DRAFT AMENDING BUDGET No 5 TO THE GENERAL BUDGET 2021 Humanitarian support to refugees in Turkey
Date: 2021-07-09
Institutions: Directorate-General for Budget, European Commission
Subjects: EU expenditure, Türkiye, amending budget, draft budget (EU), financial year, general budget (EU), humanitarian aid, refugee

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 9.7.2021  COM(2021) 460 final 2021/0226 (BUD)    DRAFT AMENDING BUDGET No 5 TO THE GENERAL BUDGET 2021  Humanitarian support to refugees in Turkey          
 
 
Having regard to: 

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the Treaty on the Functioning of the European Union, and in particular Article 314 thereof, in 
conjunction  with  the  Treaty  establishing  the  European  Atomic  Energy  Community,  and  in 
particular Article 106a thereof, 

Council  Decision  (EU,  Euratom)  2020/2053  of  14  December  2020  on  the  system  of  own 
resources of the European Union1, entered into force  on 1 June 2021, 

Regulation  (EU, Euratom) 2018/1046  of the European Parliament  and of the Council of 18 
July 2018 on the financial rules applicable to the general budget of the Union (…)2, and in 
particular Article 44 thereof, 

the  general  budget  of  the  European  Union  for  the  financial  year  2021,  as  adopted  on  18 
December 20203, 
amending budget No 1/20214, adopted on 18 May 2021, 
draft amending budget No 1/20215, adopted on 22 January 2021, 
draft amending budget No 3/20216, adopted on 15 April 2021, 
draft amending budget No 4/20217, adopted on 2 July 2021, 

The  European  Commission  hereby  presents  to  the  European  Parliament  and  to  the  Council  Draft 
Amending Budget No°5/2021 to the 2021 budget. 

CHANGES TO THE STATEMENT OF REVENUE BY SECTION 

The  changes  to  the  general  statement  of  revenue  and  in  section  III  are  available  on  EUR-Lex 
(https://eur-lex.europa.eu/budget/www/index-en.htm). 

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Council  Decision  (EU,  Euratom)  2020/2053  of  14  December  2020  on  the  system  of  own  resources  of  the 
European Union and repealing Decision 2014/335/EU, Euratom, OJ L 424, 15.12.2020. 
OJ L 193, 30.7.2018. 
OJ L 93, 17.3.2021. 
OJ L XXX, XX.X.2021. 
COM(2021) 30 final. 
COM(2021) 270 final. 
COM(2021) 444 final. 

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Table of Contents 

1. 

INTRODUCTION ..............................................................................................................................................3 

2.  HUMANITARIAN SUPPORT TO REFUGEES IN TURKEY .................................................................................3 

3.  FINANCING .....................................................................................................................................................4 

4.  SUMMARY TABLE BY MFF HEADING ...........................................................................................................5 

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EXPLANATORY MEMORANDUM 

1. 

INTRODUCTION 

The purpose of Draft Amending Budget (DAB) No 5 for the year 2021 is to provide continued 
support to the most vulnerable of the around 3,7 million refugees in Turkey as a consequence of 
the Syria crisis. This DAB represents the first component of the Commission’s formal proposals 
for  the  continuation  of  financing  for  Syrian  refugees  and  host  communities  in  Turkey,  Jordan, 
Lebanon and other parts of the region within the context of the EU’s overall migration policy. 
Under the MFF heading 6 “Neighbourhood and the World”, EUR 149,6 million in commitment 
appropriations  are  requested  to  ensure  the  continuation  of  humanitarian  support  to  refugees  in 
Turkey. No additional payment appropriations are requested for this purpose in 2021. 

2. 

HUMANITARIAN SUPPORT TO REFUGEES IN TURKEY 

Turkey currently hosts the largest refugee population in the world – close to 4,1 million. Some 
3,7  million  of  them  are  Syrians  who  fled  the  ongoing  conflict  that  has  been  ravaging  their 
country for over 10 years. The situation might be aggravated depending on the developments in 
Afghanistan. The vast majority of refugees in Turkey live outside camps, with growing but still 
limited  access  to  basic  services.  The  European  Union,  in  close  cooperation  with  the  Turkish 
authorities, has been assisting the most vulnerable people based on humanitarian needs. 

Following  the  EU-Turkey  Statement  signed  by  EU  Heads  of  State  or  Government  and  their 
Turkish counterpart on 18 March 2016, the Commission and Member States committed in two 
tranches EUR 6 billion in EU assistance to refugees in Turkey for 2016-2019, delivered through 
the  Facility  for  Refugees  in  Turkey.  The  operational  envelope  of  this  funding  has  been 
committed and contracted in full. Disbursements reached EUR 4,2 billion by end of May 2021 in 
line with the planning.  
The  publication  of  the  fifth  annual  report  on  the  EU  Facility  for  refugees  in  Turkey8  gives 
evidence of the results achieved so far, and how vital the Facility is in supporting refugees and 
host communities in Turkey. 

In 2020, EUR 485 million from the EU budget (from the margin under the expenditure heading 
of  Heading  4  “Global  Europe”  and  the  Contingency  Margin)  was  allocated  in  the  amending 
budget  5/20209  to  be  able  to  continue  the  two  key  humanitarian  flagship  programmes  -  the 
Emergency Social Safety Net (ESSN) and the Conditional Cash Transfer for Education (CCTE). 

The Commission will put forward proposals for the continuation of financing for Syrian refugees 
and  host  communities  in  Turkey,  Jordan,  Lebanon  and  other  parts  of  the  region.  This  DAB 
proposes  the  necessary  reinforcement  to  put  in  place  the  humanitarian  component  of  this 
package of support to refugees in Turkey. 

As part of the strategy of transition from humanitarian to development assistance and the longer 
term  transition  strategy  with  the  Turkish  authorities,  the  Conditional  Cash  Transfer  for 
Education  (CCTE)  will  transition  to  development  assistance  at  the  end  of  the  school  year 
2021/2022 by mid-2022. However, the transition of the Emergency Social Safety Net (ESSN) to 
development  assistance  is  planned  to  take  place  in  early  2023,  i.e.  beyond  the  expiry  of  the 
current  agreement  in  March  2022.  Approximately  EUR  325  million  in  commitment 

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COM(2021) 255 final 
OJ L 299, 11.9.2020. 

 
 
                                                           
appropriations is therefore needed to extend the coverage of the ESSN support - which provides 
monthly  cash  transfers  to  over  1,8  million  refugees  -  from  March  2022  until  the  beginning  of 
2023. 

The  Commission  proposes  to  finance  the  extension  of  this  support  by  using  the  remaining 
Heading  6  margin  in  2021,  with  the  balance  coming  from  the  Humanitarian  Aid  envelope  in 
2021 and 2022. 

Budget 
line 
14 03 01 

Total 

Name 

Humanitarian aid 

Payment 
appropriations 

Commitment 
appropriations 
149 643 796 

149 643 796 

3. 

FINANCING 

Apart  from  the  use  of  the  existing  Humanitarian  Aid  envelope,  there  are  currently  no  other 
redeployment  possibilities  under  MFF  Heading  6.  In  addition  to  the  EUR  100,4  million  to  be 
committed under the Humanitarain Aid envelope this year, the Commission therefore proposes 
to mobilise the full unallocated margin under this heading of EUR 149,6 million to finance the 
urgent humanitarian support to refugees in Turkey. The balance required – currently estimated at 
EUR 75 million - will be committed from the Humanitarian Aid budget line in 2022. 

No  additional  payment  appropriations  are  requested  under  the  2021  budget.  However,  the 
payment  appropriations  to  cover  the  proposed  reinforcement  of  commitment  appropriations  in 
2021 will be needed in 2022 and 2023. The impact on the 2022 payments will be incorporated in 
the the amending letter to the 2022 draft budget in October 2021. 

 
 
 
 
 
 
 
4. 

SUMMARY TABLE BY MFF HEADING 

Budget 2021 (incl. AB 1/2021, DABs 1-
3-4/2021) 

Draft Amending Budget 5/2021 

Budget 2021 (incl. AB 1/2021, DABs 1-
3-4-5/2021) 

In EUR 

1. 

Single  Market,  Innovation  and 
Digital 

20 816 559 767 

17 191 887 232 

20 816 559 767 

17 191 887 232 

CA 

PA 

CA 

PA 

CA 

PA 

Ceiling 

20 919 000 000 

Margin 

102 440 233 

20 919 000 000 

102 440 233 

2. 

Cohesion, 
Values 

Resilience 

and 

53 077 938 534 

66 361 525 904 

53 077 938 534 

66 361 525 904 

Of which under Flexibility 
Instrument 

292 422 534 

Ceiling 

52 786 000 000 

Margin 

484 000 

292 422 534 

52 786 000 000 

484 000 

2a. 

Economic,  social  and  territorial 
cohesion 

48 190 516 000 

61 867 897 545 

48 190 516 000 

61 867 897 545 

Ceiling 

48 191 000 000 

Margin 

484 000 

48 191 000 000 

484 000 

2b. 

Resilience and values 

4 887 422 534 

4 493 628 359 

4 887 422 534 

4 493 628 359 

Of which under Flexibility 
Instrument 

292 422 534 

Ceiling 

4 595 000 000 

292 422 534 

4 595 000 000 

3. 

Natural 
Environment 

Resources 

Margin 

and 

58 570 566 908 

56 806 203 452 

58 570 566 908 

56 806 203 452 

40 367 954 000 

40 353 742 883 

40 367 954 000 

40 353 742 883 

Ceiling 

58 624 000 000 

53 433 092 

EAGF sub-ceiling 

40 925 000 000 

Of  which:  Market 
expenditure 
payments 

and 

Margin 

related 
direct 

 Rounding difference excluded for 
calculating the sub-margin 
 Net transfers between EAGF and 
EAFRD 
 Net balance available for EAGF 
expenditure (sub-ceiling 
corrected by transfers between 
EAGF and EAFRD) 

4. 

Migration 
Management 

EAGF sub-margin 

and 

Border 

557 046 000 

40 367 954 000 

2 278 829 759 

2 686 245 978 

2 278 829 759 

2 686 245 978 

Ceiling 

2 467 000 000 

Margin 

188 170 241 

2 467 000 000 

188 170 241 

5. 

Security and Defence 

1 709 261 441 

670 628 243 

1 709 261 441 

670 628 243 

Ceiling 

1 805 000 000 

Margin 

95 738 559 

1 805 000 000 

95 738 559 

6. 

Neighbourhood and the World 

16 097 356 204 

10 811 039 356 

149 643 796 

16 247 000 000 

10 811 039 356 

Ceiling 

16 247 000 000 

149 643 796 

7. 

European 
Administration 

Margin 

Public 

10 442 813 002 

10 444 088 091 

10 442 813 002 

10 444 088 091 

Ceiling 

10 635 000 000 

Margin 

192 186 998 

10 635 000 000 

192 186 998 

which: 

of 
expenditure of the institutions 

Administrative 

8 030 324 720 

8 031 599 809 

8 030 324 720 

8 031 599 809 

Sub-ceiling 

8 216 000 000 

8 216 000 000 

58 624 000 000 

53 433 092 

40 925 000 000 

557 046 000 

40 367 954 000 

16 247 000 000 

0 

 
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
Budget 2021 (incl. AB 1/2021, DABs 1-
3-4/2021) 

Draft Amending Budget 5/2021 

Budget 2021 (incl. AB 1/2021, DABs 1-
3-4-5/2021) 

CA 

PA 

CA 

PA 

CA 

PA 

Sub-margin 

185 675 280 

185 675 280 

Appropriations for headings 

162 993 325 615 

164 971 618 256 

149 643 796 

163 142 969 411 

164 971 618 256 

Ceiling  

163 483 000 000 

166 140 000 000 

163 483 000 000 

166 140 000 000 

Of which under Flexibility 
Instrument 

292 422 534 

836 562 086 

Margin 

782 096 919 

2 004 943 830 

292 422 534 

836 562 086 

632 453 123 

2 004 943 830 

Thematic special instruments 

3 216 749 598 

3 039 364 598 

3 216 749 598 

3 039 364 598 

Total appropriations  

166 210 075 213 

168 010 982 854 

149 643 796 

0 

166 359 719 009 

168 010 982 854