Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the Union support for the Schengen area, for European integrated border management and for the common policy on visas for the period from 2028 to 2034
Date: 2025-07-16
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU aid, EU migration policy, EU visa policy, Schengen Agreement, area of freedom, security and justice, external border of the EU, migration control

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   EUROPEAN COMMISSION  Brussels, 16.7.2025  COM(2025) 541 final 2025/0541 (COD)  Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the Union support for the Schengen area, for European integrated border management and for the common policy on visas for the period from 2028 to 2034  
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons and objectives  

The  Commission  Political  Guidelines  2024-2029  emphasise  the  need  to  ensure  a  complete 
and fully functioning Schengen area without control at internal borders through  more secure 
external  borders,  prioritising  security,  migration  management  and  efficiency.  European 
Integrated  Border  Management  lies  at  the  centre  of  these  efforts,  ensuring  consistency 
between  interconnected  policy  areas,  including  borders,  returns  and  surveillance,  as  well  as 
between  Frontex and responsible  national  authorities to  manage the  EU external  borders.  In 
terms  of  implementation,  the  Schengen  governance  framework,  supported  by  the  Schengen 
evaluations,  provides  political  and  strategic  steer  to  the  development  of  the  Schengen  area, 
ensuring that key initiatives, such as the interoperability of IT systems, and the relevant rules 
are implemented and that systematic deficits are identified and remedied. This should foster a 
strong  sense  of  shared  responsibility  and  mutual  trust  among  the  Member  States  and 
Schengen Associated Countries.  

Europe’s  geopolitical  context  has  significantly  changed,  profoundly  affecting  the  Union’s 
external  border  management.  The  rise  of  hybrid  and  other  security  threats  including  the 
weaponisation of migration give additional urgency to protect the external border. Meanwhile, 
irregular  migration  continues  to  be  a  major  factor,  highlighting  the  need  to  ensure  effective 
cooperation with non-EU countries combined with comprehensive partnerships with countries 
of  origin  and  transit  supported  through  Regulation  (EU)  […]  [Global  Europe].  Migrant 
smuggling is a profitable business for criminal networks with smugglers using land, sea and 
air  routes  to  facilitate  irregular  migration  both  into  and  within  the  European  Union.  It  is 
increasingly associated with serious human rights violations and deaths, in particular when it 
occurs by sea. The loss of migrants' lives at the hands of smugglers in the Mediterranean Sea 
stresses  the  acute  need  to  tackle  migrant  smuggling,  using  all  the  legal,  operational,  and 
administrative levers available.  

Member States need to be able to rapidly and effectively respond to developments and receive 
Union support for that purpose. 

It is essential to ensure the development and secure operation and maintenance of large-scale 
IT  systems  pursuant  to  Union  law  in  the  area  of  border  management,  namely  the  Schengen 
Information  System  (SIS),  the  Visa  Information  System  (VIS),  Eurodac,  the  Entry/Exit 
System  (EES)  and  the  European  Travel  Information  and  Authorisation  System  (EITAS), 
including their interoperability, and the communication infrastructure. The instrument should 
also contribute to actions to enhance data quality and the provision of information. 

Union support should also be available to Member States to establish the necessary expertise 
and  operational  capacity  to  implement  the  relevant  elements  of  the  Pact  on  Asylum  and 
Migration,  namely  the  Regulation  (EU)  2024/13561  (‘Screening’  Regulation)  which 
contributes to efficient border management.  

1 

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Regulation of the European Parliament and of the Council of 14 May 2024 introducing the screening of 
third-country  nationals  at  the  external  borders  and  amending  Regulations  (EC)  No  767/2008,  (EU) 
2017/2226, 
22.5.2024, 
(EU) 
ELI: http://data.europa.eu/eli/reg/2024/1356/oj).  

2019/817,  OJ  L, 

2024/1356, 

2018/1240 

(EU) 

and 

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Both  EU  citizens  and  non-EU  citizens  are  subject  to  systematic  checks  when  crossing  the 
EU's  external  borders.  With  almost  600  million  crossings  recorded  in  2023  only,  and  the 
number of crossings expected to continue to rise in the coming years, there is a clear need to 
have checks carried out swiftly and efficiently, with the help of IT systems while at the same 
time maintaining a high level of security, ensuring that each and every traveller is checked. 

Member  States  should  work  in  tight  cooperation  with  the  relevant  EU  agencies,  including 
Frontex  and  eu-LISA,  which  should  provide  the  necessary  technical  expertise  and 
technological  means  for  surveillance  and  situational  awareness.  In  broader  terms,  relevant 
Union  bodies,  offices  and  agencies  should  be  involved  by  the  Commission  in  relevant 
activities aiming to ensure that the measures supported by the Union comply with the relevant 
Union acquis and agreed Union priorities. 

A  strong  EU  Visa  Policy  is  also  key to  better  secure  borders  and  manage  migration.  Union 
support should particularly help Member States improve the efficiency of visa processing and 
prevent  abuse  of  the  Union’s  visa  regime.  Union  support  is  needed  as  regards  the 
digitalisation of visa processing, as well improving as the coverage of consular services across 
the world and the service to applicants. 

The proposal aims to address the need for greater flexibility in the management of the Union 
support, including a stronger performance orientation, as well as enhanced simplification for 
all actors involved in its implementation. For this, tight complementarity is enforced with the 
proposal for a Regulation (EU) […] establishing the European Fund for economic, social and 
territorial  cohesion,  agriculture  and  rural,  fisheries  and  maritime,  prosperity  and  security, 
introducing  new  mechanisms  for  the  allocation  of  funding  for  shared,  direct  and  indirect 
management. As challenges in  the  area of border management  and migration  are  constantly 
evolving, there is also a need to respond to pressing needs and changes in policy and Union 
priorities,  address  the  deficiencies  identified  through  Schengen  evaluations  and  the  Frontex 
vulnerability  assessment  and  to  steer  funding  towards  actions  with  a  high  level  of  Union 
added value, in particular through an EU Facility offering flexibility in the management of the 
Union support. 

The  present  proposal,  together  with  the  proposal  for  a  Regulation  establishing  the  Union 
support for Asylum, Migration and Integration and the proposal for a Regulation establishing 
the  Union  Support  for  internal  security,  provide  the  specific  legal  framework  for  the  Union 
action in the areas of European integrated border management at the external borders, well-
functioning  Schengen  area  and  European  visa  policy,  efficient  management  of  migration 
flows and internal security,  These three Regulations complement each other and contribute to 
the objectives of and complement the  Regulation (EU) […]  establishing  the European Fund 
for  economic,  social  and  territorial  cohesion,  agriculture  and  rural,  fisheries  and  maritime, 
prosperity and security, through which they will be implemented.  
The proposed Regulation builds on the Regulation (EU) 2021/11482 while taking into account 
new  policy  developments  and  the  need  to  provide  an  agile  response  to  evolving  challenges 
concerning  European  integrated  border  management,  including  the  well-functioning  of  the 
Schengen area, and the EU visa policy. 

• 

Consistency with existing policy provisions 

The  Union  support  for  the  European  integrated  border  management  and  the  European  visa 
policy  will  work  in  strict  complementarity  with  the  other  policies  under  the  scope  of  the 

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Regulation (EU) 2021/1148 of the European Parliament and the Council of 7 July 2021, establishing, as 
part  of  the  Integrated  Border  Management  Fund,  the  Instrument  for  financial  support  for  Border 
management and Visa Policy.  

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National  and  Regional  Partnership  Plans,  thus  fostering  synergies  between  these  policies. 
Equally,  synergies  and  complementarities  must  be  sought  in  particular  with  the  Schengen 
acquis, and the legislative package underpinning the Pact on Migration and Asylum, entered 
into  force  on  11  June  2024.  However,  an  intensified  EU  policy  on  the  European  integrated 
border management and the EU visa policy needs action across the full spectrum of the tools 
at its disposal, including activities of relevant Union decentralised agencies. 

The  six  Home  Affairs  decentralised  Agencies  (Frontex,  Europol,  EUAA,  eu-LISA,  EUDA 
and Cepol) play an important and increasing role in the implementation of the Home Affairs 
policies. It is essential to ensure coherence between policy strategies set out at EU level and 
the  operational  activities  of  the  decentralised  agencies,  thereby  also  maximising  the 
contribution  to  the EU policy objectives from the EU  funding provided to  the decentralised 
agencies. The operational role of the decentralised agencies may require further strengthening, 
accompanied by corresponding increase of funding. 

• 

Consistency with other Union policies 

European integrated border management and visa policy rely on the synergies and coherence 
with  relevant  EU  policies  such  as  asylum  and  migration,  internal  security  and  the  Union 
external  policies  supporting  third  countries,  especially  under  Regulation  (EU)  […]  [Global 
Europe], which cover a wide range of areas with important links to internal policies, including 
border  management  and  visa  policies.  particular,  it  is  important  to  ensure  an  increased 
coherence  with  the  Union’s  support  for  cooperation  on  border  management  with  partner 
countries  under  Global  Europe,  in  view  of  contributing  to  a  coordinated,  holistic  and 
structured  approach  maximising  synergies  and  applying  the  necessary  leverage.  In  this 
context, the support to cross-border cooperation under Global Europe is particularly relevant 
for enhancing border management and pursuing efforts to prevent irregular migration. 

To  support  the  competitiveness  agenda,  investments  based  on  innovative  methods  or  new 
technologies,  including  measures  aiming  to  test  and  validate  the  outcome  of  Union-funded 
research projects should also be considered. 

• 

Variable geometry 

This  Regulation  constitutes  a  development  of  the  Schengen  acquis.  As  a  consequence, 
application  of  the  Regulation  to  Denmark  and  Ireland  is  subject  to  special  provisions  laid 
down in Protocol No 19 and Protocol No 22 annexed to the TEU and the TFEU. 

In  accordance  with  Articles  1  and  2  of  Protocol  No  22,  the  Regulation  is  not  binding  or 
applicable in Denmark. However, pursuant to Article 4 of Protocol 22 Denmark is to decide 
whether  to  implement  and  be  bound  by  measures  building  upon  the  Schengen  acquis.  If  it 
decides  to  do  so,  the  measure  will  create  an  obligation  under  international  law  between 
Denmark and the other Member States. 

By virtue of Article 4 of Protocol No 19, Ireland may at any time request to take part in some 
or  all  of  the  provisions  of  the  Schengen  acquis.  Although  Ireland  does  take  part  in  certain 
parts of the Schengen acquis, this Regulation does not concern parts of the Schengen acquis 
in which Ireland participates. As a measure that constitutes the development of the Schengen 
acquis, the Regulation  is  to  be notified to  four countries (Iceland, the Kingdom  of Norway, 
the Swiss Confederation and the Principality of Liechtenstein), which are not Member States 
of the Union, but which participate in the Schengen area without controls at internal borders 
on  the  basis  of  association  agreements  concluded  with  the  Union.  Once  notified,  the  four 
Schengen associated countries will be required to confirm their acceptance of the content of 
the Regulation and to implement it into their national law. The proposed measures will, as a 
consequence, also apply to those four countries. 

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2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

Article 3(2) of the Treaty on European Union provides that ‘the Union shall offer its citizens 
an area of freedom, security and justice without internal frontiers, in which the free movement 
of persons is ensured in conjunction with appropriate measures with respect to external border 
controls, asylum, immigration and the prevention and combating of crime’. The legal basis for 
this proposal can be found in the measures referred to in Article 77(2) and in Article 79(2)(c) 
and (d) of the Treaty on the Functioning of the Union (TFEU). 

• 

Subsidiarity (for non-exclusive competence)  

The  objectives  of  the  proposal  cannot  be  achieved  by  Member  States  acting  alone,  as  the 
challenges are of a cross-border nature, and not limited to single Member States or to a subset 
of  Member  States.  Union  support  creates  added  value  by  promoting  a  common  approach 
across  Member  States  when  implementing  EU  acquis  and  standards  and  fostering 
collaboration between Member States on transnational issues. 

• 

Proportionality 

The proposal does not go beyond what is necessary to achieve the objectives mentioned under 
section 1. It falls within the scope for action in the area of freedom, security and justice, as 
defined in Title V of Part Three TFEU. The objectives and corresponding Union support are 
proportionate to what the instrument aims to achieve. 

• 

Choice of the instrument 

The  most  appropriate  instrument  for  operating  the  current  proposal  is  a  Regulation  of  the 
European Parliament and the Council establishing the Union support for border management 
for the period from 1 January 2028 to 31 December 2034 and complementing the proposal for 
Regulation  (EU)  […]  establishing  the  European  Fund  for  economic,  social  and  territorial 
cohesion, agriculture and rural, fisheries and maritime, prosperity and security. 

3. 

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RESULTS  OF  RETROSPECTIVE  EVALUATIONS,  STAKEHOLDER 
CONSULTATIONS AND IMPACT ASSESSMENTS 

Retrospective evaluations/fitness checks of existing legislation 

The preliminary outcomes of the ongoing ex-post evaluation of the Internal Security Fund  - 
Borders and Visa (ISF-BV) for the 2014-2020 programming period confirm that the ISF-BV 
was effective in  supporting  Member States in  achieving their objectives in  the areas of visa 
policy and external border management. The introduction of multi-annual programming and 
national  eligibility  rules  contributed  to  reducing  administrative  burden.  Where  applied, 
simplified cost options were successful at reducing administrative burden, however, they were 
not  widely  adopted.  The  ISF-BV  demonstrated  varying  degrees  of  cost-effectiveness  and 
efficiency.  The  ISF-BV  was  coherent  within  its  Fund  components  and  other  EU  Funds, 
however,  coherence  with  Horizon  Europe  and  between  the  national  programmes  and  Union 
Actions could be further reinforced. ISF-BV significantly contributed to EU added value. The 
ex  post  evaluation  preliminarily  concludes  that  simplifying  reporting  requirements  and 
administrative  procedures,  without  diminishing  the  quality  and  the  necessary  quantitative 
information  for  the  monitoring  of  the  implementation,  can  significantly  enhance  efficiency. 
This  approach  should  minimise  administrative  burden  and  allows  stakeholders  to  focus  on 
delivering results rather than navigating bureaucratic processes. 

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The  preliminary  outcomes  of  the  mid-term  evaluation  of  the  Border  Management  and  Visa 
Instrument (BMVI) for the 2021-2027 programming period confirm that the monitoring and 
evaluation  framework  for  BMVI  has  seen  significant  improvements  compared  to  the  2014-
2020  period.  Member  States  and  beneficiaries  highlighted  concerns  regarding 
the 
administrative  burden.  Thus  far,  Managing  Authorities  have  made  limited  use  of  simplified 
cost options and financing not linked to cost, which could reduce administrative burden. The 
Member State programmes and the Commission work programmes for the Thematic Facility 
have  been  coherent  with  other  national  and  EU  funding  instruments.  However,  coherence 
could  have  been  further  reinforced  between  Union  Actions  and  the  Member  State 
programmes,  as  well  as  with  Horizon  Europe  to  increase  the  uptake  of  innovative 
technological solutions. Finally, the BMVI has fostered cooperation, ensures compliance with 
EU  standards,  and  enhanced  the  EU’s  collective  border  management  and  visa  policy 
framework.  Specific  actions  have  been  particularly  appreciated  by  stakeholders  for  their 
flexibility  and  provision  of  ad  hoc  additional  funding  for  specific  priorities.  The  mid-term 
evaluation  also  emphasizes  the  importance  of  going  further  in  simplifying  the  delivery  of 
funding, and explaining better to Managing Authorities how the performance framework can 
contribute  to  the  efficient  management  of  the  programmes,  beyond  the  purely  formal 
reporting that is required by the regulation. 

• 

Stakeholder consultations 

The  Commission  actively  engaged  with  the  stakeholders  in  the  process  of  the  initiative, 
notably  through  dedicated  events  and  public  consultation  activities,  as  detailed  in  the 
corresponding chapter of the explanatory memorandum of the proposal for a Regulation (EU) 
[…] establishing the European Fund for economic, social and territorial cohesion, agriculture 
and rural, fisheries and maritime, prosperity and security.  

• 

External expertise 

Information  about  the  Commission’s  use  of  external  expertise  is  provided  in  the 
corresponding chapter of the explanatory memorandum of the proposal for a Regulation (EU) 
[…] establishing the European Fund for economic, social and territorial cohesion, agriculture 
and rural, fisheries and maritime, prosperity and security. 

• 

Impact assessment 

Information  about  the  Commission’s  Impact  Assessment  is  provided  in  the  corresponding 
chapter  of  the  explanatory  memorandum  of  the  proposal  for  a  Regulation  (EU)  […] 
establishing the European Fund for economic, social and territorial cohesion, agriculture and 
rural, fisheries and maritime, prosperity and security. 

• 

Simplification 

The initiative is expected to contribute to a significant reduction of administrative burden and 
costs,  as  well  as  improved  efficiency  in  the  implementation  of  Union  support,  see  also  the 
corresponding chapter of the explanatory memorandum of the proposal for a Regulation (EU) 
[…] establishing the European Fund for economic, social and territorial cohesion, agriculture 
and rural, fisheries and maritime, prosperity and security. 

• 

Fundamental rights 

The  Union  support  will  be  implemented  in  compliance  with  the  Charter  of  Fundamental 
Rights of the European Union and the principle of the rule of law, as set out in Article 2(a) of 
Regulation (EU, Euratom) 2020/2092, see also the corresponding section in the Explanatory 
Memorandum  accompanying  the  Commission  proposal  for  a  Regulation  (EU)  […] 

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establishing  the  European  Economic,  Territorial,  Social,  Rural  and  Maritime  Sustainable 
Prosperity and Security Fund. 

4. 

BUDGETARY IMPLICATIONS 

The  indicative  financial  envelope  for  the  implementation  of  the  objectives  under  the  Union 
support  is  set  at  EUR 15 396 750 000  billion  for  the  period  from  2028  to  2034  in  current 
prices. It  shall be implemented in  compliance with the horizontal  rules for the National  and 
Regional Partnership Plans laid down in Regulation (EU) […] establishing the European Fund 
for  economic,  social  and  territorial  cohesion,  agriculture  and  rural,  fisheries  and  maritime, 
prosperity and security. 

5. 

• 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

The Union support under this proposal will be implemented through shared management by 
the  Member  States  and  direct  and  indirect  management  by  the  Commission.  The 
implementation of the Union support will be monitored through the performance framework 
applicable  for  the  2028-2034  multiannual  financial  framework,  which  is  set  out  in  the 
proposal  for  a  Regulation  (EU)  […]  establishing  a  budget  expenditure  tracking  and 
performance framework and other horizontal rules of the Union programmes and activities . 

• 

Detailed explanation of the specific provisions of the proposal 

 The  proposed  Regulation  defines  in  Article  1  the  scope  of  the  Union  support  for  the  EU 
integrated border management and the EU visa policy for the period from 1 January 2028 to 
31 December 2034. For this, essential definitions are given in Article 2, and the objectives are 
defined  in  Article  3,  in  consistency  with  Union  support  that  will  be  provided  under  the 
horizontal  rules  of  the  European  Fund  for  economic,  social  and  territorial  cohesion, 
agriculture  and  rural,  fisheries  and  maritime,  prosperity  and  security  established  by 
Regulation (EU) […].   

In  Article  4,  the  proposal  lays  down  provisions  for  the  financing  of  the  Union  support,  in 
Article  5  provisions  for  the  Schengen  Associated  Countries,  and  in  Article  6  provisions  for 
implementing the operation of the Special Transit Scheme in Lithuania.  

The proposed Regulation also sets out in Article 7 the rules for the budgetary treatment of the 
resources  for  operating  costs  of  the  European  Travel  Information  and  Authorisation  System 
pursuant to Regulation (EU) 2018/1240 and in Article 8 the rules for the budgetary treatment 
of  the  financial  contributions  from  Member  States  for  the  purpose  of  the  Annual  Solidarity 
Pool  established  by  Regulation  (EU)  2024/1351  of  the  European  Parliament  and  of  the 
Council of 14 May 20243. 

Article 9 lays down transitional provisions. The date of the entry into force of the proposed 
Regulation  is  set  in  Article  10,  which  stipulates  that  the  Regulation  will  be  binding  in  its 
entirety and directly applicable in all Member States in accordance with the Treaties from 1 
January 2028. 

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Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 2024 on asylum 
and migration management, amending Regulations (EU) 2021/1147 and (EU) 2021/1060 and repealing 
22.5.2024, 
Regulation 
ELI: http://data.europa.eu/eli/reg/2024/1351/oj). 

2024/1351, 

604/2013, 

(EU) 

(OJ 

No 

L, 

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2025/0541 (COD) 

Proposal for a 

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

establishing the Union support for the Schengen area, for European integrated border 
management and for the common policy on visas for the period from 2028 to 2034 

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 77(2) and 79(2), point (c) and (d) thereof, 

Having regard to the proposal from the European Commission, 

After transmission of the draft legislative act to the national parliaments, 
Having regard to the opinion of the European Economic and Social Committee4, 

After consulting the Committee of the Regions, 
Acting in accordance with the ordinary legislative procedure5, 

Whereas: 

(1) 

(2) 

(3) 

The  Union’s  objective  of  constituting  an  area  of  freedom,  security  and  justice  in 
accordance with Article 67(1) of the Treaty on the Functioning of the European Union 
(TFEU)  should  be  achieved  through  the  provision  of  Union  support  for  the 
development of the Union’s common policy on external border control, including for 
the common visa policy pursuant to Article 77(2), point (a) TFEU. 

To ensure the effective and efficient functioning of the Schengen area without internal 
borders,  a  strong  governance  framework,  an  effective  European  integrated  border 
management,  as  implemented  by  the  European  Border  and  Coast  Guard,  established 
by  Regulation  (EU)  2019/1896  of  the  European  Parliament  and  of  the  Council6,  and 
the EU visa policy are of paramount importance to ensure the integrity and resilience 
of the Schengen Area. 

Union support should therefore be provided for Member States’ efforts to protect the 
external  borders  of  the  Union,  curbing  illegal  border  crossings  and  unauthorised 
movements  between  the  Member  States,  as  well  as  modernising  and  improving  the 
overall efficiency of visa processing and preventing abuse of the Union’s visa regime. 
This  Union  support  is  to  be  provided  under  the  under  the  horizontal  rules  of  the 
European  Fund  for  economic,  social  and  territorial  cohesion,  agriculture  and  rural, 
fisheries and maritime, prosperity and security established by Regulation (EU) […]. 

(4) 

Union  support  should  also  be  provided  for  the  effective  implementation,  application 
and  development  of  the  Schengen  framework  at  the  European  and  national  level, 

4 
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OJ C , , p. . 
Position of the European Parliament of  and position of the Council of . 
Regulation (EU) 2019/1896 of the European Parliament and of the Council of 13 November 2019 on 
the  European  Border  and  Coast  Guard  and  repealing  Regulations  (EU)  No  1052/2013  and  (EU), 
(2016/1624, OJ L 295, 14.11.2019, p. 1. ELI: http://data.europa.eu/eli/reg/2019/1896/oj), 

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including through strengthening the national Schengen governance encompassing the 
effective coordination structures and strategic processes which are critical for the well 
-functioning of the Schengen area.  

This Regulation lays down the objectives of the Union support for a well-functioning 
Schengen  area  without  control  at  the  internal  borders,  including  for  European 
integrated border management, including support for the functioning of the Schengen 
area, and for European visa policy (‘the Union support’). Member States should ensure 
that their National and Regional Partnership Plans address each of the objectives this 
Regulation sets out.  

In  accordance  with  Lithuania’s  Act  of  Accession  to  the  EU,  the  Regulation  also 
addresses the need to support Lithuania for the management of the transit of persons 
between the region of Kaliningrad and other parts of the Russian Federation. 

The amounts to be allocated per Member State should be set out by the Commission in 
accordance  with  the  allocation  methodology  laid  down  in  Regulation  (EU)  […] 
establishing  the  European  Fund  for  economic,  social  and  territorial  cohesion, 
agriculture and rural, fisheries and maritime, prosperity and security through a single 
implementing  decision.  That  decision  should  as  a  rule  also  cover  the  amounts  under 
the  Regulation  (EU)  […]  establishing  the  European  Fund  for  economic,  social  and 
territorial  cohesion,  agriculture  and  rural,  fisheries  and  maritime,  prosperity  and 
security,  the  Regulation  (EU)  […]  establishing  the  Union  support  for  asylum, 
migration and integration and the Regulation (EU) […] establishing the Union support 
for internal security. 

The  Union  support  should  build  on  the  results  and  investments  from  the  previous 
programming  periods:  (i)  the  External  Borders  Fund  for  the  period  2007-2013 
established  by  Decision  No  574/2007/EC  of  the  European  Parliament  and  of  the 
Council7;  (ii)  the  instrument  for  external  borders  and  visa  as  part  of  the  Internal 
Security  Fund  for  the  period  2014-2020  established  by  Regulation  (EU)  No 
515/2014 of the European Parliament and of the Council8; and (iii) the instrument for 
financial  support  for  border  management  and  visa  policy  as  part  of  the  Integrated 
Border Management Fund for the period 2021-2027, established by Regulation (EU) 
2021/1148 of the European Parliament and of the Council9.  

In the face of a changing global landscape and growing instability, the Union and its 
Member States need to combine their resources to protect the Union’s external borders 
effectively, 
including  to  address  irregular  migration,  smuggling  of  migrants, 
trafficking  in  human  beings,  and  top  respond  to  State  actors  artificially  creating  and 
facilitating irregular migration, instrumentalising migratory flows as a tool for political 
purposes, and using hybrid warfare tactics, such as the weaponisation of migration10, 

OJ L 144, 6.6.2007, p. 22. 
Regulation  (EU)  No  515/2014  of  the  European  Parliament  and  of  the  Council  of  16 April  2014 
establishing,  as  part  of  the  Internal  Security  Fund,  the  instrument  for  financial  support  for  external 
borders  and  visa  and  repealing  Decision  No  574/2007/EC,  (OJ  L  150,  20.5.2014,  p.  143,  ELI: 
http://data.europa.eu/eli/reg/2014/515/oj). 
Regulation (EU) 2021/1148 of the European Parliament and of the Council of 7 July 2021 establishing, 
as  part  of  the  Integrated  Border  Management  Fund,  the  Instrument  for  Financial  Support  for  Border 
Management 
ELI: 
Policy, 
http://data.europa.eu/eli/reg/2021/1148/oj). 
Communication  from  the  Commission  to  the  European  Parliament  and  the  Council  on  countering 
hybrid  threats  from  the  weaponisation  of  migration  and  strengthening  security  at  the  EU’s  external 
borders (COM(2024) 570 final of 11.12.2024). 

15.7.2021, 

Visa 

251, 

(OJ 

and 

48, 

p. 

L 

(5) 

(6) 

(7) 

(8) 

(9) 

7 
8 

9 

10 

EN 

9 

  EN 

 
to destabilise the European Union and its Member States. In the interest of solidarity 
in  the  Schengen  area  as  a  whole  and  in  the  spirit  of  shared  responsibility  for  the 
protection of the Union’s external borders, the Member State’s National and Regional 
Partnership  Plan  should  adequately  address  the  challenges  identified,  notably  in  the 
context of the European  Integrated Border Management Strategy, the European Visa 
Policy  Strategy  and  in  the  new  Schengen  IT  architecture  relying  on  the  large-scale 
information  technology  (IT)  systems  deployed  for  external  borders  and  security 
management  as  well  as  on  the  interoperability  of  those  systems.  Furthermore,  in 
support  of  the  border  control  mission,  the  deployment  of  technology  and  digital 
solutions should be considered.    

(10)  The  Union  support  should  contribute  to  ensuring  consistency,  coherence,  synergies 
and  complementarities  between  the  Union’s  internal  and  external  policies.  An 
increased coherence is needed between migration, asylum, return and external policies 
and  it  is  important  to  ensure  that  the  Union’s  external  assistance  and  Union  support 
under this Regulation contribute to a coordinated, holistic and structured approach to 
migration,  maximising  synergies  and  increasing  leverage.  Union  support  under  this 
Regulation may also include support to the relevant resources of the EU delegations in 
duly  justified  cases,  and  be  coordinated  between  the  Member  States  and  the 
Commission in programming and implementation stages. 

(11)  Europe  must  protect  its  security  interest  against  suppliers  which  could  represent  a 
persistent security risk due to the potential interference from third countries as well as 
their  cybersecurity  practices.  It  is  therefore  necessary  to  reduce  the risk  of  persisting 
dependency  on  high-risk  suppliers  in  the  internal  market,  as  they  could  have 
potentially  serious  negative 
impacts  on  security  for  users,  companies  and 
authorities across the EU and the EU’s critical infrastructure in terms of the integrity 
of  data  and  services  as  well  as  the  availability  of  service. This  exclusion  should  be 
based  on  a  proportionate  risk  assessment  and  associated  mitigation  measures  as 
defined in the Union policies and laws. 

(12)  As challenges in border management and visa policy are constantly evolving, there is a 
need  to  adapt  the  allocation  of  Union  support  to  changes  in  priorities  for  external 
border  management  and  visa  policy,  including  changes  that  result  from  increased 
pressure  at  the  border,  and  a  need  to  steer  funding  towards  the  priorities  with  the 
highest Union added value. To  respond to pressing needs and  changes in policy and 
Union priorities, and to steer funding towards actions with a high level of Union added 
value, part of the Union support should be implemented in direct, shared and indirect 
management  via  the  EU  Facility  established  pursuant  to  Regulation  (EU)  […] 
establishing  the  European  Fund  for  economic,  social  and  territorial  cohesion, 
agriculture and rural, fisheries and maritime, prosperity and security. The EU Facility 
offers  flexibility  in  the  management  of  the  Union  support,  and,  for  shared 
management,  it  should  be  implemented  through  the  Member  States’  National  and 
Regional Partnership Plans. 

(13)  The  Commission  and  the  Member  States  should  ensure  that  the  knowledge  and 
experience  of  Union  bodies,  offices  and  agencies  are  taken  into  account  when 
implementing measures or addressing challenges in relation to migration management, 
border  control  and  management  and  internal  security.  Where  appropriate,  the 
Commission  should  also  be  able  to  involve  the  relevant  Union  bodies,  offices  and 
agencies  in  activities  aiming  to  ensure  that  the  measures  supported  by  the  Union 
support comply with the relevant Union acquis and agreed Union priorities. 

EN 

10 

  EN 

(14)  The  Union  support  should  support  measures  linked  to  external  border  control  in  the 
territory of the countries applying the Schengen acquis as part of the implementation 
of  the  European  integrated  border  management,  which  strengthens  the  overall 
functioning  of  the  Schengen  area.  In  order  to  specify  the  nature  and  modes  of 
participation  in  the  Union  support  of  countries  associated  with  the  implementation, 
application and development of the Schengen acquis, further arrangements should be 
concluded between the Union and those countries under the relevant provisions of the 
respective association agreements between those countries and the Union.  

(15)  The Union support should  continue contributing to  the implementation,  development 
and  governance  of  the  Schengen  area  to  promote  an  area  without  control  at  internal 
borders.  It  should  continue  supporting  measures  linked  to  external  border  control  in 
the  territory  of  the  countries  applying  the  Schengen  acquis  as  part  of  the 
implementation of the European integrated border management, which strengthens the 
overall functioning of the Schengen area. 

(16)  The Union support should contribute to modernising and improving the efficiency of 
visa  processing  in  terms  of  detecting  and  assessing  security  and  irregular  migration 
risks,  ensuring  effective  implementation  of  the  Visa  Code.  In  particular,  the  Union 
support should contribute to the digitalisation of visa processing with the objective of 
providing fast,  secure and client-friendly visa procedures for the benefit of both  visa 
applicants and consulates. The Union support should also serve to improve service to 
visa  applicants,  including  through  a  better  coverage  of  consular  services  across  the 
world. 

(17)  The Member States may build on the principle of partnership in the implementation of 

the Union support to ensure continuity in the governance approach. 

(18)  Pursuant to Article 86 of Regulation (EU) 2018/1240 of the European Parliament and 
of  the  Council11,  the  operating  costs  of  the  European  Travel  Information  and 
Authorisation  System  (ETIAS)  should  be  covered  by  the  revenues  generated  by  the 
travel  authorisation  fees.  This  Regulation  should  lay  down  rules  in  order  to  make 
available to Member States their respective share of ETIAS fees to cover their relevant 
operating  costs,  including  modalities  in  cases  when  their  total  operating  costs  in  a 
given year exceed the available ETIAS revenue.  

(19)  Given  that  Member  States  subject  to  migratory  pressure  should  be  able  to  rely  on 
Union support, this Regulation  should set out the rules in order to make available to 
benefitting Member States the respective share of the financial contributions included 
in the Annual Solidarity Pool established by Regulation (EU) 2024/135112. 

(20)  All  actions  supported  in  accordance  with  the  Union  support  under  this  Regulation 
should be implemented in compliance with the rights and principles enshrined in the 
Union acquis and  the  Charter  of  Fundamental  Rights  of  the  European  Union  and 
should  be  in  line  with  the  international  obligations  of  the  Union  and  the  Member 
States arising from the international instruments to which they are party. 

11 

12 

Regulation  (EU)  2018/1240  of  the  European  Parliament  and  of  the  Council  of  12  September  2018 
establishing  a  European  Travel  Information  and  Authorisation  System  (ETIAS)  and  amending 
Regulations  (EU)  No  1077/2011,  (EU)  No  515/2014,  (EU)  2016/399,  (EU)  2016/1624  and  (EU) 
2017/2226, (OJ L 236, 19.9.2018, p. 1, ELI: http://data.europa.eu/eli/reg/2018/1240/oj). 
Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 2024 on asylum 
and migration management, amending Regulations (EU) 2021/1147 and (EU) 2021/1060 and repealing 
Regulation 
ELI: 
(OJ 
http://data.europa.eu/eli/reg/2024/1351/oj). 

2024/1351, 

22.5.2024, 

604/2013, 

(EU) 

No 

L, 

EN 

11 

  EN 

 
(21) 

In  accordance  with  Protocol  No  5  to  the  2003  Act  of  Accession  on  the  transit  of 
persons  by  land  between  the  region  of  Kaliningrad  and  other  parts  of  the  Russian 
Federation13,    the  Union  shall  assist  Lithuania  in  managing  the  transit  of  persons 
between the region  of Kaliningrad and the other  parts of the Russian Federation and 
shall,  notably,  bear  any  additional  costs  incurred  by  implementing  the  specific 
provisions of the acquis  providing for such transit. Therefore, this Regulation should 
lay  down  the  rules  for  the  financial  support  for  Special  Transit  Scheme  set  out  by 
Council Regulation (EC) No 693/200314. 

(22)  As  regards  Iceland  and  Norway,  this  Regulation  constitutes  a  development  of  the 
provisions of the Schengen acquis within the meaning of the Agreement concluded by 
the Council of the European Union and the Republic of Iceland and the Kingdom of 
Norway  concerning  the  latters’  association  with  the  implementation,  application  and 
development of the Schengen acquis15 which fall within the area referred to in Article 
1, points A and B of Council Decision 1999/437/EC16. 

(23)  As regards Switzerland, this Regulation constitutes a development of provisions of the 
Schengen acquis within the meaning of the Agreement between the European Union, 
the European Community and the Swiss Confederation on the Swiss Confederation’s 
association  with  the  implementation,  application  and  development  of  the  Schengen 
acquis17 which fall within the area referred to in Article 1, Points A and B of Decision 
1999/437/EC read in conjunction with Article 3 of Council Decision 2008/146/EC18. 

(24)  As regards Liechtenstein, this Regulation constitutes a development of the provisions 
of  the  Schengen  acquis  within  the  meaning  of  the  Protocol  between  the  European 
Union,  the  European  Community,  the  Swiss  Confederation  and  the  Principality  of 
Liechtenstein  on  the  accession  of  the  Principality  of  Liechtenstein  to  the  Agreement 
between the European Union, the European Community and the Swiss Confederation 
on  the  Swiss  Confederation’s  association  with  the  implementation,  application  and 
development of the Schengen acquis19 which fall within the areas referred to in Article 

13 

14 

15 
16 

17 
18 

19 

(OJ 

and 

the  Common  Manual, 

Act  concerning  the  conditions  of  accession  of  the  Czech  Republic,  the  Republic  of  Estonia,  the 
Republic  of  Cyprus,  the  Republic  of  Latvia,  the  Republic of  Lithuania,  the  Republic of  Hungary,  the 
Republic of Malta, the Republic of Poland, the Republic of Slovenia and the Slovak Republic and the 
adjustments  to  the  Treaties  on  which  the  European  Union  is  founded,  (OJ  L  236,  23.9.2003,  p.  955, 
ELI: http://data.europa.eu/eli/treaty/acc_2003/act_1/pro_10/sign). 
Council  Regulation  (EC)  No  693/2003  of  14  April  2003  establishing  a  specific  Facilitated  Transit 
Document  (FTD),  a  Facilitated  Rail  Transit  Document  (FRTD)  and  amending  the  Common  Consular 
Instructions 
ELI: 
http://data.europa.eu/eli/reg/2003/693/oj). 
OJ L 176, 10.7.1999, p. 36. 
Council  Decision  1999/437/EC  of  17  May  1999  on  certain  arrangements  for  the  application  of  the 
Agreement  concluded  by  the  Council  of  the  European  Union  and  the  Republic  of  Iceland  and  the 
Kingdom  of  Norway  concerning  the  association  of  those  two  States  with  the  implementation, 
application  and  development  of  the  Schengen  acquis,  (OJ  L  176,  10.7.1999,  p.  31,  ELI: 
http://data.europa.eu/eli/dec/1999/437/oj). 
OJ L 53, 27.2.2008, p. 52. 
Council  Decision  2008/146/EC  of  28  January  2008  on  the  conclusion,  on  behalf  of  the  European 
Community, of the Agreement between the European Union, the European Community and the Swiss 
Confederation  on  the  Swiss  Confederation’s  association  with  the  implementation,  application  and 
ELI: 
development 
http://data.europa.eu/eli/dec/2008/146/oj). 
OJ L 160, 18.6.2011, p. 21, ELI: http://data.europa.eu/eli/prot/2011/350/oj. 

17.4.2003, 

27.2.2008, 

Schengen 

acquis, 

(OJ 

99, 

53, 

the 

of 

1, 

8, 

p. 

p. 

L 

L 

EN 

12 

  EN 

 
1,  Points  A  and  B  of  Decision  1999/437/EC  read  in  conjunction  with  Article  3  of 
Council Decision 2011/350/EU20. 

(25) 

In  accordance  with  Articles  1  and  2  of  Protocol  No  22  on  the  position  of  Denmark, 
annexed to the TEU and the TFEU, Denmark is not taking part in the adoption of this 
Regulation  and  is  not  bound  by  it  or  subject  to  its  application.  Given  that  this 
Regulation  builds  upon  the  Schengen  acquis,  Denmark  should,  in  accordance  with 
Article 4 of that Protocol, decide within a period of six months after the Council has 
decided  on  this  Regulation  whether  it  will  implement  this  Regulation  in  its  national 
law. 

(26)  This Regulation constitutes a development of the provisions of the Schengen acquis in 
which Ireland does not take part, in accordance with Council Decision 2002/192/EC21. 
Ireland is therefore not taking part in the adoption of this Regulation and is not bound 
by it or subject to its application, 

HAVE ADOPTED THIS REGULATION: 

Article 1 

Subject matter 

This  Regulation  lays  down  the  objectives  and  financing  of  the  Union  support  for  European 
integrated  border  management  and  for  European  visa  policy  for  the  period  from  1  January 
2028  to  31  December  2034.  The  Union  support  shall  contribute  to  the  functioning  of  the 
Schengen  area,  to  the  efficient  management  of  external  borders  and  to  the  efficiency  of  the 
visa  policy,  including  by  providing  support  for  the  implementation,  strengthening  and 
development  of  the  relevant  elements  of  the  Pact  on  Migration  and  Asylum,  and  to  a  high 
level of internal security within the Union, preserving the absence of any controls on persons 
when crossing internal borders.  

This  Union  support  shall  be  provided  under  the  horizontal  rules  of  the  European  Fund  for 
economic,  social  and  territorial  cohesion,  agriculture  and  rural,  fisheries  and  maritime, 
prosperity and security established by Regulation (EU) […]. 

Article 2 

Definitions 

For the purposes of this Regulation, the following definitions apply: 

20 

21 

Council Decision 2011/350/EU of 7 March 2011 on the conclusion, on behalf of the European Union, 
of the Protocol between the European Union, the European  Community, the Swiss Confederation and 
the Principality of Liechtenstein on the accession of the Principality of Liechtenstein to the Agreement 
between  the  European  Union,  the  European  Community  and  the  Swiss  Confederation  on  the  Swiss 
Confederation’s  association  with  the  implementation,  application  and  development  of  the  Schengen 
acquis,  relating  to  the  abolition  of  checks  at  internal  borders  and  movement  of  persons,  (OJ  L  160, 
18.6.2011, p. 19, ELI: http://data.europa.eu/eli/dec/2011/350/oj). 
Council Decision 2002/192/EC of 28 February 2002 concerning Ireland’s request to take part in some 
of 
(OJ  L  64,  7.3.2002,  p.  20,  ELI: 
acquis, 
http://data.europa.eu/eli/dec/2002/192/oj). 

the  provisions  of 

the  Schengen 

EN 

13 

  EN 

 
(1) 

(2) 

(3) 

(4) 

‘border crossing point’ means border crossing point as defined in Article 2, point (8) 
of Regulation (EU) 2016/39922; 

‘European  integrated  border  management’  means  European  integrated  border 
management as referred to in Article 3 of Regulation (EU) 2019/189623; 

‘external  borders’  means  external  borders  as  defined  in  Article  2,  point  2  of 
Regulation (EU) 2016/39924 and internal borders at which controls have not yet been 
lifted; 

‘external border section’ means external border section as defined in Article 2, point 
(11) of Regulation (EU) 2019/189625; 

(5) 

‘internal borders at which controls have not yet been lifted’ means: 

(a) 

(b) 

the common border between a Member State fully implementing the Schengen 
acquis  and  a  Member  State  bound  to  apply  the  Schengen  acquis  in  full,  in 
conformity  with  its  Act  of  Accession,  but  for  which  the  relevant  Council 
Decision authorising it to fully apply that acquis has not yet entered into force; 

the common border between two Member States bound to apply the Schengen 
acquis  in  full,  in  conformity  with  their  respective  Acts  of  Accession,  but  for 
which the relevant Council Decision authorising them to fully apply that acquis 
has not yet entered into force. 

‘benefitting Member State’ means a benefitting Member State as defined in Article 2, 
point (19) of Regulation (EU) 2024/1351; 

‘contributing  Member  State’  means  a  contributing  Member  State  as  defined  in 
Article 2, point (20) of Regulation (EU) 2024/1351; 

‘financial  contributions’  means  financial  contributions  in  accordance  with  Article 
56(2), point (b) of Regulation (EU) 2024/1351.  

(6) 

(7) 

(8) 

Article 3 

Objectives for the Union support for the Schengen area, for European integrated border 
management at the external borders and for the common policy on visas 

1. 

22 

23 

24 

25 

To  ensure  strong  and  effective  European  integrated  border  management  at  the 
external  borders, a well-functioning  Schengen area and  an efficient visa  policy, the 
Union support shall contribute to each of the following objectives: 

Regulation (EU) 2016/399 of the European Parliament and of the Council of 9 March 2016 on a Union 
Code  on  the  rules  governing  the  movement  of  persons  across  borders  (Schengen  Borders  Code) 
(codification), (OJ L 77, 23.3.2016, p. 1–52, ELI: http://data.europa.eu/eli/reg/2016/399/oj). 
Regulation (EU) 2019/1896 of the European Parliament and of the Council of 13 November 2019 on 
the  European  Border  and  Coast  Guard  and  repealing  Regulations  (EU)  No  1052/2013  and  (EU) 
2016/1624, (OJ L 295, 14.11.2019, p. 1–131). 
Regulation (EU) 2016/399 of the European Parliament and of the Council of 9 March 2016 on a Union 
Code  on  the  rules  governing  the  movement  of  persons  across  borders  (Schengen  Borders  Code) 
(codification), (OJ L 77, 23.3.2016, p. 1–52). 
Regulation (EU) 2019/1896 of the European Parliament and of the Council of 13 November 2019 on 
the  European  Border  and  Coast  Guard  and  repealing  Regulations  (EU)  No  1052/2013  and  (EU) 
2016/1624, (OJ L 295, 14.11.2019, p. 1–131). 

EN 

14 

  EN 

 
(a) 

(b) 

supporting  the  effective  implementation,  application  and  development  of  the 
Schengen framework and strengthening the governance, integrity and security 
of the Schengen area without internal borders; 

supporting  effective  European  integrated  border  management  at  the  external 
borders,  implemented  by  the  European  Border  and  Coast  Guard  as  a  shared 
responsibility  of  the  European  Border  and  Coast  Guard  Agency  and  the 
national  authorities  responsible  for  border  management,  including  through 
innovative  methods  and  new  technologies,  to  facilitate  legitimate  border 
crossings,  to  prevent  and  detect  illegal  immigration,  cross-border  crime,  and 
instrumentalisation  and  weaponisation  of  irregular  migration,  to  contribute  to 
effective return; 

(c) 

supporting  the  common  visa  policy  to  ensure  a  harmonised  approach  with 
regard to the timely issuance of visas and to facilitate legitimate travel,  while 
preventing migratory and security risks and contributing to the security  and a 
well-functioning of the Schengen area. 

The  Union  support  shall  be  implemented  in  a  manner  fully  consistent  with  the 
objectives  set  out  in  Regulation  (EU)  […]  establishing  the  European  Fund  for 
economic, social and territorial cohesion, agriculture and rural, fisheries and maritime, 
prosperity and security. 

The  Union  support  shall  be  implemented  in  accordance  with  the  relevant  Union 
acquis and the international obligations of the Union and the Member States arising 
from the international instruments to which they are party. 

The  Member  States  shall  ensure  that  the  priorities  of  their  National  and  Regional 
Partnership  Plans  include  actions  to  achieve  each  of  the  objectives  of  the  Union 
support  under  this  Regulation,  and,  that  the  allocation  of  resources  between 
objectives is proportionate to the identified challenges and needs. 

Article 4 

Financing 

The indicative financial envelope for the implementation of the objectives set out in 
Article 3 for the period from 2028 to 2034 is set at EUR 15 396 750 000 in current 
prices. It  shall  be  implemented  in  compliance  with  the  horizontal  rules  for  the 
National  and  Regional  Partnership  Plans  laid  down  in  Regulation  (EU)  […] 
establishing  the  European  Fund  for  economic,  social  and  territorial  cohesion, 
agriculture and rural, fisheries and maritime, prosperity and security.  

The  Commission  shall  adopt  an  implementing  act  to  establish  the  amount  per 
Member State by applying the allocation methodology set out in Section B, Annex I 
of  Regulation  (EU)  […]  establishing  the  European  Fund  for  economic,  social  and 
territorial  cohesion,  agriculture  and  rural,  fisheries  and  maritime,  prosperity  and 
security. 

In addition, the budgetary appropriations for the objectives set out in Article 3 of this 
Regulation, implemented through the EU Facility under Title IV of Regulation (EU) 
[…]  establishing  the  European  Fund  for  economic,  social  and  territorial  cohesion, 
agriculture  and  rural,  fisheries  and  maritime,  prosperity  and  security,  shall  be 

2. 

3. 

1. 

2. 

3. 

EN 

15 

  EN 

4. 

5. 

6. 

7. 

established  in  the  framework  of  the  annual  budgetary  procedure  provided  for  in 
Article 314 TFEU. 

For   measures  that  relate  to  the  objectives  set  out  in  Article  3  of  this  Regulation, 
where the Commission concludes that those measures comply with the requirements 
laid  down  in  this  Regulation  and  Regulation  (EU)  […]  establishing  the  European 
Fund for economic, social and territorial cohesion, agriculture and rural, fisheries and 
maritime,  prosperity  and  security,  and  where  the  Commission  proposes  a  Council 
implementing decision approving the National and Regional Partnership Plan of the 
concerned  Member  State  in  accordance  with  the  procedure  set  out  in  Article  23  of 
Regulation  (EU)  […]  establishing  the  European  Fund  for  economic,  social  and 
territorial  cohesion,  agriculture  and  rural,  fisheries  and  maritime,  prosperity  and 
security,  it  shall  make  a  proposal  for  a  Council  implementing  decision  on  the 
approval of those measures.  

When making a proposal for a Council implementing decision on the measures that 
relate  to  the  objectives  set  out  in  Article  3  of  this  Regulation,  the  Commission 
proposal  shall lay down  the elements  referred to  in  Article 23(4) of the Regulation 
(EU)  […]  establishing  the  European  Fund  for  economic,  social  and  territorial 
cohesion, agriculture and rural, fisheries and maritime, prosperity and security, with 
regard to the objectives set out in Article 3. 

The Council shall adopt the implementing decision referred to  in  paragraph  4, as a 
rule,  within  four  weeks  of  the  adoption  of  the  Commission  proposal  and  together 
with the implementing decisions referred to in Article 23, paragraph (1) [Commission 
proposal  and  Council  implementing  decision]  of  Regulation  (EU)  […]  establishing 
the  European  Fund  for  economic,  social  and  territorial  cohesion,  agriculture  and 
rural, fisheries and maritime, prosperity and security. 

Article 24 of the Regulation (EU) […] establishing the European Fund for economic, 
social  and  territorial  cohesion,  agriculture  and  rural,  fisheries  and  maritime, 
prosperity  and  security  on  the  amendment  of  Plans  shall  apply,  provided  that  the 
Implementing  Decision  approving 
Commission  proposal  and 
amendments of the elements listed in Article 23(4) only cover the objectives referred 
to in Article 3 of this Regulation. 

the  Council 

Article 5  

Schengen Associated Countries 

In  accordance  with  the  relevant  provisions  of  their  respective  association  agreements, 
arrangements shall be made in  order to  specify the nature and modes of  the participation  in 
the  Union  support  of  countries  associated  with  the  implementation,  application  and 
development  of  the  Schengen  acquis.  As  soon  as  possible  after  the  country  concerned  has 
notified  its  decision  to  accept  the  content  of  the  Union  support  and  to  implement  it  in  its 
internal  legal  order, in  accordance with the relevant  association agreement,  the Commission 
shall  submit  a  recommendation  to  the  Council  for  the  opening  of  negotiations  on  those 
arrangements  under  Article  218(3)  TFEU.  On  receipt  of  the  recommendation,  the  Council 
shall  act  without  delay  in  deciding  to  authorise  the  opening  of  those  negotiations.  The 
financial contributions from those countries shall be added to the overall resources available 
from the financial envelope referred to in Article 4. 

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1. 

2. 

3. 

4. 

5. 

Article 6 

Support for the Special Transit Scheme 

An amount of up to EUR 450 000 000 shall be allocated to Lithuania’s National and 
Regional  Partnership  Plan  pursuant  to  Regulation  (EU)  […]  establishing  the 
European  Fund  for  economic,  social  and  territorial  cohesion,  agriculture  and  rural, 
fisheries  and  maritime,  prosperity  and  security  to  provide  support  for  foregone 
income  from  processing  short-stay  visas  and  additional  costs  in  implementing  the 
Facilitated  Transit  Document  (FTD)  and  the  Facilitated  Rail  Transit  Document 
(FRTD)  scheme  in  accordance  with  Council  Regulation  (EC)  No  693/2003  and 
Regulation  (EC)  No  694/2003  amended  by  Regulation  (EU)  2023/2667  of  the 
European Parliament and of the Council. 

For the purpose of paragraph 1, the support from the Union for the foregone income 
shall be based on the issuance of FTDs and FRTDs. The ceiling for the support shall 
be set at EUR 100 000 000.  

For the purpose of paragraph 1, the support from the Union shall cover the additional 
estimated costs resulting directly from the specific requirements of implementing the 
operation of the Special  Transit Scheme and which are not  generated as  a result of 
the issuing of visas under Regulation (EC) 810/2009 of the European Parliament and 
of the Council (26). 

The maximum contribution of the Union budget shall be 100% of the total estimated 
costs. The ceiling for this support shall be set at EUR 350 000 000. 

The additional estimated costs shall cover in particular:  

(a)  investment  in  infrastructures,  means  of  transport,  ICT  systems  and  equipment 

necessary for the operation of the Special Transit Scheme; 

(b) training of staff implementing the Special Transit Scheme; 

(c)  additional  operational  costs,  including  staff  costs  for  the  implementation  of  the 

Special Transit Scheme.  

The  Commission  and  Lithuania  shall  review  the  application  of  this  Article  in  the 
event  of  unforeseen  circumstances  which  have  an  impact  on  the  existence  or 
functioning of the Special Transit Scheme. 

The  amounts  referred  to  in  paragraphs  2  and  3  shall  be  allocated  to  Lithuania’s 
National  and Regional Partnership Plan. Those amounts shall not  be used for other 
measures  in  the  Plan  except  in  duly  justified  circumstances,  as  approved  by  the 
Commission  through  the  amendment  of  that  Plan  pursuant  to  Article  24  of 
Regulation  (EU)  […]  establishing  the  European  Fund  for  economic,  social  and 
territorial  cohesion,  agriculture  and  rural,  fisheries  and  maritime,  prosperity  and 
security.  

Following  a  reasoned  request  by  Lithuania,  the  amount  referred  to  in  paragraph  3  may  be 
reviewed  and,  where  necessary,  adjusted  before  the  adoption  of  the  last  work  programme 
pursuant to Article 31 of Regulation (EU) […] establishing the European Fund for economic, 
social  and  territorial  cohesion,  agriculture  and  rural,  fisheries  and  maritime,  prosperity  and 

26 

Regulation  (EC)  No 810/2009  of  the  European  Parliament  and  of  the  Council  of  13 July  2009 
establishing  a  Community  Code  on  Visas  (Visa  Code),  (OJ  L  243,  15.9.2009,  p.  1-58,  ELI: 
http://data.europa.eu/eli/reg/2009/810/oj) 

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security.  Any  additional  amounts  will  be  allocated  to  Lithuania’s  National  and  Regional 
Partnership  Plan  in  accordance  with  Article  31(7)  of  Regulation  (EU)  […]  establishing  the 
European  Fund  for  economic,  social  and  territorial  cohesion,  agriculture  and  rural,  fisheries 
and maritime, prosperity and security. 

Article 7 

Resources for operating costs of the European Travel Information and Authorisation 
System (ETIAS) 

1. 

2. 

3. 

4. 

Each  Member  State  shall  set  up  an  effective  and  reliable  system  ensuring  that  the 
operating  costs  incurred  by  that  Member  State  under  Article  85(2)  and  85(3)  of 
Regulation (EU) 2018/1240 are adequately identified and recorded. By 31 January of 
each  year,  and  for  the  first  time  by  31  January  2029,  Member  States  shall 
communicate to  the Commission  the  total  operating  costs incurred for the  previous 
year.  

On the basis of the information communicated by the Member States in accordance 
with paragraph 1, the Commission shall establish the amount of revenues generated 
by  ETIAS  fees  to  be  assigned  in  accordance  with  Article  86,  second  sentence  of 
Regulation (EU) 2018/1240 for covering operating costs incurred by Member States. 
The Commission shall make available to each Member State their respective share of 
this amount.  

Where  the  amount  of  total  operating  costs  communicated  by  the  Member  States 
under  paragraph  1  exceeds  the  available  ETIAS  revenue,  or,  where  the  amount  of 
expenses  incurred  to  customise  and  automate  border  checks  in  order  to  implement 
ETIAS  exceeds  the  limits  set  out  in  85(3)  of  Regulation  (EU)  2018/1240,  the 
Commission shall calculate a pro rata reduction of these amounts. 

Where  the  amount  of  total  operating  costs  in  a  given  year  exceeds  the  available 
ETIAS  revenue, the  Commission  shall  subsequently  make available to  the Member 
States  the  amount  corresponding  to  the  pro  rata  reduction  of  their  total  operating 
costs from revenues generated by ETIAS fees. 

Article 8 

Financial contributions for the Annual Solidarity Pool 

The  Commission  shall  calculate  and  make  available  to  each  benefitting  Member  State  the 
respective share of the financial contributions transferred by the contributing Member States 
in  accordance  with  Article  64(1)  of  Regulation  EU  2024/1351  for  the  purpose  of 
implementing the actions set out in Article 56(2)(b) of Regulation (EU) 2024/1351. 

Article 9  

Transitional provisions 

This Regulation shall not affect the continuation or modification of the actions initiated under 
Regulation (EU) 2021/1148, which shall continue to apply to the actions concerned until their 
closure. 

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Article 10 

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. 

It shall apply from the date of application of Regulation (EU) […] establishing the European 
Fund  for  economic,  social  and  territorial  cohesion,  agriculture  and  rural,  fisheries  and 
maritime, prosperity and security for the period 2028-2034. 

This Regulation shall be binding in its entirety and directly applicable in the Member States in 
accordance with the Treaties. 

Done at Brussels, 

For the European Parliament 
The President 

For the Council 
The President 

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