Proposal for a DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on the Mobilisation of the Contingency Margin in 2014
Date: 2014-05-28
Institutions: European Commission
Subjects: budgetary resources, commitment of expenditure, general budget (EU), payment appropriation













EUR-Lex - 52014PC0328 - EN











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52014PC0328

Proposal for a DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on the Mobilisation of the Contingency Margin in 2014 /* COM/2014/0328 final - 2014/ () */









EXPLANATORY MEMORANDUM
1.           CONTEXT
OF THE PROPOSAL
Council Regulation 1311/2013 laying down
the multiannual financial framework for the years 2014-2020 (‘MFF Regulation’) allows
for the mobilisation of the Contingency Margin of up to 0,03 % of Gross National
Income for the EU-28 to react to unforeseen circumstances as a last resort
instrument. In the technical adjustment of the MFF for 2014[1], based on Article 6 of the
MFF Regulation, the absolute amount of the Contingency Margin for the year 2014
was set at EUR 4 026,7 million.
In accordance with Article 13 of the MFF Regulation,
and after having examined all possibilities for financing additional and
unforeseen payment needs, the Commission proposes to mobilise the Contingency Margin
for 2014 in full so as to complement the payment appropriations related to
expenditure in sub-heading 1a, sub-heading 1b, heading 2 and heading 4 in the
general budget of the European Union for the financial year 2014, over and
above the payment ceiling of EUR 135 866 million for payments.
The obligation laid down in point 14 of the
Interinstitutional Agreement of 2 December 2013, according to which the
Commission proposal shall be accompanied by a proposal for reallocation within
the existing budget is taken into account in the draft amending budget (DAB) No
3/2014[2]
by a proposal to redeploy EUR 65,0 million from the reserve for ‘Sustainable
Fisheries Partnership Agreements’ and the savings of EUR 378 000 resulting from
the conversion of AST posts into AST/SC posts in establishment plans. Further
to this redeployment, the DAB No 3/2014 proposes an increase of EUR 711,4
million in the level of payment appropriations up to the 2014 MFF ceiling for
payments as well as an increase of payment appropriations of EUR 4 026,7
million through the mobilisation of the Contingency Margin in accordance with
Article 13 of the MFF Regulation.
2.           UNFORESEEN CIRCUMSTANCES EMERGING AFTER
THE FEBRUARY 2013 EUROPEAN COUNCIL
2.1.        INTRODUCTION 
A political agreement on the 2014-2020 MFF ceilings
was reached at the level of the European Council in February 2013. In the subsequent negotiations with the European Parliament:
·              
The MFF ceilings established in the February 2013
European Council conclusions were confirmed,
acknowledging the particularly difficult context at the time of this decision[3];
·              
The provisions for existing special instruments were
broadened;
·              
New instruments of flexibility such as the Global
Margin for commitments and the Global Margin for payments were agreed;
·              
The Contingency Margin, already agreed at the
February 2013 European Council, was confirmed.
In this respect it is also worth recalling
the Commission's statement to the minutes of the European Council of February
2013 whereby "… a difference of EUR 51,5 billion between commitments
and payments in the next MFF for the period 2014-2020 is just compatible with
the principles of sound financial management and the legal requirements, to the
extent that the Heads of State and Government have agreed that specific and
maximum flexibility will be implemented in order to comply with article 323
TFEU to allow the Union to fulfil its obligations." 
The existence of ‘unforeseen circumstances’
that may justify the mobilisation of the Contingency Margin to cover additional
payment needs has thus to be assessed against the state of play in February
2013 when the MFF payment ceilings were first established.
2.2.        THE CONTINGENCY MARGIN AS
THE LAST RESORT INSTRUMENT
Article 13(1) of the MFF Regulation defines
the Contingency Margin as a last resort instrument to react to unforeseen
circumstances. In DAB No 3/2014 the Commission proposes to use the unallocated
margin under the payment ceiling for 2014 of EUR 711 million to reinforce
payments in other areas[4],
after having exhausted the possibilities for redeployment. The limited scope to
reallocate funds within the existing budget is clearly insufficient to meet the
unforeseen needs mentioned in the sections below.
Given that the Global Margin for Payments
is not applicable for the year 2014, the mobilisation of the full Contingency
Margin for 2014 of EUR 4 026,7 million is therefore the only
available instrument to react to the budgetary impact of unforeseen
circumstances that emerged after the MFF payment ceilings were first
established, and to reduce the significant gap between the level of the
authorised payment appropriations and the additional unforeseen payment needs
for this year. Moreover, some of these unforeseen circumstances have a
budgetary impact on the 2015 financial year as well.
2.3.        BUDGETARY IMPACT OF UNFORESEEN
CIRCUMSTANCES IN 2014
This section sets out the unforeseen
elements which emerged since the February 2013 European Council, and the extent
to which they have an impact on the payment requirements to be addressed in
2014 through the mobilisation of the Contingency Margin for this year.
2.3.1    Frontloading of programmes in
sub-heading 1a and sub-heading 1b
The frontloading of the ‘Youth Employment
Initiative’ (YEI), ‘Horizon 2020’, ‘Erasmus+’ and ‘COSME’, which was decided in
June 2013[5]
as part of the political agreement on the 2014-2020 MFF, is expected to result
in a net increase of payment needs amounting to EUR 627 million in 2014. 
For ‘Horizon 2020’, an additional EUR 155 million
in payment appropriations is required to meet payments needs arising from the frontloading
of the commitment appropriations for the ‘Marie Skłodowska-Curie actions’
and for the ‘European Research Council’. For ‘Erasmus+’ and ‘COSME’, respectively
EUR 117 million and EUR 10 million in payment appropriations are
needed in 2014 as a consequence of the decision to frontload the programme. These
amounts include the additional needs arising from the decision taken by the
European Parliament and the Council to increase the capital of the European
Investment Fund (EIF) as from 2014, with contributions via budgetary transfers from
‘Horizon 2020’ and ‘COSME’ to be paid out in 2014. It is expected that the
corresponding backloading of the ‘ITER’ programme and of the energy related
part of the ‘Connecting Europe Facility’, which fully offset the increase in
commitment appropriations in 2014, will not lead to reduced payments in 2014. 
With regard to sub-heading 1b, the 2014 budget
already includes the net impact in payment appropriations of EUR 345 million to
cover the frontloading of the ‘Youth Employment Initiative’ (YEI) in 2014. Therefore,
the combined additional payment appropriations resulting from the frontloading of
programmes for sub-headings 1a and 1b amount to EUR 282 million in 2014.
2.3.2    Excess backlog of payment
claims Cohesion policy 2013 
In September 2013, when Member States
submitted their revised forecasts, the expected backlog of payment claims for
the Cohesion policy at the end of 2013 was estimated at ‘up to EUR 20 billion’.
This was the amount taken as a reference for negotiations on the level of
payment appropriations during the Conciliation for the 2014 budget in November
2013. The actual backlog at year-end, however, exceeded by EUR 3,4 billion
the higher-end estimate based on past patterns of Member States' forecasts. The
unexpected surge in payment claims, which further increased the backlog at the
end of 2013, is not expected to be offset by a lower level of payment claims in
2014.
2.3.3    Fund for European Aid to the
Most Deprived (FEAD)
An additional voluntary allocation of EUR
1 billion in current prices taken from the European Social Fund (ESF) was
agreed in the context of the FEAD Regulation[6].
Moreover, the FEAD Regulation sets the pre-financing rate at 11 %, calculated
on the basis of the total allocations 2014-2020, while the general
pre-financing rates of the ‘European Structural and Investment Funds’ are much
lower (for 2014 1 % or 1,5 % for Member States with serious difficulties with
respect to their financial stability). Consequently, there has been an
unforeseen net increase in payment needs for pre-financing in 2014 of EUR 99 million. 

2.3.4    Top-up of co-financing rates
for rural development and fisheries
For the new programmes of the MFF 2014-2020
the ‘Common Provisions Regulation’ (CPR) reintroduced the 10 % top-up of
co-financing rates until 2016 for Member States with temporary budgetary
difficulties, which initially only applied to expenditure incurred until 31
December 2013. In order to ensure a coherent and uniform treatment to the preceding
programming period, Member States should benefit from the increase of the
co-financing rate until the end of the eligibility period for the 2007-2013
programmes. Article 77 of Council Regulation (EC) No 1083/2006 laying down
general provisions on the European Regional Development Fund, the European
Social Fund and the Cohesion Fund, Article 70(4c) of Regulation (EC) No
1698/2005 for the European Agricultural Fund for Rural Development and Article
77 of Council Regulation (EC) No 1198/2006 on the European Fisheries Fund were
amended for that purpose. 
The related
unforeseen payment needs for 2014 amount to EUR 90 million for the EAFRD and
EUR 10 million for the EFF under heading 2. These increased needs will be
automatically offset until closure of the programmes, as the total allocations
to these Member States does not change. For the same reasons additional payment
needs for 2015 are to be expected. 
2.3.5    Top-up
of co-financing rates for Cohesion policy
As set out in
section 2.3.4 above, the ‘Common Provisions Regulation’ (CPR) reintroduced the
10 % top-up of co-financing rates until 2016 for Member States with temporary
budgetary difficulties, which initially only applied to expenditure incurred
until 31 December 2013. 
The related unforeseen payment needs for
2014 for the European Regional Development Fund (ERDF), European Social Fund
(ESF) and Cohesion Fund (CF) under sub-heading 1b amount to EUR 1 125
million. Awaiting confirmation of payment execution trends in 2014, however, for
reasons of prudence the additional payment needs related to the top-up of the
co-financing rates for the Cohesion policy are not added to the request related
to the unexpected backlog of unpaid payment claims at the end of 2013 as set
out in section 2.3.2. However, depending on the size of the backlog of unpaid
payment claims at the end of 2014, it may be necessary for the Commission to
propose the mobilisation of the Contingency Margin for payments in 2015 in
relation with this top-up of the co-financing. 
2.3.6    Common
Provisions Regulation for the European Structural and Investment Funds
The negotiations between the European
Parliament and the Council on the CPR resulted in changes to the payment needs
compared to the conclusions at the February 2013 European Council. The agreed reduction
of the ‘performance reserve’ from 7 % to 6 %, the reduced scope of the
performance reserve[7],
the increase in annual pre-financing and the exclusion of the performance
reserve from initial and annual pre-financing will result in a change to the
expected payment profile and is in total likely to result in additional
payments needs in the period until 2020. In the year 2014, however, a reduction
in payment needs can be expected compared to the initial assumptions due to the
exclusion of the performance reserve from the basis on which the initial
pre-financing is to be calculated for the ESI funds. This reduces the payment
needs in 2014 by EUR 288 million. Nonetheless, the corresponding appropriations
have not been included in the 2014 budget, and therefore do not have to be
deducted, since the 2014 budget was prepared under the assumption of a 7 %
performance reserve, excluded from the calculation of the pre-financing, and
adoption of only 80 % of the operational programmes. 
2.3.7    Financial package for Ukraine
To respond to the dramatic unfolding of
events in Ukraine, on 5 March 2014 the Commission announced[8] a financial package including a ‘state building contract’ in the form of budget support, amounting to EUR 355 million, of
which a first instalment of EUR 250 million is to be paid in June 2014 and a
second instalment of EUR 105 million in mid-2015. Such a disbursement schedule
is much faster than the traditional assistance under the European Neighbourhood
Instrument. Therefore the Commission requests EUR 250 million to cover this unforeseen
development in 2014.
2.4.        BUDGETARY IMPACT OF UNFORESEEN CIRCUMSTANCES IN 2015
At this stage, the Commission is addressing
only the budgetary impact of the unforeseen circumstances for the year 2014.
For information purposes, this section sets out the budgetary impact in 2015 of
the unforeseen circumstances for which an appropriate budgetary response in
light of implementation will be required, by using all the possible means
foreseen in the MFF Regulation, including through the possible mobilisation of
the Contingency Margin for that year.
2.4.1    Frontloading of programmes in
sub-headings 1a and 1b
The frontloading of ‘Horizon
2020’, ‘Erasmus+’ and ‘COSME’ under sub-heading 1a is expected to result in a
net increase of payment needs amounting to EUR 143 million in 2015. With regard
to sub-heading 1b, the frontloading of expenditure for the ‘Youth Employment
Initiative’ (YEI)  and the corresponding backloading of the Cohesion Fund
related part of the ‘Connecting Europe Facility’ and the ‘European Territorial
Cooperation’ (ETC) is expected to lead to additional payment needs of EUR 505
million in 2015. 
2.4.2    Top-up of co-financing rates
for Cohesion policy
As set out in
sections 2.3.4 and 2.3.5 above, for the new programmes of the MFF 2014-2020 the
‘Common Provisions Regulation’ (CPR) reintroduced the 10 % top-up of
co-financing rates until 2016 for Member States with temporary budgetary
difficulties, which initially only applied to expenditure incurred until 31
December 2013. As a consequence, additional payment needs for 2015 amounting to
EUR 375 million are to be expected for the top-up of the co-financing rates for
the Cohesion policy. However, the budgetary impact of the top-up of the
co-financing rates for rural development and fisheries is expected to be
limited to 2014 only. 
2.4.3    Financial package for Ukraine
As set out in
section 2.3.7 above, the second instalment of financial package announced for Ukraine is expected to lead to additional payment requirements of EUR 105 million by mid-2015.
2.5.        BUDGETARY IMPACT OF UNFORESEEN CIRCUMSTANCES IN 2014 AND
2015: OVERVIEW
In total, as shown
in table 1 below, the unforeseen payment needs for 2014 compared to the
situation of February 2013 sum up to EUR 5 209 million. However, taking into
account the impact known when the 2014 budget was adopted and the assessment
which has to be done end of 2014 of the impact of the top-up of co-financing
for the cohesion policy, EUR 4 027 million is necessary to address the related
payment needs in 2014.
Table 1: unforeseen payment needs emerging after the February 2013
European Council
 Additional payment needs for 2014 linked to unforeseen circumstances not yet included in the 2014 budget || EUR million 
 Frontloading sub-heading 1a (Horizon 2020, Erasmus+ and COSME) || 282 
 Pre-financing FEAD || 99 
 Unforeseen excess backlog 2013 || 3 296 
 Top-up of co-financing rates: rural development and fisheries (heading 2) || 100 
 Financial package for Ukraine || 250 
 Total impact of unforeseen circumstances not yet included in the 2014 budget (A) || 4 027 
 Additional payment needs linked to unforeseen circumstances already included in the 2014 budget || EUR million 
 Frontloading Youth Employment Initiative (YEI) || 345 
 Treatment of performance reserve for ESI funds || -288 
 Total impact of unforeseen circumstances already included in the 2014 budget (B) || 57 
 Additional payment needs linked to unforeseen circumstances likely to materialise after 2014 || EUR million 
 Top-up of co-financing rates: Cohesion policy (sub-heading 1b) || 1 125 
 Total impact of unforeseen circumstances likely to materialise after 2014 (C) || 1 125 
 Grand total unforeseen circumstances having an impact on payment needs (D = A + B +C) || 5 209 
The
frontloading of the programmes under sub-headings 1a and 1b, the top-up in
co-financing rates for the Cohesion policy and the financial package for
Ukraine will also lead to some additional payment needs for the year 2015, as
shown in the table below. 
 Additional payment needs for 2015 linked to unforeseen circumstances to be addressed at a later stage || EUR million 
 Frontloading sub-heading 1a (Horizon 2020, Erasmus+ and COSME) || 143 
 Frontloading Youth Employment Initiative (YEI) || 505 
 Top-up of co-financing rates: Cohesion policy (sub-heading 1b) || 375 
 Financial package for Ukraine || 105 
 Total unforeseen circumstances having an impact on payment needs || 1 128 
In summary, at
this stage the Commission proposes to limit the request for additional payment appropriations
in 2014 for the Cohesion policy to the excess backlog of unpaid claims at the
end of 2013. 
A request corresponding
to the top up of 10 % for the co-financing of the Cohesion policy in 2014 may
follow later on, pending evaluation of the backlog of unpaid claims at the end
of 2014. Furthermore, additional payment needs are expected to emerge in 2015,
as set out in section 2.4 above. Consequently, the Commission may have to
propose at a later stage – in the light of implementation in 2014 – the
mobilisation of the Contingency Margin for the year 2015 as well.
Whereas an amount
of EUR 65,4 million is proposed to be redeployed in 2014, the remaining additional
payment needs for 2014-2015 required to react to unforeseen circumstances are
proposed to be mobilised through the use of the Contingency Margin. This will
be offset by lower payment ceilings in following years of the 2014-2020 MFF, as
required by Article 13(3) of the MFF Regulation. 
3.           OFFSETTING THE CONTINGENCY
MARGIN AGAINST THE MFF CEILINGS 
Article 13(3) of the MFF Regulation
requires that amounts made available through the mobilisation of the
Contingency Margin shall be fully offset against the margins for the current or
future financial years.
According to Article 13(4) of the MFF
Regulation the amounts offset shall not be further mobilised in the context of
the MFF so that the total ceilings of commitment and payment appropriations
laid down in the MFF for the current and future financial years shall not be
exceeded. Consequently, the mobilisation of the Contingency Margin for payment
appropriations in 2014 and the related offsetting have to respect the total
payment ceiling for the years 2014 to 2020 of EUR 1 023 954
million in current prices (equivalent to EUR 908,4 billion in 2011 prices). 
Given the uncertainties related to the years
2015 and 2016 (i.e. the level of payment claims outstanding at the end of the previous
year and the likelihood of additional unforeseen payment needs occurring), offsetting
in either of these years would be imprudent. In 2017 the level of the payment
ceiling decreases nominally compared to 2016. For these reasons it is proposed to
distribute the offsetting over the years 2018 to 2020.
Given the increasing payment needs towards
the end of the programming period and the increase in the payment ceiling
during the years 2018 to 2020, it is proposed to implement the offsetting in
equal annual tranches. These amounts under the payment ceiling will not be
available for payment appropriations in the respective annual budgets. 
Table
2: distribution of offsetting for the Contingency Margin 2014
 EUR million || Payment ceiling || Amounts offset || Amounts usable under the ceiling 
 2018 || 149 074,0 || 1 342,3 || 147 731,7 
 2019 || 153 362,0 || 1 342,2 || 152 019,8 
 2020 || 156 295,0 || 1 342,2 || 154 952,8 
 Total || 458 731,0 || 4 026,7 || 454 704,3 
4.           ADDITIONAL ELEMENTS 
The two arms of the budgetary authority are
reminded that the publication of the Decision in the Official Journal of the
European Union shall not intervene later than the publication of the amending
budget No. 3 to the general budget of the European Union for the financial year
2014.
Proposal for a
DECISION OF THE EUROPEAN PARLIAMENT
AND OF THE COUNCIL
on the Mobilisation of the Contingency
Margin in 2014
THE EUROPEAN PARLIAMENT AND THE
COUNCIL OF THE EUROPEAN UNION,
Having regard to the Interinstitutional
Agreement of 2 December 2013 between the European Parliament, the Council and
the Commission on budgetary discipline, on cooperation in budgetary matters and
on sound financial management[9],
and in particular point 14, second subparagraph, thereof,
Having regard to the proposal from the
European Commission,
After transmission of the draft legislative
act to the national Parliaments,
Whereas, 
(1) Article 13 of Council Regulation
1311/2013 laying down the multiannual financial framework for the years
2014-2020[10]
has established a Contingency Margin of up to 0,03 % of the Gross National
Income of the Union, 
(2) In accordance with Article 6 of this Regulation,
the Commission has calculated the absolute amount of this Contingency Margin
for 2014[11],
(3) After having examined all other
financial possibilities to react to unforeseen circumstances that have arisen after
the multiannual financial framework payment ceiling for 2014 was first
established in February 2013, it appears necessary to mobilise the full amount
of the Contigency Margin  available to complement the payment appropriations in
the general budget of the European Union for the financial year 2014, above the
payment ceiling,
HAVE ADOPTED THIS DECISION:
Article 1
For the general budget of the European
Union for the financial year 2014, the Contingency Margin shall be used to
provide the sum of EUR 4 026 700 000 in payment
appropriations over and above the payment ceiling of the multiannual financial
framework (MFF).
That amount shall be used to complement payments
in sub-heading 1a (EUR 282 000 000), sub-heading 1b (EUR 3 394 700 000),
heading 2 (EUR 100 000 000) and heading 4 (EUR
250 000 000).
Article 2
The sum of EUR 4 026 700 000 mobilised
through the Contingency Margin for the financial year 2014 shall be offset
against the Margins under the payment ceilings for the following years:
            (a)        2018:   EUR 1 342 300 000
            (b)        2019:   EUR 1 342 200 000
            (c)        2020:   EUR 1 342 200 000
 
Article 3
This decision shall be published in the Official
Journal of the European Union.
Done at Brussels,
For the European Parliament                        For
the Council
The President                                                 The
President
[1]  COM(2013) 928, 20.12.2013. 
[2]               COM(2014) 329, 28.5.2014.
[3]               See the EP report prepared by
MEPs Ivalo Kalfin and Jean-Luc Dehaene ‘on negotiations on the MFF 2014-2020:
lessons to be learned and the way forward’ (2014/2005(INI)) adopted on 15 April
2014 ((P7_TA-PROV(2014)0378). 
[4]               COM(2014) 329, 28.5.2014.
[5]               Joint Declaration on Article 15 of the Council
Regulation laying down the multiannual financial framework for the years
2014-2020 (Council doc. 11961/13).
[6]               Regulation (EU) No 223/2014 of the European
Parliament and of the Council of 11 March 2014 on the Fund for European Aid to
the Most Deprived, OJ L 72, 12.3.2014, p.1.
[7]               It was agreed that no performance reserve has to be
withheld for the allocations for the YEI, the FEAD, the transfer from the
Cohesion Fund to the CEF and the Commission technical assistance.
[8]               IP 14/219, 5.3.2014.
[9]               OJ C 373, 20.12.2013, p. 1.
[10]             OJ L 347, 20.12.2013, p. 884.
[11]             Communication from the Commission to the Council and
the European Parliament of 20 December 2013 on the technical adjustment of the
financial framework for 2014 in line with movements in GNI (COM(2013) 928).