Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on amending Regulation (EU) 2021/947 as regards increased efficiency of the External Action Guarantee
Date: 2025-05-28
Institutions: Directorate-General for International Partnerships, European Commission
Subjects: EU financial instrument, European neighbourhood policy, budgetary reserve (EU), financial management, foreign policy, international cooperation, sustainable development

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   EUROPEAN COMMISSION  Brussels, 28.5.2025  COM(2025) 262 final 2025/0262 (COD)  Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on amending Regulation (EU) 2021/947 as regards increased efficiency of the External Action Guarantee {SWD(2025) 262 final}  
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

The Political Guidelines for the 2024-2029 European Commission affirm that Europe needs to 
be more assertive on the global scene in pursuing its strategic interests by leveraging its power 
and  partnerships.  Enlargement  must  be  seen  as  a  geopolitical  imperative,  a  more  strategic 
approach to our neighbourhood needs to be followed, including flagship initiatives under the 
new  Pact  for  the  Mediterranean,  and  a  new  economic  foreign  policy  must  be  pursued  in  a 
world where geopolitics and geoeconomics go together. 

Investing in partner countries creates long-term, mutually beneficial partnerships. The Global 
Gateway1 is delivering on its promise to boost smart, clean and secure links in digital, energy 
and  transport  sectors  and  to  strengthen  health,  education  and  research  systems  across  the 
world.  Since  recently,  in  line  with  the  recommendations  of  the  Draghi  report,  it  is  also 
contributing  to  reduce  Europe’s  excessive  external  dependencies  by  securing  supply  of  raw 
materials,  clean  energy,  sustainable  transport  fuels  and  clean  tech.  So  far,  over  EUR  200 
billion of Global Gateway investments have been mobilised in a genuine Team Europe effort. 

The budgetary guarantee of the European Fund for Sustainable Development Plus (EFSD+) is 
the Union’s largest risk-sharing instrument to support priority investments outside the Union. 
Established  in  2021  by  the  Neighbourhood,  Development  and  International  Cooperation 
Instrument  (NDICI)  –  Global  Europe  Regulation2,  as  a  successor  of  the  European  Fund  for 
Sustainable  Development  (EFSD)  established  in  20173  and  of  the  European  Investment 
Bank’s (EIB) External Lending Mandate (ELM). It has met a very important demand from the 
EIB,  the  European  Bank  for  Reconstruction  and  Development  (EBRD)  and  other 
development  financial  institutions  (DFIs).  The  evaluation  of  the  External  Financing 
the  2014-2020  and  2021-2027  Multiannual  Financial  Frameworks4 
Instruments  for 
highlighted the catalytic effect of EFSD+ in mobilising additional finance and expertise and 
its alignment with the Global Gateway strategy. 

Close to 80 % of the EFSD+ guarantee capacity under the ‘open architecture’ framework to 
cover  private  sector  operations  has  been  committed.  In  parallel,  the  potential  pipeline  of 
projects  generated  by  the  EIB  under  its  dedicated  investment  windows  is  in  excess  of  the 
available lending volume by the end of the investment period, i.e., December 2028. Overall, 
the demand for the EFSD+ guarantee exceeds the available amounts. 

1 
“The  Global  Gateway”,  Joint  Communication  to  the  European  Parliament,  the  Council,  the  European 
Economic and Social Committee, the Committee of the Regions and the European Investment Bank, JOIN(2021) 
30 final, 1.12.2021 
2 
Regulation (EU) 2021/947 of the European Parliament and of the Council of 9 June 2021 establishing 
the  Neighbourhood,  Development  and  International  Cooperation  Instrument  –  Global  Europe,  amending  and 
repealing  Decision  No  466/2014/EU  of  the  European  Parliament  and  of  the  Council  and  repealing  Regulation 
(EU)  2017/1601  of  the  European  Parliament  and  of  the  Council  and  Council  Regulation  (EC,  Euratom)  No 
480/2009 (OJ L 209, 14.6.2021, p. 1). ELI: Regulation - 2021/947 - EN - EUR-Lex 
3 
Regulation  (EU)  2017/1601  of  the  European  Parliament  and  of  the  Council  of  26  September  2017 
establishing  the  European  Fund  for  Sustainable  Development  (EFSD),  the  EFSD  Guarantee  and  the  EFSD 
Guarantee Fund (OJ L 249, 27.9.2017, p. 1). ELI: Regulation - 2017/1601 - EN - EUR-Lex 
4 

COM(2024) 208 final of 15.5.2024 

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Last  31  December  2024  ended  the  period  during  which  the  EFSD  implementing  partners 
could sign new operations under the respective guarantee agreements. As from that date, the 
Commission shall calculate every year the surplus or deficit of EFSD provisioning held in the 
common provisioning fund5. Under the current applicable rules laid down in the EU Financial 
Regulation6,  surpluses  are  returned  to  the  general  budget.  By  analogy  with  the  derogations 
from the Financial Regulation provided for the InvestEU Programme7, which can already use 
the surplus of provisions for the European Fund for Strategic Investments (EFSI)8, and for the 
Ukraine  Facility9,  where  the  surplus  of  provisions  for  the  Ukraine  Guarantee  constitutes  an 
internal assigned revenue to the Facility or its successor programme, it is proposed to assign 
the surplus of provisions for the EFSD guarantee to EFSD+. 

The  EIB  has  reassessed  the  residual  risk  that  it  is  able  to  take  on  the  exclusive  dedicated 
investment  window  for  sovereign  and  sub-sovereign  non-commercial  operations  and  has 
concluded that it could be increased from 35 % to 40 %. This would allow a reduction of the 
EU  guarantee  cover  from  65  %  of  the  portfolio,  as  initially  foreseen  by  the  NDICI-Global 
Europe Regulation, to 60 %. 

With  emphasis  on  the  importance  for  Europe  in  the  current  geopolitical  and  geoeconomic 
context  to  reaffirm  its  commitment  towards  partner  countries  by  scaling  up  investments,  as 
well as on the high demand for the EFSD+ guarantee, the current proposal aims at increasing 
the  efficiency  of  the  External  Action  Guarantee.  Up  to  EUR  estimated  471  million  of 
resources would be made available. 

In  parallel,  a  series  of  simplification  measures,  already  being  implemented  or  under 
discussion,  will  allow  implementing  partners  to  achieve  efficiency  gains  and  reorient 
resources  to  the  origination  and  implementation  of  projects  that  maximises  added  value  for 
partner countries. The reduced time to market will also support Global Gateway acceleration 
and implementing policy objectives in a faster way: 

– 

– 

– 

removing  from  the  annual  reporting  on  guarantee  agreements  by  implementing 
partners to the Commission the requirement to audit the risk assessment and grading 
information of the implementing partner on individual operations,   

reducing  the  negotiation  burden  for  EFSD+  guarantee  agreements  by  consolidating 
proposals from the same implementing partner under a single guarantee agreement, 

where  relevant,  signing  one  Contribution  Agreement  covering  several  technical 
assistance components per implementing partner, 

5 
Established following Article 215 of the Financial Regulation. 
6 
Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September 
2024 on the financial rules applicable to the general budget of the Union (recast) (OJ L, 2024/2509, 26.9.2024, 
ELI: http://data.europa.eu/eli/reg/2024/2509/oj). 
7 
Regulation  (EU)  2021/523  of  the  European  Parliament  and  of  the  Council  of  24  March  2021 
establishing  the  InvestEU  Programme  and  amending  Regulation  (EU) 2015/1017 (OJ  L 107, 26.3.2021,  p. 3). 
ELI: Regulation - 2021/523 - EN - EUR-Lex 
8 
Regulation  (EU)  2015/1017  of  the  European  Parliament  and  of  the  Council  of  25  June  2015  on  the 
European Fund for Strategic Investments, the European Investment Advisory Hub and the European Investment 
Project Portal and amending Regulations (EU) No 1291/2013 and (EU) No 1316/2013 — the European Fund for 
Strategic Investments (OJ L 169, 1.7.2015, p. 1). ELI: Regulation - 2015/1017 - EN - EUR-Lex 
9 
establishing the Ukraine Facility (OJ L, 2024/792, 29.2.2024, ELI: http://data.europa.eu/eli/reg/2024/792/oj). 

Regulation  (EU)  2024/792  of  the  European  Parliament  and  of  the  Council  of  29  February  2024 

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– 

– 

– 

prioritising,  where  duly  justified,  top-ups  to  existing  guarantee  agreements  for  new 
proposals by implementing partners, which require negotiating only the terms related 
to the new operations, 

reducing  the  frequency  of  financial  reporting  for  guarantee  agreements  from  a 
quarterly frequency to a semi-annual one, 

carrying out a broad simplification of the blending framework, in particular with the 
EIB: 

– 

– 

– 

streamlining the application form and the approval process, 

simplifying  the  contracting  arrangements  by  signing  framework  blending 
contracts, 

consolidating  the reporting by aggregating the current  individual reporting by 
blending operation under a single report by framework contract. 

At the same time, the Commission will continue to ensure an efficient and effective allocation 
of EU blending contributions, and accountability for their implementation.  

Only  the  first  measure  from  the  above  list  requires  amending  the  NDICI-Global  Europe 
Regulation. 

• 

Consistency with existing policy provisions in the policy area 

This  proposal  is  consistent  with  existing  policy  objectives  in  the  policy  areas  of  climate, 
environment and energy, digital and infrastructure, gender equality, human development and 
sustainable  growth  and  jobs  in  partner  countries.  The  European  Fund  for  Sustainable 
Development  Plus  (EFSD+),  by  aiming  to  support  investments  and  increase  access  to 
financing,  is  consistent  with  the  Global  Gateway  and  the  implementation  of  mutually 
beneficial partnerships with our closest neighbours.  

• 

Consistency with other Union policies 

The  proposal  is  aligned  with  the  EU's  Clean  Industrial  Deal,  clean  trade  and  investment 
partnerships  and  critical  raw  materials  strategy.  The  proposed  amendments  will  further 
enhance the impact in these areas by increasing the Global Gateway investment capacity and 
contributing to the economic convergence for enlargement countries. It is also consistent with 
the opportunity  to  seize  strategic investments in  the framework of the strategic partnerships 
and regional dimension of the upcoming Pact for the Mediterranean. 

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

The  same  legal  basis,  Article  209  (Development  Cooperation)  and  Article  212  (Economic, 
Financial and Technical Cooperation with Third Countries), of the Treaty on the Functioning 
of  the  European  Union  is  being  used  for  this  proposal  to  amend  the  NDICI-Global  Europe 
Regulation as was used for the version in force. 

• 

Subsidiarity (for non-exclusive competence)  

The EU is in a unique position to support partner countries for a number of reasons. Its status 
as a supranational  entity brings with  it political  influence  and consequent leverage. The EU 
has a global presence through its delegations, which ensures a vast network of information on 
developments  affecting  countries  worldwide.  The  EU  is  also  a  party  to  most  multilateral 

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processes aiming at addressing global challenges. This allows the EU to be constantly aware 
to  reallocate  resources  accordingly. 
therefore, 
of  new  needs  and  problems  and, 
Complementarities between EU action and the actions carried out by the Member States are 
increasing under the Team Europe approach. 

The  EU  can  provide  added  value  based  on  the  volume  of  resources  channelled  through  its 
instruments,  in  particular  EFSD+,  and  the  predictability  of  resources  over  the  remaining 
period of the multiannual financial framework. 

• 

Proportionality 

In line with the principle of proportionality, the proposed Regulation does not go beyond what 
is necessary to achieve its objectives. 

• 

Choice of the instrument 

The  objectives  pursued  require  amending  the  current  NDICI-Global  Europe  Regulation  and 
introducing a derogation to the Financial Regulation through a legislative proposal.  

3. 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Ex-post evaluations/fitness checks of existing legislation 

• 
The  evaluation  of  the  European  Union's  External  Financing  Instruments10  confirmed  that  it 
has  overall  shown  to  be  fit  for  purpose.  In  an  evolving  geopolitical  context,  NDICI-Global 
Europe  has  proved  its  relevance  to  pursue  EU  priorities  as  well  as  to  provide  support  to 
partner  countries  notably  in  the  context  of  the  COVID-19  pandemic,  the  Russian  war  of 
aggression against Ukraine and the migratory pressures, notably in the Neighbourhood. It also 
demonstrated  that  the  use  of  EFSD+  was  on  track  to  contribute  to  the  overall  objectives  of 
NDICI-Global Europe. It recognised that the very high interest to benefit from EU guarantee 
coverage  indicates  that  the  maximum  amount  of  the  External  Action  Guarantee  set  out  in 
NDICI-Global  Europe  is  relevant.  The  added  value  of  EFSD+  in  terms  of  mobilising 
additional  finance  and  expertise  of  a  number  of  multilateral  financial  institutions  and 
development  finance  institutions,  including  national  development  banks  and  regional 
institutions, is substantiated by the large oversubscription of the first call for proposals under 
the  EFSD+  open  architecture.  Equally,  blending  under  EFSD+  is  crucial  to  enhance 
sustainability,  climate-proofing  and  development  impact  in  EU  partner  countries.  The 
evaluation  underlined  that  the  private  sector  should  assume  a  greater  role  in  the  process, 
serving as a powerful engine for sustainable and inclusive growth and that the contribution of 
private  sector  via  EFSD+  is  key  for  an  efficient  use  of  EU  budget  to  support  sustainable 
growth in partner countries. 

• 

Stakeholder consultations 

An  external  study  was  carried  out  to  support  the  evaluation  of  the  External  Financing 
Instruments.  The  external  study  team  conducted  over  340  semi-structured  interviews  with 
more than 350 informants. Member States experts agreed that, despite its early stage, EFSD+ 
can  be  used  to  catalyse  cooperation  with  development  financial  institutions  and  boost 
financial flows towards investment in EU’s partner countries. They also agreed that EFSD+, 
as a policy driven tool, must contribute to geopolitical initiatives such as Global Gateway or 
Team  Europe  Initiatives.  Member  States  experts  agreed  that  EFSD+  could  improve  the 

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COM(2024) 208 final of 15.5.2024 

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capacity of the EU to attract and support investment in partner countries. DFIs acknowledged 
that  impactful  tailor-made  projects  would  require  more  targeted  funding  and  coverage  by 
EFSD+, especially in view of the limited risk appetite in fragile and less-developed countries 
(LDCs). 

In  late  2024  and  early  2025,  several  EFSD+  implementing  partners  made  proactive 
suggestions for streamlining the implementation of EFSD+ blending and guarantees, and for 
possible efficiency gains. 

• 

Collection and use of expertise 

An  evaluation  of  the  External  Financing  Instruments  was  undertaken  in  compliance  with 
Article 42(2) of the NDICI – Global Europe Regulation. It was supported by an external study 
conducted  in  202311.  Please  see  the  main  messages  derived  from  the  interim  evaluation 
relevant  for  this  proposal  under  the  sub-heading  “Ex-post  evaluations/fitness  checks  of 
existing legislation” above. 

• 

Impact assessment 

This  proposal  does  not  create  a  new  instrument.  The  proposal  draws  on  the  impact 
assessments  done  in  the  context  of  the  original  proposal  for  the  NDICI-Global  Europe 
Regulation  and  on  the  evaluation  of  the  European  Union's  External  Financing  Instruments, 
which confirmed the very high interest in the EFSD+ guarantee.  

• 

Regulatory fitness and simplification 

The proposal is not linked to regulatory fitness. 

As described in section “Reasons for and objectives of the proposal” above, the Commission 
has  already  taken  steps  to  simplify  the  negotiation  of  EFSD+  guarantee  agreements  and  to 
halve  the  financial  and  risk  reporting  obligations  of  implementing  partners  by  reducing  the 
frequency  of  reporting  from  quarterly  to  semi-annual.  In  addition,  it  has  started  discussions 
with  implementing  partners  to  simplify the  blending  framework  (application  form,  approval 
process, contracting and reporting). 

No additional reporting items are being  proposed. The Commission  has put  in  place a web-
based solution for the reporting of results under NDICI-Global Europe.  

• 

Fundamental rights 

The proposal does not have an impact on fundamental rights. 

4. 

BUDGETARY IMPLICATIONS 

The  proposed  amendments  to  the  NDICI-Global  Europe  Regulation  do  not  require  new 
contributions from the Union’s budget.  

A  surplus  of  provisions  for  the  EFSD  guarantee  for  the  years  2024  and  2025  estimated  at 
EUR 471 million would be assigned to EFSD+. This exceptional surplus is a one-off linked to 
the first surplus calculation of EFSD and is mainly due to the under-implementation of several 
guarantee agreements following the shock of the Covid outbreak and, in some cases, the lack 
of demand for the financial products proposed, a lesson learnt and integrated in the selection 
of  EFSD+  guarantee  agreements.  EFSD  surpluses  for  the  years  2026-27  are  expected  to  be 

11 
European Commission 

Evaluation  of  the  European  Union’s  External  Financing  Instruments  (2014-2020  and  2021-2027)  - 

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lower,  linked  to  the  annual  reimbursments,  revenues,  claims  or  termination  of  underlying 
transactions. 

The above surplus amount already takes into account a need to pay a guarantee call of EUR 
130 million and EUR 1.7 million of guarantee calls on EFSD already paid since 31 December 
2024. 

The  financial  impact  of  the  amendments  related  to  the  EFSD  guarantee  implies  delayed 
revenues for the EU budget from the surpluses of provisions for the EFSD guarantee. 

The provisioning rates set out by the NDICI-Global Europe Regulation remain unchanged. 

No additional budget is requested for staff or administrative costs. 

A legislative financial and digital statement with further budgetary information is included. 

5. 

• 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

The  EFSD+  guarantee  is  implemented  through  indirect  management.  The  Commission 
currently has a network of 19 implementing partners and is open to proposals from potential 
new implementing partners.  

The monitoring, evaluation and reporting arrangements already in place will remain. 

Performance will be measured against indicators laid down in Annex VI to the NDICI-Global 
Europe Regulation, as well as in the guarantee agreements with the implementing partners in 
order to gather harmonised reporting from them. 

• 

Detailed explanation of the specific provisions of the proposal 

Amendments to the NDICI-Global Europe Regulation (Article 1)  

Article 30(4) already foresees a derogation from Article 212(3) of the Financial Regulation in 
order to allow the use of reflows from  financial  instruments  for the same policy objectives. 
The  extension  of  this  derogation  to  budgetary  guarantees,  as  initially  foreseen  by  Article 
30(4),  is  ineffective  as  Article  214(4)  of  the  Financial  Regulation  assigns  the  reflows  from 
budgetary guarantees to their provisioning. In addition, the EFSD guarantee is not covered by 
the NDICI-Global Europe Regulation.  

By analogy with the purpose of Article 30(4) as regards financial instruments,  the proposed 
amendment  aims  at  allowing  using  the  EFSD  surplus  for  the  EFSD+  provisioning,  which 
requires  a  derogation  from  Article  216(4),  point  (a),  of  the  Financial  Regulation  foreseeing 
that the surplus shall be returned to the budget. There are already precedents to support this 
proposal.  The  same  derogation  is  already  in  force  under  Article  35(2)  of  Regulation  (EU) 
2021/523  establishing  the  InvestEU  Programme  and  amending  Regulation  (EU)  2015/1017. 
Equally,  Article  12(5)  of  Regulation  (EU)  2024/792  establishing  the  Ukraine  Facility  also 
foresees  a derogation  from  Article 216(4), point (a), of the  Financial Regulation  in  order to 
allow the use of any surplus of the provisions for the Ukraine Guarantee as internal assigned 
revenue to the Facility or its successor programme. 

The amendment to Article 31(8) is inspired from Article 214(6) of the Financial Regulation, 
which foresees for a budgetary guarantee that the returns on investments of the resources held 
in  the  common  provisioning  fund,  the  amounts  recovered  from  defaulting  debtors  and  the 
revenues (fees) and any other payment received by the Union in accordance with a guarantee 
agreement, shall be used to restore the budgetary guarantee up to its initial amount within the 
limits of the eligible period provided for in the basic act, however, not beyond the constitution 

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phase of the provisioning, and without prejudice to Article 216(4) of the Financial Regulation. 
In  the  case  of  the  External  Action  Guarantee  (EAG),  which  includes  the  EFSD+  guarantee, 
the  eligible  period  to  sign  guarantee  agreements  runs  until  31  December  2027  and  Article 
216(4) of the Financial  Regulation  would only  apply  at  the end of constitution  phase of the 
provisioning and eligible period, which may last until 2031. In theory, if there are losses on 
the  EAG,  its  reflows  mentioned  above  could  be  used  until  the  end  of  2027  to  restore  the 
guarantee up to its initial amount. In practice, very low losses on the EAG are expected before 
202712, which makes ineffective Article 214(6) of the Financial Regulation for the EAG. It is 
thus proposed to use the EFSD+ provisions usable to cover losses, as provided for in Article 
214(6) of the Financial Regulation, to pay the calls on the EFSD guarantee, which requires a 
derogation  from  Article  214(6)  of  the  Financial  Regulation.  By  paying  the  EFSD  guarantee 
calls as proposed by this amendment the EFSD surplus 2025 would be increased by the same 
amount and become available to EFSD+.  

The amendment to Article 36(1) is the consequence of a proposal by the EIB itself to increase 
its  residual  risk  on  the  exclusive  dedicated  investment  window  for  sovereign  and  sub-
sovereign non-commercial operations (IW1) from 35 % to 40 %, which would bring the EU 
cover down from 65 % to 60 %.  

Article  38(6)  is  repealed  in  order  to  ensure  a  full  alignment  with  the  audit  and  financial 
reporting  requirements  already  foreseen  by  Articles  212(4)  and  222(6)  of  the  Financial 
Regulation. By doing so, the obligation of implementing partners to audit the information on 
the individual operations under the guarantee agreements is removed. 

Entry into force (Article 2) 

It is proposed that the amending Regulation enters into force the day following publication to 
allow for swift implementation. 

12 

So far, EUR 0.714 million has been called on EFSD+, of which EUR 0.084 million has been recovered. 

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2025/0262 (COD) 

Proposal for a 

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

on amending Regulation (EU) 2021/947 as regards increased efficiency of the External 
Action Guarantee 

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Articles 209 and 212 thereof, 

Having regard to the proposal from the European Commission, 

After transmission of the draft legislative act to the national parliaments, 

Acting in accordance with the ordinary legislative procedure, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

13 

14 

The global geopolitical and geoeconomic context requires that the Union reaffirms its 
commitment to establish mutually beneficial partnerships with partner countries. 

The  Draghi  report  recommends  ensuring  a  greater  involvement  of  the  private  sector 
and  to  reduce  excessive  external  dependencies  by  securing  supply  of  raw  materials, 
clean energy, sustainable transport fuels, and clean tech from across the world, thereby 
upgrading  and  leveraging  the  Global  Gateway13  as  well  as  the  growth  plans  for  the 
enlargement countries, which require additional resources.  

In addition to a more focused approach to enlargement, the political guidelines of the 
2024-2029 Commission recognise the importance of a more focused approach to our 
wider  neighbourhood,  especially  the  Middle  East,  North  Africa  and  the  Gulf.  The 
strategic relevance should be supported by concrete projects and strategic investments, 
both a regional level, e.g. T-MED, and at bilateral level through the implementation of 
the Strategic Partnerships. Depending on the evolution of the situation on the ground, 
additional  resources  could  also  be  needed  to  maintain  stability  and  support  early 
recovery/reconstruction among key partners in the Middle East. 

An important Union financing instrument to deliver on the Global Gateway objectives 
and the strategic investments is the European Fund for Sustainable Development Plus 
(EFSD+),  and  notably  its  budgetary  guarantee,  a  component  of  the  External  Action 
Guarantee established by Regulation  (EU) 2021/947  of the European Parliament and 
of  the  Council  14.  Efficiency  gains  on  the  External  Action  Guarantee  would  allow 

“The  Global  Gateway”,  Joint  Communication  to  the  European  Parliament,  the  Council,  the  European 
Economic  and  Social  Committee,  the  Committee  of  the  Regions  and  the  European  Investment  Bank, 
JOIN(2021) 30 final, 1.12.2021 
Regulation (EU) 2021/947 of the European Parliament and of the Council of 9 June 2021 establishing 
the  Neighbourhood,  Development  and  International  Cooperation  Instrument  –  Global  Europe, 
amending and repealing Decision No 466/2014/EU of the European Parliament and of the Council and 
repealing  Regulation  (EU)  2017/1601  of  the  European  Parliament  and  of  the  Council  and  Council 

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(5) 

(6) 

(7) 

(8) 

(9) 

funding  EU  external  action  priorities,  including  possibly  scaling  up  the  Global 
Gateway. 

EFSD+ has  met a very  high  demand from  the European  Investment  Bank (EIB), the 
European Bank for Reconstruction and Development (EBRD) and other development 
financial institutions (DFIs), as confirmed by the evaluation of the External Financing 
Instruments for the 2014-2020 and 2021-2027 Multiannual Financial Frameworks15.  

The guarantee cover of EFSD+ could be increased until 2027 with surpluses from the 
European  Sustainable  Development  Fund  (EFSD)  and  by  using  more  efficiently  the 
Union  guarantee  by  reducing  its  EU  liability  under  the  EIB’s  exclusive  dedicated 
investment  window  for  operations  with  sovereign  counterparts  and  non-commercial 
sub-sovereign counterparts from 65 % to 60 %. The latter would only come into effect 
after amending the corresponding guarantee agreement between the Commission and 
the EIB. The assignment of surpluses from legacy instruments to the benefit of EFSD+ 
is  without  prejudice  to  the  negotiations  on  the  post-2027  multiannual  financial 
framework. 

Assigning  the  EFSD  guarantee  surpluses  to  the  EFSD+  provisioning  as  from  31 
December 2024 requires a derogation from Article 216(4), point (a), of the Financial 
Regulation16. 

Allowing the use of resources of the EFSD+  guarantee to pay guarantee calls on the 
EFSD guarantee as from 31 December 2024 requires a derogation from Article 214(6) 
of the Financial Regulation. 

The capacity of the EIB, the EBRD and the DFIs to efficiently implement additional 
resources  should  be  increased  by  the  simplification  of  the  framework  for  blending 
operations, the consolidation of guarantee and technical assistance agreements with the 
same  implementing  partner  and  the  reduction  of  the  financial  reporting  from  a 
quarterly frequency to a semi-annual one. 

(10) 

In addition, in terms of simplification, the obligation of implementing partners to audit 
the  information  on  individual  operations  under  guarantee  agreements  that  they  must 
provide  in  their  annual  reporting  to  the  Commission,  which  is  not  required  by  the 
Financial Regulation, shall be removed.  

(11)  Since  the  objectives  of  this  Regulation,  namely  to  enhance  the  Unions  engagement 
with  its  partner  countries  and  reduce  its  excessive  external  dependencies,  cannot  be 
sufficiently achieved by the Member States, but can be better achieved at Union level, 
the Union may adopt measures in accordance with the principle of subsidiarity as set 
out in Article 5 of the Treaty on European Union. In accordance with the principle of 
proportionality as set out in that Article, this Regulation does not go beyond what is 
necessary to achieve those objectives, 

15 
16 

EN 

480/2009 

(EC,  Euratom)  No 

Regulation 
http://data.europa.eu/eli/reg/2021/947/oj). 
COM(2024) 208 final of 15.5.2024 
Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September 
2024  on  the  financial  rules  applicable  to  the  general  budget  of  the  Union  (recast)  (OJ  L,  2024/2509, 
26.9.2024, ELI: http://data.europa.eu/eli/reg/2024/2509/oj). 

14.6.2021, 

1,  ELI: 

(OJ  L 

209, 

p. 

9 

  EN 

 
HAVE ADOPTED THIS REGULATION: 

Article 1 
Amendments to Regulation (EU) 2021/947 [NDICI-Global Europe Regulation] 

Regulation (EU) 2021/947 is amended as follows: 

(1) 

Article 30(4) is amended as follows: 

‘By  way  of  derogation  from  Article  212(3)  of  the  Financial  Regulation,  repayments  and 
revenues  generated  by  a  financial  instrument  established  under  this  Regulation  shall  be 
assigned to the budget line of origin after deduction of management costs and fees. 

By way of derogation from Article 216(4), point (a), of the Financial Regulation, any surplus 
of  provisions  for  the  EFSD  guarantee  under  Regulation  (EU)  2017/1601  reported  in  2025, 
2026  and  2027  in  the  working  document  attached  to  the  draft  budget  as  per  Article  41(5), 
point  (h),  of  the  Financial  Regulation,  may  be  used  for  the  provisioning  of  the  budgetary 
guarantee supported by EFSD+ established under this Regulation. 

The resources referred in the first two subparagraphs of this paragraph shall constitute internal 
assigned revenue within the meaning of Article 21(5) of the Financial Regulation.’ 

(2) 

in Article 31(8), the following subparagraph is added: 

‘By  way  of  derogation  from  Article  214(6)  of  the  Financial  Regulation,  EFSD+  resources 
relating to provisioning of the budgetary guarantee supported by EFSD+ established by this 
Regulation and referred to in Article 214(4), first subparagraph, points (b), (c) and (d), of the 
Financial Regulation, may be used to cover payment of calls on the EFSD guarantee as from 
31 December 2024.’ 

(3) 

in  Article  36(1),  second  subparagraph,  the  second  sentence  is  replaced  by  the 
following: 

‘Under the  exclusive dedicated investment  window, the own resources  contribution  shall be 
understood as the assumption of residual risk and the EU guarantee shall cover 60 % of the 
aggregate  amount  disbursed  and  guaranteed  under  EIB  financing  operations,  less  amounts 
reimbursed, plus all related amounts.’ 

(4) 

Article 38(6) is repealed. 

Article 2 
Entry into force and application 

This Regulation shall enter into force on the twentieth day following that of its publication in 
the Official Journal of the European Union. 

This Regulation shall be binding in its entirety and directly applicable in all Member States. 

Done at Brussels, 

For the European Parliament 
The President 

For the Council 
The President 

EN 

10 

  EN 

LEGISLATIVE FINANCIAL AND DIGITAL STATEMENT 

1. 

1.1. 

1.2. 

1.3. 

FRAMEWORK OF THE PROPOSAL/INITIATIVE ................................................. 3 

Title of the proposal/initiative ...................................................................................... 3 

Policy area(s) concerned .............................................................................................. 3 

Objective(s) .................................................................................................................. 3 

1.3.1.  General objective(s) ..................................................................................................... 3 

1.3.2.  Specific objective(s) ..................................................................................................... 3 

1.3.3.  Expected result(s) and impact ...................................................................................... 3 

1.3.4. 

Indicators of performance ............................................................................................ 3 

1.4. 

1.5. 

The proposal/initiative relates to: ................................................................................. 4 

Grounds for the proposal/initiative .............................................................................. 4 

1.5.1.  Requirement(s) to be met in the short or long term including a detailed timeline for 

roll-out of the implementation of the initiative ............................................................ 4 

1.5.2.  Added value of EU involvement (it may result from different factors, e.g. 

coordination gains, legal certainty, greater effectiveness or complementarities). For 
the purposes of this section 'added value of EU involvement' is the value resulting 
from EU action, that is additional to the value that would have been otherwise 
created by Member States alone. ................................................................................. 4 

1.5.3.  Lessons learned from similar experiences in the past .................................................. 4 

1.5.4.  Compatibility with the multiannual financial framework and possible synergies with 
other appropriate instruments ....................................................................................... 5 

1.5.5.  Assessment of the different available financing options, including scope for 

redeployment ................................................................................................................ 5 

1.6. 

1.7. 

2. 

2.1. 

2.2. 

2.2.1. 

2.2.2. 

Duration of the proposal/initiative and of its financial impact .................................... 6 

Method(s) of budget implementation planned ............................................................. 6 

MANAGEMENT MEASURES................................................................................... 8 

Monitoring and reporting rules .................................................................................... 8 

Management and control system(s) ............................................................................. 8 

Justification of the budget implementation method(s), the funding implementation 
mechanism(s), the payment modalities and the control strategy proposed .................. 8 

Information concerning the risks identified and the internal control system(s) set up 
to mitigate them............................................................................................................ 8 

2.2.3.  Estimation and justification of the cost-effectiveness of the controls (ratio between 

the control costs  and the value of the related funds managed), and assessment of the 
expected levels of risk of error (at payment & at closure) ........................................... 8 

2.3. 

3. 

3.1. 

Measures to prevent fraud and irregularities ................................................................ 9 

ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE ............ 10 

Heading(s) of the multiannual financial framework and expenditure budget line(s) 
affected ....................................................................................................................... 10 

EN 

1 

  EN 

3.2. 

Estimated financial impact of the proposal on appropriations ................................... 12 

3.2.1.  Summary of estimated impact on operational appropriations.................................... 12 

3.2.1.1.  Appropriations from voted budget ............................................................................. 12 

3.2.1.2.  Appropriations from external assigned revenues ....................................................... 17 

3.2.2.  Estimated output funded from operational appropriations......................................... 22 

3.2.3.  Summary of estimated impact on administrative appropriations ............................... 24 

3.2.3.1. Appropriations from voted budget .............................................................................. 24 

3.2.3.2.  Appropriations from internal assigned revenues........................................................ 24 

3.2.3.3.  Total appropriations ................................................................................................... 24 

3.2.4.  Estimated requirements of human resources.............................................................. 25 

3.2.4.1.  Financed from voted budget....................................................................................... 25 

3.2.4.2.  Financed from external assigned revenues ................................................................ 26 

3.2.4.3.  Total requirements of human resources ..................................................................... 26 

3.2.5.  Overview of estimated impact on digital technology-related investments ................ 28 

3.2.6.  Compatibility with the current multiannual financial framework.............................. 28 

3.2.7.  Third-party contributions ........................................................................................... 28 

3.3. 

4. 

4.1. 

4.2. 

4.3. 

4.4. 

4.5. 

Estimated impact on revenue ..................................................................................... 29 

DIGITAL DIMENSIONS .......................................................................................... 29 

Requirements of digital relevance .............................................................................. 30 

Data ............................................................................................................................ 30 

Digital solutions ......................................................................................................... 31 

Interoperability assessment ........................................................................................ 31 

Measures to support digital implementation .............................................................. 32 

EN 

2 

  EN 

1. 

FRAMEWORK OF THE PROPOSAL/INITIATIVE  

1.1. 

Title of the proposal/initiative 

Proposal  amending  Regulation  of  the  European  Parliament  and  of  the  Council  on 
amending Regulation (EU) 2021/947 [NDICI-Global Europe Regulation] to increase 
the efficiency of the External Action Guarantee  

1.2. 

Policy area(s) concerned  

External Actions 

1.3. 

Objective(s) 

1.3.1.  General objective(s) 

‘Leveraging global Europe’s interests and partnerships’ 

1.3.2. 

Specific objective(s) 

More  efficient  use  of  resources  dedicated  to  the  provisioning  of  the  EFSD  and 
EFSD+ budgetary guarantees to the benefit of current EU external action priorities, 
including possibly the Global Gateway. 

An  increaseof  the  potential  guarantee  available  under  the  European  Fund  for 
Sustainable  Development  Plus  (EFSD+),  the  proposal  puts  forward  additional  risk-
sharing  capacity  to  carry  out  investments  boosting  smart,  clean  and  secure  links  in 
digital17,  energy  and  transport  sectors  and  to  strengthening  health,  education  and 
research systems across the world. 

It would make available additional risk-sharing capacity to secure the supply of raw 
materials,  clean  energy,  sustainable  transport  fuels,  and  clean  tech  from  across  the 
world, while developing sustainable value chains in partner countries.  

1.3.3.  Expected result(s) and impact 

Efficiency gains in using provisioning of the EFSD and EFSD+ budgetary guarantees 
to  the  benefit  of  current  EU  external  action  priorities.It  would  allow  to  partially 
respond to the very high interest shown by the European Investment Bank (EIB), the 
European  Bank  for  Reconstruction  and  Development  (EBRD)  and  development 
financial  institutions  (DFIs)  confirmed  by  the  evaluation  of  the  External  Financing 
Instruments.   

1.3.4. 

Indicators of performance 

Annex  VI  of  the  NDICI-Global  Europe  Regulation  set  out  the  list  of  key 
performance and monitoring indicators. 

Concerning the impact in terms of simplification, the EFSD+ simplification measures 
already implemented or being negotiated with implementing partners are expected to 
generate  a  total  amount  of  around  EUR  [21.50]  million  of  cost  savings  for 
implementing partners throughout the duration of the EFSD+ actions.  

17 

In  line  with  the  5G  cybersecurity  Toolbox,  Communication  from  the  Commission,  C(2023)  4049  of 
15.6.2023. 

EN 

3 

  EN 

 
 
1.4. 

The proposal/initiative relates to:  

 a new action  
 a new action following a pilot project / preparatory action18  

 the extension of an existing action  

 a merger or redirection of one or more actions towards another/a new action 

1.5. 

Grounds for the proposal/initiative  

1.5.1.  Requirement(s) to be met in the short or long term including a detailed timeline for 

roll-out of the implementation of the initiative 

The  adoption  of  this  legislative  proposal  is  the  key  pre-requirement  for  the 
implementation  of  this  initiative  aiming  at  optimising  the  management  of  the 
provisioning of the budgetary guarantees supported by EFSD and EFSD+. 

The  simplification  measures  in  parallel  to  the  legislative  proposal  make  the 
implementation of EFSD+ more efficient to the benefit of the final beneficiaries and 
financial  intermediaries,  and  increases  the  capacity  of  implementing  partners  to 
absorb a higher volume of EU guarantee.  

The  objectives  of  the  EFSD+  and  the  end-2027  deadline  for  the  conclusion  on 
External Action Guarantee agreements remain unchanged. 

1.5.2.  Added  value  of  EU  involvement  (it  may  result  from  different  factors,  e.g. 
coordination gains, legal certainty, greater effectiveness or complementarities). For 
the  purposes  of  this  section  'added  value  of  EU  involvement'  is  the  value  resulting 
from  EU  action,  that  is  additional  to  the  value  that  would  have  been  otherwise 
created by Member States alone. 

Reasons for action at EU level (ex-ante) 

The proposal aims at a more efficient use of resources dedicated to the provisioning 
of the budgetary guarantee supported by EFSD and EFSD+. Since NDICI – Global 
Europe  is  a  Union  programme  set  up  in  2021  by  the  European  Parliament  and  the 
Council under the NDICI-Global Europe Regulation, any changes to it that may be 
needed and can only be affected by the Union. 

Expected generated  EU added value (ex-post) 

The  EFSD+  allows  implementing  partners  to  carry  out  financing  and  investment 
operations in targeted areas of strategic policy objectives of the Union. A multiplier 
effect  is  generated  through  attracting  private  and  public  investments,  using,  when 
approriate, intermediation through financial institutions and funds. This helps address 
market failures and provide access to finance to  businesses and projects that would 
otherwise  not  have  found  financing  in  reasonable  terms  and  thereby  raise  overall 
investments in the Union and in partner countries and thus growth and employment. 
The  proposal,  addressing  the  lessons  learnt  from  the  evaluation  of  the  External 
Financing Instruments (see below in point 1.5.3) will strengthen the programme and 
hence enhance their impact. 

18 

As referred to in Article 58(2), point (a) or (b) of the Financial Regulation. 

EN 

4 

  EN 

 
1.5.3.  Lessons learned from similar experiences in the past 

An external study was carried out in 2024 to support the evaluation of the External 
Financing Instruments. It underlined that the private sector should assume a greater 
role in the implementation of the Global Gateway, serving as a powerful engine for 
sustainable  and  inclusive  growth,  and  that  the  contribution  of  private  sector  via 
EFSD+  is  key  for  an  efficient  use  of  EU  budget  to  support  sustainable  growth  in 
partner countries. Member States experts agreed that, despite its early stage, EFSD+ 
can be used to catalyse cooperation with development financial institutions and boost 
financial flows towards investment in EU’s partner countries. They also agreed that 
EFSD+, as a policy driven modality, must contribute to geopolitical initiatives such 
as  Global  Gateway  or  Team  Europe  Initiatives.  Member  States  experts  agreed  that 
EFSD+  could  improve  the  capacity  of  the  EU  to  attract  and  support  investment  in 
partner  countries.  DFIs  acknowledged  that  impactful  tailor-made  projects  would 
require  more  targeted  funding  and  that  a  full  coverage  by  EFSD+  was  necessary, 
especially in view of the limited risk appetite in fragile and less-developed countries 
(LDCs), which requires an additional provisioning capacity. 

1.5.4.  Compatibility with the multiannual financial framework and possible synergies with 

other appropriate instruments 

The  proposal  is  fully  compatible  with  the  multiannual  financial  framework  for  the 
period 2021-2027. The  proposal  does not  require additional  resources  from  the EU 
budget.  Neither  a  use  of  margins  nor  an  amendment  of  the  multiannual  financial 
framework (MFF) is required.  

1.5.5.  Assessment  of  the  different  available  financing  options,  including  scope  for 

redeployment 

Not applicable 

EN 

5 

  EN 

1.6. 

Duration of the proposal/initiative and of its financial impact 

 limited duration  

–   in effect from date of adoption of the amendement to 31/12/2027  

–   financial 

impact  from  2025 

to  2027  for  commitment  and  payment 
appropriations.  The  financial  impact  implies  delayed  and  potentially  reduced 
revenues  in  the  general  budget  of  the  Union  in  relation  to  surpluses  from  the 
provisioning of EFSD. 

 unlimited duration 

–  Implementation with a start-up period from YYYY to YYYY, 

–  followed by full-scale operation. 

1.7.  Method(s) of budget implementation planned 

 Direct management by the Commission 

–   by its departments, including by its staff in the Union delegations;  

–    by the executive agencies  

 Shared management with the Member States  

 Indirect management by entrusting budget implementation tasks to: 

–   third countries or the bodies they have designated 

–   international organisations and their agencies (to be specified) 

–   the European Investment Bank and the European Investment Fund 

–   bodies referred to in Articles 70 and 71 of the Financial Regulation 

–   public law bodies 

–   bodies governed by private law with a public service mission to the extent that 

they are provided with adequate financial guarantees 

–   bodies governed by the private law of a Member State that are entrusted with 
the  implementation  of  a  public-private  partnership  and  that  are  provided  with 
adequate financial guarantees 

–   bodies or persons entrusted with the implementation of specific actions in the 
common  foreign  and  security  policy  pursuant  to  Title  V  of  the  Treaty  on 
European Union, and identified in the relevant basic act 

–   bodies  established  in  a  Member  State,  governed  by  the  private  law  of  a 
Member  State  or  Union  law  and  eligible  to  be  entrusted,  in  accordance  with 
sector-specific  rules,  with  the  implementation  of  Union  funds  or  budgetary 
guarantees,  to  the extent that such bodies are controlled by public law bodies or 
by bodies governed by private law with a public service mission, and are provided 
with adequate financial guarantees in the form of joint and several liability by the 
controlling bodies or equivalent financial guarantees and which may be, for each 
action, limited to the maximum amount of the Union support. 

EN 

6 

  EN 

2. 

MANAGEMENT MEASURES  

2.1.  Monitoring and reporting rules  

Implementing  partners  are  required  to  report  to  the  Commission  in  line  with  the 
NDICI-Global  Europe  Regulation  and  the  Financial  Regulation  on  a  regular  basis. 
For  monitoring,  they  are  required  to  apply  their  own  rules  and  procedures,  which 
have  been  assessed  in  accordance  with  Article  157  of  the  Financial  Regulation 
(‘pillar assessment’) to meet the requirements laid down therein. 

For the preparation of the Union’s annual financial statements, EFSD+ implementing 
partners,  in  line  with  Article  212(4)  of  the  Financial  Regulation,  provide  the 
Commission  with  the  audited  financial  statements  for  the  part  of  the  budgetary 
guarantee that is granted to them. 

2.2.  Management and control system(s)  

2.2.1. 

Justification  of  the  budget  implementation  method(s),  the  funding  implementation 
mechanism(s), the payment modalities and the control strategy proposed 

The  EFSD+  is  implemented  exclusively  in  indirect  management  mode  through 
implementing partners, which, as a rule, also contribute to the support to be provided 
to  final  recipients.  The  implementing  partners  consist  of  the  EIB,  the  EBRD, 
development financial institutions and institutions and other financial intermediaries 
which are Union bodies, regulated and/or supervised as part of the banking sector.  

The  financing  and  investment  operations  benefiting  from  the  support  of  the  EU 
guarantee remain operations approved by the governing bodies of the implementing 
partners  which  have  to  apply  their  due  diligence  and  control  framework  to  these 
operations. The implementing partners provide annual audited financial statements to 
the Commission. 

2.2.2. 

Information concerning the risks identified and the internal control system(s) set up 
to mitigate them 

The risk for the Union budget is linked to the guarantee provided by the Union to the 
implementing  partners  for  their  financing  and  investment  operations.  The  External 
Action Guarantee is restricted to EUR 53 449 000 000. 

The provisioning rate between 9  % and 50 % for the External  Action Guarantee  is 
based on the past experience with EFSD and the External Lending Mandate (ELM) 
to the EIB, and tailored to the financial products implemented under EFSD+.  

The  financing  and  investment  operations  in  the  context  EFSD+  are  carried  out 
according  to  the  implementing  partners’  standard  rules  of  procedure  and  sound 
banking  practice.  The  implementing  partners  and  the  Commission  enter  into  a 
guarantee agreement laying down the detailed provisions and procedures relating to 
the implementation of the EFSD+ guarantee.  

Since  the  implementing  partner,  as  a  rule,  bears  part  of  the  risk  and  provides  a 
financial contribution, the interests of the Union and of the implementing partner are 
accordingly aligned which mitigate the risk to the Union budget. The implementing 
partners are also financial institutions with appropriate rules and procedures in place 
which  are  assessed  through  the  pillar  assessment  in  accordance  with  the  Financial 
Regulation. 

EN 

7 

  EN 

The  Commission  receives  annual  audited  financial  statements  covering  the 
operations from the implementing partners. 

2.2.3.  Estimation  and  justification  of  the  cost-effectiveness  of  the  controls  (ratio  between 
the control costs  and the value of the related funds managed), and assessment of the 
expected levels of risk of error (at payment & at closure)  

This proposal does not impose any (new) controls.  

2.3.  Measures to prevent fraud and irregularities  

In  line  with  the  requirements  of  the  NDICI-Global  Europe  Regulation  and  the 
Financial Regulation, the selected implementing partners have to undergo the pillar 
assessment provided for in Article 157 of the Financial Regulation, which ensures a 
solid quality of the internal control as well as independent external audit systems. In 
addition, they have to meet the requirements of Title X of the Financial Regulation. 
Being  financial  institutions,  the  implementing  partners  have  internal  control 
frameworks in place.  

EN 

8 

  EN 

3. 

3.1. 

ESTIMATED FINANCIAL IMPACT OF THE PROPOSAL/INITIATIVE  

Heading(s)  of  the  multiannual  financial  framework  and  expenditure  budget 
line(s) affected  

•  Existing budget lines  

In order of multiannual financial framework headings and budget lines. 

Budget line 

Type of  

expenditure 

Heading of 
multiannual 
financial 
framework 

Number  

Diff./Non-
diff.19 

from EFTA 
countries20 

Contribution  

from 
candidate 
countries 
and potential 
candidates21 

From 
other 
third 
countries 

other assigned 
revenue  

6 

[14.020170  NDICI-GE  — 
Provisioning  of  the  common 
provisioning fund] 
[15 02 02 03 IPA III — 
Provisioning of the common 
provisioning fund] 

Diff. 

NO 

NO 

NO 

YES 

19 
20 
21 

Diff. = Differentiated appropriations / Non-diff. = Non-differentiated appropriations. 
EFTA: European Free Trade Association. 
Candidate countries and, where applicable, potential candidates from the Western Balkans. 

EN 

9 

  EN 

 
 
 
 
3.2. 

Estimated financial impact of the proposal on appropriations  

3.2.1. 

Summary of estimated impact on operational appropriations  

–   The proposal/initiative does not require the use of operational appropriations  

–    The proposal/initiative requires the use of operational appropriations, as explained below 

3.2.1.2.  Appropriations from internal assigned revenues 

Heading of multiannual financial framework  

6 

EUR million (to three decimal places) 

DG: INTPA/ENEST/MENA 

Year 

2025 

Year 

2026 

Year 

2027 

TOTAL MFF 
2021-2027 

POST 

2027 

GRAND 
TOTAL 

 Operational appropriations  

14 02 01 70 

Commitments 

Payments 

(1a) 

(2a) 

315.035 

315.035 

51.248 

51.248 

• Appropriations of an administrative nature financed from the envelope of specific programmes[3]  
Budget line 

(3) 

TOTAL appropriations 

Commitments 

=1a+1b+3 

for DG INTPA/ENEST/MENA 

Payments 

=2a+2b+3 

315.035 

315.035 

51.248 

51.248 

- 

- 

366.283 

366.283 

- 

366.283 

366.283 

366.283 

366.283 

- 

366.283 

366.283 

- 

- 

DG: ENEST 

Year 

2025 

Year 

2026 

Year 

2027 

TOTAL MFF 
2021-2027 

POST 

2027 

GRAND 
TOTAL 

 Operational appropriations  

15 02 02 03 

Commitments 

Payments 

(1a) 

(2a) 

90.023 

90.023 

14.623 

14.623 

104.646 

104.646 

104.646 

104.646 

EN 

10 

EN 

 
 
 
 
 
  
  
  
  
  
  
 
 
 
 
 
 
  
  
  
  
  
 
  
  
  
  
  
  
 
 
 
 
• Appropriations of an administrative nature financed from the envelope of specific programmes[3]  
Budget line 

(3) 

TOTAL appropriations 

Commitments 

=1a+1b+3 

for DG INTPA/ENEST/MENA 

Payments 

=2a+2b+3 

405.057 

405.058 

65.871 

65.871 

- 

- 

- 

470.929 

470.929 

DG: INTPA/ENEST/MENA 

Year 

2025 

Year 

2026 

Year 

2027 

TOTAL MFF 
2021-2027 

POST 

2027 

- 

470.929 

470.929 

GRAND 
TOTAL 

470.929 

470.929 

- 

- 

- 

- 

 
TOTAL 
appropriations  

operational 

Commitments 

Payments 

  TOTAL  appropriations  of  an  administrative 
nature  financed  from  the  envelope  for  specific 
programmes  

(4) 

(5) 

(6) 

405.058 

405.058 

65.871 

65.871 

0.000 

0.000 

-    

-    

-    

470.929 

470.929 

-    

-    

-    

TOTAL appropriations 
under HEADING 6 
of the multiannual financial 
framework 

Commitments 

=4+6 

405.058 

65.871 

Payments 

=5+6 

405.058 

65.871 

- 

- 

470.929 

470.929 

- 

- 

470.929 

470.929 

DG: INTPA/ENEST/MENA 

TOTAL 

• 
appropriations 
headings) 

(all 

operational 
operational 

Commitments 

Payments 

•  TOTAL  appropriations  of  an  administrative 
nature  financed  from  the  envelope  for  specific 
programmes (all operational headings) 

(4) 

(5) 

(6) 

Year 

2025 

Year 

2026 

Year 

2027 

TOTAL MFF 
2021-2027 

POST 

2027 

GRAND 
TOTAL 

405.058 

405.058 

65.871 

65.871 

0.000 

0.000 

470.929 

470.929 

0.00 

0.00 

470.929 

470.929 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

EN 

11 

EN 

 
 
 
 
  
  
  
  
  
 
 
                   
                   
                   
                              
                   
                              
 
 
TOTAL appropriations 
Under HEADING 1 to 6 
of the multiannual financial 
framework 
(Reference amount) 

Commitments 

=4+6 

405.058 

65.871 

0.000 

470.929 

0.00 

470.929 

Payments 

=5+6 

405.058 

65.871 

0.000 

470.929 

0.00 

470.929 

Heading of multiannual financial framework  

7 

‘Administrative expenditure’ 

EUR million (to three decimal places) 

DG: INTPA/ENEST/MENA 

 Human resources  
 Other administrative expenditure  

TOTAL DG INTPA/ENEST/MENA 

Appropriations  

TOTAL appropriations under HEADING 7 of the multiannual 
financial framework  

(Total 
commitments 
= Total 
payments) 

Year 

2025 

Year 

2026 

Year 

2027 

TOTAL 
MFF 2021-
2027 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

EUR million (to three decimal places) 

TOTAL appropriations 
under HEADINGS 1 to 7 

Commitments 

405.058 

65.871 

0.000 

470.929 

0.000 

470.929 

of the multiannual financial framework  

Payments 

405.058 

65.871 

0.000 

470.929 

0.000 

470.929 

Year 

2025 

Year 

2026 

Year 

2027 

TOTAL MFF 
2021-2027 

POST 

2027 

GRAND 
TOTAL 

EN 

12 

EN 

 
 
 
 
 
 
 
  
3.2.2.  Estimated output funded from operational appropriations (not to be completed for decentralised agencies) 

Commitment appropriations in EUR million (to three decimal places) 

Indicate objectives and 
outputs 

 

Year 

2025 

Year 

2026 

Year 

2027 

TOTAL 
2021-2027 

POST 
2027 

GRAND 
TOTAL 

OUTPUTS 

Type 

Average 
cost 

No 

Cost 

No 

Cost 

No 

Cost 

No 

Cost 

No 

Cost 

No 

Cost 

SPECIFIC OBJECTIVE No 1 Scale-up the Global Gateway 
- Additional investment 
mobilised 

270.039 

43.914 

Subtotal for specific objective No 1 

0  270.039 

0 

43.914 

0 

0.000 

SPECIFIC OBJECTIVE No 2 Reduce excessive external dependencies 
- Additional investment 
mobilised 

135.019 

Subtotal for specific objective No 2 

TOTALS 

0  135.019 

0  405.058 

0 

0 

21.957 

21.957 

65.871 

0 

0 

0.000 

0.000 

0 

0 

0 

0 

0 

313.953 

313.953 

156.976 

156.976 

470.929 

0 

0.000 

0 

0 

0.000 

0.000 

0 

0 

0 

0 

0 

313.953 

313.953 

156.976 

156.976 

470.929 

EN 

13 

EN 

 
 
 
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
 
 
3.2.3. 

Summary of estimated impact on administrative appropriations  

–   The  proposal/initiative  does  not  require  the  use  of  appropriations  of  an 

administrative nature  

–    The proposal/initiative requires the use of appropriations of an administrative 

nature, as explained below 

3.2.3.1. Appropriations from voted budget 

VOTED APPROPRIATIONS 

HEADING 7 

Human resources  

Other administrative expenditure  

Subtotal HEADING 7 

Outside HEADING 7 

Human resources  

Other expenditure of an administrative nature 

Subtotal outside HEADING 7 

Year 

2025 

Year 

2026 

Year 

2027 

TOTAL 
2021 - 
2027 

POST 

2027 

GRAND 
TOTAL 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

TOTAL 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

3.2.3.2.  Appropriations from external assigned revenues 

EXTERNAL ASSIGNED REVENUES 

Year 

2025 

Year 

2026 

Year 

2027 

TOTAL 
2021 - 
2027 

POST 

2027 

GRAND 
TOTAL 

HEADING 7 

Human resources  

Other administrative expenditure  

Subtotal HEADING 7 

Outside HEADING 7 

Human resources  

Other expenditure of an administrative nature 

Subtotal outside HEADING 7 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

TOTAL 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

EN 

14 

  EN 

 
 
  
  
  
  
  
  
 
 
  
  
  
  
  
  
 
 
 
 
3.2.3.3.  Total appropriations 

TOTAL 
VOTED APPROPRIATIONS  
+ 
EXTERNAL ASSIGNED REVENUES 

Year 

Year 

Year 

2025 

2026 

2027 

TOTAL 
2021 - 
2027 

POST 

2027 

GRAND 
TOTAL 

HEADING 7 

Human resources  

Other administrative expenditure  

Subtotal HEADING 7 

Outside HEADING 7 

Human resources  

Other expenditure of an administrative nature 

Subtotal outside HEADING 7 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

TOTAL 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

The appropriations required for human resources and other expenditure of an  administrative 
nature will be met by appropriations from the DG that are already assigned to management of 
the  action  and/or  have  been  redeployed  within  the  DG,  together,  if  necessary,  with  any 
additional allocation which may be granted to the managing DG under the annual allocation 
procedure and in the light of budgetary constraints. 

3.2.4.  Estimated requirements of human resources  

–   The proposal/initiative does not require the use of human resources  

–    The  proposal/initiative  requires  the  use  of  human  resources,  as  explained 

below 

3.2.4.1.  Financed from voted budget 

Estimate to be expressed in full-time equivalent units (FTEs) 

VOTED APPROPRIATIONS 

Year 

2025 

Year 

2026 

Year 

2027 

POST 

2027 

 Establishment plan posts (officials and temporary staff) 

20 01 02 01 (Headquarters and Commission’s Representation Offices) 

20 01 02 03 (EU Delegations) 

01 01 01 01  (Indirect research) 

01 01 01 11 (Direct research) 

Other budget lines (specify) 

• External staff (in Full Time Equivalent unit: FTE) 

20 02 01 (AC, END from the ‘global envelope’) 

20 02 03 (AC, AL, END and JPD in the EU Delegations) 

Admin. Support 

- at Headquarters 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

EN 

15 

  EN 

 
 
  
  
  
  
  
  
 
 
  
  
line 
[XX.01.YY.YY] 
[2] 

- in EU Delegations  

01 01 01 02 (AC, END - Indirect research) 

 01 01 01 12 (AC, END - Direct research) 

Other budget lines (specify) - Heading 7 

Other budget lines (specify) - Outside Heading 7 

TOTAL 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

3.2.4.2.  Financed from external assigned revenues 

EXTERNAL ASSIGNED REVENUES 

Year 

2025 

Year 

2026 

Year 

2027 

POST 

2027 

 Establishment plan posts (officials and temporary staff) 

20 01 02 01 (Headquarters and Commission’s Representation Offices) 

20 01 02 03 (EU Delegations) 

01 01 01 01  (Indirect research) 

01 01 01 11 (Direct research) 

Other budget lines (specify) 

• External staff (in Full Time Equivalent unit: FTE)[1] 

20 02 01 (AC, END from the ‘global envelope’) 

20 02 03 (AC, AL, END and JPD in the EU Delegations) 

Admin. Support 
line 
[XX.01.YY.YY] 
[2] 

- at Headquarters 

- in EU Delegations  

01 01 01 02 (AC, END - Indirect research) 

 01 01 01 12 (AC, END - Direct research) 

Other budget lines (specify) - Heading 7 

Other budget lines (specify) - Outside Heading 7 

TOTAL 

3.2.4.3.  Total requirements of human resources 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

TOTAL 
VOTED APPROPRIATIONS  
+ 
EXTERNAL ASSIGNED REVENUES 

Year 

Year 

Year 

POST 

2025 

2026 

2027 

2027 

 Establishment plan posts (officials and temporary staff) 

20 01 02 01 (Headquarters and Commission’s Representation Offices) 

20 01 02 03 (EU Delegations) 

01 01 01 01  (Indirect research) 

01 01 01 11 (Direct research) 

Other budget lines (specify) 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

EN 

16 

  EN 

 
 
 
  
  
 
 
  
• External staff (in Full Time Equivalent unit: FTE) 

20 02 01 (AC, END from the ‘global envelope’) 

20 02 03 (AC, AL, END and JPD in the EU Delegations) 

Admin. Support 
line 
[XX.01.YY.YY] 
[2] 

- at Headquarters 

- in EU Delegations  

01 01 01 02 (AC, END - Indirect research) 

 01 01 01 12 (AC, END - Direct research) 

Other budget lines (specify) - Heading 7 

Other budget lines (specify) - Outside Heading 7 

TOTAL 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

0 

Considering the overall strained situation in Heading 7, in terms of both staffing and the level 
of  appropriations,  the  human  resources  required  will  be  met  by  staff  from  the  DG  who  are 
already assigned to the management of the action and/or have been redeployed within the DG 
or other Commission services. 

3.2.5.  Overview of estimated impact on digital technology-related investments 

TOTAL Digital and IT appropriations 

HEADING 7 

IT expenditure (corporate)  

Subtotal HEADING 7 

Outside HEADING 7 

Policy IT expenditure on operational 
programmes 

Year 

Year 

Year 

2025 

2026 

2027 

TOTAL 
MFF 
2021 - 
2027 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

0.000 

Subtotal outside HEADING 7 

0.000 

0.000 

0.000 

0.000 

0.000 

TOTAL 

0.000 

0.000 

0.000 

0.000 

0.000 

3.2.6.  Compatibility with the current multiannual financial framework  

The proposal/initiative: 

–   can be fully financed through redeployment within the relevant heading of the 

multiannual financial framework (MFF) 

This proposal will be financed through assigned revenues from reflows generated by 
EFSD surpluses.  

No additional Union budgetary resources neither reprogramming will be needed for 
this proposal. 

–    requires use of the unallocated margin under the relevant heading of the MFF 

and/or use of the special instruments as defined in the MFF Regulation 

EN 

17 

  EN 

 
  
 
 
 
 
 
  
–    requires a revision of the MFF 

3.2.7.  Third-party contributions  

The proposal/initiative: 

–   does not provide for co-financing by third parties 

–    provides for the co-financing by third parties estimated below: 

Appropriations in EUR million (to three decimal places) 

Year  
2024 

Year  
2025 

Year  
2026 

Year  
2027 

Total 

Specify the co-financing body  

TOTAL appropriations co-
financed  

3.3. 

Estimated impact on revenue  

–   The proposal/initiative has no financial impact on revenue. 

–    The proposal/initiative has the following financial impact: 

– 

– 

– 

 

 

on own resources  

on other revenue 

  please indicate, if the revenue is assigned to expenditure lines 

Budget revenue line: 

6 5 0 0 — Neighbourhood, 
Development and International 
Cooperation Instrument – Global 
Europe — Assigned revenue  

6 5 2 0 — Pre-accession 
Assistance — Assigned revenue  

Appropriations 
available for the 
current financial 
year 

     EUR million (to three decimal places) 

Impact of the proposal/initiative22 

Year 2024 

Year 2025  Year 2026 

Year 2027 

305.035 

51.248 

90.023 

14.623 

For assigned revenue, specify the budget expenditure line(s) affected. 

14 02 01 70 NDICI — Global Europe — Provisioning of the common provisioning 
fund 

 15 02 02 03 IPA III — Provisioning of the common provisioning fund 

Other  remarks  (e.g.  method/formula  used  for  calculating  the  impact  on  revenue  or 
any other information). 

The  proposal  requires  the  Commission  to  allocate  the  EFSD  surpluses  to  EFSD+ 
which are currently estimated at EUR 471 million. 

22 
amounts, i.e. gross amounts after deduction of 20% for collection costs. 

As regards traditional own resources (customs duties, sugar levies), the amounts indicated must be net 

EN 

18 

  EN 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
4. 

DIGITAL DIMENSIONS 

Regulation  (EU)  2024/903  of  the  European  Parliament  and  of  the  Council  of  13  March 
2024  laying  down  measures  for  a  high  level  of  public  sector  interoperability  across  the 
Union is not applicable to this proposal 

4.1. 

Requirements of digital relevance 

The  proposal  is  assessed  as  having  no  requirement  of  digital  relevance,  since  it  does  not 
produce or require new data series in comparison to the NDICI-Global Europe Regulation. 
To the extent that it allows for new investment and financing operations to be supported by 
the EFSD+ Guarantee, existing indicators as well as reporting and monitoring systems are 
to be used to track impact and performance. 

4.2. 

Data 

N/A (see 4.1. above) 

4.3. 

Digital solutions 

N/A (see 4.1. above) 

4.4. 

Interoperability assessment 

N/A (see 4.1. above) 

4.5.  Measures to support digital implementation 

N/A (see 4.1. above) 

EN 

19 

  EN