DRAFT AMENDING BUDGET No 3 TO THE GENERAL BUDGET 2025 Adjustment in payment appropriations, update of revenues and other technical updates
Date: 2025-10-03
Institutions: Directorate-General for Budget, European Commission
Subjects: EU expenditure, amending budget, budgetary resources, commitment of expenditure, draft budget (EU), financial year, general budget (EU), own resources, payment appropriation

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 3.10.2025  COM(2025) 850 final 2025/0319 (BUD)    DRAFT AMENDING BUDGET No 3 TO THE GENERAL BUDGET 2025  Adjustment in payment appropriations, update of revenues and other technical updates  
 
 
Having regard to: 

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‒ 

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‒ 

‒ 

the Treaty on the Functioning of the European Union, and in particular Article 314 
thereof,  in  conjunction  with  the  Treaty  establishing  the  European  Atomic  Energy 
Community, and in particular Article 106a thereof, 

Council Decision (EU, Euratom) 2020/2053 of 14 December 2020 on the system of 
own resources of the European Union1, entered into force on 1 June 2021, 

Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council 
of 23 September 2024 on the financial rules applicable to the general budget of the 
Union (recast)2, and in particular Article 44 thereof, 

the general budget of the European Union for the financial year 2025, as adopted on 
27 November 20243, 
amending budget No 1/20254, adopted on 9 July 2025, 
draft amending budget No 2/20255, adopted on 4 July 2025, 

The European Commission hereby presents to the European Parliament and to the Council the 
draft amending budget No 3 to the 2025 budget. 

CHANGES  TO  THE  STATEMENT  OF  REVENUE  AND  EXPENDITURE  BY 
SECTION 

The changes to the general statement of revenue and to the individual section III are available 
on EUR-Lex (https://eur-lex.europa.eu/budget/www/index-en.htm). 

1  

2  
3  
4  
5  

Council Decision (EU, Euratom) 2020/2053 of 14 December 2020 on the system of own resources of the 
European Union and repealing Decision 2014/335/EU, Euratom, OJ L 424, 15.12.2020. 
OJ L, 2024/2509, 26.9.2024, ELI: http://data.europa.eu/eli/reg/2024/2509/oj. 
OJ L, 2025/31, 27.2.2025, ELI: http://data.europa.eu/eli/budget/2025/31/oj. 
OJ L, 2025/1565, 12.9.2025, ELI: http://data.europa.eu/eli/budget_suppl_amend/2025/1565/oj. 
COM(2025) 410, 4.7.2025   

1 

 
 
 
 
 
 
Contents 

2.1 
2.2 
2.3 
2.4 
2.5 
2.6 

INTRODUCTION ....................................................................................................................................................... 3 
1. 
2.  UPDATE OF EXPENDITURE ITEMS .................................................................................................................... 5 
INCREASED NEEDS IN PAYMENT APPROPRIATIONS ................................................................................................ 5 
SUSTAINABLE FISHERIES PARTNERSHIP AGREEMENTS (SFPAS) .......................................................................... 6 
DECREASE IN COMMITMENTS FOR THE CUSTOMS CONTROL EQUIPMENT INSTRUMENT ........................................ 6 
DECREASE IN COMMITMENTS FOR THE TECHNICAL SUPPORT INSTRUMENT .......................................................... 7 
DECREASE IN PAYMENTS FOR THE UKRAINE FACILITY ......................................................................................... 7 
ADDITIONAL ADJUSTMENTS TO DECENTRALISED AGENCIES ................................................................................. 8 
2.6.1 Reduction for the Anti-Money Laundering Authority (AMLA) ............................................................................. 8 
2.6.2 Return of a reserve – European Insurance and Occupational Pensions Authority (EIOPA) and European 
Securities and Markets Authority (ESMA) .................................................................................................................... 8 
2.6.3 Increase for the European Centre for Disease Prevention and Control (ECDC) ................................................ 8 
2.6.4 Transfer from the EU Asylum Agency (EUAA) to the Asylum, Migration and Integration Fund (AMIF) 
programme .................................................................................................................................................................... 8 
2.6.5 Return of a reserve to the LIFE programme - European Chemicals Agency (ECHA) and European 
Environment Agency (EEA) ........................................................................................................................................... 9 
2.6.6 Return of a reserve to the CEF Transport programme – European Maritime Safety Agency (EMSA) ................ 9 
2.6.7 Return of a reserve to the Single Market Programme – European Food Safety Authority (EFSA).................... 10 
3.  UPDATE OF REVENUE.......................................................................................................................................... 10 
FINES AND PENALTY PAYMENTS ......................................................................................................................... 10 
TOR SURPLUS ..................................................................................................................................................... 11 
IMPACT ON THE GNI-BASED OWN RESOURCE CONTRIBUTION FOR 2025 ............................................................. 11 
FINANCING .............................................................................................................................................................. 11 
SUMMARY TABLE BY MFF HEADING ............................................................................................................. 13 

3.1 
3.2 
3.3 

4. 
5. 

2 

 
 
 
 
EXPLANATORY MEMORANDUM 

1. 

INTRODUCTION 

The purpose of Draft Amending Budget (DAB) No 3 for the year 2025 is to update both the expenditure 
and revenue side of the budget. 

The proposed changes on the expenditure side of the budget concern the following elements: 

1.  An increase in the level of payment appropriations for the European Regional Development Fund 
(ERDF) for an amount of  EUR 2 billion, for the European Social Fund Plus (ESF+) for an amount 
of EUR 0,7 billion and for the Border Management and Visa Instrument (BMVI) for an amount of 
EUR  357  million.  These  amounts  could  not  be  included  in  the  redeployments  proposed  in  the 
‘Global transfer’ (DEC 15/2025) submitted to Parliament and Council on 3 October 2025; 

2.  An update of the needs for the Sustainable Fisheries Partnership Agreements (SFPAs), taking into 

account the latest developments; 

3.  A  decrease  in  commitment  and  payment  appropriations  for  the  Customs  Control  Equipment 

Instrument (CCEI) due to delays in implementation in the Member States; 

4.  A  decrease  in  commitments  for  the  Technical  Support  Instrument  due  to  efficiency  gains  from 

competitive procurement procedures; 

5.  A decrease in payment appropriations for the Ukraine Facility as the 2025 payment profile has been 
impacted  by  changes  to  assumptions  such  as  in  the  pace  of  implementation  of  reforms  and 
investments,  the  date  of  signature  of  guarantee  and  blending  agreements,  and  the  timing  of  the 
payment of the borrowing costs subsidies; 

6.  An adjustment of the EU contribution to several decentralised agencies, linked to implementation 

or other specific reasons, as follows: 

-  A  decrease  of  the  commitment  and  payment  appropriations  allocated  to  the  Anti-Money 
Laundering Authority (AMLA), as a significant number of the staff that AMLA has recruited 
will only take up post towards the end of 2025; 

-  A  return  of  commitment  and  payment  appropriations  by  the  European  Insurance  and 
Occupational Pensions Authority (EIOPA) and European Securities Markets Authority (ESMA) 
because of delays in the adoption of the Retail investment strategy; 

-  An increase in commitment and payment appropriations for the European Centre for Disease 
Prevention and Control (ECDC) to cover the financial impact of exchange rate fluctuations; 

-  A  decrease  in  commitment  and  payment  appopriations  allocated  to  the  EU  Asylum  Agency 
(EUAA), due to the fact that EUAA’s activities to support the implementation of the Pact on 
Migration  and  Asylum  will  now  only  start  in  2026.  The  returned  commitment  and  payment 
appropriations will be transferred to the Asylum and Migration Fund (AMIF) Thematic Facility 
to support AMIF’s own activities in implementing the Pact and to cover an increased need for 
payment appropriations as a result of higher-than-expected interim payments to Member States; 

-  A return of commitment and payment appropriations to the programme for the Environment and 
Climate  Action  (LIFE)  by  the  European  Chemicals  Agency  (ECHA)  and  the  European 
Environment Agency (EEA). This is due to delays in the adoption of the proposals on Integrated 
Water Management/Zero Pollution Package, Green Claims, Forest Monitoring and also due to 
reduced  needs  in  2025  for  the  early  stages  of  the  implementation  of  the  Regulation  on 
reattribution of tasks in the area of chemicals; 

-  A return of commitment and payment appropriations to the Connecting Europe Facility (CEF) 
transport programme by the European Maritime Safety Agency (EMSA)  due to delays in the 
adoption of the maritime safety package. 

3 

 
-  A return of commitment and payment appropriation  to the Single Market Programme (SMP) 
Food line) by the European Food Safety Authority (EFSA) due to delays in the adoption of the 
proposal on new genomic techniques.  

Overall, the net impact of this DAB on expenditure amounts to a decrease of EUR 123,7 million in 
commitment appropriations and an increase of EUR 2 517,0 million in payment appropriations. 

On the revenue side, this DAB incorporates an additional EUR 1 185,1 million of definitive fines and 
penalty payments paid until 30 September 2025 and EUR 1 300 million of the estimated TOR surplus. 
The overall impact on the revenue side is thus an increase in GNI contributions of EUR 31,9 million. 

4 

 
 
 
2. 

UPDATE OF EXPENDITURE ITEMS 

2.1 

Increased needs in payment appropriations 

The ‘Global transfer’ is an annual exercise organised within the Commission, in which all Directorates-
Generals  and  Services  are  requested  to  review,  by  early  September,  their  respective  payment 
implementation  of  the  current  budget  until  the  end  of  the  year  concerned.  This  exercise  aims  to 
determine exact needs and ensure maximum implementation of the budget in payment appropriations 
at year-end by matching additional needs with expected under-implementation. A request for a transfer 
in  accordance  with  Article  31  of  the  Financial  Regulation  is  submitted  annually  to  the  European 
Parliament and to the Council as a result. 

The  ‘Global  transfer’  exercise  showed  that  the  remaining  voted  budget  and  the  available  assigned 
revenues  will  not  be  sufficient  to  cover  estimated  payment  needs  until  the  end  of  the  year  for  the 
European  Regional  Development  Fund  (ERDF),  the  European  Social  Fund  Plus  (ESF+)  and  the 
Instrument for Border Management and Visa Policy (BMVI). Therefore, the Commission proposes to 
reinforce the ERDF, ESF+ and BMVI  programmes as follows:  

•  Cohesion 2021-2027 programmes  

After a slower start to the cohesion policy programmes in the 2021-2027 period due to the late adoption 
of  the  regulatory  framework  and  the  focus  of  managing  authorities  on  implementing  funding 
instruments with a shorter deadline, implementation is now clearly picking up. The 2024 budget was 
fully  executed,  including  the  reinforcement  of  EUR  2,9  billion  in  Amending  Budget  No  5  and  all 
available assigned revenue, with a normal backlog (close to EUR 5 billion) of payment applications that 
remained unpaid at the end of the year. These claims were paid at the beginning of 2025, thus consuming 
2025 voted budget appropriations. Moreover, uptake of the Strategic Technologies for Europe Platform 
(STEP) has been higher than initially expected, with EUR 11,7 billion of cohesion resources allocated 
to STEP priorities as of September 2025. The Member States’ forecasts submitted in July 2025 and the 
evolution of the project selection rate (close to 50% as of June 2025, compared to 23%  a year ago) 
confirm the acceleration of implementation on the ground and the need for a reinforcement to cover all 
the estimated needs until year-end. 

• 

Instrument for Financial Support for Border Management and Visa Policy (BMVI) 

An increase of EUR 357 million in payment appropriations for BMVI in order to honour higher-than-
expected  interim  payments  (stemming  from  increased  payment  forecasts  by  Member  States)  and  to  
cover the normal backlog from 2024 paid early in 2025. 

The detailed increase in payment appropriations requested in this DAB 3/2025 is set out below: 

Budget line  Name 

Section III – Commission 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

05 02 01 

07 02 01 

ERDF — Operational expenditure 

ESF+ shared management strand – Operational expenditure 

11 02 01  

Instrument for Financial Support for Border Management and Visa Policy 

Total 

0 

0 

0 

0 

2 000 000 000 

700 000 000 

357 000 000 

3 057 000 000 

5 

 
 
 
2.2 

Sustainable Fisheries Partnership Agreements (SFPAs) 

The  Commission  negotiates,  concludes  and  implements  bilateral  Sustainable  Fisheries  Partnership 
Agreements (SFPAs) between the European Union and partner third countries.  At the time the 2025 
budget  was  established,  several  agreements  and  protocols 
these  agreements 
(‘implementing protocols’) remained under negotiation. Due to this, and in line with Article 49 of the 
Financial Regulation and with point 20 of the Inter-Institutional Agreement of 16 December 20206, an 
amount  of  EUR  39,9  million  in  commitment  appropriations  and  EUR  22,4  million  in  payment 
appropriations remains available in the form of reserves. 

implementing 

The status of the relevant implementing protocols and negotiations: 

•  The  current  implementing  protocol  with  Côte  d’Ivoire  was  signed  on  6  June  2025  and  has 
provisionally applied from that date, covering the period from 6 June 2025 to 5 June 2029. 

•  Negotiations with São Tomé have concluded and a new implementing protocol is expected to 

be signed and to enter into provisional application in October 2025. 

•  Negotiations  with  the  Cook  Islands  have  concluded  and  a  new  implementing  protocol  is 

expected to be signed and to enter into provisional application in December 2025. 

•  Regarding a new implementing protocol with Gabon, a Recommendation for a Council Decision 
authorising  the  opening  of  negotiations  (COM(2025)  465)  was  adopted  on  8  September. 
Signature and provisional application of the protocol is not expected in 2025.  

•  Regarding  a  new  implementing  protocol  with  Seychelles,  following  the  adoption  of  a 
Recommendation  for  a  Council  Decision  authorising  the  opening  of  the  negotiations 
(COM(2025)  269),  the  negotiations  are  ongoing.  The  signature  of  the  new  protocol  is  not 
expected until the first quarter of 2026. 

Regarding remaining appropriations in reserve: 

•  For Morocco, the judgment of the Court of Justice in joined cases C-778/21 P Commission v 
Front Polisario and C-798/21 P Council v Front Polisario on 4 October 2024 has resulted in the 
need for a new agreement and implementing protocol,  neither of which is expected to be signed 
and to enter into provisional application in 2025.  

•  For Angola, Guinea, Liberia and Senegal, Council Decisions on opening of negotiations for new 

implementing protocols have not been adopted yet. 

The Commission therefore proposes to cancel the amounts in reserve that will not be needed in 2025, 
which correspond to EUR 39,9 million in commitment appropriations and EUR 22,4 million in payment 
appropriations. This also reflects the fact that Draft Budget 2026 already provides appropriations in the 
SFPA  reserve  line  to  cover  protocols  which  are  instead  expected  to  be  signed  in  2026.  The  overall 
impact on expenditure is therefore as follows: 

Budget line  Name 

Section III – Commission 
30 02 02 
Total 

Differentiated appropriations (Reserve for budget article 08 05 01) 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

- 39 947 143  
-39 947 143 

- 22 392 143 
-22 392 143 

6  

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

6 

 
 
 
2.3 

Decrease in commitments for the Customs Control Equipment Instrument 

Commitment appropriations for the Customs Control Equipment Instrument (CCEI) were reduced by 
EUR 68,4 million in Draft Amending Budget 2 due to delays in implementation in the Member States, 
with  the  funds  then  shifted  to  other  priorities  such  as  Customs  Reform  and  the  Carbon  Border 
Adjustment Mecahnism (CBAM). In addition, a third CCEI call on e-commerce planned for 2025 has 
been postponed to 2026, to ensure maximum efficiency in the spending of EU funds and alignment with 
the work of the forthcoming EU Customs Authority. These changes in priorities resulted in lower needs 
for  CCEI  in  2025  of  EUR  78,03  million  in  commitments  and  EUR  47,86  million  in  payments. The 
overall impact on expenditure is therefore as follows: 

Budget line 

Name 

Section III – Commission 
11 03 01 
Total 

Instrument for financial support for customs control equipment 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

-78 032 393 
-78 032 393 

-47 859 845 
-47 859 845 

2.4 

Decrease in commitments for the Technical Support Instrument 

With  the  Technical  Support  Instrument  (TSI),  the  Commission  provides  tailor-made  expertise  to 
Member  States  to  enhance  the  needed  institutional  and  administrative  capacity  to  develop  and 
implement  growth-enhancing  reforms.  For  2025,  a  reduction  of  EUR  5  million    in  commitment 
appropriations for the TSI is proposed, with an equivalent reduction in payment appropriations included 
in the Global Transfer. The proposed reduction is due to efficiency gains from competitive procurement 
procedures. The overall impact on expenditure is therefore as follows: 

Budget line 

Name 

Section III – Commission 
06 02 02 
Total 

Technical Support Instrument 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

-5 000 000 
-5 000 000 

0 
0 

2.5 

Decrease in payments for the Ukraine Facility 

The initial payment profile for 2025 under the Ukraine Facility was based on a series of assumptions, 
notably regarding the pace of implementation of reforms and investments under the Ukraine Plan, the 
date of signature of guarantee and blending agreements and the timing of the payment of the borrowing 
cost  subsidies.  Based  on  the  latest  forecasts,  a  surplus  of  payment  appropriations  close  to  EUR  1,2 
billion is expected by the end of 2025.  

While close to EUR 0,7 billion of this surplus needs to be carried over to 2026 (e.g. for withheld funds 
for  reforms  and  investments  that  can  still  be  disbursed  up  to  12  months  after  an  initial  negative 
assessment),  the  rest  (EUR  469  million)  can  be  postponed  to  2027  based  on  revised  disbursement 
assumptions. This is notably the case for a share of the payment flows related to the blending agreements 
(based on the actual pace of signature and payment patterns) and for a share of the payment flows for 
borrowing cost subsidies (where each quarterly borrowing costs are only disbursed at the start of the 
next quarter). The overall impact on expenditure is therefore as follows: 

Budget line  Name 

Section III – Commission 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

16 06 02 02 

Other actions under the Ukraine Investment Framework 

0 

-400 000 000 

7 

 
 
 
16 06 03 02 

Borrowing costs subsidy 

Total 

0 

0 

-69 000 000 

-469 000 000 

2.6 

Additional adjustments to decentralised agencies 

2.6.1 Reduction for the Anti-Money Laundering Authority (AMLA) 

The Anti-Money Laundering Authority (AMLA) included in its 2025 budget the full-year costs for a 
portion of their staff posts and half-year costs for the rest of the posts. However, due to most recruitments 
having only taken place in the last few months of 2025, the allocated budget for personnel costs will not 
be fully exhausted. AMLA’s budget is thus proposed to be decreased by EUR 600 000 in commitment 
and payment appropriations for 2025. The overall impact on expenditure is therefore as follows: 

Budget line  Name 

Section III – Commission 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

03 10 05 

Total 

Anti-Money Laundering Authority (AMLA) 

-600 000 

-600 000 

-600 000 

-600 000 

2.6.2 Return of a reserve – European Insurance and Occupational Pensions Authority (EIOPA) and 

European Securities and Markets Authority (ESMA) 

In the 2025 budget, EUR 0,9 million in both commitment and payment appropriations were put in a 
reserve to the benefit of EIOPA and ESMA for the implementation of the Retail investment strategy. 
Given the slow progress in negotiating the proposed legislation, it is expected that these agencies will 
not be able to utilise these amounts. Therefore, the amount of the reserve for EIOPA and ESMA of 
EUR 379 000 and EUR 484 000 respectively will be returned as follows: 

Budget line  Name 

Section III – Commission 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

30 02 02 

30 02 02 
Total 

Differentiated appropriations (Reserve for budget article 03 10 03) 

Differentiated appropriations (Reserve for budget article 03 10 04) 

-379 000 

-484 000 

-863 000 

-379 000 

-484 000 

-863 000 

2.6.3 Increase for the European Centre for Disease Prevention and Control (ECDC) 

A small increase of EUR 700 000 in commitment and payment appropriations to the subsidy line of the 
ECDC  is  requested.  This  will  cover  the  financial  impact  of  exchange  rate  fluctuations,  which  have 
affected both staff remuneration and administrative costs. The overall impact on expenditure is therefore 
as follows: 

Budget line  Name 

Section III – Commission 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

06 10 01 
Total 

European Centre for Disease Prevention and Control 

700 000 

700 000 

700 000 

700 000 

2.6.4 Transfer from the EU Asylum Agency (EUAA) to the Asylum, Migration and Integration Fund 

(AMIF) programme 

The mid-term revision of the MFF provided an additional EUR 2 billion for the implementation of the 
Pact on Migration and Asylum and to support frontline Member States in managing urgent challenges 
8 

 
 
 
 
 
and needs related to migration and border management. As part of this, the EU Asylum Agency (EUAA) 
was  allocated  an  additional  EUR  53  million  and  75  contract  agents  in  2025,  in  line  with  its  new 
responsibilities under the Pact. As the EUAA’s specific activities are now mostly expected to commence 
in 2026, it is proposed to reduce this allocation by EUR 48 million in commitment appropriations and 
by EUR 45 million in payment appropriations.  

The commitment appropriations will be transferred to the AMIF programme to support AMIF’s own 
activities to implement the Pact on Migration and Asylum. The payment appropriations will be used by 
the AMIF  thematic  facility  to  honour  the  higher-than-expected  interim  payments  to  Member  States, 
linked to the payment appropriations gap from 2024 carried over to 2025. 

Budget line  Name 

Section III – Commission 

10 10 01 

European Union Agency for Asylum (EUAA) 

10 02 01 

Total 

 Asylum, Migration and Integration Fund (AMIF) 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

-48 000 000 

48 000 000 

0 

-45 000 000 

45 000 000 

0 

2.6.5  Return  of  a  reserve  to  the  LIFE  programme  -  European  Chemicals  Agency  (ECHA)  and 

European Environment Agency (EEA)  

In the 2025 budget, commitment and payment appropriations worth EUR 6,4 million, originating from 
the LIFE programme, were put in a reserve to the benefit of the European Chemicals Agency (ECHA) 
and  European  Environment  Agency  (EEA),  pending  the  legislative  negotiations  of  the  proposals  on 
Integrated Water Management/Zero Pollution Package, on Green Claims, on Forest Monitoring and the 
reattribution  of  tasks  in  the  area  of  chemicals.  Due  to  delays  in  the  legislative  procedure  of  these 
proposals  and  to  reduced  needs  in  2025  as  a  result  of  the  delayed  start  of  implementation  for  the 
Regulation  on  reattribution  of  tasks,  the  Commission  proposes  to  return  the  corresponding 
appropriations to the LIFE programme, as follows: 

Budget line  Name 

Section III – Commission 

30 02 02 

30 02 02 

09 02 01 

Differentiated appropriations (Reserve for budget article 09 10 01) 

Differentiated appropriations (Reserve for budget article 09 10 02) 

Nature and biodiversity 

09 02 02  

Circular economy and quality of life 

09 02 03 
Total 

Climate change mitigation and adaptation 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

-3 483 742 

-2 899 553 

290 858 

5 801 579 

290 858 

0 

-3 483 742 

-2 899 553 

290 858 

5 801 579 

290 858 

0 

2.6.6 Return of a reserve to  the  CEF Transport programme – European Maritime Safety Agency 

(EMSA) 

The  2025  budget  for  EMSA  includes  EUR  1,791  million  of  reserves  in  commitment  and  payment 
appropriations  that  were  put  in  a  reserve  pending  the  outcome  of  the  legislative  negotiations  of  the 
revised Founding Regulation of the agency. This amount was offset against a compensatory reduction 
in CEF Transport. As the adoption is expected to take place late in Q4 of 2025, the agency will not be 
able  to  absorb  and  implement  the  appropriations  in  a  timely  manner.  The  Commission  therefore 
proposes to return the corresponding appropriations to the CEF programme, as follows:  

Budget line  Name 

Commitment 

Payment 

EUR 

9 

 
 
 
Section III – Commission 

30 02 02 

02 03 01 
Total 

Differentiated appropriations (Reserve for budget article 02 10 02) 

Connecting Europe Facility (CEF) — Transport 

-1 791 000 

1 791 000 

0 

-1 791 000 

1 791 000 

0 

appropriations 

appropriations 

2.6.7 Return of a reserve to the Single Market Programme – European Food Safety Authority (EFSA)   

In the 2025 budget, commitment and payment appropriations of EUR 0,4 million and EUR 0,08 million 
respectively, originating from the SMP Food programme, were put in a reserve to the benefit of the 
European Food Safety Authority (EFSA), pending the legislative negotiations of the proposal on plants 
obtained by certain new genomic techniques and their food and feed. Due to delays in the legislative 
procedure of this proposal, the Commission proposes to return the corresponding appropriations to the 
SMP Food programme, as foreseen in the legislative financial statement accompanying the proposal. 

Budget line  Name 

Section III – Commission 

Commitment 
appropriations 

Payment 
appropriations 

EUR 

30 02 02 

Differentiated appropriations (Reserve for budget article 06 10 02) 

03 02 06 

Total 

Contributing to  a  high level of  health  and  welfare  for humans,  animals  and 
plants  

-405 000 

405 000 

0 

-81 000 

81 000 

0 

3. 

UPDATE OF REVENUE 

DAB 3/2025 proposes to incorporate in the 2025 budget an amount of EUR 1 576,7 million in definitive 
fines and penalty payments paid until October 2025 (an increase of EUR 1 185,1 million compared to 
DAB  2/2025)  and  an  amount  of  EUR  1  300  million  in  additional  TOR  due  to  higher  receipts  than 
forecast in the budget. 

3.1 

Fines and penalty payments 

Considering the definitive fines and penalty payments paid until October 2025, it is proposed to enter 
the following amounts in the 2025 budget: 

a)  EUR 654,3 million of competition fines. 
b)  EUR 528 million of penalty payments and lump sums imposed on Member States, which did 
not comply with judgments of the Court of Justice of the European Union on their failure to 
fulfil an obligation under the Treaties. 

c)  EUR 2,7 million of interest connected with fines and penalty payments. 

It is therefore proposed to increase the amounts reported in DAB 2/2025 of EUR 392 million by EUR 
1 185,1 million, thus totalling to EUR 1 576,7 million. The detail by line is shown in the table below. 

Revenue 
line 

4 2 0 

4 2 1 

Name 

DAB 2/2025 

DAB 3/2025 

New amount 

Fines in connection with the implementation of the 
rules on competition 

Penalty  payments  and  lump  sums  imposed  on  a 
Member State 

409 213 301 

654 334 000 

1 063 547 301 

35 915 569 

528 021 069 

563 936 638 

4 2 4 

Interest connected with fines and penalty payments 

p.m. 

2 764 975 

2 764 975 

10 

 
 
 
 
4 2 5  

Interest, other charges due and negative returns on 
cancelled or reduced fines 

-53 553 502 

4 2 9  Other non-assigned fines and penalty payments 

p.m. 

— 

— 

-53 553 502 

p.m. 

Total  

391 575 368  

1 185 120 044 

1 576 695 412 

3.2 

Traditional Own Resources - Surplus 

DAB 2/2025 included the revised forecasts for 2025 for the revenue side of the budget, as agreed in the 
194th ACOR meeting on 26 May 2025. However, based on a higher amount of customs duties made 
available than forecast during the period January-August it is appropriate to increase the estimates for 
Traditional Own Resources (TOR) for a total amount of EUR 1 300 million. 

3.3 

Impact on the GNI-based own resource contribution for 2025 

The revised GNI-based own resources contributions compared to the  DAB 2/2025 are set out in the 
following table: 

Member state 

DAB 2/2025 
(1) 

DAB 3/2025 
(2) 

New amount 
(3) = (1) +(2) 

Belgium 
Bulgaria 
Czech Republic 
Denmark 
Germany 
Estonia 
Ireland 
Greece 
Spain 
France 
Croatia 
Italy 
Cyprus 
Latvia 
Lithuania 
Luxembourg 
Hungary 
Malta 
Netherlands 
Austria 
Poland 
Portugal 
Romania 
Slovenia 
Slovak Republic 
Finland 
Sweden 

3 525 708 596  
 582 591 160  
1 746 074 657  
2 358 418 487  
24 988 593 541  
 222 970 651  
2 186 539 540  
1 332 104 952  
9 103 233 993  
16 642 263 742  
 500 673 183  
12 274 837 916  
 174 671 083  
 225 258 559  
 443 710 330  
 318 627 577  
1 127 226 794  
 113 664 560  
6 466 765 873  
2 701 839 134  
4 853 620 964  
1 610 427 230  
2 044 376 034  
 380 591 091  
 731 538 461  
1 569 141 397  
3 301 696 643  

1 106 566 
  182 850 
  548 017 
  740 205 
 7 842 837 
  69 980 
  686 260 
  418 090 
 2 857 110 
 5 223 284 
  157 140 
 3 852 538 
  54 821 
  70 699 
  139 261 
  100 004 
  353 787 
  35 674 
 2 029 637 
  847 990 
 1 523 341 
  505 443 
  641 641 
  119 451 
  229 598 
  492 485 
 1 036 259 

3 526 815 162 
 582 774 010 
1 746 622 674 
2 359 158 692 
24 996 436 378 
 223 040 631 
2 187 225 800 
1 332 523 042 
9 106 091 103 
16 647 487 026 
 500 830 323 
12 278 690 454 
 174 725 904 
 225 329 258 
 443 849 591 
 318 727 581 
1 127 580 581 
 113 700 234 
6 468 795 510 
2 702 687 124 
4 855 144 305 
1 610 932 673 
2 045 017 675 
 380 710 542 
 731 768 059 
1 569 633 882 
3 302 732 902 

Total 

101 527 166 148 

31 864 968 

101 559 031 116 

4. 

FINANCING 

Overall,  the  net  impact  of  this  DAB  3/2025  is  a  decrease  of  EUR  123,7  million  in  commitment 
appropriations  and  an  increase  of  EUR  2  517,0  million  in  payment  appropriations  under  the  2025 

11 

 
 
  
  
  
  
  
  
  
  
  
budget. The increase in payment appropriations is almost entirely offset by additional revenues worth 
EUR 2 485,1 million. This leaves EUR 31,9 million to be covered through increased GNI contributions. 

As a result of specific changes to commitment appropriations in Heading 2b, it is proposed to reduce 
the mobilisation of the Flexibility Instrument by EUR 4,7 million in this heading, with a corresponding 
reduction in the mobilisation the Flexibility Instrument for payment appropriations. 

The 2025 payment appropriations related to the mobilisation of the Flexibility Instrument in the years 
2022 to 2025 are estimated at EUR 1 395,1 million, in current prices. The estimated payment schedule 
of the related outstanding amounts for these years is detailed in the following table:  

Total 

          36,7  
        203,8  
        237,5  
     1 161,1  
     1 639,1  

Mobilisation year  

Flexibility Instrument - payment profile (in EUR million) 
Beyond 
MFF 

2025 

2026 

2027 

2022 
2023  
2024  
2025  
Total  
 Figures may not sum exactly due to rounding 

           36,7  
         120,6  
         107,6  
       1 130,1  
       1 395,1  

          83,2  
          83,7  
          15,8  
        182,7  

          46,3  
            9,4  
          55,7  

            5,7  
            5,7  

12 

 
                
                
  
              
  
  
 
 
 
 
5.  SUMMARY TABLE BY MFF HEADING 

Budget 2025 (incl. DAB 1-2/2025) 

Draft Amending Budget 3/2025 

Budget 2025 (incl. DABs 1-3/2025) 

Single  Market,  Innovation 
and Digital 

21 540 062 907 

20 460 646 037 

-1 058 000 

-1 382 000 

21 539 004 907 

20 459 264 037 

CA 

PA 

CA 

PA 

CA 

PA 

Ceiling 

21 596 000 000 

Margin 

55 937 093 

1 058 000 

21 596 000 000 

56 995 093 

Cohesion,  Resilience  and 
Values 

77 983 510 680 

44 446 179 437 

-4 705 000 

2 700 619 000 

77 978 805 680 

47 146 798 437 

1 

2 

Ceiling 

75 697 000 000 

Of which under Flexibility 
Instrument 

1 144 928 584 

Of which under EURI 

1 141 582 096 

-4 705 000 

-4 705 000 

1 140 223 584 

75 697 000 000 

1 141 582 096 

2a. 

Economic, 
territorial cohesion 

social 

Margin 

and 

66 365 744 035 

33 260 377 346 

2 700 000 000 

66 365 744 035 

35 960 377 346 

Ceiling 

66 361 000 000 

Of which under Flexibility 
Instrument 

4 744 035 

Margin 

66 361 000 000 

4 744 035 

2b.  Resilience and values 

11 617 766 645 

11 185 802 091 

-4 705 000 

619 000 

11 613 061 645 

11 186 421 091 

Ceiling 

9 336 000 000 

Of which under Flexibility 
Instrument 

1 140 184 549 

Of which under EURI 

1 141 582 096 

-4 705 000 

-4 705 000 

1 135 479 549 

9 336 000 000 

1 141 582 096 

Margin 

3 

Natural  Resources 
Environment 

and 

56 739 667 594 

55 605 510 102 

-39 947 143 

-22 392 143 

56 699 720 451 

55 583 117 959 

Ceiling 

57 336 000 000 

Margin 

596 332 406 

39 947 143 

57 336 000 000 

636 279 549 

Of  which:  Market  related 
expenditure 
and  direct 
payments 

39 975 892 542 

40 030 717 961 

39 975 892 542 

40 030 717 961 

EAGF sub-ceiling 

41 646 000 000 

 Rounding difference 
excluded for calculating the 
sub-margin 
 Net transfers between EAGF 
and EAFRD 

 Net balance available for 
EAGF expenditure (sub-
ceiling corrected by transfers 
between EAGF and EAFRD) 

72 000 

-1 117 072 000 

40 529 000 000 

EAGF sub-margin 

553 107 458 

41 646 000 000 

72 000 

-1 117 072 000 

40 529 000 000 

553 107 458 

4 

Migration 
Management 

and  Border 

4 722 798 024 

3 203 947 754 

-78 032 393 

309 140 155 

4 644 765 631 

3 513 087 909 

Ceiling 

4 871 000 000 

Margin 

148 201 976 

78 032 393 

4 871 000 000 

226 234 369 

5 

Security and Defence 

2 632 589 260 

2 143 154 694 

2 632 589 260 

2 143 154 694 

Ceiling 

2 617 000 000 

Of which under Flexibility 
Instrument 

15 589 260 

2 617 000 000 

15 589 260 

Margin 

6 

Neighbourhood  and 
World 

the 

16 308 245 797 

14 426 257 975 

16 308 245 797 

14 426 257 975 

Ceiling 

16 303 000 000 

16 303 000 000 

13 

 
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
 
 
  
  
  
  
  
  
  
  
 
  
 
  
 
  
  
  
  
  
  
  
  
  
  
  
  
  
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
 
 
 
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
  
 
 
  
  
 
 
  
  
  
 
 
  
  
  
  
 
 
  
  
 
 
  
  
  
  
  
Of which under Flexibility 
Instrument 

5 245 797 

5 245 797 

7 

European 
Administration 

Margin 

Public 

12 845 030 641 

12 845 030 641 

12 845 030 641 

12 845 030 641 

Ceiling 

12 124 000 000 

Of which under Single 
Margin Instrument 11(1)(a) 

721 030 641 

12 124 000 000 

721 030 641 

Margin 

of  which:  Administrative 
expenditure 
the 
institutions 

of 

9 720 485 985 

9 720 485 985 

9 720 485 985 

9 720 485 985 

Sub-ceiling 

9 219 000 000 

Of which under Single 
Margin Instrument 11(1)(a) 

501 485 985 

Sub-margin 

9 219 000 000 

501 485 985 

Appropriations for headings 

192 771 904 903 

153 130 726 640 

-123 742 536 

2 985 985 012 

192 648 162 367 

156 116 711 652 

Ceiling  

190 544 000 000 

175 378 000 000 

190 544 000 000 

175 378 000 000 

Of which under Flexibility 
Instrument 

Of which under Single 
Margin Instrument 11(1)(a) 

1 165 763 641 

1 399 812 457 

-4 705 000 

-4 705 000 

1 161 058 641 

1 395 107 457 

721 030 641 

721 030 641 

Of which under EURI 

1 141 582 096 

1 141 582 096 

1 141 582 096 

1 141 582 096 

Margin 

800 471 475 

24 788 667 913 

119 037 536 

-2 990 690 012 

919 509 011 

21 797 977 901 

Thematic special 
instruments 

6 669 866 079 

5 593 595 842 

-469 000 000 

6 669 866 079 

5 124 595 842 

Total appropriations  

199 441 770 982 

158 724 322 482 

-123 742 536 

2 516 985 012 

199 318 028 446 

161 241 307 494 

14