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 and Italy relating to floods occurred in 2024
Date: 2024-10-25
Institutions: Directorate-General for Budget, European Commission
Subjects: European Union Solidarity Fund, Germany, Italy, Valle d'Aosta, aid to disaster victims, commitment of expenditure, emergency aid, financial aid, flood, general budget (EU)

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 25.10.2024  COM(2024) 480 final 2024/0284 (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 and Italy relating to floods occurred in 2024  
 
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  116  031  553  to 
provide assistance to  Germany and  Italy  in  relation to the natural  disaster (floods) that took 
place in 2024. 

This mobilisation is accompanied by DEC No 14/2024 that proposes to transfer the amount of 
EUR 116 031 553 from  the European Solidarity  Reserve (hereinafter referred as ‘the  ESR’) 
reserve  line  to  the  EUSF  operational  budget  line,  both  in  commitments  and  payments 
appropriations. 

2. 

INFORMATION AND CONDITIONS 

2.1  Germany – major disaster: floods in Southern Germany in May 2024 

On 30 May  2024, Germany  was  hit by torrential rain  causing extreme flooding  in  Southern 
Germany at the beginning of June. 

Subsequently, Germany applied for financial assistance from the EUSF. 

(1) 

(2) 

(3) 

(4) 

(5) 

1 

On 20 August 2024, Germany submitted an application for a  financial  contribution 
from the EUSF to finance emergency and recovery operations following the floods in 
Southern Germany in May 2024. 

Germany applied for a contribution from the EUSF within the deadline of 12 weeks 
after  the  first  damage  caused  by  the  disaster  occurred  on  30  May  2024.  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  German  authorities  estimate  the  total  direct  damage  caused  by  the  disaster  at 
EUR 4 139.9  million.  The  Commission  accepted  EUR 4 131.6  million  as  plausible 
total  direct  damage.  This  amount  exceeds  the  ‘major  natural  disaster’  threshold  for 
Germany of EUR 3 billion in 2011 prices, which is EUR 3.8 billion in 2024 prices. 
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). 

EN 

1 

  EN 

 
(6) 

(7) 

(8) 

(9) 

(10) 

(11) 

(12) 

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

On  30  May  2024,  torrential  rain  hit  the  states  of  Bavaria  and  Baden-Württemberg 
causing extreme flooding in Southern Germany at the beginning of June. The water 
levels in many places exceeded historic highs and a state of emergency was declared 
in 18 Bavarian districts. The flood disaster led to 6 fatalities and the failure of several 
dams  in  the  region,  requiring  the  evacuation  of  several  municipalities  and  rescue 
missions.  Floodwaters  and  debris  flow  damaged  bridges,  rail  networks  and  roads, 
impacting overland travel in the affected areas. Train services were severely affected 
and  in  one  instance  an  express  train  carrying  185  passengers  was  derailed  after  a 
landslide. 

The German authorities did not request assistance through the European Union Civil 
Protection Mechanism (UCPM).  

telecommunications, 

Germany  estimated  the  cost  of  operations  eligible  under  Article  3(2)  of  the  EUSF 
Regulation  at  EUR 235  million  and  presented  the  costs  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, 
transport,  health,  and  education 
water  and  wastewater, 
amounting  to  EUR 132 million.  The second largest  share of cost  concerns securing 
the  preventive  infrastructure  and  measures  of  protection  of  cultural  heritage 
amounting to EUR 72.9 million. The third largest share of cost concerns temporary 
accommodation  and  rescue  services  and  amounts  to  EUR 27.5 million.  The  costs 
concerning cleaning up of the disaster-stricken area amount to EUR 2.6 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. 

The  German  authorities  indicated  that  insured  damage  is  primarily  for  private 
households  and  businesses,  and  that  public  sector  damage  is  not  covered  by 
insurance. Thus, the German authorities did  not  indicate any insurance coverage of 
eligible cost.  

2.2 

Italy – regional disaster: floods in the Valle d’Aosta region  

On 29 June 2024, Italy suffered violent storms resulting in the overflow of rivers and streams 
in the Autonomous Region of Valle d’Aosta. 

Subsequently, Italy applied for financial assistance from the EUSF. 

(1) 

On  20  September  2024,  Italy  submitted  an  application  for  a  financial  contribution 
from the EUSF to finance emergency and recovery operations following the floods in 
the Autonomous Region of Valle d’Aosta of Italy on 29 June 2024. 

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, OJ L 288, 6.11.2007, p. 27. 

EN 

2 

  EN 

 
 
(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

Italy applied for a contribution from the EUSF within the deadline of 12 weeks after 
the  first  damage  caused  by  the  disaster  occurred  on  29  June  2024.  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 158.39  million.  This  amount  exceeds 
the  indicated  applicable  threshold  for  “regional  disaster”,  which  is  EUR 71.05 
million for the Valle d’Aosta region in 20243. 

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. 

On 29 June 2024, violent storms brought significant rainfall resulting in the overflow 
of  rivers  and  streams.  The  torrential  flooding  caused  extensive  damage  to  the 
infrastructure, disruption of services and isolation of communities in the autonomous 
region  of  Valle  d’Aosta.  58%  percent  of  the  municipalities  in  Valle  d'Aosta  were 
affected by the flooding. The land area affected is about 66% of the total land area of 
the  region.  The  most  affected  municipalities  included  Aymavilles,  Cogne  and 
Valtournenche.  More  than  52 000  inhabitants  and  4  800  businesses  were  directly 
affected by the disaster.  

The  Italian authorities did  not  request  assistance  through the European Union  Civil 
Protection  Mechanism  (UCPM).  However,  the  Italian  Civil  Protection  Department 
has  kept  the Emergency  Response Coordination Centre (ERCC) of the Directorate-
General  for  European  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 39  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  and 
wastewater,  telecommunications,  transport,  health,  and  education  amounting  to 
EUR 26.3 million. The second largest share of cost concerns securing the preventive 
infrastructure and measures of protection of cultural heritage amounting  to EUR 10 
million.  The  third  largest  share  of  cost  concerns  the  cleaning  up  of  the  disaster-
stricken  area  amounting  to  EUR 1.7  million.  The  costs  concerning  temporary 
accommodation and rescue services amount to EUR 0.7 million.  

(10) 

Italy transposed Directive 2007/60/EC through the Legislative Decree of 23 February 
2010,  n.  49,  which  states  that  flood  hazard  maps  and  flood  risk  maps  need  to  be 
adopted  for  areas  identified  according  to  the  same  piece  of  legislation.  In  addition, 

3 

The application was submitted in 2024 therefore the applicable threshold is 2024 threshold. 

EN 

3 

  EN 

 
before  22  December  2015  a  flood  risk  management  plan  divided  into  river  basin 
districts was approved. 

(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 the eligible costs. 

2.3 

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  Germany  and  Italy  meet  the  conditions  set  out  in  the  EUSF  Regulation  for 
mobilising the EUSF. 

3. 

FINANCING  

Council  Regulation  (EU,  Euratom)  2020/2093  of  17 December 2020  laying  down  the 
multiannual financial framework for the years 2021-20274 (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 management5 (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 
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.  

The methodology for calculating the aid was set out in the 2002-2003 Annual Report on the 
EUSF  and  accepted  by  the  the  European  Parliament  and  the  Council.  The  Commision 
therefore  proposes  to  the  budgetary  authority  to  mobilise  the  following  amounts  for 
Germany’s and Italy’s applications. 

4 
5 

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. 

EN 

4 

  EN 

 
 
 
 
 
Disaster 

Total direct 
damage  
(EUR) 

Applied 
disaster 
threshold 
(EUR) 

2.5% of total 
direct 
damage up 
to the major 
disaster 
threshold  
(EUR) 

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

2.5% of 
total direct 
damage 
(EUR) 

Total amount 
of aid proposed 
(EUR) 

Advance  
(EUR) 

Balance to 
be paid  
(EUR) 

Germany – 
flood (major 
disaster) 
Italy (Valle 
d’Aosta)– 
flood 
(regional 
disaster) 

4 131 673 024 

3 880 820 000 

97 020 500 

15 051 181 

NA 

112 071 681 

NA 

112 071 681 

158 394 907 

71 054 400 

NA 

NA 

3 959 872 

3 959 872 

NA 

3 959 872 

TOTAL 

116 031 553 

NA 

116 031 553 

Council Regulation (EU, Euratom) 2024/7656 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 line with Article 3(7) of the EUSF Regulation and Article 9(2), second subparagraph, of the 
MFF Regulation, 25% of the annual EUSF allocation (i.e. EUR 286 million for 2024) is made 
available on 1 October of each year. 

Finally,  in  accordance  with  Article  4a(4)  of  the  EUSF  Regulation,  the  amount  of 
EUR 50 million has been already inscribed in the EU general budget 2024 (in commitments 
and payments appropriations) for the payment of possible advances. 

Therefore,  the  maximum  amount  that  can  be  used  by  the  EUSF  from  the  2024  European 
Solidarity  Reserve  allocation  at  this  stage,  advances  excluded,  is  EUR 297  420  718  which 
allows covering the payment needs of this mobilisation. 

Amount available under the EUSF in 2024: 

Total annual 2024 EUSF allocation (incl. 1 October tranche) 

1 144 181 018 

Credits reserved for advance payments (-) 

Amount mobilised under 1st Mobilisation Decision7 (-) 

Amount available for Mobilisation (excl. advances) 
Amount proposed for mobilisation under 2nd Mobilisation Decision 

Amount still available for advance payments 

Remaining amount for future applications (inc. for advances) 

50 000 000 

796 760 300 

297 420 718 

116 031 553 

12 926 996 

194 316 161 

6 

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). 
COM(2024) 325 

EN 

5 

  EN 

  
 
 
 
For information purposes, in 2024, out of the EUR 50 million 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. In 
addition to this amount, the remaining availabilities are EUR 297 420 718, which makes the 
total remaining availabilities amount to EUR 310 347 714. After adoption of this Mobilisation 
Decision,  remaining  availabilities  will  amount  to  EUR  194  316  161.  In  accordance  with 
Article 9(2) of the MFF Regulation, any portion of the annual amount not used in 2024 may 
be used in 2025. 

EN 

6 

  EN 

 
2024/0284 (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 and Italy relating to floods occurred in 2024 

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

On  20  August  2024,  Germany  submitted  an  application  to  mobilise  the  Fund 
following the floods in Southern Germany in May 2024. 

On  20  September  2024,  Italy  submitted  an  application  to  mobilise  the  Fund 
following the floods in the Autonomous Region of Valle d’Aosta of Italy on 29 June 
2024. 

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 

7 

  EN 

 
 
(5) 

(6) 

(7) 

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 and Italy.  

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) 

the amount of EUR 112 071 681 shall be provided to Germany in relation to floods 
in May and June 2024. 

the amount of EUR 3 959 872 shall be provided to Italy in relation to floods of 29 
June 2024 in the Autonomous Region of Valle d’Aosta  

Article 2 

This Decision shall enter into force on the day of its publication in the Official Journal of the 
European Union. 
It shall apply from  [the date of its adoption]*. 

Done at Brussels, 

For the European Parliament 
The President 

For the Council 
 The President 

* 

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

EN 

8 

  EN