUMMA) as well as external aid specific tools such OPSYS.

In relation to compliance with the relevant legislative and procedural framework,

compliance control methods are set out in section 2.3 (measures to prevent fraud and

irregularities).

2.2.2. Information concerning the risks identified and the internal control system(s) set up

to mitigate them

The operational environment of cooperation under this instrument is characterised by

the risks of not achieving the instrument's objectives, sub-optimal financial

management and/or of not complying with the applicable rules (legality and

regularity errors) related to:

– Economic and political instability and natural disasters and extreme climatic

events that may lead to difficulties and delays in the design and implementation

of interventions, particularly in fragile states;

– limited institutional and administrative capacity in partner countries that may

lead to difficulties and delays in the design and implementation of

interventions;

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– geographically dispersed interventions (covering approximately many states,

territories and regions) may pose logistical and resource challenges to

monitoring - particularly any 'on-the-spot' follow-up of activities;

– diversity of potential partners or beneficiaries with their diverse internal control

structures and capacities can fragment and therefore reduce the effectiveness

and efficiency of the Commission's available resources to support and monitor

implementation;

– limited availability of qualititative and quantitative data on the outcomes and

impact of external assistance implementation in partner countries may hinder

the Commission's ability to report on and be accountable for results.

In order to deal with the risk of financial errors, the Commission will perform the

appropriate ex ante and ex post controls. When possible and applicable the

performance of systems audits will work as a tool to identify root causes of errors in

the entities’ control systems and trigger the necessary mitigating measures.

Moreover, to strengthen its effectiveness in preventing errors, management

deficiencies and irregulairies, the Commission is setting up a system for an ongoing

targeted risk assessment at contract and at entity level. Key factors increasing the

likelihood of a high error rate and a negative impact on sound financial management,

in particular linked also to historical data of previous controls and monitoring haven

been identified and aggregated in a risk profiling dashboard. The dashboard will

provide an important tool to target more effectively future controls, monitoring

efforts and other means of mitigation to sensibly reduce the risks of errors,

management deficiencies and irregularities.

Given the high risk environment, the systems need to anticipate a significant

occurrence of potential compliance errors in transactions and build in a high level of

prevention, detection and correction controls as early as possible, before or during, in

the payment process. This means in practice that compliance controls will place most

reliance on significant ex-ante checks on a multi-annual basis by both external

auditors and Commission staff in the field before final project payments (while still

executing some ex-post audits), going well beyond the financial safeguards required

by the Financial Regulation. This framework include:

– Ex-ante transaction checks performed by Commission staff;

– Audits and verifications (both mandatory and risk based) including the

European Court of Auditors;

– Retrospective checks (on a risk basis) and recoveries;

2.2.3. Estimation and justification of the cost-effectiveness of the controls (ratio between

the control costs and the value of the related funds managed), and assessment of the

expected levels of risk of error (at payment & at closure)

The internal control/management costs planned for the overall (operational +

administrative) commitments on the expenditure portfolio financed by the General

Budget of the EU for the period 2028-2034 refers only to the costs of the

Commission, excluding Member States or entrusted entities. Entrusted entities can

withhold up to 7 % for the administration of funds, which could partially be used for

control purposes. These management costs take into account all staff at headquarters

and in delegations, infrastructure, travel, training, monitoring, evaluation and audit

contracts (including those launched by beneficiaries).

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While improvements in the nature and targeting of management activities and

compliance checks in relation to the portfolio will continue to be pursued, these costs

are globally necessary to effectively and efficiently achieve the objectives of the

instruments at a minimal risk of non compliance (below 2% residual error). They are

significantly less than risks involved in removing or scaling back internal controls in

this high risk area.

The compliance objective for the Instrument is on one side to maintain the historic

level of risk of non-compliance (error rate) and on the other to at less than 2% the

residual 'net' level of error (on a multi-annual basis after all planned controls and

corrections have been executed on closed contracts). Where weaknesses are

identified, targeted corrective measures will be implemented in the light of ensuring

minimum error rates.

2.3. Measures to prevent fraud and irregularities

There are no fundamental changes foreseen in the measures to prevent fraud and

irregularities, and the experience acquired by the Commission services and

implementing actors under the predecessor programmes will contribute to better

results in the future. The Compliance framework is made up inter alia of the

following significant components:

Preventative measures

– Compulsory core training covering fraud issues for aid management staff and

auditors;

– Provision of guidance (including via internet) including existing manual of

procedures such as the Companion, PRAG and the Financial Management

Toolkit (for implementing partners);

– Ex-ante assessment to ensure that appropriate anti-fraud measures to prevent

and detect fraud in the management of Union funds are in place in the

authorities managing the relevant funds under joint and decentralised

management);

– Ex-ante screening of the anti-fraud mechanisms available in the partner country

as part of the assessment of the eligibility criterion of public finance

management for receiving budget support (i.e. active commitment to fight

fraud and corruption, adequate inspection authorities, sufficient judicial

capacity and efficient response and sanction mechanisms);

– Effective anti-fraud mechanisms to prevent and detect fraud, corruption, and

other illegal activities affecting the financial interests of the Union, including

cyber-attacks, particularly in relation to new financial instruments such as

blending, financing not linked to cost (FNLC), and/or budgetary guarantees,

using digital tools and technologies.

Detective and corrective measures

– Suspension of EU funding where there is a serious fraud case, including large

scale corruption, until the authorities have taken appropriate action with a view

to correcting and preventing such fraud in the future;

– EDES (Early Detection Exclusion System);

– Suspension/termination of contract;

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– Exclusion procedure.

Anti-fraud strategies of the services concerned, aligned with the objectives and

priorities of the Commission's anti-fraud strategy (CAFS) and its corresponding

Action Plan ensures that the systems used for spending EU funds in third countries

enable relevant data to be retrieved with a view to feeding this data into fraud risk

assessment and management (e.g. double funding, inflation of costs, rigged tender

procedures, conflict of interest, collusion); and wherever necessary, networking

groups and adequate IT/digital tools aimed at early detection and prevention of fraud

risks and fraud cases related to the external aid sector could be set up.

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3. ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE

3.1. Heading(s) of the multiannual financial framework and expenditure budget

line(s) affected

Heading 3 of multiannual

financial framework –

Neighbourhood and the

world

Budget line Type of

expenditure

Number

Diff./Non-diff.

07 01 Support expenditure for Global Europe cluster

Non-diff.

07 01 01 Support expenditure for Global Europe

excluding Ukraine Non-diff.

07 01 02 Support expenditure for support to Ukraine Non-diff.

07 02 Europe Pillar Diff.

07 02 01 Enlargement – Preparation for accession Diff.

07 02 02 Eastern Neighbourhood - Programmes Diff.

07 02 03 Western Europe - Programmes Diff.

07 02 04 Support to Ukraine Diff.

07 02 10 Europe – Crisis, peace and foreign policy needs Diff.

07 02 11 Europe – Humanitarian Aid Diff.

07 02 12 Europe – Resilience Diff.

07 02 13 Europe - Competitiveness Diff.

07 02 14 Europe – MFA grants Diff.

07 02 20 Europe – Provisioning of the Common

Provisioning Fund

Diff.

07 02 30 Europe – Territorial and Cross-Border

Cooperation Diff.

07 03 Middle East, North Africa and the Gulf Pillar Diff.

07 03 01 Middle East - Programmes Diff.

07 03 02 North Africa - Programmes Diff.

07 03 03 The Gulf - Programmes Diff.

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07 03 10 Middle East, North Africa and the Gulf – Crisis,

peace and foreign policy needs Diff.

07 03 11 Middle East, North Africa and the Gulf –

Humanitarian Aid Diff.

07 02 12 Middle East, North Africa and the Gulf –

Resilience Diff.

07 02 13 Middle East, North Africa and the Gulf –

Competitiveness Diff.

07 03 14 Middle East, North Africa and the Gulf – MFA

grants Diff.

07 03 20 Middle East, North Africa and the Gulf –

Provisioning of the Common Provisioning Fund

Diff.

07 03 30 Middle East, North Africa and the Gulf –

Territorial and Cross-Border Cooperation Diff.

07 04 Sub-Saharan Africa Pillar Diff.

07 04 01 West Africa - Programmes Diff.

07 04 02 East and Central Africa Programmes Diff.

07 04 03 Southern Africa and Indian Ocean -

Programmes Diff.

07 04 10 Sub-Saharan Africa – Crisis, peace and foreign

policy needs Diff.

07 04 11 Sub-Saharan Africa – Humanitarian Aid Diff.

07 04 12 Sub-Saharan Africa – Resilience Diff.

07 04 13 Sub-Saharan Africa – Competitiveness Diff.

07 04 14 Sub-Saharan Africa – MFA grants Diff.

07 04 20 Sub-Saharan Africa – Provisioning of the

Common Provisioning Fund Diff.

07 05 Asia and the Pacific Pillar Diff.

07 05 01 Central Asia - Programmes Diff.

07 05 02 South and East Asia - Programmes Diff.

07 05 03 The Pacific - Programmes Diff.

07 05 10 Asia and the Pacific – Crisis, peace and foreign

policy needs Diff.

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07 05 11 Asia and the Pacific – Humanitarian Aid Diff.

07 05 12 Asia and the Pacific – Resilience Diff.

07 05 13 Asia and the Pacific - Competitiveness Diff.

07 05 14 Asia and the Pacific – MFA grants Diff.

07 05 20 Asia and the Pacific – Provisioning of the

Common Provisioning Fund Diff.

07 06 Americas and the Caribbean Pillar Diff.

07 06 01 Americas - Programmes Diff.

07 06 02 The Caribbean - Programmes Diff.

07 06 10 Americas and the Caribbean – Crisis, peace and

foreign policy needs Diff.

07 06 11 Americas and the Caribbean – Humanitarian

Aid Diff.

07 06 12 Americas and the Caribbean – Resilience Diff.

07 06 13 Americas and the Caribbean - Competitiveness Diff.

07 06 14 Americas and the Caribbean – MFA grants Diff.

07 06 20 Americas and the Caribbean – Provisioning of

the Common Provisioning Fund Diff.

07 07 Global Pillar Diff.

07 07 01 Global Programmes Diff.

07 07 10 Global - Crisis, peace and foreign policy needs Diff.

07 07 11 Global – Humanitarian Aid Diff.

07 07 12 Global - Resilience Diff.

07 07 13 Global - Competitiveness Diff.

07 08 Emerging challenges and priorities cushion Diff.

07 09 Completion of previous external action

programmes Diff.

07 09 99 Completion of previous actions Diff.

07 09 99 01 Completion of previous actions under the

Neighbourhood, Development and International

Cooperation Instrument

Diff.

EN 4 EN

07 09 99 02 Completion of previous actions under

Humanitarian Aid Diff.

07 09 99 03 Completion of previous actions under the

Instrument for Pre-Accession Assistance Diff.

07 09 99 04 Completion of previous actions under the

Reform and Growth Facility for Western Balkans Diff.

07 09 99 05 Completion of previous actions under the

Ukraine Facility Diff.

[1] Diff. = Differentiated appropriations / Non-diff. = Non-differentiated appropriations.

3.2. Estimated financial impact of the proposal on appropriations

3.2.1. Summary of estimated impact on operational appropriations

–  The proposal/initiative does not require the use of operational appropriations

–  The proposal/initiative requires the use of operational appropriations, as

explained below

3.2.1.1. Appropriations from voted budget

EUR million (to three decimal places)

Heading of multiannual financial

framework 3 Neighbourhood and the world

TOTAL MFF 2028-2034

Operational appropriations

07 02 (Europe Pillar) Commitments (1a) 43,174

Payments (2a) p.m.

07 03 (Middle East, North Africa and

the Gulf Pillar)

Commitments (1b) 42,934

Payments (2b) p.m.

07 04 (Sub-Saharan Africa Pillar) Commitments (1c) 60,531

Payments (2c) p.m.

07 05 (Asia and the Pacific Pillar) Commitments (1d) 17,050

Payments (2d) p.m.

07 06 (Americas and the Caribbean

Pillar)

Commitments (1e) 9,144

Payments (2e) p.m.

07 07 (Global Pillar) Commitments (1f) 12,668

Payments (2f) p.m.

07 08 (Emerging challenges and

priorities cushion)

Commitments (1g) 14,808

Payments (2g) p.m.

Appropriations of an administrative nature financed from the envelope of the programme

EN 5 EN

07 01 (Support expenditure for the

Global Europe cluster) (3) pm

TOTAL appropriations Commitments =1a+1b+1c+1d+

1e+1f+1g+3 200,309

Payments =2a+2b+2c+2d+

2e+2f+2g+3 p.m.

Out of the Total appropriations above, an indicative amount of EUR 25 000 000 000 will be

dedicated to finance Humanitarian Aid actions. Considering that humanitarian aid is

unprogrammable and needs-driven tool, the allocations per pillar are to be determined at a

later stage, including through the annual budget procedure.

TOTAL MFF 2028-

2034

TOTAL operational appropriations Commitments (4) p.m.

Payments (5) p.m.

TOTAL appropriations of an administrative nature

financed from the envelope for specific programmes (6) p.m.

TOTAL appropriations under

HEADING 3 Commitments =4+6 200,309

of the multiannual financial framework Payments =5+6 p.m.

Heading of multiannual

financial framework

4 ‘Administrative expenditure’

DG: <…….>

Year Year Year Year Year Year Year TOT

AL

MFF

2028-

2034

2028 2029 2030 2031 2032 2033 2034

 Human resources 424.7

86

424.

786

424.

786

424.

786

424.

786

424.

786

424.

786

2973.

502

 Other administrative expenditure 81.17

7

81.1

77

81.1

77

81.1

77

81.1

77

81.1

77

81.1

77

568.2

42

TOTAL

DG

<…….>

505.9

63

505.

963

505.

963

505.

963

505.

963

505.

963

505.

963

3541.

744

DG: <…….> Year Year Year Year Year Year Year TOT

EN 6 EN

2028 2029 2030 2031 2032 2033 2034

AL

MFF

2028-

2034

 Human resources 0 0 0 0 0 0 0 0

 Other administrative expenditure 0 0 0 0 0 0 0 0

TOTAL

DG

<…….>

Appropriations 0 0 0 0 0 0 0 0

TOTAL appropriations under

HEADING 4 of the

multiannual financial

framework

(Total

commit

ments

= Total

payme

nts)

505.9

63

505.

963

505.

963

505.

963

505.

963

505.

963

505.

963

3541.

744

EUR million (to three decimal places)

Year Year Year Year Year Year Year TOTA

L MFF

2028-

2034 2028 2029 2030 2031 2032 2033 2034

TOTAL

appropriation

s under

HEADINGS 1

to 4

Commitment

s 0 0 0 0 0 0 0 0

of the

multiannual

financial

framework

Payments 0 0 0 0 0 0 0 0

3.2.1.2. Appropriations from external assigned revenues

EUR million (to three decimal places)

Heading of multiannual

financial framework

Num

ber

DG:

<…….>

Year Year

Y

e

a

r

Y

e

a

r

Y

e

a

r

Y

e

a

r

Y

e

a

r

T

O

T

A

L

M

F

F

2

0

2

8

-

2

0

2028 2029

2

0

3

0

2

0

3

1

2

0

3

2

2

0

3

3

2

0

3

4

EN 7 EN

3

4

Operational appropriations

Budg

et

line

Commitments (1a) 0

Payments (2a) 0

Budg

et

line

Commitments (1b) 0

Payments (2b) 0

Appropriations of an administrative nature financed from the envelope of specific programmes

Budg

et

line

(3) 0

TOT

AL

appr

opri

ation

s

Commitments =1a+1b+3 0 0 0 0 0 0 0 0

for

DG

<…

….>

Payments =2a+2b+3 0 0 0 0 0 0 0 0

Year Year Year Year Year Year Year TOTA

L

MFF

2028-

2034

2028 2029 2030 2031 2032 2033 2034

TOTAL

operational

appropriations

Commitme

nts (4) 0 0 0 0 0 0 0 0

Payments (5) 0 0 0 0 0 0 0 0

TOTAL appropriations of

an administrative nature

financed from the envelope

for specific programmes

(6) 0 0 0 0 0 0 0 0

TOTAL

appropriatio

ns under

HEADING

<….>

Commitme

nts =4+6 0 0 0 0 0 0 0 0

of the

multiannual

financial

framework

Payments =5+6 0 0 0 0 0 0 0 0

Heading of multiannual

financial framework

4 ‘Administrative expenditure’

EUR million (to three decimal places)

EN 8 EN

DG: <…….>

Year Year Year Year Year Year Year TOT

AL

MFF

2028-

2034

2028 2029 2030 2031 2032 2033 2034

 Human resources 0 0 0 0 0 0 0 0

 Other administrative expenditure 0 0 0 0 0 0 0 0

TOTAL

DG

<…….>

Appropriations 0 0 0 0 0 0 0 0

DG: <…….>

Year Year Year Year Year Year Year TOT

AL

MFF

2028-

2024

2028 2029 2030 2031 2032 2033 2034

 Human resources 0 0 0 0 0 0 0 0

 Other administrative expenditure 0 0 0 0 0 0 0 0

TOTAL

DG

<…….>

Appropriations 0 0 0 0 0 0 0 0

TOTAL appropriations under

HEADING 4 of the

multiannual financial

framework

(Total

commit

ments =

Total

payment

s)

0 0 0 0 0 0 0 0

EUR million (to three decimal places)

Year Year Year Year Year Year Year TOTA

L MFF

2028-

2034 2028 2029 2030 2031 2032 2033 2034

TOTAL

appropriation

s under

HEADINGS 1

to 7

Commitment

s 0 0 0 0 0 0 0 0

of the

multiannual

financial

framework

Payments 0 0 0 0 0 0 0 0

3.2.3. Summary of estimated impact on administrative appropriations

–  The proposal/initiative does not require the use of appropriations of an

administrative nature

–  The proposal/initiative requires the use of appropriations of an administrative

nature, as explained below

3.2.3.1. Appropriations from voted budget

EN 9 EN

VOTED

APPROPRIATIONS

Year Year Year Year Year Year Year TOTAL

2028 -

2034 2028 2029 2030 2031 2032 2033 2034

HEADING 4

Human resources 424.786 424.786 424.786 424.786 424.786 424.786 424.786 2.973.502

Other administrative

expenditure 81.177 81.177 81.177 81.177 81.177 81.177 81.177 568.242

Subtotal HEADING 4 505.963 505.963 505.963 505.963 505.963 505.963 505.963 3.541.744

Outside HEADING 4

Human resources 453.486 453.486 453.486 453.486 453.486 453.486 453.486 3.174.402

Other expenditure of an

administrative nature p.m. p.m. p.m. p.m. p.m. p.m. p.m. p.m.

Subtotal outside

HEADING 4 453.486 453.486 453.486 453.486 453.486 453.486 453.486 3.174.402

TOTAL 959.449 959.449 959.449 959.449 959.449 959.449 959.449 6.716.146

3.2.3.3. Total appropriations

TOTAL VOTED APPROPRIATIONS +

EXTERNAL ASSIGNED REVENUES

Year Year Year Year Year Year Year TOTA

L 2028

- 2034

2028 2029 2030 2031 2032 2033 2034

HEADING 4

Human resources 424.786 424.78

6

424.7

86

424.7

86

424.7

86

424.7

86

424.7

86

2.973.50

2

Other administrative expenditure 81.177 81.177 81.17

7 81.17

7 81.17

7 81.17

7 81.17

7 568.242

Subtotal HEADING 4 505.963 505.96

3

505.9

63

505.9

63

505.9

63

505.9

63

505.9

63

3.541.74

4

Outside HEADING 4

Human resources 453.486 453.48

6

453.4

86

453.4

86

453.4

86

453.4

86

453.4

86

3.174.40

2

Other expenditure of an administrative nature 0.000 0.000 0.000 0.000 0.000 0.000 0.000 0.000

Subtotal outside HEADING 4 453.486 453.48

6

453.4

86

453.4

86

453.4

86

453.4

86

453.4

86

3.174.40

2

TOTAL 959.449 959.44

9

959.4

49

959.4

49

959.4

49

959.4

49

959.4

49

6.716.14

6

The appropriations required for human resources and other expenditure of an administrative nature

will be met by appropriations from the DG that are already assigned to management of the action

and/or have been redeployed within the DG, together, if necessary, with any additional allocation

which may be granted to the managing DG under the annual allocation procedure and in the light of

budgetary constraints.

3.2.4. Estimated requirements of human resources

–  The proposal/initiative does not require the use of human resources

–  The proposal/initiative requires the use of human resources, as explained

below

3.2.4.1. Financed from voted budget

Estimate to be expressed in full-time equivalent units (FTEs)

EN 10 EN

VOTED

APPROPRIATIONS

Year Year Year Year Year Year Year

2028 2029 2030 2031 2032 2033 2034

 Establishment plan posts (officials and temporary staff)

20 01 02 01 (Headquarters and

Commission’s Representation Offices)

1 347 1 347 1 347 1 347 1 347 1 347 1 347

20 01 02 03 (EU Delegations) 469 469 469 469 469 469 469

01 01 01 01 (Indirect research) 0 0 0 0 0 0 0

01 01 01 11 (Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) 0 0 0 0 0 0 0

• External staff (inFTEs)

20 02 01 (AC, END from the ‘global envelope’)

208 208 208 208 208 208 208

20 02 03 (AC, AL, END and JPD in the EU Delegations)

42 42 42 42 42 42 42

Support line - at

Headquarters 786 786 786 786 786 786 786

[XX.01.YY.YY] - in EU

Delegations 2 580 2 580 2 580 2 580 2 580 2 580 2 580

01 01 01 02 (AC, END - Indirect research)

0 0 0 0 0 0 0

01 01 01 12 (AC, END - Direct

research) 0 0 0 0 0 0 0

Other budget lines (specify) -

Heading 4 0 0 0 0 0 0 0

Other budget lines (specify) - Outside Heading 4

0 0 0 0 0 0 0

TOTAL 5 432 5 432 5 432 5 432 5 432 5 432 5 432

3.2.4.3. Total requirements of human resources

TOTAL VOTED

APPROPRIATIONS

+

EXTERNAL ASSIGNED

REVENUES

Year Year Year Year Year Year Year

2028 2029 2030 2031 2032 2033 2034

 Establishment plan posts (officials and temporary staff)

20 01 02 01 (Headquarters and Commission’s Representation

Offices)

1 347 1 347 1 347 1 347 1 347 1 347 1 347

20 01 02 03 (EU Delegations) 469 469 469 469 469 469 469

01 01 01 01 (Indirect research) 0 0 0 0 0 0 0

01 01 01 11 (Direct research) 0 0 0 0 0 0 0

Other budget lines (specify) 0 0 0 0 0 0 0

• External staff (in full time equivalent units)

20 02 01 (AC, END from the ‘global envelope’)

208 208 208 208 208 208 208

20 02 03 (AC, AL, END and JPD in the EU Delegations)

42 42 42 42 42 42 42

Support line - at

Headquarters 786 786 786 786 786 786 786

EN 11 EN

[XX.01.YY.YY] - in EU

Delegations 2 580 2 580 2 580 2 580 2 580 2 580 2 580

01 01 01 02 (AC, END - Indirect research)

0 0 0 0 0 0 0

01 01 01 12 (AC, END - Direct research)

0 0 0 0 0 0 0

Other budget lines (specify) -

Heading 7 0 0 0 0 0 0 0

Other budget lines (specify) -

Outside Heading 7 0 0 0 0 0 0 0

TOTAL 5 432 5 432 5 432 5 432 5 432 5 432 5 432

The staff required to implement the proposal (in FTEs):

To be covered

by current staff

available in the

Commission

services

Exceptional additional staff

To be financed

under Heading 4

or Research

To be financed

from BA line

To be financed

from fees

Establishment

plan posts

1 675 141 N/A

External staff

(CA, SNEs,

INT)

3 302 - 314

Description of tasks to be carried out by:

Officials and temporary staff

External staff

3.2.5. Overview of estimated impact on digital technology-related investments

Compulsory: the best estimate of the digital technology-related investments entailed

by the proposal/initiative should be included in the table below.

Exceptionally, when required for the implementation of the proposal/initiative, the

appropriations under Heading 4 should be presented in the designated line.

The appropriations under Headings 1-3 should be reflected as “Policy IT expenditure

on operational programmes”. This expenditure refers to the operational budget to be

used to re-use/ buy/ develop IT platforms/ tools directly linked to the implementation

of the initiative and their associated investments (e.g. licences, studies, data storage

etc). The information provided in this table should be consistent with details

presented under Section 4 “Digital dimensions”.

TOTAL Digital

and IT

appropriations

Year Year Year Year Year Year Year

TOTAL

MFF

2028 -

EN 12 EN

2028 2029 2030 2031 2032 2033 2034 2034

HEADING 4

IT expenditure * (corporate)

44.542 44.542 44.542 44.542 44.542 44.542 44.542 311.797

Subtotal

HEADING 4 44.542 44.542 44.542 44.542 44.542 44.542 44.542 311.797

Outside HEADING 4

Policy IT expenditure on operational programmes

0 0 0 0 0 0 0 0

Subtotal outside

HEADING 4 0 0 0 0 0 0 0 0

TOTAL 0 0 0 0 0 0 0 0

The corporate IT expenditure under Heading 4 is calculated by multiplying the FTEs by

EUR 8 200 per FTE

3.2.6. Compatibility with the current multiannual financial framework

The proposal/initiative:

–  can be fully financed through redeployment within the relevant heading of the

multiannual financial framework (MFF)

–  requires use of the unallocated margin under the relevant heading of the MFF

and/or use of the special instruments as defined in the MFF Regulation

–  requires a revision of the MFF

3.2.7. Third-party contributions

The proposal/initiative:

–  does not provide for co-financing by third parties

–  provides for the co-financing by third parties estimated below:

Appropriations in EUR million (to three decimal places)

Year Year Year Year Year Year Year

Total 2028 2029 2030 2031 2032 2033 2034

Specify the co-

financing body

TOTAL

appropriations

co-financed

EN 13 EN

[1] Outputs are products and services to be supplied (e.g. number of student exchanges financed, number of

km of roads built, etc.). [2] As described in Section 1.3.2. ‘Specific objective(s)’

3.3. Estimated impact on revenue

4. DIGITAL DIMENSIONS

4.1. Requirements of digital relevance

4.2. Data

4.3. Digital solutions

4.4. Interoperability assessment

4.5. Measures to support digital implementation

EN EN

EUROPEAN COMMISSION

Brussels, 16.7.2025

COM(2025) 551 final

ANNEXES 1 to 2

ANNEXES

to the

Proposal for a

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

establishing Global Europe

{SEC(2025) 548 final} - {SWD(2025) 552 final} - {SWD(2025) 553 final}

EN 1 EN

ANNEX I – List of countries and territories

Annex I.A - Europe

Enlargement and Neighbourhood East area

Armenia

Azerbaijan

Bosnia and Herzegovina

Georgia

Iceland

Kosovo*

Montenegro

The Republic of Albania

The Republic of Moldova

The Republic of North Macedonia

The Republic of Serbia

The Republic of Türkiye

Ukraine

Union support under this area may also benefit Russian/Belarussian independent civil society

and independent free media, in full compliance with Union restrictive measures

Other European countries

Principality of Andorra

Principality of Liechtenstein

Principality of Monaco

Kingdom of Norway

Republic of San Marino

Swiss Confederation

United Kingdom of Great Britain and Northern Ireland

Vatican City State

* This designation is without prejudice to positions on status and is in line with UNSCR 1244/1999 and the

ICJ Opinion on the Kosovo declaration of independence.

EN 2 EN

Annex I.B - Middle East, North Africa and the Gulf

Neighbourhood South

Algeria

Egypt

Israel

Jordan

Lebanon

Libya

Morocco

Occupied Palestinian Territory

Syria

Tunisia

Other countries

Bahrain

Iran

Iraq

Kuwait

Oman

Qatar

Saudi Arabia

United Arab Emirates

Yemen

EN 3 EN

Annex I.C - Sub-Saharan Africa

Angola

Benin

Botswana

Burkina Faso

Burundi

Cabo Verde

Cameroon

Central African Republic

Chad

Comoros

Congo

Cote d’Ivoire

Democratic Republic of the Congo

Djibouti

Equatorial Guinea

Eritrea

Eswatini

Ethiopia

Gabon

Gambia (the)

Ghana

Guinea

Guinea-Bissau

Kenya

Lesotho

Liberia

Madagascar

Malawi

Mali

Mauritania

Mauritius

Mozambique

Namibia

Niger

EN 4 EN

Nigeria

Rwanda

Sao Tomé and Príncipe

Senegal

Seychelles

Sierra Leone

Somalia

South Africa

South Sudan

Sudan

Tanzania

Togo

Uganda

Zambia

Zimbabwe

EN 5 EN

Annex I.D - Asia and the Pacific

Afghanistan

Australia

Bangladesh

Brunei Darussalam

Bhutan

Cambodia

China (People’s Republic of)

Cook Islands

Democratic People’s Republic of Korea

Fiji

India

Indonesia

Japan

Kazakhstan

Kiribati

Kyrgyzstan

Lao People’s Democratic Republic

Malaysia

Maldives

Marshall Islands

Micronesia (Federated States of)

Mongolia

Myanmar

Nauru

Nepal

New Zealand

Niue

Pakistan

Palau

Papua New Guinea

Philippines

Samoa

Singapore

Solomon Islands

EN 6 EN

South Korea

Sri Lanka

Taiwan1

Tajikistan

Thailand

Timor-Leste

Tonga

Turkmenistan

Tuvalu

Uzbekistan

Vanuatu

Vietnam

1This designation should not be interpreted as reflecting any official position of the European Union with regard

to the legal status of Taiwan.

EN 7 EN

Annex I.E - Americas and the Caribbean

Antigua and Barbuda

Argentina

Bahamas (the)

Barbados

Belize

Bolivia

Brazil

Canada

Chile

Colombia

Costa Rica

Cuba

Dominica

Dominican Republic

Ecuador

El Salvador

Grenada

Guatemala

Guyana

Haiti

Honduras

Jamaica

Mexico

Nicaragua

Panama

Paraguay

Peru

Saint Kitts and Nevis

Saint Lucia

Saint Vincent and the Grenadines

Suriname

Trinidad and Tobago

United States of America

Uruguay

EN 8 EN

Venezuela

EN 9 EN

ANNEX II – Specific objectives

Annex II.A - Europe

(1) Preparing candidate countries and potential candidates for accession to Union

membership

a) Supporting the enlargement process by accelerating the alignment with Union

values, laws, rules, standards, policies and practices (‘acquis’) through the

adoption and implementation of reforms with a view to future Union

membership and through the process of gradual integration;

b) Strengthening the fundamentals of the enlargement process in line with the

enlargement policy framework, including democracy, the rule of law, economic

criteria, public administration reform, independent and efficient judiciary,

fundamental rights, public procurement, statistics and financial control, justice,

freedom, and security

c) Supporting the fight against organised crime, effectively strenghtening

migration management, countering irregular migration, supporting visa policy

alignment as well as effective border management and, where applicable,

preparation for Schengen accession;

d) Fostering regional economic integration and progressive integration into the

Union single market leading to improved neighbourly relations, a positive

appreciation of integration with the Union and reducing beneficiaries’ and the

Union’s strategic dependencies;

e) Accelerating the socio-economic and regulatory convergence of candidate

countries’ and potential candidates’ with the Union and their transition to

economies that are capable of withstanding competitive market pressures of the

Union single market, in particular through increased trade and investment flows,

and resilient and sustainable value chains providing decent jobs, and transition

to a digital and AI economy;

f) Accelerating the alignment of candidate countries and potential candidates with

the Union’s climate and environmental standards and supporting their

implementation;

g) Reinforcing the effectiveness of public administration, building local capacities

and investing in administrative staff in the beneficiary contries.Supporting

transparency, accountability, structural reforms and good governance at all

levels, including through the prevention of corruption and by strenghtening

engagement of public authorities with civil society actors. Improving national

control systems in view of accession, including as regards their powers of

oversight and inquiry over the distribution of and access to public funds as well

as in the areas of public financial management and public procurement and State

aid control;

h) Supporting territorial cohesion, cross-border cooperation across land and

maritime borders with a focus on the transport connections along the trans-

European transport network extended to neighbouring countries as defined in the

TEN-T Regulation 2024/1679, as well as agriculture and rural development;

i) Moving towards full alignment of candidate countries and potential candidates

with the Union Common Foreign and Security Policy, including Union

restrictive measures;

EN 10 EN

j) Enhancing capacities for strategic communication, including to ensure public

support for and understanding of Union values and the benefits and obligations

of potential Union membership, while addressing foreign information

manipulation and interference and disinformation;

(2) Building mutually beneficial partnerships with the Union’s partners, including

candidate countries and potential candidates, contributing to the Union’s strategic

interests and promoting the Union’s values and a peaceful, stable, strong and united

Europe.

a) Promoting a strengthened partnership between the Union and the European

partner countries, and among the partner countries;

b) Supporting the implementation of association agreements or other existing and

future agreements, to support the conclusion and implementation of

comprehensive partnerships, including through providing financial support

against the achievement of results set out in relevant performance-based plans;

c) Reinforcing the rule of law, including the fight against and prevention of

corruption, and respect for human rights and fundamental freedoms, including

by combating discrimination and promoting gender equality and the women’s

and girls’ rights and empowerment and preventing and combating violence

against women and domestic violence. Facilitating judicial cooperation,

promoting children’s rights and the rights of persons with disabilities and

accessibility, strengthening the rights of victims of crime and contributing to the

strengthening of democracy and political stability;

d) Fostering good neighbourly relations, reconciliation, and the settlement of

disputes, and promoting peace, stability, security;

e) Preparing for and responding effectively to crisis, emerging crisis and post-crisis

situations; supporting peace, stability and conflict prevention;

f) Increasing stability and security; stepping-up cooperation with justice and law

enforcement institutions, on counter-terrorism, transnational organised crime,

terrorist and organised crime financing and anti-money laundering, the fight

against radicalisation and violent extremism, cyberthreats, the fight against

impunity, corruption;

g) Fostering regional economic cooperation and, where appropriate, a positive

appreciation of integration with the Union and reducing strategic dependencies

of the Union and of partner countries, including on energy, critical raw materials

and inputs, and health security;

h) Supporting sustainable and inclusive growth, private sector engagement, trade,

and investments in key infrastructure as well as research and innovation;

advancing the digital transition to unlock societal and economic opportunities

both within private and public sector; fostering skills development and decent

jobs;

i) Promoting social and cultural inclusion across borders, preserving and

promoting cultural and natural heritage, offering support to cultural and creative

sectors and industries, and sport;

j) Fostering the use of the Union’s single currency for trade, financial services and

investment within the region and with respect to the Union;

EN 11 EN

k) Contributing to the resilience of partner countries, supporting and reinforcing

actions addressing the humanitarian-development-peace nexus, fragility

challenges and addressing reconstruction needs as well as balance of payment

crises;

l) Supporting Union competitiveness and flexibly responding to economic

challenges and opportunities;

m) Developing the digital economy and society with a particular focus on

supporting the rollout of secure and trusted digital infrastructure, developing data

and AI economies through support for the setting-up of AI Factories and shaping

AI to uphold democratic values and protect cultural diversity, promoting relevant

Digital Public Infrastructure and eGovernance solutions such as privacy-

preserving digital identity frameworks, strengthening cybersecurity and cyber

defence capabilities;

n) Fostering energy transition and promoting energy security; investing in energy

connectivity and renewable energies; promoting the use of clean energy sources

in industry and transport; promoting the integration of Union’s value chain;

o) Reinforcing environmental protection, increasing resilience to climate change,

accelerating the shift towards a climate neutral, positive biodiversity inclusive,

sustainable green, blue and circular economy, strengthening the fight against

environmental crime;

p) Strengthening economic and social development and inclusion, with particular

attention to women, children and youth, including through preventing brain

drain, supporting vulnerable communities, promoting equality, cultural

inclusion, quality education, training, reskilling and upskilling, and supporting

employment policies, labour rights and effective social protection systems;

q) Strengthening partnerships on well-managed and safe migration and mobility via

structured migration discussions and, where applicable and provided that

conditions for well-managed and secure mobility are in place, developing and

support the implementation of existing visa-free regimes, visa liberalisation

dialogues and bilateral or regional agreements and arrangements with partner

countries;

r) Fostering the establishment of people-to-people partnerships based on common

interests and promoting collaboration on education, culture, sport research and

innovation as well as the mutually beneficial mobility of people;

s) Empowering civil society and strengthening its capacity on the monitoring of the

implementation of reforms, supporting the creation of an enabling environment

for civil society organisations, promoting and strengthening pluralism,

independence and professionalism of a free and independent media, as well as

enhancing digital and media literacy;

t) Helping to mitigate challenges posed by Russia’s war of aggression against

Ukraine and attempts to destabilise partner countries, fight disinformation,

hybrid threats, and foreign information manipulation and interference, in

particular by Russia, against partner countries’ sovereignty, democratic

processes and institutions, as well as against the Union and its values.

u) Strengthening awareness, understanding and perception of the European Union

in partner countries through strategic communication.

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(3) Supporting Ukraine in light of the consequences of Russia’s war of aggression

a) Helping maintaining the macro-financial stability of Ukraine and easing its

external and internal financing constraints to ensure the continued functioning

of the Ukrainian state;

b) Supporting the recovery, reconstruction and modernisation of Ukraine, in line

with its accession path, by addressing the social, economic, security and

environmental consequences of Russia’s war of aggression in Ukraine and

contributing to the rebuilding of vital infrastructure, including energy, transport

and digital infrastructure, thereby contributing to social cohesion, resilience and

to the post-war recovery of free, culturally vibrant Ukrainian society, including

by supporting culture and cultural heritage and by creating the social and

economic conditions for internally displaced persons and persons under

temporary protection to go back to Ukraine once conditions allow,, and

reintegrating the veteran population.

c) Supporting accountability efforts in the context of Russia’s war of aggression,

including assistance to investigation and prosecution of international crimes

committed in and against Ukraine, notably in relation to the crime of aggression,

and to transitional justice and accountability mechanisms, including the Special

Tribunal for the Crime of Aggression against Ukraine.

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Annex II. B - Middle East, North Africa and the Gulf

(1) Enhancing strategic partnerships at regional and country level

a) Deepening partnerships with the Middle East, North Africa and Gulf regions

through a stronger political commitment and with a view to achieving a common

space of peace, prosperity and stability in the Mediterranean region;

b) Developing mutually beneficial tailored partnerships, including through formal

bilateral agreements and bilateral and regional dialogues, based on Union’s

leverage and local ownership, contributing to the Union’s strategic interests, and

promoting the Union’s values;

c) Support the implementation of association agreements or other existing and

future agreements and jointly agreed documents with the Southern

Neighbourhood countries as listed in Annex I;

d) Strengthening awareness, understanding and perception of the European Union

in partner countries through strategic communication.

(2) Strengthening security, peace, resilience, reconstruction and preparedness

a) Supporting and promoting peace, stability, security, crisis response, conflict

prevention, stabilization, mediation, political transition and reconciliation

efforts;

b) Supporting the needs related to socio-economic recovery, rehabilitation and

post-conflict reconstruction;

c) Contributing to the resilience of partner countries, supporting and reinforcing

actions addressing the humanitarian-development-peace nexus, fragility

challenges and addressing reconstruction needs as well as balance of payment

crises;

d) Support security in areas of common interest, such as health security, maritime

security, fight against organised crime counter-terrorism, and cyber security and

cyber capacity-building;

e) Stepping-up cooperation on terrorist and organised crime financing and anti-

money laundering, judicial cooperation, the fight against radicalisation and

violent extremism, hybrid and cyber threats, the fight against impunity,

corruption, organised crime and law enforcement;

f) Contributing to preventing the circumvention of Union restrictive measures.

(3) Promoting and protecting democracy, the rule of law, human rights, good governance,

human development and people to people relations

a) Strengthening public institutions and economic/democratic governance systems,

including through oversight, enforcement, and the prevention of and fight

against corruption and foreign interference; supporting effectiveness of public

finances, transparency and accountability;

b) Safeguarding the space for civil society, civic and non-state actors and

independent media; supporting the fight against foreign information

manipulation and interference, supporting local and regional capacities for

human rights protection, including national human rights institutions;

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c) Protecting and promoting human rights, gender equality, children’s rights, the

rights of persons with disabilities and fighting against child labour and

discrimination on any ground;

d) Enhancing quality and relevance of education, health and access to health

products and social protection systems; fostering universal health coverage;

e) Fostering the establishment of people-to-people partnerships based on common

interests and strengthening skills development through cooperation in the fields

of education, youth, research and innovation;

f) Empowering young people, creating decent jobs, supporting the creation of a

common space for learning, connecting skills, vocational education and training,

higher education, research and innovation;

g) Promoting mutual understanding through culture, media, sports and tourism;

h) Promoting the role of culture and intercultural dialogue, cultural diversity in all

its forms, mobility, and reinforcing cooperation on safeguarding, conservation

and enhancement of cultural heritage.

(4) Supporting inclusive and sustainable growth, trade, and investments in key

infrastructure

a) Supporting Union trade policy and trade and investment agreements and their

implementation;

b) Creating conditions for the participation of EU companies in the regional

markets through the removal of barriers and de-risking through support for

regulatory changes;

c) Promoting business and investment opportunities (including for companies from

the European Union), private sector development, regulatory convergence with

Union’s standards, economic integration, as well as local and regional

sustainable value chains and diversification;

d) Improving the region’s productive and export capacity of critical raw materials

and inputs;

e) Advancing the digital transition to unlock societal and economic opportunities

both within private and public sector. Advancing secure and trusted digital

infrastructures to underpin future developments of key economic and critical

sectors. Developing data and AI economies, including by supporting AI

innovation ecosystems. Supporting actions to close the digital divide and to

ensure accessible, affordable, inclusive, and secure digital connectivity

solutions.

f) Fostering the use of the Union’s single currency for trade, financial services and

investment within the region and with respect to the Union;

g) Strengthening sustainable road and maritime transport and ports; promoting

smart and sustainable mobility, supporting the uptake of sustainable transport

fuels;

h) Fostering energy transition and promoting energy security; investing in energy

connectivity and renewable energies; promoting the integration of Union’s value

chain with resilient clean tech industrial chains of partner countries;

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i) Supporting Union competitiveness and stability, and flexibly responding to

economic challenges and opportunities.

(5) Promoting healthy eco-systems and addressing climate change

a) Enhancing climate change adaptation and mitigation capacity; helping to

promote climate-proof investments;

b) Developing sustainable green and blue economy; Supporting the transition to

low-emissions, resource efficient and circular economic models and promoting

the development of sustainable production and value chains, supporting green

hydrogen projects;

c) Ensuring the protection and conservation of the environment and biodiversity

and ensuring the restoration and sustainable management of ecosystems,

including water systems, land, forests and the ocean. Promoting the fight against

pollution biodiversity conservation, sustainable fisheries and transition to

sustainable food systems, focusing on the water-energy-food-ecosystems nexus

approach. Promoting nature-based solutions, in particular for sustainable

infrastructure and the development of green and smart cities.

(6) Enhancing cooperation on all aspects of migration, mobility and forced displacement

a) Enhancing cooperation on all aspects of migration and forced displacement

including through the EU agencies; strengthening local and international

partnerships on migration and forced displacement along key migratory routes;

b) Strengthening all aspects of migration and asylum governance; enhancing border

management, including quality of travel documents and visa systems;

strengthening the fight against smuggling of migrants and trafficking in human

beings and fostering cooperation on safe, dignified and sustainable returns,

readmission and reintegration of migrants; as well as addressing the root causes

of irregular migration and forced displacement;

c) Supporting a comprehensive approach to and implementation of legal migration

and mobility, including through mutually beneficial Talent Partnerships and

exchanges, respecting the competences of the Member States;

d) Contributing to the provision of international protection, including access to

resettlement and complementary pathways, and support to refugees, migrants,

internally displaced persons, host communities, and to countries hosting

significant refugee or displaced populations.

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Annex II.C - Sub-Saharan Africa

(1) Supporting inclusive and sustainable growth, promoting connectivity, trade, and

decent jobs

a) Supporting sustainable, safe, secure and resilient infrastructure and connectivity,

including strengthening sustainable and safe road, rail, air and maritime

transport, and promoting smart, inclusive and sustainable mobility, and the

uptake of sustainable transport fuels;

b) Strengthening the digital and space economy, supporting actions to close the

digital divide, advancing secure and trusted digital infrastructures, promoting

human-centric digital governance, including the development of modern data

management and protection systems for safe data flows, developing data and AI

economies, including by supporting AI innovation ecosystems; supporting

cybersecurity and cyber capacity-building;

c) Fostering energy transition and promoting energy security; investing in energy

connectivity and renewable energies; promoting the use of clean energy sources

in industry and transport; fostering energy access and energy efficiency;

d) Promoting trade, business and investment opportunities (including for

companies from the European Union), private sector development, regulatory

convergence with Union’s standards, economic integration, diversification of

supply chains, and development of local and regional sustainable value chains;

e) Supporting Union trade policy and trade agreements and their implementation;

f) Improving the region’s capacity to sustainably produce and export critical raw

materials and inputs;

g) Promoting private sector development and improving the business environment

to attract investments and foster decent job creation;

h) Fostering skills development and decent jobs, as well as research and innovation;

i) Supporting Union competitiveness and flexibly responding to economic

challenges and opportunities;

j) Fostering the use of the Union’s single currency for trade, financial services and

investment within the region and with respect to the Union.

(2) Fighting climate change, protecting the environment and biodiversity

a) Supporting climate change mitigation and adaptation, disaster preparedness, and

risk reduction, with particular attention to the most vulnerable countries such as

least developed countries and small island developing states;

b) Fostering pollution prevention and reduction, and ensuring the protection and

preservation of the environment and biodiversity as well as the restoration and

sustainable management of ecosystems, including water systems, land, forests

and the ocean;

c) Promoting nature-based solutions for sustainable infrastructure and cities,

sustainable green, blue and circular economy, including bioeconomy;

d) Supporting sustainable and resilient agriculture, including agroforestry,

sustainable fisheries, and sustainable aquaculture.

(3) Enhancing cooperation on all aspects of migration, mobility and forced displacement

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a) Addressing the root causes of irregular migration and forced displacement;

b) Strengthening migration governance and management, enhancing border

management, the quality of travel documents and visa systems, fighting against

migrant smuggling and trafficking in human beings, and fostering cooperation

on safe, dignified and sustainable returns, readmission and reintegration of

irregular migrants;

c) Supporting and promoting the use of legal channels of migration and mobility,

and encouraging diasporas’ contributions to the development of the countries of

origin;

d) Supporting asylum seekers, refugees, internally displaced and stateless people,

as well as their host communities, and promoting their access to protection and

durable solutions, including voluntary repatriation, local integration, and access

to resettlement as well as complementary pathways.

(4) Promoting human development and gender equality

a) Supporting greater access to and improved quality of education, healthcare

services and health products and supporting food and nutrition security, and

promoting access to climate resilient and safe water supply, sanitation and waste

services;

b) Fostering social inclusion, social protection, universal health coverage and the

fight against inequalities, with a focus on the most vulnerable;

c) Promoting gender equality and the rights and empowerment of women and girls,

preventing and combating violence against women and domestic violence

protecting rights of persons with disabilities, of young people and of children,

and fighting child labour;

d) Contributing to the resilience of partner countries, supporting and reinforcing

actions addressing the humanitarian-development-peace nexus, fragility

challenges and addressing reconstruction needs as well as balance of payment

crises;

(5) Promoting and protecting democracy, rule of law, human rights and good governance

a) Protecting and promoting human rights, with specific attention to protect the

most vulnerable, and democracy, safeguarding the space for civil society

organisations and supporting freedom and pluralism of the media;

b) Supporting the rule of law and good governance, including transparency,

accountability, institutional oversight, law enforcement, as well as civic space,

and the prevention of and fight against corruption, and illegal trafficking,

including illicit financial flows;

c) Strengthening the respect of human rights and international law, with specific

attention to protect the most vulnerable;

d) Promoting respect for the principles of equality and non-discrimination.

(6) Contributing to stability, peace and security

a) Preparing for and responding effectively to crisis, emerging crisis and post-crisis

situations;

b) Supporting peace, mediation, stability and conflict prevention;

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c) Increasing stability and security through judicial cooperation, the fight against

impunity, organised crime, cyber and hybrid threats, violent extremism and

terrorism;

d) Contributing to preventing the circumvention of Union restrictive measures.

(7) Strengthening partnerships

a) Encouraging regional and cross-regional integration, cooperation, dialogue and

initiatives;

b) Promoting policy dialogue with the Organisation of Africa, Caribbean and

Pacific States, African Union and Regional Organisations;

c) Promoting intercultural dialogue and cooperation, twinning, mobility, exchange

and leadership programmes; promoting the role of cultural diversity in all its

forms, and reinforcing cooperation on safeguarding, conservation and

enhancement of cultural heritage;

d) Fostering the establishment of people-to-people partnerships based on common

interests, and strengthening skills development through cooperation in the fields

of education, youth, culture, sport as well as research and innovation;

e) Ensuring engagement with civil society, local authorities and private sector, and

strengthening State and local authority institutions and their effective operations

in line with their respective mandate;

f) Strengthening awareness, understanding and perception of the European Union

in partner countries through strategic communication.

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Annex II.D - Asia and the Pacific

(1) Supporting inclusive and sustainable growth, decent jobs and the digital

transformation

a) Supporting sustainable, safe, secure and resilient infrastructure and transport

connectivity, including road, rail, air and maritime transport, and promoting

smart and sustainable mobility, and the uptake of sustainable transport fuels;

b) Promoting trade, business and investment opportunities (including for

companies from the European Union), private sector development, regulatory

convergence with Union’s standards, economic integration, diversification of

supply chains, as well as local and regional sustainable value chains;

c) Enhancing regional integration, intra-regional trade, business dialogue and

business-government dialogue at regional and inter-regional levels;

d) Fostering the use of the Union’s single currency for trade, financial services and

investment within the region and with respect to the Union;

e) Promoting secure digital and space economy, supporting actions to close the

digital divide, advancing secure and trusted digital infrastructures, promoting

human-centric digital governance, includingthe development of modern data

management and protection systems for safe data flows;

f) Facilitating and enhancing investments in critical raw materials and inputs,

sustainable and competitive policies on extraction and treatment of minerals;

g) Supporting Union trade policy and trade agreements, and their implementation;

h) Strengthening an inclusive and just transition to green and digital economy and

promoting digital governance and e-services as well as the transparency and

effectiveness of public finances;

i) Fostering skills development and decent jobs, as well as research and innovation,

supporting international labour and environment standards, and business and

human rights principles;

j) Supporting Union competitiveness and flexibly responding to economic

challenges and opportunities;

(2) Fighting climate change, protecting the environment and biodiversity

a) Promoting the protection and conservation of the environment and biodiversity,

and ensuring sustainable management and restoration of natural resources,

pollution reduction, biodiversity preservation, including water systems, land,

forests and the ocean;

b) Fostering a sustainable green, blue and circular economy, including bioeconomy,

green and smart cities and the access to climate resilient and safe water supply,

sanitation and waste services;

c) Supporting cooperation on environmental challenges, sustainable energy

transition, and improved regional energy connectivity as well as promoting

energy access, renewable energy and energy efficiency; promoting the use of

clean energy sources in industry and transport;

d) Supporting regional initiatives and partner countries’ efforts and plans for

climate change mitigation and adaptation, disaster preparedness and risk

reduction in order to support their commitments on climate change and

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biodiversity, with particular attention to the most vulnerable, in particular least

developed countries and small island developing states;

e) Ensuring food and nutrition security, sustainable and resilient agriculture and

sustainable fisheries;

(3) Promoting human development and gender equality

a) Supporting access to and improved quality of education, healthcare services and

health products and nutrition;

b) Fostering social inclusion, social protection, universal health coverage and the

fight against inequalities, with a focus on the most vulnerable;

c) Promoting gender equality and the rights and empowerment of women and girls,

protecting rights of persons with disabilities and of children and fighting child

labour, preventing and combating violence against women and domestic

violence;

d) Contributing to the resilience of partner countries, supporting and reinforcing

actions addressing the humanitarian-development-peace nexus, fragility

challenges and addressing reconstruction needs as well as balance of payment

crises;

(4) Enhancing cooperation on all aspects of migration, mobility and forced displacement

a) Addressing the root causes of irregular migration and forced displacement;

b) Strengthening all aspects of migration governance and management, enhancing

border management, including the quality of travel documents and visa systems,

fighting against migrant smuggling and trafficking in human beings and

fostering cooperation in safe, dignified and sustainable returns, readmission and

reintegration of irregular migrants;

c) Supporting and promoting the use of legal channels of migration and mobility,

and encouraging diasporas’ contributions to the development of the countries of

origin;

d) Supporting asylum seekers, refugees, internally displaced and stateless people,

notably the most vulnerable migrants including children, as well as their host

communities, and promoting their access to protection and durable solutions,

including voluntary repatriation, local integration, and access to resettlement as

well as complementary pathways.

(5) Promoting and protecting democracy, rule of law, human rights and good governance

a) Supporting democracy, the rule of law, good governance, transparency, and

accountability, protecting civic space, the prevention of and fight against

corruption and impunity, and independent, accountable and efficient justice

systems;

b) Supporting and ensuring engagement with civil society organisations, freedom

of the media, and empowerment of young people in all policy areas and

institutional processes;

c) Promoting respect for human rights and international humanitarian law, the

principles of equality and non-discrimination, with specific attention to

protecting those most at risk.

(6) Contributing to stability, peace and security

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a) Preparing for and responding effectively to crisis, emerging crisis and post-crisis

situations;

b) Supporting peace, mediation, stability and conflict prevention;

c) Increasing stability and security through judicial cooperation, the fight against

hybrid and cyber threats, organised crime, illegal trafficking, violent extremism,

and terrorism;

d) Contributing to preventing the circumvention of Union restrictive measures.

(7) Strengthening partnerships

a) Encouraging regional and inter-regional integration, cooperation, dialogue and

initiatives;

b) Promoting policy dialogue with the Organisation of Africa, Caribbean and

Pacific States;

c) Promoting the role of culture and intercultural dialogue, cultural diversity in all

its forms, and reinforcing cooperation on safeguarding, conservation and

enhancement of cultural heritage;

d) Fostering the establishment of people-to-people partnerships based on common

interests, and strengthening skills development through cooperation in the fields

of education, youth, culture, sport, research and innovation;

e) Ensuring engagement with civil society, local authorities and private sector, and

strengthening State and local authority institutions and their effective operations

in line with their respective mandate;

f) Strengthening awareness, understanding and perception of the European Union

in partner countries through strategic communication.

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Annex II.E - Americas and the Caribbean

(1) Advancing the agenda of just green and digital transitions for sustainable development

a) Developing local added value and bi-regional value chains (including on clean

energy and critical raw materials and inputs), inclusive and sustainable growth,

promoting the development of sustainable production and value chains, research

and innovation as well as decent jobs, by building upon European technology to

diversify the economies;

b) Leveraging value-based investments to address infrastructure needs in a climate

neutral, resilient, and nature-positive economy that meets high environmental,

social and governance standards;

c) Developing sustainable finance to attract international investors and promoting

green investments;

d) Fostering a just transition to a sustainable green, blue, digital and circular

economy, supporting decarbonisation and resource efficiency in agriculture,

transport, forestry, energy, while supporting climate change adaptation;

e) Supporting sustainable, safe, secure and resilient infrastructure and transport

connectivity, including road, rail, air and maritime transport, and the uptake of

sustainable transport fuels;

f) Improving the region’s productive and export capacity of critical raw materials

with a sustainability focus;

g) Promoting pollution reduction and protecting, preserving, restoring and ensuring

sustainable management of ecosystems, such as water systems, land, forests and

the ocean; developing sustainable food systems, sustainable fisheries, nature-

based solutions, fighting forest and biodiversity loss;

h) Advancing digital transformation and secure cyber-resilient digital connectivity,

including to reduce the digital gap and the gender divide, promoting the space

economy, secure and safe data flows and the use of space-based data, in line with

EU standards;

i) Supporting Union competitiveness and flexibly responding to economic

challenges and opportunities;

j) Promoting just transitions, inclusive societies and tackling inequalities in all its

forms, enhancing affordable and equal access to skills development and

universal access to health and social protection;

k) Fostering energy transition and promoting energy security; investing in energy

connectivity and renewable energies; promoting the use of clean energy sources

in industry and transport.

(2) Rolling out a common EU-LAC trade and investment agenda

a) Improving the conditions for sustainable investment and private sector

development through a more conducive business and regulatory environment,

promoting business and investment opportunities (including for companies from

the European Union), and a regulatory convergence with Union’s standards;

b) Facilitating trade in goods subject to the legislations related to the EU Green

Deal;

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c) Facilitating joint ventures, exports and decent work creation by small and

medium-sized enterprises;

d) Ensuring the implementation of trade and association agreements including

through technical assistance and business involvement;

e) Fostering the use of the Union’s single currency for trade, financial services and

investment within the region and with respect to the Union.

(3) Enhancing justice, citizen security and the fight against transnational organised crime,

contributing to stability, peace and security

a) Supporting cooperation and coordination against transnational organised crime,

and the financial flows it generates, building bridges between justice and security

institutions based on the convergence and harmonisation of rule of law policies

and instruments;

b) Strengthening partner countries’ capacities to respond to the impacts of security

and cyber threats and better protecting citizens and the most vulnerable;

c) Strengthening partner countries’ capacities to secure value chains and logistics;

d) Preparing for and responding effectively to crisis, emerging crisis and post-crisis

situations;

e) Supporting peace, mediation, stability and conflict prevention, and strengthening

the bi-regional parternship on security and justice;

f) Increasing stability and security through the fight against hybrid and cyber

threats, impunity, corruption, illegal trafficking, violent extremism, and

terrorism;

g) Contributing to preventing the circumvention of Union restrictive measures.

(4) Promoting human rights, human development, democracy and rule of law

a) Protecting and promoting human rights, with specific attention to protect the

most vulnerable, democracy, rule of law and good governance, including

accountability, and the prevention of and fight against corruption, including in

relation to organised crime;

b) Promoting gender equality and the rights and empowerment of women and girls,

preventing and combating violence against women and domestic violence, as

well as promoting young people’s empowerment in all policy areas and

institutional processes;

c) Safeguarding the space for civil society, and supporting freedom and pluralism

of the media;

d) Supporting greater access to and improved quality of education, healthcare

services and health products, and supporting food and nutrition security, and

access to climate resilient and safe water supply and water efficiency, sanitation

inclusive of all and waste services, protecting rights of persons with disabilities

and of children and fighting child labour;

e) Fostering social inclusion, social protection and the fight against inequalities,

with a focus on the most vulnerable;

f) Enhancing cooperation on migration, including combatting migrant smuggling,

and human mobility;

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g) Contributing to the resilience of partner countries, supporting and reinforcing

actions addressing the humanitarian-development-peace nexus, fragility

challenges and addressing reconstruction needs as well as balance of payment

crises.

(5) Strengthening partnerships

a) Promoting the EU-LAC bi-regional partnership;

b) Encouraging regional and inter-regional integration, connectivity and

cooperation;

c) Promoting policy dialogue with the Organisation of Africa, Caribbean and

Pacific States;

d) Promoting the role of culture and intercultural dialogue, cultural diversity in all

its forms, and reinforcing cooperation on safeguarding, conservation and

enhancement of cultural heritage;

e) Fostering the establishment of people-to-people partnerships based on common

interests, and strengthening skills development through cooperation in the fields

of education, youth, culture, sport and research and innovation;

f) Ensuring engagement with civil society, local authorities and private sector, and

strengthening State and local authority institutions and their effective operations

in line with their respective mandate;

g) Strengthening awareness, understanding and perception of the European Union

in partner countries through strategic communication.

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Annex II.F - Global

(1) Supporting human development

a) Preventing and combatting health threats, such as pandemics and anti-microbial

resistance, strengthening health systems and health equity, promoting universal

health coverage, and sexual and reproductive health and rights;

b) Supporting inclusive, equitable and quality education and skills, including via

global initiatives and research;

c) Promoting gender equality and empowerment of women and girls and

addressing inequalities;

d) Protecting children and young people, promoting youth engagement and

empowerment, and empowering persons with disabilities;

e) Steering and contributing to the global agenda on the governance of migration

and forced displacement and supporting the Union commitments in this regard;

f) Contributing to the global agenda on decent work for all, including through the

promotion of international labour standards, and universal social protection and

social inclusion.

(2) Advancing a just green and digital transition for sustainable prosperity

a) Accelerating a just transition to a climate-neutral, resilient, sustainable, green,

blue and circular economy, including by supporting global initiatives;

b) Strengthening global governance and knowledge on climate, food and

agriculture, environment, natural resources and the ocean , supporting global

public goods;

c) Accelerating the deployment of accessible, affordable, inclusive, sustainable,

safe and secure digital connectivity, including satellite connectivity, and

promoting a human-centric and secure digital economy and global governance;

d) Promoting sustainable finance, public and private investments, sustainable and

resilient value chains, responsible business conduct, and supporting the Union’s

trade policy and economic security in multilateral settings.

(3) Promoting and protecting democracy, human rights and rule of law

a) Upholding human rights and fundamental freedoms, promoting the principles of

equality and non-discrimination, protecting and enhancing an enabling civic

space, including by empowering human rights defenders and their networks

worldwide;

b) Supporting democracy, including effective representation and participation also

by deploying EU electoral observation missions;

c) Addressing threats to democracy, including foreign information manipulation

and interference and disinformation, and supporting free and independent media;

d) Supporting and protecting the rule of law and international law, including

through international justice mechanisms, transparency and accountability

mechanisms.

e) Strengthening global and multilateral human rights system, processes and

architecture.

(4) Contributing to peace, security, stability and response to crises

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a) Supporting peace, stability and conflict prevention through foresight, conflict

analysis, early warning, peacebuilding, mediation and dialogue;

b) Tackling global threats, including, hybrid, space and cyber threats, promoting

maritime and aviation security;

c) Increasing stability and security through multilateral initiatives against

terrorism, radicalisation and violent extremism, as well as global cooperation

against illicit trafficking and organised crime;

d) Mitigating chemical, biological, radiological and nuclear risks;

e) Supporting global initiatives to address climate and environmental risks with a

potentially destabilising impact on peace and security;

f) Supporting global initiatives to curb the use of minerals and other natural

resources to finance conflicts and prevent related human rights abuses and risks

in supply chains.

(5) Strengthening partnerships and strategic relations

a) Upholding multilateralism and multilateral agreements and engaging in global

partnerships, including supporting global economic governance and

development architecture;

b) Supporting global initiatives to combat illicit financial flows, money laundering

and tax evasion;

c) Strengthening institutional and operational capacities of European and partner

countries’ local authority networks and alliances for development;

d) Increasing capacities and maintaining partnerships with European and partner

countries’ civil society organisations, networks, platforms and alliances to create

an enabling environment for citizen participation and civil society action,

including in the Union;

e) Engaging in public diplomacy activities to promote dialogue and mutual

understanding.