Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the Union support for internal security for the period from 2028 to 2034
Date: 2025-07-16
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU aid, European security, area of freedom, security and justice, computer crime, critical infrastructure security, exchange of information, extremism, fight against crime, organised crime, terrorism

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   EUROPEAN COMMISSION  Brussels, 16.7.2025  COM(2025) 542 final 2025/0542 (COD)  Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL establishing the Union support for internal security for the period from 2028 to 2034  
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons and objectives  

In  line  with  the  Commission  Political  Guidelines  for  2024  -  2029,  the  EU  is  committed  to 
achieving  a  safer  and  more  secure  Europe.  The  Commission  has  followed  up  on  this 
commitment  by  adopting  on  1  April  2025  the  Protect  EU  Strategy  which  aims  at  meeting 
citizens’ expectations in  the field of security, by protecting them from various crime threats 
which may also have their origin outside the EU. It provides a comprehensive framework to 
strengthen  internal  security,  which  will  need  to  be  supported  with  concrete  actions  against 
hybrid threats, potential disruptions to critical infrastructure, such as energy interconnectors or 
cross-border  communication  cables,  and  supply  chains,  organised  crime  networks,  terrorist 
threats,  extremism  and  radicalisation,  as  well  as  cyberattacks,  and  foreign  manipulation  of 
information. 

For  this,  the  Member  States  must  be  adequately  supported,  within  a  coherent  yet  flexible 
financing  framework,  embedding  the  core  elements  of  the  new  approach  and  focusing  on 
essential  measures  providing  Union  added  value.  Measures  to  enhance  coordination  and 
cooperation between police and judicial authorities and other competent authorities should be 
privileged, given their relevance in the areas of preventing and combating crime, racism and 
xenophobia.  Cooperation  with  the  Union  agencies  and  bodies,  especially  as  regards  the 
exchange  of  information,  is  also  essential  to  prevent  and  combat  security-related,  such  as 
terrorism and serious and organised crime. 

The EU Security threat picture is stark and has an inherent cross-border dimension. The EU is 
increasingly  threatened  by  powerful  organised  criminal  groups,  nurtured  online  and 
infiltrating the legal economy using their illicit assets. Furthermore, terrorism remain a threat 
to the EU also fuelled by regional crisis. At the same time, hybrid threat from hostile foreign 
actors  has  shown  to  be  an  increasingly  worrying  phenomenon  that  requires  a  continuous 
effort.  Finally,  trafficking  of  vulnerable  persons  is  an  area  of  concern.  Traffickers  may  also 
engage  in  cross-border  crimes  such  as  smuggling  or  trafficking  of  drugs  and  firearms.  This 
requires a strong, coordinated Union response, based on a holistic approach, pooling together 
with  relevant  actors,  such  as  the  European  industrial  sector  and  civil  society,  and 
encompassing  several  policy  areas,  including  the  EU’s  external  action.  As  set  out  in  the 
ProtectEU Strategy, security considerations need to be integrated and mainstreamed across all 
EU legislation, policies and programmes, including EU external action.  Cooperation and the 
funding  of  internal  security-relevant  actions  in  or  in  relation  to  third  countries  should  be 
envisaged,  while  ensuring  full  coherence  and  complementarity  with  the  activities  supported 
under the Union’s  external  financing instruments  established in  accordance with  Regulation 
(EU) […] [Global Europe].  

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, strict complementarity is enforced with the 
proposal  for  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 and implementation of EU funding for shared, 
direct and indirect management. As challenges in the area of internal security are constantly 
evolving, there is also a need to respond to pressing needs and changes in policy and Union 

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priorities,  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 (EU) […] establishing the 
Union Support for asylum, migration and integration and the proposal for a Regulation (EU) 
[…]  establishing  the  Union  support  for  the  Schengen  area,  for  European  integrated  border 
management and for the common policy on visas, provide the specific legal framework for the 
Union action in the areas of efficient management of migration, European integrated border 
management  at  the  external  borders,  well-functioning  Schengen  area  and  European  visa 
policy, and internal security. These three Regulations complement each other and the proposal 
for 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) 2021/11491 while taking into account 
new  policy  developments  and  the  need  to  provide  an  agile  response  to  evolving  challenges 
concerning internal security, both within the Union and in cooperation with other countries. 

• 

Consistency with existing policy provisions 

The  Union  support  for  internal  security  will  work  in  strict  complementarity  with  the  other 
policies under the scope of the proposal for  Regulation (EU) […] establishing the European 
Fund  for  economic,  social  and  territorial  cohesion,  agriculture  and  rural,  fisheries  and 
maritime, prosperity and security, thus fostering synergies between these policies. However, 
an intensified EU policy on internal security 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 a corresponding increase of funding. 

• 

Consistency with other Union policies 

Internal  security  relies  on  the  synergies  and  coherence  with  relevant  EU  policies  such  as 
migration  and  border  management,  justice,  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 internal security.  Union support for 
the  external  dimension  of  internal  security  should  first  and  foremost  be  provided  by  Global 
Europe. 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. 

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 

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Regulation (EU) 2021/1149 of the European Parliament and of the Council of 7 July 2021 establishing 
the Internal Security Fund (OJ 251, 15.07.2021, p.194). 

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of persons is ensured in conjunction with appropriate measures with respect to external border 
controls, asylum, immigration and the prevention and combating of crime’. 

Union  action  is  justified  on  the  grounds  of  the  objectives  referred  to  in  Article  67  of  the 
Treaty  on  the  Functioning  of  the  European  Union  (TFEU),  which  sets  out  the  means  to 
constitute an area of freedom, security and justice. Attention is also drawn to Article 80 of the 
TFEU, which underlines that the Union policies and their implementation are to be governed 
by  the  principle  of  solidarity  and  the  fair  sharing  of  responsibility,  including  its  financial 
implications, between the Member States. 

This Regulation is based on Articles 82(1), 84 and 87(2) TFEU, which constitute compatible 
legal bases in the light of the specific rules that apply to decision-making under Title V of Part 
Three of TFEU. 

• 

Variable geometry 

This  Regulation  is  based  on  legal  bases  under  Title  V  of  Part  Three  TFEU,  concerning  the 
area of freedom, security and justice. As a consequence, the application of the Regulation to 
Denmark  and  Ireland  is  subject  to  special  provisions  laid  down  in  Protocol  No  21  and 
Protocol No 22 annexed to the TEU and the TFEU.  

In  accordance  with  Articles  1  and  2  of  Protocol  No  22,  Denmark  does  not  take  part  in  the 
adoption by the Council of measures proposed pursuant to Title V of Part Three TFEU, and 
such measures are not binding upon or applicable in Denmark.  

In  accordance  with  Articles  1  and  2  of  Protocol  No  21,  Ireland  does  not  take  part  in  the 
adoption by the Council of measures proposed pursuant to Title V of Part Three TFEU, and 
such measures are not  binding on or applicable in  Ireland. However,  Ireland may choose  to 
take part in the adoption and application of any such proposed measure. In addition, anytime 
after  the  adoption  of  such  a  measure,  Ireland  may  accept  the  measure,  subject  to  the 
completion of procedures referred to in Article 4 of Protocol No 21. 

• 

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  and  timely  exchange  of  information  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  the  TFEU.  The  objectives  and  corresponding  Union  support  are 
proportional to what the Union support aims to achieve.  

• 

Choice of the instrument 

The  most  appropriate  instrument  for  operating  the  current  proposal  is  a  Regulation  of  the 
European Parliament and of the Council establishing the Union support for  internal security 
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. 

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3. 

• 

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-
Police (ISF-P) for the 2014-2020 programming period confirm that the ISF-P contributed both 
to  enhancing  Member  States’  capabilities  to  combat  cross-border,  serious  and  organised 
crime,  including  terrorism,  and  to  enhance  Member  States’  capacity  to  manage  security-
related  risks  and  crises.  The  ISF-P  has  proven  to  be  efficient  and  demonstrated  effective 
management  and  control  mechanisms  to  safeguard  the  EU’s  financial  interests.  The  ISF-P 
introduced  several  changes  aimed  at  simplifying  the  ISF-P  management  and  reducing 
administrative  burden.  The  evaluation  preliminary  concludes  that  despite  some  progress, 
further  steps  are  needed  to  enhance  efficiency  and  ensure  administrative  processes  are 
proportionate to the funding provided.  

The preliminary outcomes of the mid-term evaluation of the Internal Security Fund (ISF) for 
the 2021-2027 programming period confirm that the monitoring and evaluation framework for 
the ISF has seen significant improvements compared to the 2014-2020 period. Member States 
continue to  report a high administrative burden. Simplified cost  options have contributed to 
reducing  administrative  burden,  yet  their  implementation  is  not  systematically  applied  to 
optimise spending. The ISF’s architecture was considered fit for purpose, as it has enhanced 
internal  coherence  by  fostering  complementarity  across  components.  The  ISF  was  also 
considered coherent with the Asylum Migration and Integration Fund (AMIF) and the Border 
Management and Visa  Instrument (BMVI) under the  Home Affairs Funds, other EU Funds, 
particularly  Horizon  Europe,  the  European  Social  Fund  Plus  (ESF+)  and  the  Justice 
Programme  as  well  as  with  other  programmes  applicable  to  relevant  European  industrial 
sectors and civil  society such as the Single Market  Programme, Digital  Europe Programme. 
The evaluation concludes that the ISF has addressed the needs it was meant to address and has 
been  able  to  respond  to  new  challenges  and  developments  in  the  policy  area.  The  ISF  has 
fostered  a  unified  framework  for  addressing  cross-border  internal  security  challenges,  and 
encouraged  knowledge  exchange,  and  the  promotion  of  best  practices.  Actions  supported 
through the ISF Thematic Facility have generated high EU added value advance operational 
cooperation  between  law  enforcement  and  judicial  authorities,  cooperation  with  third 
countries  and  international  organisations,  as  well  stakeholders  from  the  private  sector  and 
civil society sector. As in the case of BMVI, evaluation concludes that there is room for 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. 

• 

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  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  Regulation (EU) 
[…] establishing the European Fund for economic, social and territorial cohesion, agriculture 
and rural, fisheries and maritime, prosperity and security. 

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• 

Impact assessment 

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

4. 

BUDGETARY IMPLICATIONS 

The  indicative  financial  envelope  for  the  implementation  of  the  objectives  under  the  Union 
support  is  set  at  EUR 6 843 331 500  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  though  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  set  out  in  the  proposal  for 
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  internal 
security  for  the  period  from  1  January  2028  to  31  December  2034.  For  this,  essential 
definitions are given in Article 2, and four objectives are set out in Article 3,  which will be 
achieved through Union support 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)  […].  These  objectives  refer  to  the 
areas of Union and Member States capabilities for preventing and combating of serious and 

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organised  crime;  Member  States’  resilience  against  hybrid  threats  and  other  hostile  acts; 
exchange of information among relevant actors; operational law enforcement cooperation. 

In Article 4 the proposal lays down provisions for the financing of the Union support. 

Article 5 lays down transitional provisions. The date of the entry into force of the proposed 
Regulation is set in Article 6, which also stipulated 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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2025/0542 (COD) 

Proposal for a 

REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL 

establishing the Union support for internal security 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 82(1), 84 and 87(2) 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 Committee2, 
Having regard to the opinion of the Committee of the Regions3, 
Acting in accordance with the ordinary legislative procedure4, 

Whereas: 

(1) 

(2) 

(3) 

Internal  security  is  fundamental  to  ensuring  citizens’  safety,  protecting  their 
fundamental  rights,  and  fostering  the  strength  of,  and  the  trust  in,  our  economies, 
societies and democracies. While national security remains a competence of Member 
States, protecting it requires cooperation and coordination at Union level. The Union’s 
objective of ensuring a high level of security within an area of freedom, security and 
justice  pursuant  to  Article  67(3)  of  the  Treaty  on  the  Functioning  of  the  European 
Union  (TFEU)  should  be  achieved  through  measures  aiming  at  preventing  and 
combating crime, racism and xenophobia, and through measures for coordination and 
cooperation between police and judicial authorities and other competent authorities.  

Internal security is a shared endeavour to which the Union institutions, relevant Union 
agencies  and  Member  States  should  jointly  contribute.  To  contribute  to  the 
development and implementation of an effective and genuine Security Union, Member 
States should be provided with adequate financial resources. This Union support 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) […]. 

This  Regulation  lays  down  the  objectives  of  the  Union  support.  In  order  that  a  high 
level  of  security  throughout  the  Union  can  be  achieved  in  the  best  possible  way, 
Member  States  should  ensure  that  their  National  and  Regional  Partnership  Plans 
address each of the objectives set out by this Regulation. 

(4) 

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)  […] 

2 
3 
4 

OJ C , , p. . 
OJ C , , p. . 
Position of the European Parliament of […] and position of the Council of […]. 

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(5) 

(6) 

(7) 

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  the  Schengen  area,  for  European  integrated  border  management  and  for  the 
common policy on visas.  

(ISEC)  programme, 

The Union support should build on the results and investments in the area of internal 
security from the previous programming periods: the Prevention of and Fight Against 
the  Prevention,  Preparedness  and  Consequence 
Crime 
Management of Terrorism and other Security-related risks (CIPS) programme for the 
period  2007-2013,  and  the  instrument  for  police  cooperation,  preventing  and 
combating crime, and crisis management as part of the Internal Security Fund for the 
period  2014-2020,  established  by  Regulation  (EU)  No  513/2014  of  the  European 
Parliament  and  of  the  Council5,  and  the  Internal  Security  Fund  for  the  period  2021-
2027, established by Regulation (EU) 2021/1149 of the European Parliament and the 
Council6. 

In  a  rapidly  evolving  security  threat  and  geopolitical  landscape,  the  Commission 
defined the common  priorities for a safer and more secure Europe in  the ‘ProtectEU 
Strategy’7.  The  geopolitical  context  in  Europe  has  significantly  changed,  and  it  has 
profoundly affected the interconnectedness of the EU’s internal and external security. 
Security threats are increasingly global and complex, stemming from criminals’ ability 
to  operate  across  borders,  exploit  social  and  economic  disparities,  and  navigate 
between  the  physical  and  digital  worlds.  At  the  same  time,  new  digital  technologies 
and  artificial  intelligence  offer  significant  opportunities  to  enhance  law  enforcement 
and judicial capabilities and address these evolving threats effectively. 

The  Union  support  should  concentrate  on  actions  for  which  Union  intervention  can 
bring greater added value compared with action by Member States alone. Security has 
an  inherently  cross-border  dimension  and  therefore  a  strong,  coordinated  Union 
response is required. Therefore, the Member States National and Regional Partnership 
Plans  should  contribute  to  effectively  addressing  the  challenges  identified  in  the 
context  of  the  ‘ProtectEU  Strategy’.  In  line  with  the  shared  priorities  identified  at 
Union level to ensure a high level of security in the Union, the Union support should 
concern measures aimed at  addressing the main  security threats  and, in  particular, at 
preventing  and  combating  serious  and  organised  crime,  including  terrorism,  violent 
extremism, and cybercrime. 

5 

6 

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Regulation  (EU)  No  513/2014  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  police 
cooperation, preventing and combating crime, and crisis management and repealing Council Decision 
2007/125/JHA (OJ L 150, 20.5.2014, p. 93, ELI: http://data.europa.eu/eli/reg/2014/513/oj)). 
Regulation (EU) 2021/1149 of the European Parliament and of the Council of 7 July 2021 establishing 
the Internal Security Fund (OJ 251, 15.07.2021, p.194,ELI: http://data.europa.eu/eli/reg/2021/1149/oj). 
Communication COM(2025) 148 final of 1.4.2025  from the Commission to the European  Parliament, 
the  Council,  the  European  Economic  and  Social  Committee  and  the  Committee  of  the  Regions  on 
ProtectEU: a European Internal Security Strategy. 

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(8) 

(9) 

(10) 

The  Union  support  should  finance  measures  of  Member  States  in  the  field  of  crime 
prevention,  joint  training  of  staff  and  police  cooperation,  as  well  as  judicial 
cooperation  in  criminal  matters  involving  Member  States’  competent  authorities  and 
Union  agencies  and  bodies,  especially  as  regards  the  exchange  of  information, 
increased  operational  cooperation  and  support  for  necessary  efforts  to  strengthen 
capabilities  to  prevent  and  combat  terrorism  and  serious  and  organised  crime.  The 
Union support should not  cover operating costs and activities related to  the essential 
functions of the Member States concerning the maintenance of law and order and the 
safeguarding of internal and national security. 

Security is the bedrock upon which all our freedoms are built and that Member States 
ability  to  guarantee  security  for  the  citizens  is  contingent  on  a  unified  European 
approach.  As  set  out  in  the  ProtectEU  Strategy,  security  considerations  need  to  be 
integrated  and  mainstreamed  across  all  EU  legislation,  policies  and  programmes, 
including  EU  external  action.  The  Union  support  under  this  Regulation  should 
contribute to address these considerations. 
In  its  conclusions  of  26  June  20258,  the  European  Council  recalled  that  serious  and 
organised  crime,  terrorism,  radicalization  and  violent  extremism,  both  online  and 
offline,  represent  a  major  threat  to  European  citizens  and  the  security  of  Member 
States.  The  European  Council  also  underlined  the  threat  posed  by  the  criminal 
infiltration of legal business structures that has a detrimental impact on public finances 
and  the  Single  Market.  The  European  Council  called  the  Union  Institutions  and  the 
Member States to mobilise all available resources at national and EU level and to take 
further  action  to  strengthen  law  enforcement  and  judicial  cooperation,  including  on 
effective  access  to  data  for  law  enforcement  purposes  and  by  ensuring  information 
exchange, and through cooperation with third countries.  

(11)  To prevent and combat internal security threats,  the Union support should strengthen 
Member  States’  capabilities  to  prevent  and  combat  serious  and  organised  crime, 
terrorism,  violent  extremism  and  radicalisation,  child  sexual  abuse  and  exploitation, 
cybercrime  and  actions  addressing  digital  and  technological  security  challenges,  the 
resilience  of  critical  infrastructure  online  threats,    security  threats  in  the  maritime 
domain,  trafficking  in  human  beings,  migrants  smuggling,  illicit  drugs  trafficking, 
illicit  arms  trafficking,  money  laundering,  asset  recovery  and  financial  crime, 
environmental  crime,  counterfeiting  of  means  of  payment  and  crimes  affecting  the 
Union’s financial interests, assisting and protecting victims of crime, protecting public 
spaces,  and  addressing  CBRN-E  related  security  threats  and  managing  incidents, 
including  through  increased  cooperation  and  information  exchange  between  public 
authorities,  relevant  Union  bodies,  offices  or  agencies,  civil  society  and  private 
partners  in  different  Member  States.  The  Union  support  should  also  contribute  to 
Member  States’  acquisition  and 
innovative  methods  and 
technologies  in  the  field  of  internal  security,  in  particular  those  supported  by 
Regulation (EU) […] establishing the European Competitiveness Fund and Regulation 
(EU) […] establishing the EU Framework Programme for Research. In addition, in a 
changing  global  political  landscape,  the  external  dimension  of  the  area  of  freedom, 
security  and  justice  is  of  key  importance.  Therefore,  the  Union  support  should  also 
contribute  to  the  strengthening  of  cooperation  and  partnership  with  third  countries, 
serving the interests of internal Union policies. 

implementation  of 

8 

Council conclusions, EUCO 12/25 of 26 June 2025. 

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(12)  The  Union  support  should  contribute  to  ensuring  consistency,  coherence,  synergies 
and complementarities between the Union’s internal and external policies, in line with 
the mainstreaming of security. In that context, the Union support under this Regulation 
should  in  particular,  contribute  to  combating  and  preventing  serious  and  organised 
crime,  including  drug  trafficking,  trafficking  in  human  beings,  and  cross-border 
criminal  smuggling networks.  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. 

(13)  As challenges in the area of security are constantly evolving, there is a need to adapt 
the  allocation  of  Union  support  under  this  Regulation  to  changes  in  internal  and 
external  security  threats  and  a  need  to  steer  funding  towards  the  priorities  with  the 
highest Union added value. To respond to pressing needs and to 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  under  this  Regulation  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. 

(14)  The Commission and the Member States should ensure that the knowledge, expertise 
and experience of relevant Union bodies, offices and agencies are taken into account 
in  the  development  of  Member  States’  National  and  Regional  Plans  and  when 
implementing measures or addressing challenges in relation to 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. 

(15)  There is a need to maximise the impact of Union funding by mobilising, pooling and 
leveraging public and private financial resources. The Union support should promote a 
whole of society approach, encouraging the active and meaningful involvement of the 
European  industrial  sector,  as  well  as  civil  society,  including  non-governmental 
organisations,  in  the  development  and  implementation  of  security  policy,  where 
relevant with the involvement of other relevant actors, Union bodies, Union agencies 
and  international  organisations  in  relation  to  the  objectives  of  the  Union  support. 
However, it should be ensured that the Union support is not used to delegate statutory 
or public tasks to private actors. 

(16)  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.  

(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. 

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(18)  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. 

(19) 

(20) 

In  accordance  with  Articles  1  and  2  of  Protocol  No  22  on  the  position  of  Denmark, 
annexed  to  the  Treaty  on  European  Union  (TEU)  and  to  the  TFEU,  Denmark  is  not 
taking part in the adoption of this Regulation and is not bound by it or subject to its 
application. 

[In  accordance  with  Article  3  of  Protocol  No  21  on  the  position  of  the  United 
Kingdom and Ireland in respect of the area of freedom, security and justice, annexed 
to the Treaty on European Union (TEU) and the TFEU, Ireland has notified [, by letter 
of …,] its wish to take part in the adoption and application of this Regulation. 

OR 

In accordance with Articles 1 and 2 of Protocol No 21 on the position of the United 
Kingdom and Ireland in respect of the area of freedom, security and justice, annexed 
to the Treaty of the European Union (TEU) and to the TFEU, and without prejudice to 
Article 4 of that Protocol, Ireland is 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  internal 
security for the period from 1 January 2028 to 31 December 2034. 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: 

(1) 

‘competent  authorities’  means  the  Member  State  authorities  responsible  for  the 
prevention, detection and investigation of criminal offences, as referred to in Article 
87(1)  TFEU,  including  police,  customs  and  other  specialised  law  enforcement 
services; 

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(2) 

(3) 

(4) 

(5) 

(6) 

(7) 

(8) 

(9) 

1. 

9 

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‘prevention’, in relation to crime, means all measures that are intended to reduce or 
otherwise contribute to reducing crime and citizens’ feeling of insecurity, as referred 
to in Article 2(2) of Council Decision 2009/902/JHA9; 

‘exchange of information’ means the secure collection, storage, processing, analysis 
and  transfer  of,  and  access  to,  information  relevant  to  the  authorities  referred  to  in 
Article 87 of the TFEU as well as to Europol, and other relevant Union agencies and 
bodies  in  relation  to  the  prevention,  detection,  investigation  and  prosecution  of 
criminal  offences,  in  particular  cross-border  serious  and  organised  crime,  including 
cybercrime and terrorism; 

‘organised  crime’  means  punishable  conduct  relating  to  participation  in  a  criminal 
organisation,  as  defined  in  Article  1,  point  (1)  of  Council  Framework  Decision 
2008/841/JHA10; 

‘terrorism’  means  any  of  the  intentional  acts  and  offences  referred  to  in  Directive 
(EU) 2017/541 of the European Parliament and of the Council11; 

‘radicalisation’  means  a  phased  and  complex  process  leading  to  violent  extremism 
and terrorism and in which an individual or a group of individuals embraces a radical 
ideology  or  belief  that  accepts,  uses  or  condones  violence,  including  acts  of 
terrorism, to reach a specific political, religious or ideological goal; 

‘cybercrime’  means  either  crimes  whose  commission  necessarily 
involves 
information  and  communications  technology  systems  (ICT  systems),  which  are  the 
tools for committing those crime or their primary targets (cyber-dependent crimes), 
or  traditional  crimes  which  can  be  increased  in  scale  or  reach  by  the  use  of 
computers, computer networks or other ICT systems (cyber-enabled crimes); 

‘operational  law  enforcement  cooperation’  means  the  operational  cooperation 
between the authorities  of two or more  of the  Member States  referred  to  in  Article 
87(3) TFEU or the operation of the competent authorities of one Member State in the 
territory of another Member State, as referred to in Article 89 TFEU; 

‘hybrid  threat’  means  all  harmful  activities,  including  information  manipulation, 
cyberattacks  and  instrumentalization  of  migrants,  that  are  planned  and  carried  out 
with malign intent in a coordinated manner with the aim of undermining a Member 
State or any of its institutions. 

Article 3 

Objectives for the Union support for internal security 

In  order  to  ensure  a  high  level  of  internal  security  in  the  Union,  the  support  shall 
contribute to the following objectives: 

Council  Decision  2009/902/JHA  of  30  November  2009  setting  up  a  European  Crime  Prevention 
Network  (EUCPN)  and  repealing  Decision  2001/427/JHA  (OJ  L  321,  8.12.2009,  p.  44,  ELI: 
http://data.europa.eu/eli/dec/2009/902/oj). 
Council Framework Decision 2008/841/JHA of 24 October 2008 on the fight  against organised crime, 
(OJ L 300, 11.11.2008, p. 42, ELI: http://data.europa.eu/eli/dec_framw/2008/841/oj). 
Directive  (EU)  2017/541  of  the  European  Parliament  and  of  the  Council  of  15  March  2017  on 
combating terrorism and replacing Council Framework Decision 2002/475/JHA and amending Council 
Decision 2005/671/JHA, (OJ L 88, 31.3.2017, p. 6, ELI: http://data.europa.eu/eli/dir/2017/541/oj). 

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(a) 

(b) 

(c) 

(d) 

strengthening  the  Union’s  and  Member  States’  capabilities  in  relation  to 
preventing  and  combating  serious  and  organised  crime,  online  and  offline, 
including  terrorism,  violent  extremism,  cybercrime,  child  sexual  abuse  and 
exploitation, and hybrid threats, as well as in relation to protecting citizens and 
public  spaces  from  attacks,  including  through  innovative  methods  and  new 
technologies in the area of internal security;  

fostering  Member  States’  capabilities  by  enhancing  the  resilience  of  critical 
entities against hostile acts, and managing security-related incidents, risks and 
crises, also by means of interoperable critical communication systems; 

improving  and  facilitating  the  exchange  of  information  between  and  within 
competent  authorities  and  relevant  Union  bodies,  offices  and  agencies  and, 
where appropriate, with third countries, international organisations and private 
parties; 

improving and intensifying operational law enforcement cooperation, including 
joint  operations,  between  competent  authorities  in  relation  to  preventing  and 
combating serious and organised crime, online and offline, including terrorism, 
violent  extremism,  cybercrime,  child  sexual  abuse  and  exploitation,  hybrid 
threats,  as  well  as  in  relation  to  protecting  citizens  and  public  spaces  from 
attacks;  

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  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 6 843 331 500  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. 

1. 

2. 

3. 

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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 

Transitional provisions  

This Regulation shall not affect the continuation or modification of the actions initiated under 
Regulation (EU) 2021/1149, which shall continue to apply to the actions concerned until their 
closure. 

Article 6 

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. 

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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 

For the Council 

The President 

The President 

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