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On the proposal for a 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

Full title

On the proposal for a 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

Document BUDG-PA-786987 · COM(2025)0541 – C102025/0541 – 2025/0541(COD)

Kind
Opinion parliamentary committee draft BUDG-PA-786987
Date
20 April 2026
Committee
Committee on Budgets
Rapporteur
Anouk Van Brug
Dossier
2025-0541
More facts (3)
Formats
Official page PDF Word
Subject matter
LCP, FRON, FIN
Reference
COM(2025)0541 – C102025/0541 – 2025/0541(COD)
More
Cite this page Official page (opens the official site)
Link to this page

In short

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The Committee on Budgets gives its budgetary assessment of the proposed regulation on Union support for the Schengen area, European integrated border management and the common policy on visas for 2028 to 2034. It insists the programme envelope be increased from EUR 15 396 750 000 in current prices, and that sufficient human resources be available throughout the next multiannual financial framework. It asks for at least two dedicated budget lines, indicative sub-envelopes, clear criteria for resource allocation, and consistent anti-fraud requirements and audit frameworks. It also calls for flexibility between home affairs objectives, respect for the budgetary authority's prerogatives, and transparent, scrutinised use of external assigned revenue.

Position. The Committee on Budgets proposes a budgetary assessment of the proposal, insisting on a higher programme envelope, sufficient human resources, at least two dedicated budget lines, indicative sub-envelopes, clear allocation criteria, and robust anti-fraud and audit frameworks.

Key points

  1. The proposal sets an indicative financial envelope of around EUR 15.4 billion in current prices for 2028-2034, compared with around EUR 7 billion in 2021-2027.
  2. The proposed NRP Regulation provides only two budget lines merging the Home Affairs Regulations, unlike the multiple lines of the Border Management and Visa Instrument in 2021-2027.
  3. The EU Facility sets an indicative amount of EUR 25.2 billion for measures relating to home affairs objectives.
  4. The committee insists the programme envelope be increased from EUR 15 396 750 000 in current prices to fulfil its objectives.
  5. It considers sufficient human resources must be available from the outset and throughout the next MFF programming period for effective implementation.
  6. It considers flexibility in allocating funding between home affairs objectives necessary, noting the effective level for border management, Schengen and visas cannot be determined in advance.
  7. It is concerned at the absence of clear, objective criteria for what the Commission considers an adequate level of resources for migration, border management and internal security, as highlighted by the European Court of Auditors.
  8. It deplores the lack of a detailed indicative budgetary nomenclature in the Legislative Financial and Digital Statement and recommends considering indicative sub-envelopes in the basic act.
  9. It calls for at least two dedicated budget lines, one for operational expenditure under the NRPPs and one under the EU Facility, to maintain budgetary oversight.
  10. It notes additional funding through the EU Facility will be set in the annual budgetary procedure and insists the budgetary authority's prerogatives be fully respected.
  11. It welcomes increased coherence between migration, asylum, return and external policies, and stresses synergies with other Union policies must avoid duplication without blurring distinct objectives.
  12. It stresses external assigned revenue must be clearly circumscribed, transparent and subject to parliamentary scrutiny, and calls for consistent anti-fraud requirements and robust control and audit frameworks.

Who is affected

  • Member states, which would face harmonised requirements on preventing, detecting, reporting and correcting fraud.
  • The Commission, which would need to set clear criteria for adequate resource levels and provide a detailed budgetary nomenclature.
  • The budgetary authority, whose oversight and prerogatives the committee wants safeguarded in the annual budgetary procedure.
  • Third countries making financial contributions, whose external assigned revenue would be subject to transparency and scrutiny.

Figures and deadlines

  • around EUR 15.4 billion in current prices, the indicative financial envelope for 2028-2034
  • around EUR 7 billion, the 2021-2027 programming period amount
  • around EUR 8.4 billion in current prices and around EUR 6.7 billion in constant prices, the increase
  • EUR 25.2 billion, the indicative amount of the EU Facility for home affairs objectives
  • EUR 15 396 750 000 in current prices, the programme envelope the committee wants increased

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Budgetary assessment 19 blocks

for the Committee on Civil Liberties, Justice and Home Affairs on the proposal for a 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

(COM(2025)0541 – C102025/0541 – 2025/0541(COD))

The Committee on Budgets has carried out a budgetary assessment of the proposal under Rule 58 of the Rules of Procedure and has reached the following conclusions:

The Committee on Budgets,

A.whereas the proposal, together with the proposal for a Regulation (EU) […] establishing the Union support for internal security and the proposal for a Regulation (EU) […] establishing the Union support for asylum, migration and integration (together: ‘Home Affairs Regulations’), provides the specific legal framework for the Union action in the areas of management of migration and asylum, border management at the external borders, the Schengen area and European visa policy, and internal security;

B.whereas the proposal sets out an indicative financial envelope of around EUR 15.4 billion in current prices for Union support for the Schengen area, for European integrated border management and for the common policy on visas compared to around EUR 7 billion in the 2021-2027 programming period, corresponding to an increase of around EUR 8.4 billion in current prices and around EUR 6.7 billion in constant prices;

C.whereas, the proposed NRP Regulation provides for only two budget lines merging the Home Affairs Regulations, one for operational expenditure under the NRPPs and one under the EU Facility, compared with the 2021-2027 programming period where the Border Management and Visa Instrument had multiple budget lines;

D.whereas the proposed NRP Regulation establishes the EU Facility, which sets up an indicative amount of EUR 25.2 billion available for measures relating to the home affairs objectives;

1.insists that the programme envelope should be increased from EUR 15 396 750 000 in current prices to [number from the Interim report, in current and 2025 prices] in order to fulfil its objectives;

2.considers that sufficient human resources must be available from the outset and throughout the entire programming period of the next MFF to ensure an effective implementation of the proposed Union support;

3.considers that a certain degree of flexibility in the allocation of funding between home affairs objectives is necessary to ensure a timely and effective response to evolving and unpredictable challenges in the areas of asylum and migration, border management and internal security; underlines that, as a consequence of this flexibility, the effective level of funding allocated to border management at the external borders, the Schengen area and European visa policy cannot be determined ex ante and may vary in the course of implementation;

4.is concerned regarding the absence of clear and objective criteria as to what the Commission would consider an adequate or sufficient level or resources to be allocated to migration, border management and internal security in order to meet, in a proportionate manner, all objectives in the area of home affairs, as highlighted by the European Court of Auditors in its Opinion 09/2026;

5.deplores the lack of a sufficiently detailed indicative budgetary nomenclature for the Schengen area, for European integrated border management and for the common policy on visas proposed in the Legislative Financial and Digital Statement (LFDS) accompanying the NRP Regulation; considers that this will hamper oversight and the budgetary authority’s ability to steer accurately policy priorities in the annual budgetary procedure; recommends giving consideration to fixing indicative sub-envelopes in the basic act;

6.calls for at least two dedicated budget lines for the present Union support in the LFDS accompanying the NRP Regulation, one for operational expenditure under the NRPPs and one under the EU Facility; considers them essential so that the budgetary authority maintains proper oversight on the funding allocated to the Schengen area, for European integrated border management and for the common policy on visas at all stages of the budgetary cycle;

7.notes that additional funding allocated to the present Union support through the EU Facility will be established in the framework of the annual budgetary procedure; insists that the prerogatives of the budgetary authority should be fully respected;

8.welcomes the need for an increased coherence between migration, asylum, return and external policies; stresses that synergies and complementarity with other Union policies and programmes such as the Union support for asylum, migration, and integration and for internal security must be pursued exclusively with a view to maximising operational efficiency and avoiding duplication of funding, without blurring the distinct policy objectives of each instrument;

9.stresses that the use of external assigned revenue under the present union support must be clearly circumscribed, fully transparent and subject to effective parliamentary scrutiny; notes in that regard of the provisions relating to financial contributions by any participating third country;

10.calls for the definition of consistent and harmonised requirements for Member States regarding the prevention, detection, reporting, and correction of fraud from the outset of the implementation period;

11.stresses that robust control and audit frameworks must be established to protect the Union’s financial interests;

Amendments 21 blocks

As part of its budgetary assessment, the Committee on Budgets also submits the following amendments to the proposal:

Amendment 1

Proposal for a regulation

Recital 10

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
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.The Union support should contribute to ensuring consistency, coherence, synergies, and complementarities between the Union's internal and external policies. The Commission shall ensure coordination with other relevant EU funds, such as the Asylum, Migration, and Integration Fund and the Internal Security Fund, to maximise the impact of EU funding and avoid duplication. 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.

Or. en

Amendment 2

Proposal for a regulation

Recital 24 a (new)

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(24a) The provisions of this Regulation as well as its governance arrangements must be conducive to proper decision-making by the budgetary authority and to appropriate parliamentary oversight. In particular, any specification of Union support for the Schengen area, European integrated border management and the common policy on visas’ internal architecture should be duly reflected in the budget nomenclature through the introduction of corresponding budget lines.

Or. en

Amendment 3

Proposal for a regulation

Recital 24 b (new)

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(24b) The implications of this Regulation for the Union budget have been assessed⁺ pursuant to Article 310(4) of the Treaty on the Functioning of the European Union. Sufficient financial and human resources should be provided for its implementation, while considering the impact of the financing on other Union programmes or policies and ensuring its compatibility with the multiannual financial framework as well as with the budgetary principles laid down in Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council¹.
⁺ Pro memoria: Budgetary assessment of the European Parliament’s Committee on Budgets of 17 April 2026 on the proposal for a 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 (COM(2025)0541).
¹ 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 (OJ L, 2024/2509, 26.9.2024, ELI: http://data.europa.eu/eli/reg/2024/2509/oj).

Or. en

Amendment 4

Proposal for a regulation

Article 4 – paragraph 1

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
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 indicative financial envelope for the implementation of the objectives set out in Article 3 for the period from 2028 to 2034 is set at ... [number from the interim report on the proposal for the multiannual financial framework for 2028-2034 (2025/0571R(APP))], in current and 2025 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.

Or. en

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https://news.eu-parl.st-solutions.dev/texts/BUDG-PA-786987
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Licensed CC BY 4.0.
Retrieved
25 September 2026

Cite as

European Parliament (2026). “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”. Text, 20 April 2026. docId BUDG-PA-786987. EU Parl Watch Research. https://news.eu-parl.st-solutions.dev/texts/BUDG-PA-786987 (retrieved 25 September 2026). Data: EP Open Data API: document record, https://data.europarl.europa.eu/api/v2/documents/BUDG-PA-786987 (CC BY 4.0).
BibTeX 
@misc{epw-text-budg-pa-786987,
  author = {{European Parliament}},
  title = {{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}},
  year = {2026},
  date = {2026-04-20},
  howpublished = {\url{https://news.eu-parl.st-solutions.dev/texts/BUDG-PA-786987}},
  url = {https://news.eu-parl.st-solutions.dev/texts/BUDG-PA-786987},
  urldate = {2026-09-25},
  publisher = {EU Parl Watch Research},
  note = {Text. docId BUDG-PA-786987. Data: EP Open Data API: document record (CC BY 4.0)}
}