Proposal for a DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on the mobilisation of the European Union Solidarity Fund to provide assistance to Germany, Belgium, the Netherlands, Austria, Luxembourg, Spain and Greece further to natural disasters that took place in these countries in the course of 2021
Date: 2022-10-14
Institutions: Directorate-General for Budget, European Commission
Subjects: EU Member State, European Union Solidarity Fund, aid to disaster victims, commitment of expenditure, earthquake, emergency aid, flood, general budget (EU), payment appropriation, volcanic eruption

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   EUROPEAN COMMISSION  Brussels, 14.10.2022  COM(2022) 665 final 2022/0337 (BUD)  Proposal for a DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on the mobilisation of the European Union Solidarity Fund to provide assistance to Germany, Belgium, the Netherlands, Austria, Luxembourg, Spain and Greece further to natural disasters that took place in these countries in the course of 2021  
 
EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

This  decision  covers  the  mobilisation  of  the  European  Union  Solidarity  Fund  (hereinafter 
referred  to  as  ‘the  EUSF’)  in  accordance  with  Council  Regulation  (EC)  No  2012/20021 
(hereinafter  referred  to  as  ‘the  Regulation’)  for  an  amount  of  EUR 718 482  761  to  provide 
assistance  to  Germany,  Belgium,  the  Netherlands,  Austria,  Luxembourg,  Spain  and  Greece 
further to natural disasters that took place in these countries in the course of 2021. 

This mobilisation is accompanied by DEC No 20/2022 that proposes to transfer the amount of 
EUR  668  482  761  from  the  Solidarity  and  Emergency  Aid  Reserve  (hereinafter  referred  as 
‘the  SEAR’)  reserve  line  to  the  EUSF  operational  budget  line,  both  in  commitments  and 
payments.  In  addition  to  the  transferred  appropriations  from  the  SEAR  reserve  line,  this 
mobilisation  will  be  financed  through  the  use  of  the  amount  of  EUR  50  000  000  in 
commitment  and  payment  appropriations  already  inscribed  in  the  General  Budget  2022  in 
accordance  with  Article  4a  (4)  of  the  EUSF  Regulation  for  covering  advances.  The  already 
paid advances to Spain  and Greece of the total  amount of EUR 6 288 171 will be deducted 
before the payment of the balance. 

2. 

2.1 

INFORMATION AND CONDITIONS 

Germany –major disaster: floods 

Between  12  and  15  July  2021,  a  slow-moving  low-pressure  system  named  “Bernd”  passed 
over the South-Western parts of Germany causing to heavy, long lasting rainfall events, with 
precipitation  locally  exceeding  150mm  over  24  hours  in  the  North  Rhine-Westphalia  and 
Rhineland-Palatinate  regions  in  Germany.  The  exceptional  rainfalls  led  to  widespread 
flooding  over  several  small  and  medium  rivers  and  caused  flash  floods  and  mudflows  with 
catastrophic consequences. In Germany, the floods ravaged tens of towns and villages, caused 
massive destruction of public and private infrastructure and damage to businesses. In addition, 
196 people lost their lives. 

Subsequently, Germany applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

1 

On  1  October  2021,  Germany  submitted  an  application  for  a  financial  contribution 
from the EUSF to finance emergency and recovery operations following the floods in 
July 2021. 

Germany applied for a contribution from the EUSF within the deadline of 12 weeks 
after  the  first  damage  caused  by  the  disaster  on  13  July  2021.  The  application 
contains all the information required under Article 4 of the Regulation. 

The disaster is of natural origin and therefore falls within the field of application of 
the EUSF. 

The  German  authorities  estimate  the  total  direct  damage  caused  by  the  disaster  at 
EUR 29, 21  billion.  This  amount  represents  0,82%  of  German  Gross  National 
of 
Income 

threshold 

disaster’ 

exceeds 

(GNI), 

‘major 

and 

the 

it 

Council  Regulation  (EC)  No  2012/2002  of  11 November  2002  establishing  the  European  Union 
Solidarity  Fund  (OJ  L  311,  14.11.2002,  p.  3)  as  amended  by  Regulation  (EU)  No  661/2014  of  the 
European Parliament and the Council of 15 May 2014 (OJ L 189, 27.6.2014, p. 143) and by Regulation 
(EU) No 461/2020 of the European Parliament and the Council of 30 March 2020 (OJ L 99, 31.3.2020, 
p. 9). 

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(5) 

(6) 

(7) 

EUR 3 656,983 million  (EUR  3  billion  in  2011  prices).  Therefore,  the  disaster 
qualifies as a “major natural disaster” according to Article 2(2) of the Regulation. 

Total  direct  damage  is  the  basis  for  the  calculation  of  the  amount  of  the  financial 
contribution  from  the  EUSF.  The  financial  contribution  may  only  be  used  for 
essential  emergency  and  recovery  operations  as  defined  in  Article  3  of  the 
Regulation. 

Germany  did  not  request  the  payment  of  an  advance  pursuant  to  Article  4a  of  the 
Regulation. 

From 12 July 2021, heavy rainfall on an unprecedented scale affected large parts of 
the  southern  North  Rhine-Westphalia.  Some  areas  were  exposed  to  60  hours  of 
rainfall.  As  a  result,  initially,  small  watercourses  and  flash  floods  were  observed 
locally. With sustained precipitation, medium and larger rivers such as Ahr, Emscher, 
Erft,  Kyll,  Lippe,  Prüm,  Ruhr,  Rur,  Sieg  and  Wupper  also  overflowed  across  their 
banks.  This  resulted  in  an  extensive  flood  situation  from  the  areas  in  Eifel 
to  Südwestfalen 
through  Rheinland  and  from  Ruhrgebiet 
(Rheinland-Pfalz), 
low-pressure  system 
(Nordrhein-Westfalen).  With 
from 
the  withdrawal  of 
Nordrhein-Westfalen  and  Rheinland-Pfalz, 
the  Osterzgebirge,  Lausitz  and 
Berchtesgadener Land were also affected. Here too, heavy rainfall occurred, leading 
to  regional  flooding.  Floods  caused  numerous  road  closures,  disruptions  in  energy 
supply,  public 
the 
telecommunications sector. The majority of schools were closed in the affected areas. 
Dyke systems were seriously damaged. The supply of energy and drinking water was 
temporarily interrupted in the affected areas. Storm and floods destroyed or damaged 
public  infrastructure,  public  buildings  and  businesses.  The  emergency  measures 
undertaken by authorities were warning and evacuation of the population, rescue of 
people and search for missing persons. In the first days of flooding also providing the 
population with drinking water, food, hygiene materials, clothes and consumables. 

transport,  and  some  disruptions 

transport  and  rail 

in 

(8) 

(9) 

(10) 

Germany  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the 
Regulation at EUR 4, 89 billion and presented it broken down by type of operation. 
The  largest  share  of  the  cost  of  emergency  operations  (over  EUR 3,9 billion) 
concerns  restoring  the  working  order  of  infrastructure  and  plants,  in  particularly  in 
the  field  of  transport  and  telecommunications.  The  second  largest  share  of  cost 
concerns clearing up of disaster stricken areas amounting to EUR 764,9 million.  
Directive  2007/60/EC2  has  been  fully  transposed  in  Germany  by  the  Water 
Management Act. Implementation of the Act is monitored at the Länder level. 

At  the  date  of  submitting  the  application  Germany  was  not  subject  to  infringement 
proceedings concerning Union legislation relating to the nature of the disaster. 

(11) 

The German authorities did not indicate any insurance coverage of eligible cost. 

2.2 

Belgium- major disaster: floods 

Between  12  and  15  July  2021,  a  slow-moving  low-pressure  system  named  “Bernd”  passed 
over Belgium and heavy rain fell across Belgium causing flash floods, fluvial (riverine) floods 
and  groundwater  floods,  combined  with  mudflows  and  debris  flows.  This  was  followed  by 
further flash floods and mud flows on 24 and 25 July 2021. 42 people lost their lives due to 

2 

Directive  2007/60/EC  of  the  European  Parliament  and  of  the  Council  of  23  October  2007  on  the 
assessment and management of flood risks (the “Floods Directive”) 

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heavy flooding. The disaster caused massive destruction of public and private infrastructure, 
damage to businesses, as well as damage to  hundreds of thousands of households. 

Subsequently, Belgium applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

(8) 

On  1  October  2021,  Belgium  submitted  an  application  for  a  financial  contribution 
from the EUSF to finance emergency and recovery operations following the floods in 
July  2021.  Upon  the  Commission’s  request,  on  7  April  2022,  Belgium  submitted 
additional  information  regarding  the  flooding  events  of  24-25  July  2021  to 
complement their application. 

Belgium applied for a contribution from the EUSF within the deadline of 12 weeks 
after  the  first  damage  caused  by  the  disaster  on  13  July  2021.  The  application 
contains all the information required under Article 4 of the Regulation. 

The disaster is of natural origin and therefore falls within the field of application of 
the EUSF. 

The  Belgian  authorities  estimate  the  total  direct  damage  caused  by  the  disaster  at 
EUR 5,56  billion. This amount represents 1,15% of Belgian Gross National Income 
(GNI),  and  it  exceeds  the  ‘major  disaster’  threshold  of  EUR 2 892,814  million; 
therefore, the disaster qualifies as a “major natural disaster” according to Article 2(2) 
of the Regulation. 

Total  direct  damage  is  the  basis  for  the  calculation  of  the  amount  of  the  financial 
contribution  from  the  EUSF.  The  financial  contribution  may  only  be  used  for 
essential  emergency  and  recovery  operations  as  defined  in  Article  3  of  the 
Regulation. 

Belgium  did  not  request  the  payment  of  an  advance  pursuant  to  Article  4a  of  the 
Regulation. 

Between  12  and  15  July  2021,  heavy  rain  fell  across  Belgium  and  record  level  of 
rainfall were measured in the east of the country, with 271,5 millimetres of rain over 
48  hours  in  Jalhay  and  217  millimetres  over  48  hours  in  Spa.  Large  parts  of  the 
Belgian province of Luxembourg saw between 150 mm and 200 mm over a period of 
48 hours. On 14 July, the provincial emergency and intervention plans were activated 
in the Liège, Namur and Luxembourg provinces. Primarily the areas located on the 
banks  of  the  river  Meuse  and  her  tributaries  were  heavily  impacted,  with  multiple 
rivers  (Lesse,  Vesder,  Berwijn,  Ourthe)  bursting  their  banks  and  flooding  the 
surrounding  areas.  In  the  evening  of  24  July  2021,  heavy  thunderstorms  caused 
further flash floods and mudflows, primarily in the provinces of Namur and Brabant 
Wallon. This time, the towns of Namur, Dinant and Walhain were heavily impacted. 
The  application  states  that  the  all  affected  municipalities  had  been  previously 
impacted by the floods of 13-17 July, which exacerbated the events on 24-25 July. In 
practice and in the field, given the magnitude of the damages and the short timespan 
between  both  flooding  events,  it  is  impossible  to  distinguish  between  the  damages 
caused by the first wave of floods and those caused by the second floods. 

Out  of  262  Walloon  municipalities,  209  were  impacted  by  the  floods,  resulting  in 
578  million  square  meter  of  damaged  roads  over  a  total  length  of  96,4  kilometres, 
1342 kilometre of damaged river banks and dykes, 220 damaged bridges and 9 673 
hectares of flooded lands (i.e. the equivalent of about 13 548 football fields). 23 920 
buildings experienced flood damage, of which 357 were irreparably damaged. These 
include  58  government  buildings,  185  sport  facilities,  53  camping  grounds  and  21 
hotels. Almost 2 700 businesses were impacted, of which 76 saw irreparable damage. 

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(9) 

(10) 

Belgium  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the 
Regulation  at EUR 1,88 billion and presented it broken down by type of operation. 
The  largest  share  of  the  cost  of  emergency  operations  (over  EUR 835,12 million) 
concerns restoring to working order of infrastructure and plant, in particularly in the 
field of transport and education. The second largest share of cost concerns ensuring 
temporary accommodation amounting to EUR 390,82 million. 

There  is  no  national  approach  to  implementation  of  Directive  2007/60/EC  in 
Belgium. Belgium has a regional setting for Flood Risk Directive implementation in 
Flanders (Flemish decree on integrated water policy) and Wallonia (Walloon decree 
on  Water,  Art.53).  The 
two  regions  apply  Article  13.1(b)  (mapping  and 
establishment  of  flood  risk  management  plans)  separately.  Flood  risk  management 
plans (2015) are available for the Wallonia and Rhine regions. 

(11) 

At  the  date  of  submitting  the  application  Belgium  was  not  subject  to  infringement 
proceedings concerning Union legislation relating to the nature of the disaster. 

(12) 

The Belgian authorities did not indicate any insurance coverage of eligible cost. 

2.3 

The Netherlands- neighbouring country disaster: floods 

Between  12  and  15  July  2021,  a  slow-moving  low-pressure  system  named  “Bernd”  passed 
over  the  Netherlands  that  led  to  heavy  rainfall  causing  flush  flooding  and  surface  runoff 
water. As a result, residents, businesses, farmers and foundations were confronted with severe 
damage to their properties, public and private infrastructure was damaged, roads were closed 
and train traffic stopped. 

Subsequently, the Netherlands applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

On  1  October  2021,  the  Netherlands  submitted  an  application  for  a  financial 
contribution from the EUSF to finance emergency and recovery operations following 
the floods in July 2021.  

The Netherlands applied for a contribution from the EUSF within the deadline of 12 
weeks after the first damage caused by the disaster on 13 July 2021. The application 
contains all the information required under Article 4 of the Regulation. 

The disaster is of natural origin and therefore falls within the field of application of 
the EUSF. 

The  Netherlands  authorities  has  submitted  the  application  under  “neighbouring 
country”  disaster  criterion  as  laid  down  in  Article  2(4)  of  the  Regulation,  which 
stipulates  that  assistance  from  the  EUSF  may  also  be  mobilised  for  any  natural 
disaster  in  an  eligible  State  that  is  also  a  major  natural  disaster  in  a  neighbouring 
eligible  State.  The  Netherlands  estimate  the  total  direct  damage  caused  by  the 
disaster at EUR 500 million. This amount represents 0,06% of the Netherlands Gross 
National  Income  (GNI).  As  the  same  natural  disaster  qualifies  a  “major  natural 
disaster” in Belgium and in Germany, therefore the application from the Netherlands 
is eligible for a contribution from the EUSF without a specific threshold. 

Total  direct  damage  is  the  basis  for  the  calculation  of  the  amount  of  the  financial 
contribution  from  the  EUSF.  The  financial  contribution  may  only  be  used  for 
essential  emergency  and  recovery  operations  as  defined  in  Article  3  of  the 
Regulation. 

The Netherlands did not request the payment of an advance pursuant to Article 4a of 
the Regulation. 

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(7) 

(8) 

(9) 

(10) 

From  13  July  until  20  July  2021,  the  passing  low-pressure  system  brought  heavy 
rainfall  and  flash  flooding.  The  exceptional  precipitation  in  parts  of  the  Belgian, 
German and Dutch catchments of the Meuse and Rhine led to excessive water levels 
and flooding at many locations. Precipitation accumulated to 160 to 180 mm in two 
days over a large region. The rainfall caused extreme high water levels in the river 
Meuse  and  catchments.  Moreover,  streams  and  tributaries  in  the  south  of  the 
province Limburg also overflowed due to the rainfall. Consequently, around 50 000 
residents had to be evacuated. Emergency measures, such as the placement of sand 
bags,  were  coordinated  by  professionals  but  often  executed  by  the  local  residents. 
Various  main  and  secondary  roads  roads  were  closed  off  and  the  train  traffic  was 
temporarily out of service. The most prominent incidents were sand-boils (erosion of 
sand  from  underneath  an  embankment),  overflow  of  an  embankment  at  Aasterberg 
and  damage  to  a  weir  at  Bosscheveld,  near  Maastricht.  Two  local  flood  defences 
breached  -  an  emergency  embankment  at  Horn  and  an  embankment  close  to 
Roermond. 

The  Netherlands  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the 
Regulation  at  EUR 30 million  and  presented  it  broken  down  by  type  of  operation. 
The  largest  share  of  the  cost  of  emergency  operations  (over  EUR 25 million) 
concerns restoring to working order of infrastructure and plant. 

Directive 2007/60/EC has been transposed in the Netherlands. In general, flood risk 
management, 
the 
Netherlands, is extremely strict. 

including  flood  prevention,  protection  and  mitigation 

in 

At  the  date  of  submitting  the  application  the  Netherlands  was  not  subject  to 
infringement  proceedings  concerning  Union  legislation  relating  to  the  nature  of  the 
disaster. 

(11) 

The Netherlands authorities did not indicate any insurance coverage of eligible cost. 

2.4 

Austria- neighbouring country disaster: floods 

Between  16  and  19  July  2021,  a  slow-moving  low-pressure  system  named  “Bernd”  caused 
significant rainfall in Austria with the absolute maximum being measured on 17 July 2021 in 
Salzburg  and  Tyrol.  The  heavy  rainfall  events  led  to  heavy  floods  and  mudslides  causing 
damage  to  public  and  private  infrastructure.  The  population  and  the  economy  was  severely 
affected. 

Subsequently, Austria applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

On  5  October  2021,  Austria  submitted  an  application  for  a  financial  contribution 
from the EUSF to finance emergency and recovery operations following the floods in 
July 2021.  

Austria  applied  for  a  contribution  from  the  EUSF  within  the  deadline  of  12  weeks 
after  the  first  damage  caused  by  the  disaster  on  16  July  2021.  The  application 
contains all the information required under Article 4 of the Regulation. 

The disaster is of natural origin and therefore falls within the field of application of 
the EUSF. 

Austrian  authorities  has  submitted  the  application  under  “neighbouring  country” 
disaster criterion as laid down in Article 2(4) of the Regulation, which stipulates that 
assistance  from  the  EUSF  may  also  be  mobilised  for  any  natural  disaster  in  an 
eligible  State  that  is  also  a  major  natural  disaster  in  a  neighbouring  eligible  State. 
Austria estimate the total direct damage caused by the disaster at EUR 84,6 million. 

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This  amount  represents  0,02%  of  Austrian  Gross  National  Income  (GNI).  As  the 
same natural disaster qualifies a “major natural disaster” in Belgium and in Germany, 
therefore  the  application  from  Austria  is  eligible  for  a  contribution  from  the  EUSF 
without a specific threshold. 

Total  direct  damage  is  the  basis  for  the  calculation  of  the  amount  of  the  financial 
contribution  from  the  EUSF.  The  financial  contribution  may  only  be  used  for 
essential  emergency  and  recovery  operations  as  defined  in  Article  3  of  the 
Regulation. 

Austria  did  not  request  the  payment  of  an  advance  pursuant  to  Article  4a  of  the 
Regulation. 

Within 4 days, a rainfall from 50 mm to 100 mm fell north of the main Alpine ridge. 
However,  there  were  significant  regional  differences:  amounts  of  precipitation 
recorded  in  parts  of  Tyrol  and  Lower  Austria  were  that  of  once  in  150  years.  In 
Salzburg,  local  precipitation  was  more  than  once  in  75  years,  while  in  parts  of 
Vienna  the  precipitation  amounts  that  occurred  corresponded  to  a  100-year  event. 
The heavy rainfall led to mudslides and heavy floods that caused massive damage to 
public and private infrastructure in federal states of Salzburg and Tyrol. In addition, 
damage was recorded also in the federal states of Lower Austria, Upper Austria and 
Vienna,  and  minor  damage  in  the  federal  state  of  Styria.  The  largest  share  of  the 
sustained direct damage is attributed to physical damage to the network infrastructure 
(water and wastewater, transport, bridges, energy, telecommunications etc.) 

Austria estimated the cost of operations eligible under Article 3(2) of the Regulation 
at EUR 35,83 million and presented it broken down by type of operation. The largest 
share  of  the  cost  of  emergency  operations  (over  EUR 24,47  million)  concerns 
restoring  to  working  order  of  infrastructure  in  the  field  of  transport.  The  second 
largest  share  of  cost  concerns  securing  of  preventive  infrastructure  amounting  to 
EUR 7,99 million.  

Directive 2007/60/EC was transposed into Austrian law by the 2011 amendment to 
the Water Law Act. 

At  the  date  of  submitting  the  application  Austria  was  not  subject  to  infringement 
proceedings concerning Union legislation relating to the nature of the disaster. 

(5) 

(6) 

(7) 

(8) 

(9) 

(10) 

(11) 

Austrian authorities did not indicate any insurance coverage of eligible cost. 

2.5 

Luxembourg- neighbouring country disaster: floods 

Starting from 14 July 2021, a slow-moving low-pressure system named “Bernd” caused heavy 
rainfall  also  in  Luxembourg.  The  relatively  high  soil  humidity  facilitated  the  formation  of 
flash  floods,  which  ultimately  resulted  in  fluvial  floods.  Additionally,  high  discharges  of 
transboundary rivers Nims and Prüm, as well as transnational rivers Our and Sure aggravated 
the floods. As a  result,  Luxembourg registered  a 100-year flood  at  ten  gauging stations  and 
measured the highest water levels at fifteen gauging stations since the beginning of recording. 

Subsequently, Luxembourg applied for financial assistance from the EUSF. 

(1) 

On  6  October  2021,  Luxembourg  submitted  an  application  for  a  financial 
contribution from the EUSF to finance emergency and recovery operations following 
the floods in July 2021. 

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(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

(10) 

Luxembourg  applied  for  a  contribution  from  the  EUSF  within  the  deadline  of  12 
weeks after the first damage caused by the disaster on 14 July 2021. The application 
contains all the information required under Article 4 of the Regulation. 

The disaster is of natural origin and therefore falls within the field of application of 
the EUSF. 

Luxembourg's  authorities  has  submitted  the  application  under  “neighbouring 
country”  disaster  criterion  as  laid  down  in  Article  2(4)  of  the  Regulation,  which 
stipulates  that  assistance  from  the  EUSF  may  also  be  mobilised  for  any  natural 
disaster  in  an  eligible  State  that  is  also  a  major  natural  disaster  in  a  neighbouring 
eligible State. Luxembourg estimate the total direct damage caused by the disaster at 
EUR 193,3  million.  This  amount  represents  0,4%  of  Luxembourg's  Gross  National 
Income  (GNI).  As  the  same  natural  disaster  qualifies  a  “major  natural  disaster”  in 
Belgium and in Germany, therefore the application from Luxembourg is eligible for 
a contribution from the EUSF without a specific threshold. 

Total  direct  damage  is  the  basis  for  the  calculation  of  the  amount  of  the  financial 
contribution  from  the  EUSF.  The  financial  contribution  may  only  be  used  for 
essential  emergency  and  recovery  operations  as  defined  in  Article  3  of  the 
Regulation. 

Luxembourg did not request the payment of an advance pursuant to Article 4a of the 
Regulation. 

The  relatively  high  soil  humidity  facilitated  the  formation  of  flash  floods,  which 
ultimately  resulted  in  fluvial  floods.  Police  and  the  national  emergency  service 
CGDIS  carried  out  1200  interventions  in  the  night  from  14  July  to  15  July  2021. 
Numerous houses were flooded and no longer inhabitable; around 400 people had to 
be evacuated and relocated. Numerous households lost access to electricity, with 250 
households  being  without  electricity  for  around  one  week.  Furthermore,  180  roads 
had to be closed, numerous bus and train lines were affected across the country. In 
many  municipalities,  water  systems  were  affected  by  the  floods  and  citizens  were 
asked  to  boil  the  water  before  use.  Three  water  treatment  plants,  several  pumping 
stations, the overall pipe network, and one hydroelectric facility have been affected 
by the floods. Businesses and agriculture sector also stuffed damages. 

Luxembourg  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the 
Regulation at EUR 36,7 million and presented it broken down by type of operation. 
The  largest  share  of  the  cost  of  emergency  operations  (over  EUR 16,4 million) 
concerns restoring to working order of infrastructure and plant in the field of water 
and  wastewater.  The  second  largest  share  of  cost  concerns  the  transport  sector 
amounting to EUR 10,8 million. 

Directive 2007/60/EC of the European Parliament and of the Council of 23 October 
2007 on the assessment and management of flood risks (the “Floods Directive”) was 
transposed  to  Luxembourg  legislation  by  the  modified  water  law  of  19  December 
2008. 

At  the  date  of  submitting  the  application  Luxembourg  was  not  subject  to 
infringement  proceedings  concerning  Union  legislation  relating  to  the  nature  of  the 
disaster. 

(11) 

Luxembourg's authorities did not indicate any insurance coverage of eligible cost. 

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2.6 

Spain-  regional  natural  disaster:  volcanic  eruption  on  the  island  of  La  Palma, 
Canary Islands 

On 19 September 2021, the volcano Cumbre Vieja located on the island of La Palma (part of 
the Canary Islands) in Spain erupted creating massive damage on the island. The eruption was 
characterised  by  a  Strombolian  eruptive  style,  with  large  amounts  of  lava  flowing  out  of 
several vents located along an eruptive fissure. Over the course of the eruption, an estimated 
1241 ha of the island’s surface was affected by westward lava flows, which reached the sea at 
two separate points, forming lava deltas. 

Subsequently, Spain applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

On  3  December  2021,  Spain  submitted  an  application  for  a  contribution  from  the 
EUSF  following  the  volcanic  eruption  on  the  island  of  La  Palma  on  19  September 
2021.  On  22  March  2022,  Spain  submitted  an  update  to  the  application  including 
more accurate estimations of the total direct damage as allowed by Art. 4(1a) of the 
Regulation. 

Spain applied for a contribution from the EUSF within the deadline of 12 weeks after 
the  first  damage  caused  by  the  disaster  on  19  September  2021.  The  application 
contains all the information required under Article 4 of the Regulation. 

The  volcanic  eruption  is  of  natural  origin  and  therefore  falls  within  the  field  of 
application of the EUSF. 

The  application  presented  the  event  as  a  ‘regional  natural  disaster’  as  laid  down  in 
Article  2(3)  of  the  Regulation,  which  is  any  natural  disaster  in  a  region  at  NUTS 
level 2 of an eligible State resulting in direct damage exceeding 1,5% of that region's 
gross domestic product (GDP) or 1% of regional GDP for the outermost regions. The 
Spanish  authorities  estimate  the  total  direct  damage  at  EUR 1 billion.  This  amount 
represents 2,19% of Canary Islands’ GDP and it exceeds the applicable threshold for 
‘regional  disaster”,  which  for  Canary  Islands  is  EUR 457,2 million  in  2021.  In  the 
light  of  the  above,  the  disaster  qualifies  as  a  ‘regional  disaster’  and  the  application 
from Spain is eligible for a contribution from the EUSF. 

Total  direct  damage  is  the  basis  for  the  calculation  of  the  amount  of  the  financial 
contribution  from  the  EUSF.  The  financial  contribution  may  only  be  used  for 
essential  emergency  and  recovery  operations  as  defined  in  Article  3  of  the 
Regulation. 

Spain requested the payment of an advance on the anticipated contribution pursuant 
to  Article  4a  of  the  Regulation.  On  the  basis  of  the  preliminary  assessment,  the 
Commission  concluded  that  the  conditions  for  paying  an  advance  from  the  EUSF 
were  met.  Therefore,  an  advance  of  EUR 5 391 796  was  awarded  by  Commission 
Implementing  Decision  C(2022) 1802  of  21  March  2022.  The  advance  was  paid  to 
Spain on 2 May 2022. 

The majority of damage concerns the agricultural sector, building stock and network 
infrastructure.  The  lava  flow  affected  an  estimated  total  of  984,85  hectares.  1 452 
buildings were destroyed, of which 1 177 residential, 147 agricultural, 67 industrial, 
33 for leisure and hospitality, 13 public and 15 others. A large number of plantations, 
including bananas, vineyards, avocados, and citrus fruits, as well as livestock farms 
were  affected,  determining  a  direct  loss  of  assets.  The  consequences  on  the  local 
economy, already hardly touched by pandemic, are dire and recovery will be long. 

EN 

9 

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(8) 

(9) 

(10) 

(11) 

(12) 

The Commission services have carried out a thorough examination of the application 
in accordance with the Regulation, in particular with Articles 2, 3 and 4 thereof. The 
assessment confirmed the extent of the affected area as well as the overall number of 
the  exposed  population  declared  in  the  application.  A  dedicated  analysis  of  the 
effects  on  the  agricultural  sector,  network  infrastructure  and  residential  buildings 
confirmed  the  extent  of  damage  and  the  cost  estimation  presented  by  the  Spanish 
authorities. In the light of the above, the disaster qualifies as a regional disaster and 
the application from Spain is eligible for a contribution from the EUSF. 

Spain  estimated  the  cost  of  emergency  and  recovery  operations  eligible  under 
Article 3(2) of the Regulation at EUR 354,9 million and presented it broken down by 
type of operation. The largest share concerns the costs of repair of infrastructure and 
temporary accommodation. 

By  Decree  112/2018  of  30  July  2015,  the  Special  Plan  for  Civil  Protection  and 
Emergency  Care  for  volcanic  risk  in  the  Autonomous  Community  of  the  Canary 
Islands  (PEVOLCA)  was  approved.  The  aim  of  PEVOLCA  is  to  ensure  a 
coordinated, agile, effective and efficient response from all public administrations to 
deal  with  seissmo  volcanic  crises  and  the  resulting  emergencies  originating  in  the 
territory  of  the  the  Canary  Islands,  and  to  ensure  that  the  prevention  measures 
provided for in the legislation in force are complied with. 

At  the  date  of  submitting  the  application,  Spain  was  not  subject  to  infringement 
proceedings concerning Union legislaton relating to the nature of the disaster. 

The Spanish authorities confirmed that there is no insurance coverage of the eligible 
costs. 

2.7 

Greece- regional natural disaster: earthquake in Crete 

3 magnitude hit the island of Crete in Greece. 
On 27 September 2021, an earthquake of 6 ML
The epi  creating substantial  damage. The Center of the earthquake was located southeast  of 
Heraklion.  The  main  earthquake  was  followed  by  a  rich  seismic  sequence,  with  largest 
aftershock  of  5,3  ML  magnitude  on  28  September  2021  causing  additional  damages.  The 
earthquake killed one person, injured 36 and created substantial damaged.  

Subsequently, Greece applied for financial assistance from the EUSF.  

(1) 

(2) 

(3) 

(4) 

On 16 December 2021, Greece submitted an application for a contribution from the 
European  Union  Solidarity  Fund  (hereinafter  'EUSF')  to  finance  emergency  and 
recovery operations following the earthquake in Crete on 27 September 2021. 

Greece  applied  for  a  contribution  from  the  EUSF  within  the  deadline  of  12  weeks 
after the first damage caused by the disaster on 27 September 2021. The application 
contains all the information required under Article 4 of the Regulation. 

The earthquake is of natural origin and therefore falls within the field of application 
of the EUSF. 

The  application  presented  the  event  as  a  ‘regional  natural  disaster’  as  laid  down  in 
Article  2(3)  of  the  Regulation,  which  is  any  natural  disaster  in  a  region  at  NUTS 
level 2 of an eligible State resulting in direct damage exceeding 1,5% of that region's 
gross  domestic  product  (GDP).  The  Greek  authorities  estimate  the  total  direct 
damage  at  EUR 143,42  million.  This  amount  represents  1,53%  of  GDP  of  Crete 

3 

ML is "Richter" seismic magnitude scale or the Local magnitude scale. 

EN 

10 

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(5) 

(6) 

(7) 

(8) 

(9) 

(10) 

region,  and  it  exceeds  the  applicable  ‘regional  disaster’  threshold,  which  is 
EUR 140,79 million.  In  the  light  of  the  above,  the  disaster  qualifies  as  a  ‘regional 
disaster’  and  the  application  from  Greece  is  eligible  for  a  contribution  from  the 
EUSF. 

The total direct damage is the basis for the calculation of the amount of the financial 
contribution  from  the  EUSF.  The  financial  contribution  may  only  be  used  for 
essential emergency operations as defined in Article 3 of the Regulation. 

Greece requested the payment of an advance on the anticipated contribution pursuant 
to  Article  4a  of  the  Regulation.  On  the  basis  of  the  preliminary  assessment,  the 
Commission  concluded  that  the  conditions  for  paying  an  advance  from  the  EUSF 
were  met.  Therefore,  an  advance  of  EUR 896 375  was  awarded  by  Commission 
Implementing  Decision  C(2022)  2599  of  26  April  2022.  The  advance  was  paid  to 
Greece on 19 May 2022. 

The Commission services have carried out a thorough examination of the application 
in accordance with the Regulation, in particular with Articles 2, 3 and 4 thereof.  

The application presents that as a result of the earthquake and its aftershocks a total 
of 6658 buildings suffered significant damage or were even completely destroyed, of 
which 4584 houses, 227 professional spaces, 318 holy temples/public buildings and 
1029  warehouses.  According  the  application  the  total  cost  of  residential  building 
damages is  estimated at  EUR 115,45 million and the cost  of the damages to  public 
assets  at  EUR 10,1  million.  Greek  authorities  has  put  substantial  efforts  and  public 
funds into emergency and rescue operations after the earthquake, as well as cleaning 
operations. 

Greece  estimated  the  cost  of  emergency  and  recovery  operations  eligible  under 
Article 3(2) of the Regulation at EUR 12,49 million and presented it broken down by 
type  of  operation.  The  largest  share  concerns  the  restoration  to  working  order  of 
infrastructure and plants, in  particular in  the field  of water  and wastewater, as well 
as, education sector. 

The  Greek  application  provides  a  description  of  the  implementation  of  Union 
legislation  on  disaster  risk  prevention  and  management  related  to  the  nature  of  the 
disaster.  Based  on  the  strong  earthquakes  that  hit  Greece  between  1978-1981,  the 
Greek  government  set  up a natural  disaster risk  prevention and management policy 
with the aim of improving resilience in local communities through a framework for 
implementing policies to  reduce known  risks, managing the impact  of earthquakes, 
and procedures/actions to prevent new risks. The Greek Anti-seismic Building Code 
contains the updated Seismic Hazard Map. 

(11) 

At  the  date  of  submitting  the  application,  Greece  was  not  subject  to  infringement 
proceedings concerning Union legislation relating to the nature of the disaster. 

(12) 

The Greek authorities confirmed that there is no insurance coverage of eligible costs.  

2.8 

Conclusion 

For  the  reasons  set  out  above,  the  disasters  referred  to  in  the  applications  submitted  by 
Germany,  Belgium,  the  Netherlands,  Austria,  Luxembourg,  Spain  and  Greece  meet  the 
conditions set out in the Regulation. 

EN 

11 

  EN 

3. 

FINANCING FROM THE EUSF ALLOCATION 2022 

Council Regulation (EU, EURATOM) No 2020/2093 of 17 December 2020 laying down the 
multiannual financial framework for the  years 2021-20274 (hereafter "the MFF regulation"), 
and in particular Article 9 thereof allows for the mobilisation of the EUSF in the context of 
the  SEAR.  Point  10  of  the  Interinstitutional  Agreement  of  16 December 2020  between  the 
European  Parliament,  the  Council  and  the  Commission  on  budgetary  discipline,  on 
cooperation  on  budgetary  matters  and  on  sound  financial  management5  (IIA)  as  well  as  on 
new own resources, including a roadmap towards the introduction of new own resources,  lays 
down the modalities for the mobilisation of the EUSF in the context of the SEAR. 

As solidarity was the main justification for the creation of the EUSF, the Commission takes 
the view that aid should be progressive.  Consequently, the portion of the damage exceeding 
the  “major  natural  disaster”  threshold  for  mobilising  the  EUSF  (i.e.  0,6 %  of  GNI  or 
EUR 3 billion in 2011 prices, whichever is the lower amount) should give rise to higher aid 
intensity than the portion of the damage  below the threshold. That means that the aid amount 
for a country affected by disaster complying with the conditions for a ‘major natural disaster’ 
is calculated by adding up two amounts: 2,5% of the total direct damage under the threshold 
and 6% for the part of the total direct damage above the threshold. 

The  rate  applied  for  defining  the  aid  amounts  for  ‘regional  natural  disasters’,  which  by 
definition  remain  below  the  national  threshold,  is  2,5%  of  total  direct  damage.  In  addition, 
according Article 2(4) of the Regulation assistance from the EUSF may also be mobilised for 
any natural disaster in an eligible State that is also a major natural disaster in a neighbouring 
eligible State. When applying for the EUSF assistance based on the ‘neighbouring country’ 
criterion,  there  are  no  thresholds  for  the  sustained  total  direct  damage.  The  rate  applied  for 
defining an aid amount for a disaster under ‘neighbouring country’ criterion is the same as in 
case  of  a  ‘regional  disaster’,  i.  e.  2,5%  of  total  direct  damage.  The  contribution  may  not 
exceed the estimated total cost of eligible operations. 

The methodology for calculating the aid was set out in the 2002-2003 Annual Report on the 
EUSF and accepted by the Council and the European Parliament. As this calculation led to a 
total  amount  for  all  countries  exceeding  the  available  budget  resources,  the  amounts  per 
country  were  reduced  on  a  pro  rata  basis.  The  Commision therefore  proposes  to  the  budget 
authority to mobilise the following amounts: 

4 
5 

OJ L 433I, 22.12.2020, p. 11. 
OJ C 433I, 22.12.2020, p. 28. 

EN 

12 

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Member 
States 

Germany 
floods 

Belgium 
floods 

Netherlands 
floods 

Austria 
floods 

Luxembourg 
floods 

Spain 
La Palma-
volcano 
Greece 
earthquake 

Qualification 
of disaster 

Total direct 
damage 

(EUR) 

Applied 
regional 
disaster 
threshold 

( EUR) 

Major 
disaster 
threshold 

(EUR) 

2,5% of 
total 
direct 
damage 

6% of direct 
damage above 
threshold 
(EUR) 

Potential aid 
amount 
(EUR) 

Advances  

(EUR) 

Pro-rata 
aid amount 
to be 
mobilised 

(EUR) 

(EUR) 

Major 
(Art. 2(2)) 

Major 
(Art. 2(2)) 

Neighbouring 
(Art. 2(4)) 

Neighbouring 
(Art. 2(4)) 

Neighbouring 
(Art. 2(4)) 

Regional 
(Art. 2(3)) 

Regional 
(Art. 2(3)) 

29 212 940 000 

N/A 

3 656 983 000 

91 424 575 

1 533 357 420 

1 624 781 995 

612 611 256 

5 565 796 000 

N/A 

 2 892 814 000 

72 320 350 

160 378 920 

232 699 270 

87 737 427 

500 000 000 

N/A 

84 608 089 

N/A 

193 300 000 

N/A 

N/A 

N/A 

N/A 

12 500 000 

N/A 

12 500 000 

4 713 027 

2 115 202 

4 832 500 

N/A 

N/A 

2 115 202 

797 520 

4 832 500 

1 822 056 

- 

- 

- 

- 

- 

1 002 496 862 

457 200 400 

N/A 

25 062 422 

N/A 

25 062 422 

9 449 589 

5 391 796 

143 420 124 

140 786 700 

N/A 

3 585 503 

N/A 

3 585 503 

1 351 886 

896 375 

TOTAL 

 1 905 576 892 

718 482 761 

6 288 171 

In  accordance  with  Article  9(2)  of  the  MFF  Regulation,  the  overall  annual  ceiling  of  the 
SEAR is EUR 1 200 000 000 in 2018 prices or EUR 1 298 919 000 in current prices. Article 
9(4) of the MFF Regulation stipulates that 25% of the overall annual SEAR allocation (EUR 
324 729 750 in current prices for 2022) becomes available for all the components of SEAR as 
of  1  October.  In  accordance  with  the  proposed  DEC  18/2022,  this  amount  will  be  used  for 
humanitarian aid purposes. Also, in accordance with Article 9 (4) of the MFF Regulation, the 
maximum  amount  that  can  be  mobilised  by  the  EUSF  is  the  50%  of  the  overall  SEAR 
allocation after the decuction of the above mentioned 25%.  

Therefore,  the  maximum  amount  that  can  be  mobilised  by  the  EUSF  from  the  2022  SEAR 
allocation is EUR 487 094 625, including EUR 50 000 000 that has already been inscribed in 
the General Budget 2022 in commitments and payments, in accordance with Article 4a (4) of 
the EUSF Regulation   for the payment of advances.  In addition,  an amount of EUR 20 388 
136 which corresponds to 50% of  the unused SEAR amount from 2021 can also be used by 
the EUSF in accordance with Article 9 (2) of the MFF Regulation. Finally, in accordance with 
the  Joint  Statement  by  the  European  Parliament,  the  Council  and  the  Commission  on  the 
intention  to  provide  maximum  resources  for  natural  disasters  under  the  EUSF  strand  of  the 
SEAR  in  2022,  an  amount  of  EUR  211  000  000  has  not  been  used  by  the  external 
emergencies strand of SEAR until 1 September and, therefore, in accordance with Article 9(4) 
of the MFF Regulation can be used for the mobilisation of the EUSF. 

Therefore, the maximum amount available for this EUSF mobilisation is EUR 718 482 761, 
which will cover the needs under this Mobilisation Decision as outlined above. 

Amount available under the EUSF: 

Annual 2022 SEAR allocation earmarked for EUSF   

  EUR 487 094 625 

- 

Including amount introduced in budget 2022 for advances 

                                  EUR 50 000 000 

EN 

13 

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50% of the unused 2021 SEAR allocation  

Remaining part not used by external strand before 1 September 

EUR 20 388 136 

EUR 211 000 000 

 TOTAL  718 482 761 

EN 

14 

  EN 

2022/0337 (BUD) 

Proposal for a 

DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

on the mobilisation of the European Union Solidarity Fund to provide assistance to 
Germany, Belgium, the Netherlands, Austria, Luxembourg, Spain and Greece further to 
natural disasters that took place in these countries in the course of 2021 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having regard to the Treaty on the Functioning of the European Union, 

Having regard to Council Regulation (EC) No 2012/2002 of 11 November 2002 establishing 
the European Union Solidarity Fund6 and in particular Article 4(3) thereof, 

Having  regard  to  the  Interinstitutional  Agreement  of  16  December  2020  between  the 
European  Parliament,  the  Council  and  the  Commission  on  budgetary  discipline,  on 
cooperation on budgetary matters and on sound financial management7 (IIA)as well as on new 
own resources, including a roadmap towards the introduction of new own resources,  , and in 
particular point 10 thereof, 

Having regard to the proposal from the European Commission, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

6 
7 
8 

The  European  Union  Solidarity  Fund  ('the  Fund')  aims  to  enable  the  Union  to 
respond in a rapid, efficient and flexible manner to emergency situations in order to 
show  solidarity  with  the  population  of  regions  struck  by  major  or  regional  natural 
disasters or major public health emergency. 

The  Fund  is  not  to  exceed  the  ceilings  as  laid  down  in  Article  9  of  Council 
Regulation (EU, Euratom) No 2020/20938 

On  1  October  2021,  Germany  submitted  an  application  to  mobilise  the  Fund, 
following the floods in July 2021. 

On  1  October  2021,  Belgium  submitted  an  application  to  mobilise  the  Fund, 
following the floods in July 2021. 

On 1 October 2021, the Netherlands submitted an application to mobilise the Fund, 
following the floods in July 2021. 

On  5  October  2021,  Austria  submitted  an  application  to  mobilise  the  Fund,  
following the floods in July 2021 

On  6  October  2021,  Luxembourg  submitted  an  application  to  mobilise  the  Fund, 
following the floods in July 2021. 

OJ L 311, 14.11.2002, p. 3. 
OJ C 373, 20.12.2013, p. 1. 
Council  Regulation  (EU,  Euratom)  No  1311/2013  of  2  December  2013  laying  down  the  multiannual 
financial framework for the years 2014-2020 (OJ L 347, 20.12.2013, p. 884). 

EN 

15 

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(8) 

(9) 

(10) 

(11) 

(12) 

On  3  December  2021,  Spain  submitted  an  application  to  mobilise  the  Fund, 
following the volcanic eruption on the island od La Palma on 19 September 2021. On 
22 March 2022, Spain submitted an update to the application.  

On  16  December  2021,  Greece  submitted  an  application  to  mobilise  the  Fund, 
following the earthqquake in Crete on 27 September 2021. 

The  above  mentioned  applications  meet  the  conditions  for  providing  a  financial 
contribution  from  the  Fund,  as  laid  down  in  Article  4  of  Regulation  (EC)  No 
2012/2002. 

The Fund should therefore be mobilised in order to provide a financial contribution 
to Germany, Belgium, the Netherlands, Austria, Luxembourg, Spain and Greece.  

In order to minimise the time taken to mobilise the Fund, this Decision should apply 
from the date of its adoption, 

HAVE ADOPTED THIS DECISION: 

Article 1 

For  the  general  budget  of  the  Union  for  the  financial  year  2021,  the  European  Union 
Solidarity Fund shall be mobilised as follows in commitment and payment appropriations in 
relation to natural disasters: 

(a) 

(b) 

(c) 

(d) 

(e) 

(f) 

(g) 

the  amount  of  EUR 612  611  256   shall  be  provided  to  Germany  in  relation  to  the 
floods of 2021; 

the amount of EUR 87 737 427 shall be provided to Belgium in relation to the floods 
of 2021; 

the amount of EUR 4 713 027 shall be provided to the Netherlands in relation to the 
floods of 2021; 

the amount of EUR 797 520 shall be provided to Austria in relation to the floods of 
2021; 

the  amount  of  EUR  1  822  056  shall  be  provided  to  Luxembourg  in  relation  to  the 
floods of 2021; 

the amount of EUR 9 449 589 shall be provided to Spain in relation to the volcano 
eruption in La Palma; 

the  amount  of  EUR  1  351  886  shall  be  provided  to  Greece  in  relation  to  the 
earthuake in Crete. 

This Decision shall enter into force on the day of its publication in the Official Journal of the 
European Union. 

Article 2 

EN 

16 

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It shall apply from … [the date of its adoption]. 

Done at Brussels, 

For the European Parliament 

For the Council 

 

 Date to be inserted by the Parliament before the publication in OJ. 

EN 

17 

  EN