REPORT FROM THE COMMISSION European Union Solidarity Fund_Annual Report 2011
Date: 2012-09-20
Institutions: European Commission
Subjects: EU Member State, distribution of EU funding, eligibility criteria, eligible region, emergency aid, financial aid, fund (EU), natural disaster

EUROPEAN COMMISSION 

Brussels, 20.9.2012  
COM(2012) 523 final 

REPORT FROM THE COMMISSION 

European Union Solidarity Fund 
Annual Report 2011 

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TABLE OF CONTENTS 

1. 

2. 

3. 

4. 

5. 

6. 

7. 

8. 

Introduction .................................................................................................................. 2 

Pending applications from 2010................................................................................... 3 

New applications received in 2011 .............................................................................. 5 

Financing...................................................................................................................... 6 

Monitoring.................................................................................................................... 7 

Closures........................................................................................................................ 8 

Communication on the Future of the EU Solidarity Fund ........................................... 9 

Conclusions ................................................................................................................ 10 

Annex 1: Thresholds for major disasters applicable in 2011 (based on 2009 figures for Gross 

National Income)........................................................................................................ 11 

Annex 2: EU Solidarity Fund Pending Applications from 2010 and New Applications decided 
in 2011........................................................................................................................ 12 

Annex 3: EU Solidarity Fund Applications since 2002 ........................................................... 13 

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REPORT FROM THE COMMISSION 

European Union Solidarity Fund 
Annual Report 2011 

1. 

INTRODUCTION 

Article  12  of  Council  Regulation  (EC)  No  2012/2002  of  11 November 2002 
establishing  the  European  Union  Solidarity  Fund  (hereinafter  "the  Regulation") 
provides that a report on the activity of the Fund in the previous year be presented to 
the European Parliament and to the Council. The present report presents the activities 
of  the  Fund  in  2011  covering,  as  in  previous  reports,  the  treatment  of  pending  and 
new  applications  and  the  assessment  of  implementation  reports  with  a  view  to 
preparing these for closure. 

In  terms  of  the  number  of  applications,  2011  was  a  quieter  year.  Only  four 
applications  for  Solidarity  Fund  aid  were  made  in  the  course  of  the  year,  while  in 
2010  a  total  of  17  applications  had  been  presented.  As  some  of  these  applications 
were  received  late  in  2010,  their  assessment  continued  into  2011.  They  concerned 
applications  from  France  (Var  flooding),  Czech  Republic  (autumn  flooding), 
Germany  (Sachsen  flooding),  Croatia  and  Slovenia  (September  flooding)  and 
Hungary  (red  sludge  spill).  The  assessment  of  these  cases  was  completed  during 
2011 and is described in this report. 

The  four  cases  received  in  2011  concerned  two  applications  from  Italy  (Veneto 
flooding,  Liguria  and  Tuscany  flooding),  from  Spain  (Lorca  earthquake)  and  from 
Cyprus (naval base explosion). In the course of 2011, the Commission completed its 
assessment  and  accepted  the  applications  from  Italy  (Veneto  flooding)  and  Spain 
(Lorca earthquake). Decisions on the second Italian application (Liguria and Tuscany 
flooding) as well as on the application from Cyprus were taken by the Commission 
early in 2012. 

In 2011, the Commission granted Solidarity Fund aid for 11 disasters amounting to a 
total  of  EUR 239,9 million  and  proposed  further  aid  amounting  to  EUR 38 million 
for two more cases. 

2. 

PENDING APPLICATIONS FROM 2010 

France (Var flooding) 

On  15  and  16  June  2010,  parts  of  southern  France  were  hit  by  intense  rainfall.  On 
24 August 2010, the French authorities submitted an application for Solidarity Fund 
assistance. The application was limited to the hardest hit zone in the Département du 
Var  and  composed  of  nine  municipalities  plus  two  areas  at  infra-communal  level, 
forming  together  a  single  coherent  area  clearly  identified  in  the  application.  Total 
direct  damage  caused  by  the  disaster,  within  the  designated  zone,  was  estimated 
between EUR 703,2 million and EUR 778,2 million. For the purpose of assessing the 
application the Commission used the average  damage  figure  of  EUR 740,7 million. 
The estimate of total direct damage thus represented 21% of the normal threshold for 
mobilising  the  Solidarity  Fund  applicable  to  France  in  2010  of  EUR 3,467 billion 
(i.e.  EUR 3  billion  in  2002  prices).  As  damage  remained  below  the  threshold,  the 

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French  application  was  examined  under  the  exceptional  criteria  for  "extraordinary 
regional disasters". The assessment revealed that the French application presented no 
evidence demonstrating that the economic stability  of the Département du Var was 
affected in a serious and lasting manner such as by a significant drop in employment 
or regional GDP. For this reason, on 4 March 2011 the Commission decided that the 
French application did not meet the conditions for exceptionally mobilising the Fund 
and informed the French authorities accordingly. 

Czech Republic (autumn flooding 2010) 

In  August  2010,  the  northern  parts  of  the  Czech  Republic,  namely  the  Liberec 
Region  (Liberecký  kraj)  and  the  neighbouring  District  Děčín  belonging  to  the  Ústí 
nad Labem Region (Ústecký kraj), were affected by unusually heavy rainfall which 
led to severe flooding, resulting in significant damage to public infrastructure, private 
homes,  agriculture  and  businesses.  On  14  October  2010,  the  Czech  authorities 
submitted  an  application  for  Solidarity  Fund  assistance.  The  Czech  authorities 
estimate  the  total  direct  damage  at  EUR 436,5  million,  representing  53%  of  the 
normal threshold for mobilising the Solidarity Fund applicable to the Czech Republic 
in  2010  of  EUR 824,03 million  (i.e.  0,6%  of  GNI  based  on  2008  data).  The 
application was therefore examined under the exceptional criteria for "extraordinary 
regional  disasters".  The  application  demonstrated  that  the  criteria  whereby  a)  the 
majority  of  the  population  in  the  affected  zone  must  be  affected  and  b)  that  the 
disaster  caused  serious  and  lasting  repercussions  on  the  living  conditions  and  the 
economic  stability  were  met.  On  23  March  2011,  the  Commission  proposed  to 
mobilise  financial  assistance  of  EUR 10,912  million.  The  corresponding  amending 
budget procedure was completed on 14 July 2011. Following the conclusion of the 
Implementation Agreement with the Czech Republic the payment of the grant could 
be made on 22 December 2011. 

Germany (Sachsen flooding) 

In  August  and  September  2010,  the  eastern  parts  of  Germany,  mostly  in  Saxony, 
experienced heavy rainfall triggering floods causing damage to public infrastructure, 
private homes, agriculture and businesses. The application submitted by the German 
authorities  on  15 October  2010  showed  that  a  cumulative  application  for  three 
different  disasters  was  presented,  and  that  these  events  concerned  different  areas 
inside  Saxony  with  only  partial  overlap.  Total  cumulated  direct  damage  for  the 
flooding  events  was  estimated  at  EUR 937,8 million,  thus  representing  nearly  one 
third  of  the  normal  threshold  for  mobilising  the  Solidarity  Fund  applicable  to 
Germany in 2010 of EUR 3,467 billion (i.e. EUR 3 billion in 2002 prices). While the 
provision  of  the  Regulation  refers  to  the  consequences  of  a  (single)  disaster  the 
Commission has always accepted that a succession of similar events within a short 
period of time having the same origin or affecting the same area can be regarded as a 
single event within the meaning of the Regulation. Events of distinct origin affecting 
different  areas  should  however  be  assessed  separately.  On  4  April  2011,  the 
Commission  decided  that  the  three  flooding  events  referred  to  in  the  application 
could  not  be  considered  to  be  an  extraordinary  disaster  within  the  meaning  of  the 
Regulation. The German authorities were informed accordingly. 

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Slovenia (autumn flooding 2010) 

From 17 to 22 September 2010, Slovenia was affected by a severe flooding disaster 
causing  widespread  damages  mostly  to  cultural  heritage,  public  infrastructure  and 
private  homes.  The  Slovene  authorities  applied  for  Solidarity  Fund  assistance  on 
26 November 2010.  As  the  estimated  total  direct  damage  of  EUR 251,3 million 
exceeded  the  threshold  for  mobilising  the  Solidarity  Fund  applicable  to  Slovenia 
(i.e. EUR 217,67 million,  data  of  2008)  the  disaster  qualified  as  a  “major  natural 
disaster”  under  the  terms of the Regulation. On 24 February 2011, the Commission 
decided  to  accept  the  application  from  Slovenia  and  to  grant  financial  assistance 
amounting to EUR 7,460 million. The amending budget procedure was completed on 
14  July  2011.  Following  the  conclusion  of  the  Implementation  Agreement  with 
Slovenia the grant could be paid out on 8 December 2011. 

Croatia (autumn flooding 2010) 

Croatia  faced  intense  rainfall  from  17  to  22  September  2010  causing  severe  floods 
that  particularly  struck  the  area  of  Western  Croatia.  As  a  country  at  the  time  of 
application  in  the  process  of  negotiating  its  accession  to  the  EU,  Croatia  is,  in 
principle,  eligible  for  Solidarity  Fund  assistance.  The  disaster  caused  significant 
damage  to  infrastructure,  to  the  agriculture  sector  and  to  private  property.  Total 
direct  damage  was  estimated  at  EUR 47,003  million.  As  this  amount  is  below  the 
threshold  of  EUR 275,80 million  (i.e.  0,6%  of  Croatia's  GNI  of  2008)  the  disaster 
does not qualify as a "major natural disaster". However, the flooding in Croatia was 
the same which led to the major disaster in Slovenia. Therefore, the condition set out 
in  Article  2(2)  second  subparagraph  of  Council  Regulation  (EC)  No 2012/2002, 
whereby  a  country  affected  by  the  same  major  disaster  as  a  neighbouring  country 
may  exceptionally  benefit  from  Solidarity  Fund  aid,  was  found  to  be  met  and  the 
Commission  decided  to  grant  financial  assistance  to  Croatia  amounting  to 
EUR 1,175 million. The amending budget procedure was completed on 14 July 2011. 
Following  the  conclusion  of  the  Implementation  Agreement  with  the  Republic  of 
Croatia the payment of the grant was made on 1 December 2011. 

Hungary (red sludge spill) 

On 4 October 2010, a red sludge reservoir of the Magyar Alumínium Zrt (MAL Ltd.) 
aluminium plant near the Hungarian village of Kolontár burst, triggering a massive 
spill of red sludge which inundated several settlements. The disaster caused serious 
pollution,  residential  homes  and  a  bridge  were  damaged,  hundreds  of  people  were 
evacuated, 286 people were injured and ten fatalities were reported. The Hungarian 
authorities decided to submit an application for Solidarity Fund assistance which was 
received by the Commission on 13 December 2010.  

The total direct damage caused by the disaster was estimated at EUR 174,32 million. 
The  normal  threshold  for  mobilising  the  Solidarity  Fund  for  Hungary  in  2010  was 
EUR 590,71 million (i.e. 0,6% of Hungary's GNI of 2008). As the direct damage of 
the  disaster  was  considerably  lower  than  the  normal  threshold,  Hungary  submitted 
the application under the “extraordinary regional disaster” criteria.  
The Regulation states in Article 2 (1) that it applies mainly to major natural disasters1 
and, therefore, does not from the outset exclude technological disasters from its field 

1 

Article  2(1)  states:  “At  the  request  of  a  Member  State  or  country  involved  in  accession  negotiations 
with the European Union, hereinafter referred to as "beneficiary State", assistance from the Fund may 

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of  application.  These  could,  however,  only  be  considered  eligible  if  further 
conditions are met. 

Article 3(3) of Council Regulation (EC) No 2012/2002 in principle limits payments 
from  the  Fund  to  financing  measures  alleviating  non-insurable  damages.  The 
damages  caused  by  the  red  sludge  spill  were  however  caused  by  the  defect  of  an 
industrial  installation.  Independent  of  the  question  of  any  individual  responsibility, 
the owners and/or operators of the aluminium plant should have insured themselves 
against risks emanating from running the installation (absolute liability). The damage 
caused by the red sludge spill must therefore be considered insurable. Moreover, the 
application  did  not  explore  the  question  of  liability.  Article  8(1)  of  Council 
Regulation  (EC)  No  2012/2002  however  obliges  beneficiary  States  to  seek  all 
possible  compensation  from  third  parties.  Article  3(3)  of  Council  Regulation  (EC) 
No 2012/2002 stipulates that payments from the Fund relating to the cost of damage 
subsequently  met  by  a  third  party  shall  be  recovered.  Under  the  "polluter  pays 
principle", the owner and/or operator of an industrial complex should be held liable 
for  any  damage  emanating  from  that  installation  independent  of  any  possible 
personal  responsibilities  or  insurance  coverage.  The  Solidarity  Fund  must  therefore 
not  intervene  for  such  damage.  For  the  reasons  set  out  above,  the  Hungarian  red 
sludge disaster could not be considered as meeting the criteria of Council Regulation 
(EC) No 2012/2002 for mobilising the Solidarity Fund. Hungary was informed of the 
Commission's decision accordingly. 

3. 

NEW APPLICATIONS RECEIVED IN 2011 

During the course of 2011, applications from Italy (Veneto flooding), Spain (Lorca 
earthquake) and Cyprus (naval base explosion) were received. One more application 
from  Italy  (Liguria  and  Tuscany  flooding)  reached  the  Commission  just  before  the 
end of 2011. The assessment of the applications from Cyprus and Italy (Liguria and 
Tuscany flooding) could however only be completed in 2012 and will be presented in 
the Annual Report 2012. 

Italy (Veneto flooding) 

During the period from 31 October to 2 November 2010, the Veneto region of north-
eastern  Italy  was  hit  by  torrential  rainfall  and  aggravated  by  melting  snow  which 
triggered  rivers  to  burst  their  banks  flooding  widespread  areas,  causing  damage  to 
road  and  infrastructure  networks,  agriculture,  businesses  and  residential  homes. 
Extensive  damage  was  recorded  throughout  Veneto,  while  the  river  basin  of  the 
Bacchiglione including the urban areas of Vicenza and Padova was particularly hard 
hit.  Subsequently,  Italy  submitted  an  application  for  financial  assistance  from  the 
Solidarity  Fund  which  was  received  at  the  Commission  on  7 January 2011.  A 
significantly  revised  application  was  received  mid-August  2011.  Following  a 
rigorous examination of the application, the Commission came to the conclusion that 
the  Italian  application  qualifies  as  an  "extraordinary  regional  disaster”.  Total  direct 
damage,  as  accepted  by 
to  EUR 676,36 million, 
representing  19%  of  the  normal  threshold  applicable  to  Italy  in  2011  of 
EUR 3,536 billion  (i.e.  EUR 3  billion 
the 
Commission  approved  the  Italian  application  on  17 November 2011  and  proposed 

in  2002  prices).  Consequently, 

the  Commission,  amounts 

be mainly mobilised when a major natural disaster with serious repercussions on living conditions, the 
natural  environment  or  the  economy  in  one  or  more  regions  or  one  or  more  countries  occurs  on  the 
territory of that State.” 

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mobilising Solidarity Fund assistance amounting to EUR 16,9 million. The amending 
budget  procedure  was  completed  on  13  December  2011.  However,  budget 
appropriations  could  only  be  made  available  mid-February  2012.  Following  the 
conclusion of the Implementation Agreement with Italy the grant could be paid out 
on 15 June 2012. 

Spain (Lorca earthquake) 

On 11 May 2011, two consecutives earthquakes with a magnitude of 5.2 affected the 
Spanish town of Lorca, claiming the lives of nine people and causing high damages. 
Spain  submitted  an  application  for  financial  assistance  from  the  Solidarity  Fund 
which  was  received  by  the  Commission  on  20  July  2011,  followed  by  an  updated 
version on 1 August 2011. Total direct damage caused by the disaster as recognised 
by  the  Commission  amounts  to  EUR 842,84 million,  representing  23,84%  of  the 
normal 
in  2011  of  EUR 3,536 billion  (i.e. 
EUR 3 billion  in  2002  prices).  The  Commission  decided  on  17  November  2011  to 
for 
accept 
"extraordinary  regional  disaster”  and  proposed  mobilising  Solidarity  Fund 
assistance  amounting  to  EUR 21,1 million.  The  amending  budget  procedure  was 
completed  on  13 December 2011.  However,  budget  appropriations  could  only  be 
made available mid-February 2012. The payment of the grant will be executed once 
the implementation agreement between the Commission and Spain is signed. 

the  Spanish  application  based  on 

the  exceptional  provisions 

threshold  applicable 

to  Spain 

4. 

FINANCING 

In  2011,  grants  from  the  Solidarity  Fund  were  paid  out  for  six  cases  for  which 
applications  had  been  received  in  the  summer  of  2010.  The  corresponding 
Preliminary  Draft  Amending  Budget  No 1  for  the  year  2011  was  finally  completed 
on 6 April 20112. Payments were made in the course of summer and autumn 2011. 

For  three  more  applications  received  in  late  2010,  the  Fund  was  also  mobilised. 
Preliminary  Draft  Amending  Budget  No 2  for  the  year  2011  covers  the  floods 
affecting the Czech Republic, Slovenia and Croatia (autumn floods of 2010) and was 
approved by the Budgetary Authority on 14 July 2011. The payments were made at 
the  end  of  2011  after  adoption  of  the  grant  decisions  and  after  the  implementation 
agreements were signed3.  

As regards applications received in 2011, the Fund could be mobilised in the case of 
Italy  (Veneto  flooding)  and  Spain  (Lorca  earthquake).  The  corresponding 
Preliminary  Draft  Amending  Budget  No  7  for  the  year  2011  was  approved  by  the 
Budgetary  Authority  on  13 December  20114.  However,  payments  were  delayed 

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Amending Budget (AB) No 1 for the year 2011 covers the mobilisation of the EU Solidarity Fund for 
an  amount  of  EUR 182 388 893  in  commitment  and  payment  appropriations  relating  to  the  effects  of 
heavy rainfalls in Poland, Slovakia, the Czech Republic, Hungary, Croatia and Romania. It was adopted 
by the European Parliament on 6.04.2011. COM(2011)9. OJ L 172 of 30.06.2011. 
The previous draft amending budget No. 2 to the budget 2011 (COM(2011)154) has been adopted as 
amending budget no. 3 by the European Parliament on 14.07.2011. It covers the mobilisation of the EU 
Solidarity Fund for an amount of EUR 19 546 647 in commitment and payment appropriations relating 
to the effects of heavy rainfalls in Slovenia, Croatia and the Czech Republic. OJ L 213 of 19.08.2011. 
Amending Budget (AB) No 7 for the year 2011 covers the mobilisation of the EU Solidarity Fund for 
an amount of EUR 37 979 875 in commitment and payment appropriations relating to the earthquake in 
Murcia, Spain (EUR 21 070 950) and flooding in the Veneto, Italy (EUR 16 908 925). It was adopted 
by the European Parliament on 13.12.2011. COM(2011)796 of 21.11.2011. OJ L 62 of 2.03.2012.  

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because  budget  appropriations  had  to  be  carried  over  to  2012  and  implementation 
agreements had to be completed. 

Solidarity Fund grants approved in 2011 

Beneficiary State 

Disaster 

Category 

Slovakia 

Poland 

spring flooding 2010 

spring flooding 2010 

major 

major 

Czech Republic 

spring flooding 2010 

neighbouring 

Hungary 

Croatia 

Romania 

spring flooding 2010 

major 

spring flooding 2010 

neighbouring 

spring flooding 2010 

Czech Republic 

autumn flooding 2010 

major 

regional 

major 

autumn flooding 2010 

autumn flooding 2010 

neighbouring 

Veneto flooding 2010 

Lorca earthquake 2011 

regional 

regional 

Slovenia 

Croatia 

Italy 

Spain 

TOTAL 

5. 

MONITORING 

Amount granted  
in 2011 (EUR) 

20 430 841 

105 567 155 

5 111 401 

22 485 772 

3 825 983 

24 967 741 

10 911 939 

7 459 637 

1 175 071 

16 908 925 

21 070 950 

239 915 415 

In  the  course  of  2011  the  Commission  carried  out  monitoring  visits  to  five 
beneficiary countries of Solidarity Fund grants in order to be informed of the systems 
put  in  place  by  the  responsible  national  authorities  to  implement  the  respective 
Solidarity  Fund  grants  and  to  discuss  specific  questions  by  the  implementing 
authorities: 

– 

– 

– 

– 

– 

to  Dublin  (Ireland)  on  1  July  2011  relating  to  the  EUR 13 million  grant 
following the flooding of November 2009. 

to  Poitiers  (France)  on  12  July  2011  relating  to  the  EUR 35,6 million  grant 
following storm Xynthia in February 2010. 

to  Madeira  (Portugal)  on  1  September  2011  following  the  EUR 31,3 million 
grant for the mud- and landslides in February 2010. 

to  Bucharest  (Romania)  from  7  to  8  November  2011  relating  to  the 
EUR 25 million  grant  made  in  2011  relating  to  the  flooding  disaster  of  June 
2010. 

to  Budapest 
EUR 22,5 million grant following the flooding of May 2010. 

(Hungary)  on  24  November  2011 

relating 

to 

the 

The  Commission  visits  were  generally  very  much  welcomed  and  gave  reasonable 
assurance  that  the  relevant  authorities  were  carrying  out  the  implementation  and 
controls in a transparent and correct manner, and in respect of the rules imposed by 
the  Solidarity  Fund  Regulation,  the  grant  decision  and  the  implementation 
agreement. 

Upon receipt of the final reports the Commission will conduct further analyses and 
take appropriate measures where necessary. 

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6. 

CLOSURES 

Article 8(2) of Solidarity Fund Regulation states that no later than six months after 
the  expiry  of  the  one-year  period  from  the  date  of  disbursement  of  the  grant,  the 
beneficiary  State  shall  present  a  report  on  the  financial  execution  of  the  grant 
(“implementation  report”)  with  a  statement  justifying  the  expenditure  (“validity 
statement”).  At  the  end  of  this  procedure,  the  Commission  shall  wind  up  the 
assistance from the Fund. 

In the course of 2011, three Solidarity Fund files were closed. 

(1) 

to  EUR 9,7 million  was  granted  and 

In  the  case  relating  to  the  flooding  disaster  in  Bulgaria  of  spring  2005, 
financial  aid  amounting 
the 
implementation report was received on 17 January 2008. The auditing work of 
the  Bulgarian  authorities  revealed  ineligible  expenditure  of  EUR 225 150. 
Consequently,  and 
the 
Commission  initiated  a  recovery  procedure  and  the  amount  of  EUR 225 150 
was  recovered  from  the  Bulgarian  authorities  on  29 December 2008.  The 
Commission's  further  analysis  and  assessment  were  completed  in  2011.  The 
Commission wound up the case in February 2011. 

the  Bulgarian  authorities, 

in  agreement  with 

(2)  As  regards  the  closure  of  assistance  of  the  case  relating  to  the  wind  storm 
affecting the Island of La Réunion (France) in 2007, for which financial aid of 
EUR 5,29 million  was  granted,  the  implementation  report  was  received  on 
13 July  2009.  As  a  result  of  ineligible  expenditure  declared  by  the  French 
authorities, the expenditure was EUR 53 680 short of the amount granted. After 
further analyses and assessment of the final report, and given the fact that the 
French authorities did not object to the Commission's closure letter within the 
two months deadline set, the Commission initiated the recovery procedure for 
the amount of EUR 53 680. The amount was received by the Commission and 
the file was wound up in June 2011. 

(3)  With  regard  to  the  closure  of  the  Hungarian  case  of  2006  relating  to  the 
flooding  disaster  of  April  2006,  the  Commission  granted  financial  aid  of 
EUR 15 million.  The  implementation  report was  received  by  the  Commission 
on 18 May 2009. The Hungarian authorities stated in their final report that the 
expenditure  declared  was  EUR 4 598  short  of 
the  amount  granted. 
Consequently,  and  after  further  analyses  and  checks  carried  out  by  the 
Commission  the  amount  of EUR 4 598  was  recovered  from  the  Hungarian 
authorities. The Commission wound up the case in September 2011. 

In  2011,  the  Commission  received  final  implementation  reports  for  grants  made  in 
2009 from France (storm Klaus 2009) and from Italy (Abruzzo earthquake 2009). At 
the  end  of  the  period  covered  by  this  annual  report  the  assessment  of  these 
implementation reports was on-going. 

7. 

COMMUNICATION ON THE FUTURE OF THE EU SOLIDARITY FUND 

On 6 October 2011 the Commission presented its Communication on the Future of 
the EU Solidarity Fund5 which aims to make the Fund more responsive in the face of 
disasters, more visible and its operational criteria clearer. 

5 

COM(2011)613 

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In  2005,  the  Commission  had  already  presented  a  legislative  proposal  for  an 
amended  Solidarity  Fund  Regulation,  which  proved  to  be  unacceptable  to  the 
majority of Member States. The Commission has therefore withdrawn that proposal. 

The Commission still considers that important improvements to the operation of the 
EU  Solidarity  Fund  could  be  achieved  with  only  a  minimum  of  adjustment  to  the 
current Regulation, thus maintaining its rationale and character and without touching 
on  matters  of  finance  and  the  volume  of  permitted  spending.  The  proposed 
adjustment to the Regulation would not lead to any change in the eligible operations 
financed from the Fund, such as the immediate repair of vital infrastructures and the 
costs  of  deploying  response  assets.  Elements  of  the  2005  proposal  such  as  the 
widening of the scope, the modification of the thresholds or abandoning the category 
known as regional disasters are not included in the Communication. 

The Communication proposes the following adjustments: 

•  a clearly defined scope for the Solidarity Fund limiting it to natural disasters and 
technological  disasters 

their  consequences.  "Cascading  effects"  such  as 
originating in natural disasters would remain eligible. 

•  a simple new definition for regional disasters based on a single objective (GDP-
based)  criterion;  this  would  do  away  with  the  lacking  clarity  under  the  current 
provisions about the conditions for exceptionally mobilising the EUSF. 

•  the  introduction  of  advances  (upon  request)  and  speeding  up  payments  to 

improve the effectiveness of the EUSF and increase its visibility. 

•  a clearer response to slowly unfolding disasters such as drought. 

•  administrative  simplification  and  time  gains  by  merging  grant  decisions  and 

implementation agreements.  

•  the  Commission  would  also  like  to  explore  with  Member  States  whether  the 
Solidarity Fund could contribute towards increased disaster and climate change 
resilience by introducing incentives for increased prevention efforts. 

•  The  Commission  is  also  open  to  discussing  any  other  elements  that  Member 

States might wish to include with a view to making the Fund more effective. 

At  the  time  of  adoption  of  this  report,  discussions  are  taking  place  on  the 
Communication in the Council, the European Parliament and other stakeholders. The 
Commission is examining the options for a new legislative proposal.  

8. 

CONCLUSIONS 

While  in  2011  the  Commission  received  only  a  smaller  number  of  new  Solidarity 
Fund  applications,  dealing  with  the  record  number  of  applications  from  2010 
extended  well  into  2011.  These  applications  confirmed  many  of  the  issues  and 
tendencies made out and reported on in earlier years.  

Major disasters – the principle target of the Solidarity Fund – are relatively simple to 
assess  on  the  grounds  of  the  single  hard  criterion  (total  direct  damage  above  a 
threshold)  necessary  to  approve  aid.  They  form  however  only  about  one  third  of 
applications received. 

The  large  majority  of  applications  concerns  smaller  disasters,  mostly  based  on  the 
criteria  for  so-called  extraordinary  regional  disasters  which  the  legislator  had 

EN 

10 

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intended  to  be  the  rare  exception  and  for  which  only  7.5%  of  the  Fund's  annual 
budgetary  resources  are  available.  The  conditions  laid  down  in  the  Regulation  for 
accepting such applications are complicated and rather difficult to meet. As a result, 
the majority of regional disaster applications are rejected by the Commission. Clearer 
and  simpler  criteria  on  the  basis  of  which  aid  to  regional  disaster  can  be  granted 
would be useful. 

It has become evident once again that applications relating to industrial accidents and 
other  non-natural  disasters  do  not  normally  meet  the  eligibility  criteria  of  the 
Regulation  because  of  the  polluter  pays  principle  and  the  exclusion  of  insurable 
damage  from  Solidarity  Fund  aid.  As  already  addressed 
the  October 
Communication, a more clearly defined scope limiting it to natural disasters and their 
consequences would eliminate legal uncertainty.  

in 

The treatment of applications that are received later in a given year cannot normally 
be  completed  during  the  same  year.  The  provision  of  the  Regulation  according  to 
which  25%  of  the  EUR  1  billion  allocated  to  the  Fund  annually  may  not  be  spent 
before  1  October  in  order  not  to  deplete  the  financial  resources  prematurely  is 
therefore factually without effect. Further reflection needs to be given to how grants 
could be paid out more quickly. 

The Communication on the Future of the Solidarity Fund contains many elements for 
improving  the  legal  framework  and,  consequently,  the  effectiveness  of  the  Fund. 
Therefore,  the  Communication  paves  the  ground  for  a  possible  legislative  proposal 
aiming to make the Fund more responsive in the face of disasters, more visible and 
its operational criteria clearer. 

EN 

11 

   EN 

 
ANNEX 1: THRESHOLDS FOR MAJOR DISASTERS APPLICABLE IN 2011 

(BASED ON 2009 FIGURES FOR GROSS NATIONAL INCOME) 

Country 

GNI 2009* 

0.6% of GNI* 

ÖSTERREICH 

BELGIË/BELGIQUE 

BULGARIA 

KYPROS 

ČESKÁ REPUBLIKA 

271 459

342 261

33 113

16 641

129 046

1 628.756

2 053.566

198.678

99.845

774.274

DEUTSCHLAND 

2 430 940

14 585.640

(Million EUR)

Major disaster 
threshold 2011* 

1 628.756

2 053.566

198.678

99.845

774.274

3 535.904**

1 358.684

81.230

1 359.863

3 535.904**

1 028.298

3 535.904**

261.431
529.747

795.607

46.723

226 447

13 538

226 644

1 029 541

171 383

1 358.684

81.230

1 359.863

6 177.246

1 028.298

1 922 845

11 537.070

43 572

88 291

132 601

7 787

261.431
529.747

795.607

46.723

1 494 576

8 967.457

3 535.904**

27 010

26 765

19 954

5 451

556 518

299 518

162 331

113 652

296 151

34 704

62 575

330 413

1 587 886

162.057

160.590

119.723

32.704

3 339.108

1 797.108

973.986

681.913

1 776.908

208.224

375.452

1 982.480

9 527.315

162.057

160.590

119.723

32.704

3 339.108

1 797.108

973.986

681.913

1 776.908

208.224

375.452

1 982.480
3 535.904**

AT 

BE 

BG 

CY 

CZ 

DE 

DK 

EE 

EL 

ES 

FI 

FR 

HR 

HU 

IE 

IS 

IT 

LT 

LU 

LV 

MT 

NL 

PL 

PT 

RO 

SE 

SI 

SK 

TR 

UK 

DANMARK 

EESTI 

ELLADA 

ESPAÑA 

SUOMI/FINLAND 

FRANCE 

HRVATSKA 

MAGYARORSZÁG 

ÉIRE/IRELAND 

ICELAND 

ITALIA 

LIETUVA 

LUXEMBOURG (G.D.) 

LATVIJA 

MALTA 

NEDERLAND 

POLSKA 

PORTUGAL 

ROMÂNIA 

SVERIGE 

SLOVENIJA 

SLOVENSKO 

TÜRKIYE 

UNITED KINGDOM 

*Thresholds are defined as the lower of 0.6% of GNI or EUR 3 billion in 2002 prices. 

*Rounded figures 
** ~ EUR 3 billion in 2002 prices 
Source: Eurostat 

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12 

   EN 

 
 
 
 
ANNEX 2: EU SOLIDARITY FUND PENDING APPLICATIONS FROM 2010 AND NEW APPLICATIONS DECIDED IN 2011 

Year 

2010 

2011 

Applicant Country 

France 

Czech 
Republic 

Germany 

Slovenia 

Croatia 

Hungary 

Italy 

Spain 

Cyprus 

Italy 

Name and nature of 
disaster 

Var  
flooding 

Autumn 
flooding 

Sachsen 
flooding 

Autumn 
flooding 

Autumn 
flooding 

Red sludge 
spill 

Veneto 
flooding 

Lorca 
earthquake 

Naval base 
explosion 

Liguria & 
Tuscany 
flooding 

First damage date 

15/06/2010 

7/08/2010 

7/08/2010 

17/09/2010 

17/09/2011 

4/10/2010 

31/10/2010 

11/05/2011 

11/07/2011 

25/10/2011 

Application date 

24/08/2010 

14/10/2010  15/10/2010  26/11/2010 

25/11/2010 

13/12/2010 

7/01/2011 

20/07/2011 

19/09/2011 

22/12/2011 

Complete information 
available on 

Major disaster threshold 
(m€) 
Total direct damage (m€) 6 

- 

- 

- 

- 

- 

- 

11/08/2011 

1/08/2011 

24/11/2011 
20/01/2012 

- 

3466.57 

824.03 

3466.57 

217.67 

275.80 

590.71 

3535.90 

3535.90 

99.85 

3535.90 

740.70 

436.48 

937.77 

251.30 

47 

174.32 

676.36 

842.84 

- 

722.47 

Category 

(regional) 

regional 

(regional) 

major 

neighbouring 

(regional) 

regional 

regional 

Damage/threshold 

21.37% 

52.97% 

27.05% 

115.45% 

17.04% 

29.51% 

19.13% 

23.84% 

Cost of eligible emergency 
operations (m€) 

197.54 

334.77 

489 

171.27 

28.65 

Eligible cost/ total damage 

26.67% 

76.70% 

52.14% 

68.15% 

Aid/eligible cost 

Aid rate 
(% of total damage) 

- 

- 

3.26% 

2.5% 

- 

- 

4.36% 

2.97% 

60.95% 

4.10% 

2.5% 

- 

- 

- 

- 

573.23 

104 

84.75% 

2.95% 

12.34% 

20.26% 

2.5% 

2.5% 

(major)/non-
natural 

- 

- 

- 

- 

- 

regional 

20.43% 

511.43 

70.79% 

3.53% 

2.5% 

Date of Grant Decision 

rejected 

22/08/2011 

rejected 

19/09/2011 

19/08/2011 

rejected 

28/03/2012 

9/03/2012 

rejected 

pending 

Date of Implementation 
Agreement (adopted) 

Aid granted (EUR) 

- 

- 

11/10/2011 

10 911 939 

- 

- 

4/11/2011 

14/09/2011 

7 459 637 

1 175 071 

- 

- 

23/04/2012 

26/06/2012 

16 908 925 

21 070 950 

- 

- 

pending 

18 061 682 

6 

Total direct damage amount accepted by the Commission 

EN 

13 

EN 

 
  
                                                 
ANNEX 3: EU SOLIDARITY FUND APPLICATIONS SINCE 2002 

Category 

Aid granted 
(million EUR) 

Year  Country 

Nature of the disaster 

1  AT  Flooding 

2  CZ  Flooding 

3 

FR  Flooding (Le Gard) 

2 
0 
0 
2 

4  DE  Flooding 

Total aid for 2002 applications 

Damage 
(million 
EUR) 

2 900 

2 300 

835 

9 100 

major 

major 

regional 

major 

2 
0 
0 
3 

1 

2 

3 

4 

ES  Oil spill (Prestige) 

436 

regional 

IT  Earthquake (Molise/Apulia) 

1 558 

regional 

IT  Volcanic eruption (Etna) 

894 

regional 

IT  Flooding (North Italy) 

(1 900) 

(major) 

5  GR  Adverse winter weather 

(not clear) 

(major ?) 

6 

PT  Forest fires 

1 228 

major 

7 

FR 

Forest fires (Southern 
France) 

8 

ES 

Forest fires (Portuguese 
border) 

9  MT  Flooding 

531 

(regional) 

53 

30 

neighbouring 
country 

major 

10 

IT 

Flooding (Friuli Venezia-
Giulia) 

(525) 

(regional) 

Total aid for 2003 applications 

FR  Flooding (Rhone delta) 

ES  Flooding (Malaga) 

785 

(73) 

regional 

(regional) 

1 

2 

3-
9 

2 
0 
0 
4 

134 

129 

21 

444 

728 

8.626 

30.826 

16.798 

Rejected 

Rejected 

48.539 

Rejected 

1.331 

0.961 

Rejected 

107.081 

19.625 

Rejected 

ES  Forest fires (7 applications) 

(480) 

(regional) 

all 7 rejected 

10  SK  Flooding 

11 

SI  Earthquake 

Total aid for 2004 applications 

(29) 

(13) 

(regional) 

(regional) 

1 

SK  Storm (Tatras) 

203 

major  

Rejected 

withdrawn 

19.625 

5.668 

2 
0 
0 
5 

2 

IT  Flooding (Sardinia) 

3 

EE  Storm 

4  LV  Storm 

5 

SE  Storm "Gudrun" 

EN 

(regional) 

Rejected 

major 

major 

major 

1.29 

9.487 

81.725 

(223. over-
estimated)  

48 

193 

2 297 

14 

   EN 

 
 
 
 
 
 
 
 
Year  Country 

Nature of the disaster 

6 

LT  Storm 

Damage 
(million 
EUR) 

15 

Category 

Aid granted 
(million EUR) 

neighbouring 
country 

0.379 

7  GR  Evros flooding  

(112) 

(regional) 

Rejected 

(700) 

(regional) 

withdrawn 

2 
0 
0 
5 

8  RO  Spring flooding 

9  BG  Spring flooding  

10  BG  Summer flooding 

489 

222 

237 

11  RO  Summer flooding 

1 050 

major 

major 

major 

major 

1  DE  Storm "Kyrill" 

4750 

major 

12  AT 

Flooding 
(Tyrol/Vorarlberg) 

Total aid for 2005 applications 

2 
0 
0 
6 

1  UK 

Buncefield oil depot 
explosion 

2  GR  Evros flooding 

3  HU  Flooding 

4 

ES  Galicia forest fires 

Total aid for 2006 applications 

2 

3 

4 

FR 

La Réunion.  
Cyclone "Gamede" 

ES  El Hierro flooding 

ES  La Mancha flooding 

5  UK  Flooding 

6  CY  Forest fires 

7 

8-
16 

ES  Forest Fires Canary islands 

IT 

9 applications for forest 
fires in 9 regions 

17  FR  Storm Dean/Martinique 

2 
0 
0 
7 

18  GR  Forest fires 

19 

SI 

Flooding 

Total aid for 2007 applications 

592 

regional 

372 

519 

(91) 

regional 

major 

(regional) 

211 

(18) 

(66) 

4 612 

(38) 

(144) 

regional 

(regional) 

(regional) 

major 

(regional) 

(regional) 

509 

2 118 

233 

regional 

major 

major 

2 
0 
0 
8 

1  CY  Drought 

165.4 

major 

2  RO  Floods 

471.4 

regional 

Total aid for 2008 applications 

18.798 

9.722 

10.632 

52.4 

14.799 

204.905 

9.306 

15.064 

Rejected 

24.370 

166.9 

5.29 

Rejected 

Rejected 

162.387 

Rejected 

Rejected 

12.78 

89.769 

8.254 

445.380 

7.605 

11.785 

19.390 

- 

(regional) 

not admissible. 
deadline missed 

2 

1 

FR 

Storm Klaus 

3 805.5 

major 

109.377 

EN 

15 

   EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
0 
0 
9 

Year  Country 

Nature of the disaster 

2 

IT  Abruzzo earthquake 

Damage 
(million 
EUR) 
10 212.0 

Category 

major 

3  GR  Forest fires 

(152.8) 

(regional) 

4 

CY  Storms  

5  GR  Evia floods  

(2.6) 

(83.2) 

(regional) 

(regional) 

6 

IT  Messina Mudslide  

(598.9) 

(regional) 

Total aid for 2009 applications 

1 

2 

3 

4 

5 

6 

7 

8 

IE 

IT 

Flooding 2009 

Tuscany flooding  

ES  Andalusia flooding  

PT 

FR 

SK 

PL 

Madeira mud- and 
landslides  

Storm Xynthia  

Flooding  

Flooding  

CZ 

Flooding (spring) 

9  HU  Flooding  

10  HR  Flooding (spring) 

2 
0 
1 
0 

520.9 

(211.7) 

(709.7) 

1 080 

1 425 

649.9 

2 993.7 

204.5 

719.3 

153.04 

regional 

(regional) 

(regional) 

major 

regional 

major 

major 

neighbouring 
country 

major 

neighbouring 
country 

11 

FR  Var flooding  

(703-778) 

(regional) 

12  RO  Flooding  

13  CZ 

Flooding (autumn) 

14  DE 

Sachsen Flooding  

15  HR  Flooding (autumn) 

875.75 

436.5 

(937.7) 

47 

major 

regional 

(regional) 

neighbouring 
country 

16 

SI 

Flooding (autumn) 

251.3 

major 

17  HU  Red Sludge Spill  

(174.32) 

(regional) 

Total aid for 2010 applications 

2 
0 
1 
1 

1 

2 

3 

4 

IT  Veneto Flooding 2010 

ES  Lorca earthquake 2011 

676.36 

842.84 

CY  Naval base explosion 2011 

(357) 

regional 

regional 

(major/non-
natural) 

IT 

Liguria & Tuscany flooding 
2011 

722.5 

regional 

Aid granted 
(million EUR) 

493.771 

Rejected 

Rejected 

Rejected 

Rejected 

603.148 

13.022 

Rejected 

Rejected 

31.256 

35.636 

20.431 

105.567 

5.111 

22.486 

3.826 

Rejected 

24.968 

10.912 

Rejected 

1.175 

7.460 

Rejected 

281.849 

16.909 

21.071 

Rejected 

18.062 

56.042 

Total aid for 2011 applications 
Grand total of aid approved since 2002 

EUR 2 489.798835 million 

EN 

16 

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