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 Italy, Slovenia, Austria, Greece and France relating to six natural disasters occurred in 2023
Date: 2024-08-27
Institutions: Directorate-General for Budget, European Commission
Subjects: EU Member State, European Union Solidarity Fund, aid to disaster victims, commitment of expenditure, cyclone, emergency aid, flood, general budget (EU), payment appropriation

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   EUROPEAN COMMISSION  Brussels, 27.8.2024  COM(2024) 325 final 2024/0212 (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 Italy, Slovenia, Austria, Greece and France relating to six natural disasters occurred in 2023  
 
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  Reglation  (EC)  No  2012/20021 
(hereinafter referred to as ‘the  EUSF Regulation’) for an amount of EUR  1 028 541 689 to 
provide  assistance  to  Italy,  Slovenia,  Austria,  Greece  and  France  in  relation  to  the  natural 
disasters (floods) that took place in these countries in 2023. 

This mobilisation is accompanied by DEC No 08/2024 that proposes to transfer the amount of 
EUR 796 760 300 from  the European Solidarity  Reserve (hereinafter referred as  ‘the ESR’) 
reserve  line  to  the  EUSF  operational  budget  line,  both  in  commitments  and  payments 
appropriations.  In  addition  to  the  transferred  appropriations  from  the  ESR  reserve  line,  this 
mobilisation is financed trough the use of an amount of EUR 37 073 004 in commitments and 
payment appropriations  already inscribed in  the  EU general budget  2024 and EUR 194 708 
385  from  appropriations  of  the  EU  general  budget  2023,  already  paid  as  advances,  in 
accordance with Article 4a of the EUSF Regulation. 

2. 

2.1 

INFORMATION AND CONDITIONS 

Italy – major disaster: flood in the Emilia-Romagna region 

Between  1  and  17  May  2023,  the  Emilia-Romagna  region  of  Italy  experienced  extremely 
intense rainfall which led to flooding. 

Subsequently, Italy applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

(5) 

1 

On 24 July 2023, Italy submitted an application for a financial contribution from the 
EUSF  to  finance  emergency  and  recovery  operations  following  the  floods  in  May 
2023. 

Italy applied for a contribution from the EUSF within the deadline of 12 weeks after 
the  first  damage  caused  by  the  disaster  occurred  on  1  May  2023.  The  application 
contains all the information required under Article 4 of the EUSF Regulation. 

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

The Italian authorities estimate the total direct damage caused by the disaster at EUR 
8.5 billion. This amount exceeds the ‘major natural disaster’ threshold for Italy set at 
EUR 3.8 billion in 2023. Therefore, the disaster qualifies as a ‘major natural disaster’ 
according to Article 2(2) of the EUSF Regulation. 

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  and  recovery  operations  as  defined  in  Article  3  of  the  EUSF 
Regulation. 

Council  Regulation  (EC)  No  2012/2002  of  11 November  2002  establishing  the  European  Union 
Solidarity  Fund  (OJ  L  311,  14.11.2002,  p.  3,  ELI:  http://data.europa.eu/eli/reg/2002/2012/oj)  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,  ELI:  http://data.europa.eu/eli/reg/2014/661/oj)  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, 
ELI: http://data.europa.eu/eli/reg/2020/461/oj). 

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(6) 

(7) 

(8) 

(9) 

Italy requested the payment of an advance on the anticipated contribution pursuant to 
Article 4a of the EUSF 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 94 708 385 was awarded by Commission 
Implementing Decision C(2023) 7823 of 13 November 2023. The advance was paid 
to Italy on 29 November 2023. 

Between 1 and 17 May 2023, the Emilia-Romagna region of Italy was impacted by 
heavy  rain  and  the  resulting  flooding.  The  event  affected  seven  provinces  in  the 
central-eastern  sector  of  the  Region,  with  extremely  intense  rainfall  and  large 
cumulated  depths  recorded  especially  in  the  hilly  and  mountainous  areas.  The  total 
cumulative  rainfall  recorded  during  the  entire  event  ranged  between  200  and  500 
mm. The consequences of the subsequent floods were severe. On top of the extensive 
economic losses due to the destruction of infrastructures and damages to both public 
and  private  assets,  14  people  lost  their  lives.  More  than  1500  landslides  were 
triggered  by  the  extreme  meteorological  condition,  causing  extensive  damage  to 
roads and buildings, network infrastructure and watercourses. 

The  Italian  authorities  requested  assistance  through  the  European  Union  Civil 
Protection  Mechanism  (UCPM).  Italy  asked  for  four  High-Capacity  Pumping 
modules. After the activation of the UCPM, Slovakia, Slovenia, France, and Belgium 
provided support in  the flooded areas. The European Copernicus Emergency Rapid 
Mapping  and  Risk  &  Recovery  systems  and  the  national  ASI-COSMO-Skymed 
system were activated to identify the affected areas. 

Italy  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the  EUSF 
Regulation  at  EUR  681.8  million  and  presented  the  costs  broken  down  by  type  of 
operation.  The  largest  share  of  the  cost  of  emergency  operations  concerns  securing 
the  preventive  infrastructure  and  measures  of  protection  of  cultural  heritage 
amounting to over EUR 293.7 million. The second largest share of cost concerns the 
restoration of the working order of infrastructure and plants in the fields of energy, 
water,  waste  water,  telecoms,  transport,  health,  and  education  amounting  to  EUR 
220.5 million. The third largest share of cost concerns the cleaning up of the disaster-
stricken  area  amounting  to  EUR  85.7  million.  The  fourth  largest  share  of  cost 
concerns  temporary  accommodation  and  rescue  services  amounting  to  EUR  82.0 
million. 

(10) 

Italy has transposed the Directive 2007/60/EC of the European Parliament and of the 
Council  of  23  October  2007  on  the  assessment  and  management  of  flood  risks 
(“Directive  2007/60/EC”)2  through  the  Legislative  Decree  of  23  February  2010,  n. 
49. The Legislative Decree n. 49/2010  states that flood hazard maps and flood risk 
maps  need  to  be  adopted  for  areas  identified  according  to  the  same  piece  of 
legislation.  

(11) 

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

(12) 

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

2 

OJ L 288, 6.11.2007, p. 27, ELI: http://data.europa.eu/eli/dir/2007/60/oj. 

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2.2 

Slovenia – major disaster: flood  

Between 3 and 6 August 2023, Slovenia was impacted by heavy rainfall which led to floods 
across the country. 

Subsequently, Slovenia applied for financial assistance from the EUSF.  

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

On 20 October 2023, Slovenia submitted an application for a financial contribution 
from the EUSF to finance emergency and recovery operations following the floods in 
August 2023. 

Slovenia applied for a contribution from the EUSF within the deadline of 12 weeks 
after  the  first  damage  caused  by  the  disaster  occurred  on  4  August  2023.  The 
application  contains  all  the  information  required  under  Article  4  of  the  EUSF 
Regulation. 

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

The Slovenian authorities estimate the total direct damage caused by the disaster at 
close  to  EUR  10.0  billion.  The  Commission  accepted  EUR  7.3  billion  as  plausible 
total  direct  damage.  This  amount  exceeds  the  ‘major  natural  disaster’  threshold  for 
Slovenia  of  0.6%  of  its  Gross  National  Income,  which  was  EUR  308.8  million  in 
2023.  Therefore,  the  disaster  qualifies  as  a  ‘major  natural  disaster’  according  to 
Article 2(2) of the EUSF Regulation. 

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  and  recovery  operations  as  defined  in  Article  3  of  the  EUSF 
Regulation. 

Slovenia  requested  the  payment  of  an  advance  on  the  anticipated  contribution 
pursuant  to  Article  4a  of  the  EUSF  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 100 million was awarded 
by  Commission  Implementing  Decision  C(2023)  8168  of  23  November  2023.  The 
advance was paid to Slovenia on 11 December 2023. 

Between  3  and  6  August  2023,  a  strong  low-pressure  system  caused  extensive 
rainfall.  Heavy  rainfall  and  torrential  downpours  triggered  large-scale  flooding, 
landslides,  and  mudslides.  Most  precipitation  was  measured  in  the  northern  half  of 
Slovenia with up to 150-200 mm of rain. The flood event was exceptional in that it 
involved the three largest Slovenian rivers. The high waters destroyed roads, bridges, 
water  supply  infrastructure,  sewerage,  electicity,  numerous  houses  and  urban  areas 
and agricultural land. 

The  Slovenian  authorities  requested  assistance  through  UCPM,  the  Emergency 
Response  Coordination  Centre  (ERCC)  and  NATO  through  the  Euro-Atlantic 
Disaster  Response  Coordination  Centre  (EADRCC).  Assistance  was  offered  by  12 
EU Member States and a number of third countries. 

Slovenia  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the  EUSF 
Regulation  at  EUR 6  786.0  million  and  presented  it  broken  down  by  type  of 
operation. The largest share of cost concerns the restoration of the working order of 
infrastructure  and  plants  in  the  fields  of  water,  waste  water,  telecoms,  transport, 
health, and education amounting to EUR 5 089.0 million. The second largest share of 

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the  cost  of  emergency  operations  concerns  the  cleaning  up  of  the  disaster-stricken 
area  amounting  to  EUR 853.2  million.  The  third  largest  share  of  cost  concerns 
securing the preventive infrastructure and measures of protection of cultural heritage 
amounting  to  EUR  816.2  million.  The  fourth  largest  share  of  cost  concerns 
temporary accommodation and rescue services amounting to EUR 27.2 million. 

(10) 

(11) 

(12) 

Slovenia transposed the Directive 2007/60/EC of the European Parliament and of the 
Council through the Slovenian Water Act in 2008 (Article 1(4)(4)).  

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

The  Slovenian  authorities  indicated  that  it  is  estimated  that  up  to  4.7%  of  the 
estimated damage could be recovered by insurance. 

2.3 

Austria - neighbouring country disaster: flood 

Between 3 and 6 August 2023, Austria was impacted by heavy rainfall which led to floods in 
southern Austrian regions. 

Subsequently, Austria applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

On  19  October  2023,  Austria  submitted  an  application  for  a  financial  contribution 
from the EUSF to finance emergency and recovery operations following the floods in 
August 2023. 

Austria  applied  for  a  contribution  from  the  EUSF  within  the  deadline  of  12  weeks 
after  the  first  damage  caused  by  the  disaster  occurred  on  3  August  2023.  The 
application  contains  all  the  information  required  under  Article  4  of  the  EUSF 
Regulation. 

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

The Austrian authorities submitted the application under the “neighbouring country” 
disaster  criterion  as  laid  down  in  Article  2(4)  of  the  EUSF  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  estimates  the  total  direct  damage  caused  by  the  disaster  at 
EUR  208.0  million.  As  the  same  natural  disaster  qualifies  as  a  “major  natural 
disaster”  in  Slovenia,  a  neighbouring  eligible  State,  the  application  from  Austria  is 
eligible  for  a  contribution  from  the  EUSF  pursuant  to  Article  2(4)  of  the  EUSF 
Regulation. 

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  and  recovery  operations  as  defined  in  Article  3  of  the  EUSF 
Regulation. 

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

Between 3 and 6 August 2023, heavy rain caused numerous damages to public and 
private infrastructures in southern Austria, especially in Lower Carinthia and Styria. 
The  rain  flooded  buildings,  cellars,  garages,  forests,  fields  and  triggered  over  900 
mudflows  and  landslides.  More  than  120  communities  were  impacted  by  the  storm 

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damages,  including  isolated  power  outages  due  to  high  groundwater.  Additional 
damages  were  reported  in  neighbouring  federal  states  such  as  Salzburg  and 
Burgenland. 

Austria  did  not  request  assistance  through  the  European  Emergency  Response 
Coordination Centre. 

Austria  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the  EUSF 
Regulation at EUR 76.5 million and presented it broken down by type of operation. 
The  largest  share  of  cost  concerns  the  restoration  of  the  working  order  of 
infrastructure  and  plants  in  the  fields  of  energy,  water,  waste  water,  and  transport 
amounting to EUR 65.6 million. The second largest share of the cost of emergency 
operations  concerns  securing  the  preventive  infrastructure  amounting  to  EUR  9.7 
million.  The  third  largest  share  of  cost  concerns  temporary  accommodation  and 
rescue  services  EUR  0.8  million.  The  fourth  largest  share  of  cost  concerns  the 
cleaning up of the disaster-stricken area amounting to EUR 0.4 million. 

Directive 2007/60/EC of the European Parliament and of the Council was transposed 
into  Austrian  law  by  the  2011  amendment  to  the  Water  Law  Act  (Federal  Law 
Gazette I no 14/2011).   

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

(8) 

(9) 

(10) 

(11) 

(12) 

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

2.4 

Greece - major disaster: cyclone 

Between  4  and  11  September  2023,  Greece  was  impacted  by  the  Mediterranean  storm 
“Daniel” which caused heavy rainfall and resulted in flooding in multiple locations in central 
Greece, particularly in the Thessaly region. 

Subsequently, Greece applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

(5) 

On 20 November 2023, Greece submitted an application for a financial contribution 
from the EUSF to finance emergency and recovery operations following the floods in 
September 2023. 

Greece  applied  for  a  contribution  from  the  EUSF  within  the  deadline  of  12  weeks 
after  the  first  damage  caused  by  the  disaster  occured  on  4  September  2023.  The 
application  contains  all  the  information  required  under  Article  4  of  the  EUSF 
Regulation. 

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

The Greek authorities estimate the total direct damage caused by the disaster at EUR 
2.3 billion. This amount exceeds the ‘major natural disaster’ threshold for Greece of 
0.6% of its Gross National Income, which was  EUR 1.1 billion in 2023. Therefore, 
the  disaster  qualifies  as  a  ‘major  natural  disaster’  according  to  Article  2(2)  of  the 
EUSF Regulation. 

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  and  recovery  operations  as  defined  in  Article  3  of  the  EUSF 
Regulation. 

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(6) 

(7) 

(8) 

(9) 

(10) 

(11) 

Greece requested the payment of an advance on the anticipated contribution pursuant 
to Article 4a of the EUSF 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 25 382 237 was awarded by Commission 
Implementing  Decision C(2024) 505 of 23 January 2024. The advance  was paid  to 
Greece on 8 February 2024. 

Between  4  and  11  September  2023,  an  intense  and  extensive  meteorological-
hydrological  event  characterized  by  high  and  persistent  rainfall  occured,  which 
resulted in catastrophic flooding in multiple locations in central Greece, particularly 
in the Thessaly region. The total cumulative rainfall recorded during the entire event 
ranged between 400 and 1000 mm in the affected regions. During the event, most of 
the region received an amount of precipitation comparable to the average annual total 
rainfall.  The  torrential  rain  generated  major  flooding  in  central  Greece,  causing 
extensive  regions  to  be  inundated.  The  flooding  wreaked  massive  destruction  on 
infrastructure,  turning  streets  into  rivers,  tearing  down  buildings  and  bridges,  and 
leaving  whole  villages  submerged.  On  top  of  the  extensive  economic  losses  due  to 
the destruction of infrastructures and damages to both  public and private assets, 17 
people lost their lives. 

The Greek authorities did not request assistance through the UCPM. 

Greece  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the  EUSF 
Regulation  at  EUR 1  941.0  million  and  presented  it  broken  down  by  type  of 
operation. The largest share of cost concerns the restoration of the working order of 
infrastructure  and  plants  in  the  fields  of  energy,  water,  waste  water,  telecoms, 
transport and education amounting to EUR 1 657.0 million. The second largest share 
of the cost of emergency operations concerns the cleaning up of the disaster-stricken 
area  amounting  to  EUR 230.6  million.  The  third  largest  share  of  cost  concerns 
temporary accommodation and rescue services amounting to EUR 42.8 million. The 
fourth  largest  share  of  cost  concerns  securing  the  preventive  infrastructure  and 
measures of protection of cultural heritage amounting to EUR 11.4 million. 

Greece has transposed the Directive 2007/60/EC of the European Parliament and of 
the  Council  through  the  Joint  Ministerial  Decision  ΚΥΑ  31822/1542/Ε130/2010 
(ΦΕΚ Β΄ 1108/21.07.2010) to the internal legal system. 

At  the  date  of  submitting  the  application,  Greece  was   subject  to  two  infringement 
proceedings  concerning  Union  legislation  relating  to  the  nature  of  the  disaster. 
INFR(2021)2254  in  relation  to  the  update  of  flood  risk  and  flood  hazard  maps  as 
required  by  Directive  2007/60/EC  was  closed  on  24  April  2024.  INFR(2022)2191 
has been referred on 13 March 2024 to the Court of Justice of the European Union 
for  failure  to  finalise  the  revision  of  Greece’s  river  basin  management  plans  as 
required  under  the  Water  Framework  Directive  (Directive  2000/60/EC)  and  flood 
risk  management  plans  as  required  under 
the  Floods  Directive  (Directive 
2007/60/EC). 

(12) 

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

2.5 

Italy - regional disaster: floods in Tuscany Region 

Between 25 October and 10 November 2023, the Tuscany region of Italy experienced intense 
rainfall which inevitably led to flash floods. 

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Subsequently, Italy applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

On 19 January 2024, Italy submitted an application for a financial contribution from 
the  EUSF  to  finance  emergency  and  recovery  operations  following  the  floods  in 
October and November 2023 in the Tuscany Region. 

Italy applied for a contribution from the EUSF within the deadline of 12 weeks after 
the first damage caused by the disaster occured on 29 October 2023. The application 
contains all the information required under Article 4 of the EUSF Regulation. 

The disaster 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  EUSF  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  Italian  authorities  estimate  the  total 
direct  damage  caused  by  the  disaster  at  EUR  2.7  billion.  This  amount  represents 
approximately  2.4%  of  the  Tuscany  region’s  GDP  and  exceeds  the  indicated 
applicable threshold for “regional disaster”, which for the Tuscany region is EUR 1.7 
billion in 2024. 

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  and  recovery  operations  as  defined  in  Article  3  of  the  EUSF 
Regulation. 

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

Between  25  October  and  10  November  2023,  the  Tuscany  region  of  Italy  was 
impacted by an extreme amount of rainfall within a relatively short amount of time, 
particularly in the provinces of Prato, Florence, Pisa, Pistoia, and Livorno. The rain 
and  the  accompanying  strong  wind  trigerred  flash  floods  and  landslides.  The 
consequences  of  the  subsequent  floods  were  severe.  The  event  caused  substantial 
economic damage, killed seven people and forced thousands to leave their homes.  

The  Italian  authorities  did  not  request  assistance  through  UCPM.  However,  the 
Italian Civil Protection Department has kept the ERCC of the Directorate-General for 
Europen  Civil  Protection  and  Humanitarian  Aid  Operations  of  the  European 
Commission updated on the progress of disaster management activities. 

Italy  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the  EUSF 
Regulation at EUR 175.6 million and presented it broken down by type of operation. 
The largest share of the cost of emergency operations concerns the restoration of the 
working order of infrastructure and plants in the fields of energy, water, waste water, 
telecoms,  transport,  health,  and  education  amounting  to  EUR  74.3  million.  The 
second largest share of cost concerns temporary accommodation and rescue services 
amounting to EUR 49.0 million. The third largest share of cost concerns securing the 
preventive  infrastructure  and  measures  of  protection  of  cultural  heritage  amounting 
to EUR 26.4 million. The fourth largest share of cost concerns the cleaning up of the 
disaster-stricken area amounting to  EUR 26.0 million. 

(10) 

Italy has transposed the Directive 2007/60/EC of the European Parliament and of the 
Council  through  the  Legislative  Decree  of  23  February  2010,  n.  49,  regarding  the 
implementation  of  Directive  2007/60/EC  on  the  assessment  and  management  of 

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flood risk. The Legislative Decree n. 49/2010 states that flood hazard maps and flood 
risk  maps  need  to  be  adopted  for  areas  identified  according  to  the  same  piece  of 
legislation.  

(11) 

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

(12) 

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

2.6 

France - regional disaster: flood 

Between 2 and 9 November 2023, the former Nord-Pas-de-Calais region within the Hauts-de-
France region of France was impacted by heavy rainfall which caused floods. 

Subsequently, France applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

(5) 

(6) 

On  24  January  2024,  France  submitted  an  application  for  a  financial  contribution 
from the EUSF to finance emergency and recovery operations following the floods in 
November 2023. 

France  applied  for  a  contribution  from  the  EUSF  within  the  deadline  of  12  weeks 
after  the  first  damage  caused  by  the  disaster  occurred  on  2  November  2023.  The 
application  contains  all  the  information  required  under  Article  4  of  the  EUSF 
Regulation. 

The disaster 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  EUSF  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  French  authorities  estimate  the  total 
direct  damage  caused  by  the  disaster  at  EUR  1.9  billion.  This  amount  represents 
approximately 1.64% of the former Nord-Pas-de-Calais3 region’s GDP and exceeds 
the indicated applicable threshold for “regional disaster”, which for the former Nord-
Pas-de-Calais region is EUR 1.8 billion in 20244. 

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  and  recovery  operations  as  defined  in  Article  3  of  the  EUSF 
Regulation. 

France requested the payment of an advance on the anticipated contribution pursuant 
to Article 4a of the EUSF 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 11 690 767 was awarded by Commission 
Implementing  Decision  C(2024)  3873  of  6  June  2024.  The  advance  was  paid  to 
France on 14 June 2024. 

(7) 

Between 2 and 9 November 2023,  the former Nord-Pas-de-Calais region within the 
Hauts-de-France region of France was hit by significant rainfall, reaching 271 mm in 

3 

4 

Nord-Pas de Calais is NUTS level 2 region which corresponds to one of the two former regions (Nord-
Pas de Calais and Picardie regions) which were merged into the Hauts-de-France region in 2016. 
The application was submitted in 2024 therefore the applicable threshold is the 2024 threshold 

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(8) 

(9) 

some areas. Thee circumstances led to a rapid increase in river levels within a short 
period of time and the overflow of major rivers. The consequences of the event were 
severe,  leading  to  numerous  mudslides  and  subsequent  road  closures.  The  disaster 
caused considerable economic damage, and forced thousands to leave their homes.  

The French authorities requested assistance through UCPM. Assistance was offered 
by the Netherlands. 

France  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the  EUSF 
Regulation at EUR 160.2 million and presented it broken down by type of operation. 
The largest share of the cost of emergency operations concerns the restoration of the 
working order of infrastructure and plants in the fields of energy, water, waste water, 
telecoms,  transport,  health,  and  education  amounting  to  EUR  120.1  million.  The 
second  largest  share  of  cost  concerns  the  cleaning  up  of  the  disaster-stricken  area 
amounting to EUR 19.3 million. The third largest share of cost concerns securing the 
preventive  infrastructure  and  measures  of  protection  of  cultural  heritage  amounting 
to  EUR  10.8  million.  The  fourth  largest  share  of  cost  concerns  temporary 
accommodation and rescue services amounting to EUR 10.0 million. 

(10) 

France has transposed the Directive 2007/60/EC of the European Parliament and of 
the  Council  through  Legislative  Decree  2011-227  of  2  March  2011,  regarding  the 
implementation  of  Directive  2007/60/EC  on  the  assessment  and  management  of 
flood risk. 

(11) 

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

(12) 

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

2.7 

Conclusion 

In  light  of  the  considerations  set  out  above  and  following  the  assessment  of  the  submitted 
information,  the  Commission  concludes  that  the  disasters  referred  to  in  the  applications 
submitted  by  Italy,  Slovenia,  Austria,  Greece  and  France  meet  the  conditions  set  out  in  the 
EUSF Regulation for mobilising the EUSF. 

3. 

FINANCING  

Council  Regulation  (EU,  Euratom)  No  2020/2093  of  17 December 2020  laying  down  the 
multiannual financial framework for the years 2021-20275 (hereafter the “MFF Regulation"),  
allows for the mobilisation of the EUSF in the context of the Solidarity and Emergency Aid 
Reserve (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 management6 (IIA) as well as on the 
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 

5 
6 

OJ L 433I, 22.12.2020, p. 11, ELI: http://data.europa.eu/eli/reg/2020/2093/oj. 
OJ L 433I, 22.12.2020, p. 28, ELI: http://data.europa.eu/eli/agree_interinstit/2020/1222/oj. 

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9 

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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, cf. Article 2(2) EUSF  

Regulation) 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 remains 
below the national threshold, is 2.5% of total direct damage. In addition, according to Article 
2(4) of the EUSF 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 the 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.  The Commision therefore 
proposes to the budgetary authority to mobilise the following amounts for all six applications: 

Disaster 

Total direct 
damage 
(EUR) 

Disaster 
threshold 
(EUR) 

2.5% of 
total direct 
damage 
(EUR) 

2,5% of 
total 
direct 
damage 
up to the 
major 
disaster 
threshold 
(EUR) 

6% of 
direct 
damage 
above the 
major 
disaster 
threshold 
(EUR) 

Proposed 
EUSF aid 
amount 
(EUR) 

Advance  
(EUR) 

Balance to 
be paid  
(EUR) 

regional / 
major 

regional 
disaster 

aid calculation for a 
major disaster 

Italy (Emilia-
Romagna) – 
flood (major 
disaster) 
Slovenia – flood 
(major disaster) 
Austria – flood 
(neighbouring 
country) 
Greece – flood 
(major disaster) 
Italy (Tuscany) 
– flood (regional 
disaster) 
France – flood 
(regional 
disaster) 

8 533 315 251 

3 804 725 000 

NA 

95 118 125 

283 715 415 

378 833 540 

94 708 385 

284 125 155 

7 320 232816  

308 826 000 

NA 

7 720 650 

420 684 409 

428 405 059 

100 000 000 

328 405 059 

207 969 814 

NA 

5 199 245 

NA 

NA 

5 199 245 

NA 

5 199 245 

2 325 232 656 

1 085 286 000 

NA 

27 132 150 

74 396 799 

101 528 949 

25 382 237 

76 146 712 

2 712 473 053 

1 719 230 000 

67 811 826 

NA 

NA 

67 811 826 

NA 

67 811 826 

1 870 522 773 

1 839 110 000 

46 763 069 

NA 

NA 

46 763 069 

11 690 767 

35 072 302 

TOTAL 

1 028 541 689 

231 781 389 

796 760 300 

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Council  Regulation  2024/7657  of  29  February  2024  amending  Regulation  (EU,  Euratom) 
2020/2093 laying down the multiannual financial framework for the years 2021-2027 split the 
Solidarity  and  Emergency  Aid  Reserve  (SEAR)  in  two  separate  instruments:  the  European 
Solidarity Reserve and the Emergency Aid Reserve. The European Solidarity Reserve with an 
annual amount of EUR 1 016 million (in 2018 prices, corresponding to EUR 1 144.2 million 
in 2024 prices) will be used for assistance to respond to emergency situations covered by the 
EUSF.  

In  order  to  avoid  an  early  depletion  of  the  annual  allocation,  Article  3(7)  of  the  EUSF 
Regulation and Article 9(2), second subparagraph, of the amended MFF Regulation stipulate  
that  25%  of  the  annual  EUSF  allocation  (i.e.  EUR  286  million  for  2024)  shall  remain 
available on 1 October of each year. 

the  amount  of 
Finally,  according 
EUR 50 000 000 has been already inscribed in the EU general budget 2024 (in commitments 
and payments appropriations) for the payment of possible advances. 

the  EUSF  Regulation, 

the  Article  4a(4)  of 

to 

Therefore,  the  maximum  amount  that  can  be  used  by  the  EUSF  from  the  2024  European 
Solidarity  Reserve  allocation  at  this  stage  is  EUR 808 135 764  which  allows  covering  the 
payment needs of this mobilisation. 

Amount available under the EUSF in 2024: 

Total annual 2024 EUSF allocation 

Tranche available after 1 October (-) 

Credits reserved for advance payments (-) 

Amount available before 1 October 

Amount to be used for this mobilisation 

1 144 181 018 

286 045 254 

50 000 000 

808 135 764 

796 760 300 

For information purposes, in 2024, out of the EUR 50 000 000 already inscribed in the 2024 
EU  general  budget  for  advance  payments,  the  Commission  has  already  paid  an  advance  to 
Greece regarding floods from cyclone “Daniel” in amount of EUR 25 382 237 and an advance 
to France regarding the floods in the former Nord-Pas-de-Calais region in amount of EUR 11 
690 767. Accordingly, the remaining available amount for advances is EUR 12 926 996. 

7 

Council  Regulation  (EU,  Euratom)  No  2024/765  of  29  February  2024  amending  Regulation  (EU, 
Euratom) 2020/2093 laying down the multiannual financial framework for the years 2021 to 2027 (OJ 
L, 2024/765, 29.2.2024, ELI: http://data.europa.eu/eli/reg/2024/765/oj). 

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11 

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2024/0212 (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 
Italy, Slovenia, Austria, Greece and France relating to six natural disasters occurred in 
2023 

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 Fund8 and in particular Article 4(3) thereof, 

Having  regard  to  Council  Regulation  2020/2093  of  17  December  2020  laying  down  the 
multiannual  financial  framework  for  the  years  2021  to  20279,  and  in  particular  Article  9 
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 management10 (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) 

8 
9 
10 
11 

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 2020/2093, as amended by Regulation (EU, Euratom) 
2024/76511. 

On 24 July 2023, Italy submitted an application to mobilise the Fund following the 
floods in Emilia-Romagna in May 2023. 

On  20  October  2023,  Slovenia  submitted  an  application  to  mobilise  the  Fund 
following the floods in August 2023. 

OJ L 311, 14.11.2002, p. 3, ELI: http://data.europa.eu/eli/reg/2002/2012/oj. 
OJ L 433I, 22.12.2020, p. 11, ELI: http://data.europa.eu/eli/reg/2020/2093/oj.  
OJ L 433I, 22.12.2020, p. 28 ELI: http://data.europa.eu/eli/agree_interinstit/2020/1222/oj. 
Council  Regulation  (EU,  Euratom)  No  2024/765  of  29  February  2024  amending  Regulation  (EU, 
Euratom) 2020/2093 laying down the multiannual financial framework for the years 2021 to 2027 (OJ 
L, 2024/765, 29.2.2024, ELI: http://data.europa.eu/eli/reg/2024/765/oj). 

EN 

12 

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(5) 

(6) 

(7) 

(8) 

(9) 

(10) 

(11) 

On  19  October  2023,  Austria  submitted  an  application  to  mobilise  the  Fund 
following the floods in August 2023. 

On  20  November  2023,  Greece  submitted  an  application  to  mobilise  the  Fund 
following the floods in September 2023. 

On 19 January 2024, Italy submitted an application to mobilise the Fund following 
the floods in Tuscany in October and November 2023. 

On 24 January 2024, France submitted an application to mobilise the Fund following 
the floods in November 2023. 

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 Italy, Slovenia, Austria, Greece and France.  

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, 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) 

the amount of EUR 378 833 540 shall be provided to Italy in relation to floods in the 
Emilia-Romagna Region in May 2023; 

the amount of EUR 428 405 059 shall be provided to Slovenia in relation to the flood 
in August 2023; 

the  amount  of  EUR  5  199  245  shall  be  provided  to  Austria  in  relation  to  floods  in 
August 2023; 

the amount of EUR 101 528 949 shall be provided to Greece in relation to floods in 
September 2023; 

the amount of EUR 67 811 826 shall be provided to Italy in relation to floods in the 
Tuscany Region in October and November 2023; 

the amount of EUR 46 763 069 shall be provided to France in relation to floods in 
the former Nord-Pas-de-Calais Region in November 2023. 

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

Article 2 

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13 

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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. 

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14 

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