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On the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2021/947 as regards increased efficiency of the External Action Guarantee

Document CJ19-PR-776794 · COM(2025)0262 – C100107/2025 – 2025/0262(COD)

Kind
Report parliamentary committee draft CJ19-PR-776794
Date
5 September 2025
Committee
Committee on Foreign Affairs Committee on Development
Rapporteur
Charles Goerens, David McAllister
Dossier
2025/0262(COD)
More facts (3)
Formats
Official page PDF Word
Subject matter
CDEV, EXT, DIPL
Reference
COM(2025)0262 – C100107/2025 – 2025/0262(COD)
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Draft european parliament legislative resolution

(COM(2025)0262 – C100107/2025 – 2025/0262(COD))

(Ordinary legislative procedure: first reading)

The European Parliament,

–having regard to the Commission proposal to Parliament and the Council (COM(2025)0262) and the amended proposal (COM(2025)0262),

–having regard to Article 209 and Article 212 of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C100107/2025),

–having regard to Article 294(3) of the Treaty on the Functioning of the European Union,

–having regard to Rules 60, 41 of its Rules of Procedure,

–having regard to the report of the Committee on Foreign Affairs and the Committee on Development (A100000/2025),

1.Adopts its position at first reading hereinafter set out;

2.Calls on the Commission to refer the matter to Parliament again if it replaces, substantially amends or intends to substantially amend its proposal;

3.Instructs its President to forward its position to the Council, the Commission and the national parliaments.

Amendment 1

Proposal for a regulation

Recital -1 (new)

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(-1) The Union’s external financing instruments, including the EFSD+, continue to be guided by the Union’s foreign policy objectives as set out in Article 21 of the Treaty on European Union, notably the promotion of democracy, the rule of law, human rights and respect for the principles of the United Nations Charter, while also reinforcing the Union’s capacity to act as a global strategic actor by consolidating democratic institutions, safeguarding partners’ sovereignty, countering external interference, and strengthening resilience to geopolitical and economic shocks. Measures to enhance the efficiency of the External Action Guarantee should be pursued in a manner fully consistent with those objectives.

Or. en

Amendment 2

Proposal for a regulation

Recital 1

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(1) The global geopolitical and geoeconomic context requires that the Union reaffirms its commitment to establish mutually beneficial partnerships with partner countries.(1) The global geopolitical and geoeconomic context requires that the Union reaffirms its commitment to establish mutually beneficial partnerships with partner countries, that will strengthen regional stability and security, diversify supply chains, and uphold the rules-based international order, thereby fostering sustainable prosperity and advancing human development.

Or. en

Amendment 3

Proposal for a regulation

Recital 2 a (new)

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(2a) The Union’s strategic ambitions under Regulation (EU) 2021/947 of the European Parliament and of the Council1 require not only financial and technical delivery but also strong public and diplomatic visibility in order to maximise geopolitical impact and citizen engagement. The Union and its Member States collectively remain the world’s largest providers of official development assistance. This, however, is not sufficiently visible, especially when using indirect management with implementing partners such as blended finance operations with many stakeholders within the EFSD+. Communication regarding Union-funded actions should be strengthened.
1 Regulation (EU) 2021/947 of the European Parliament and of the Council of 9 June 2021 establishing the Neighbourhood, Development and International Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU of the European Parliament and of the Council and repealing Regulation (EU) 2017/1601 of the European Parliament and of the Council and Council Regulation (EC, Euratom) No 480/2009, ELI: http://data.europa.eu/eli/reg/2021/947/oj

Or. en

Amendment 4

Proposal for a regulation

Recital 3

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(3) In addition to a more focused approach to enlargement, the political guidelines of the 2024-2029 Commission recognise the importance of a more focused approach to our wider neighbourhood, especially the Middle East, North Africa and the Gulf. The strategic relevance should be supported by concrete projects and strategic investments, both a regional level, e.g. T-MED, and at bilateral level through the implementation of the Strategic Partnerships. Depending on the evolution of the situation on the ground, additional resources could also be needed to maintain stability and support early recovery/reconstruction among key partners in the Middle East.(3) In addition to a more focused approach to enlargement, the political guidelines of the 2024-2029 Commission recognise the importance of a more focused approach to our wider neighbourhood, especially the Middle East, North Africa and the Gulf. The strategic relevance should be supported by concrete projects and strategic investments, both a regional level, e.g. T-MED, and at bilateral level through the implementation of the Strategic Partnerships. Depending on the evolution of the situation on the ground, additional resources could also be needed to maintain stability and support early recovery/reconstruction among key partners in the Middle East. The political guidelines also set the goal to create long-term, mutually beneficial partnerships and recognise the need for a new impetus in our partnership with Africa.

Or. en

Amendment 5

Proposal for a regulation

Recital 3 a (new)

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(3a) Article 6(2)(a) of Regulation (EU) 2021/947 of the European Parliament and of the Council stipulates a minimum financial envelope for Sub-Saharan Africa which is currently not being attained.

Or. en

Amendment 6

Proposal for a regulation

Recital 4

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(4) An important Union financing instrument to deliver on the Global Gateway objectives and the strategic investments is the European Fund for Sustainable Development Plus (EFSD+), and notably its budgetary guarantee, a component of the External Action Guarantee established by Regulation (EU) 2021/947 of the European Parliament and of the Council2 . Efficiency gains on the External Action Guarantee would allow funding EU external action priorities, including possibly scaling up the Global Gateway.(4) An important Union financing instrument to deliver on the Global Gateway objectives and the strategic investments is the European Fund for Sustainable Development Plus (EFSD+), and notably its budgetary guarantee, a component of the External Action Guarantee established by Regulation (EU) 2021/947 of the European Parliament and of the Council . Efficiency gains on the External Action Guarantee would allow funding EU external action priorities, including possibly scaling up the Global Gateway whilst paying attention to the specific needs of fragile contexts, least-developed and heavily indebted poor countries, as appropriate.
2 Regulation (EU) 2021/947 of the European Parliament and of the Council of 9 June 2021 establishing the Neighbourhood, Development and International Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU of the European Parliament and of the Council and repealing Regulation (EU) 2017/1601 of the European Parliament and of the Council and Council Regulation (EC, Euratom) No 480/2009 (OJ L 209, 14.6.2021, p. 1, ELI: http://data.europa.eu/eli/reg/2021/947/oj).2 Regulation (EU) 2021/947 of the European Parliament and of the Council of 9 June 2021 establishing the Neighbourhood, Development and International Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU of the European Parliament and of the Council and repealing Regulation (EU) 2017/1601 of the European Parliament and of the Council and Council Regulation (EC, Euratom) No 480/2009 (OJ L 209, 14.6.2021, p. 1, ELI: http://data.europa.eu/eli/reg/2021/947/oj).

Or. en

Amendment 7

Proposal for a regulation

Recital 6

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(6) The guarantee cover of EFSD+ could be increased until 2027 with surpluses from the European Sustainable Development Fund (EFSD) and by using more efficiently the Union guarantee by reducing its EU liability under the EIB’s exclusive dedicated investment window for operations with sovereign counterparts and non-commercial sub-sovereign counterparts from 65 % to 60 %. The latter would only come into effect after amending the corresponding guarantee agreement between the Commission and the EIB. The assignment of surpluses from legacy instruments to the benefit of EFSD+ is without prejudice to the negotiations on the post-2027 multiannual financial framework.(6) The guarantee cover of EFSD+ could be increased until 2027 with surpluses from the European Sustainable Development Fund (EFSD) and by using more efficiently the Union guarantee by reducing its EU liability under the EIB’s exclusive dedicated investment window for operations with sovereign counterparts and non-commercial sub-sovereign counterparts from 65 % to 60 %. The latter would only come into effect after amending the corresponding guarantee agreement between the Commission and the EIB. The assignment of surpluses from legacy instruments to the benefit of EFSD+ is without prejudice to the negotiations on the post-2027 multiannual financial framework. At the same time, the increased reliance on the External Action Guarantee and financial instruments to advance geopolitical goals requires enhanced democratic accountability. The European Parliament and the Council, as the budgetary authority of the European Union, should therefore, in a timely manner, be systematically, comprehensively and regularly informed about the performance of EFSD and EFSD+, including clear information on the total surpluses and deficits identified, the origin of any surpluses and the amounts proposed for reallocation, thus allowing to assess the results achieved, the additionality and leverage effects.

Or. en

Amendment 8

Proposal for a regulation

Recital 6 a (new)

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(6a) In view of the negotiations on the post-2027 multiannual financial framework, in line with Article 42(5) of Regulation (EU) 2021/947 and following the recommendation of ECA Opinion 03/2024, the Commission should consider preparing an evaluation of the External Action Guarantee, with emphasis not only on the use of the guarantee but also on project delivery and impact on the ground. That review should be prepared by early 2027, when its next evaluation is due.

Or. en

Amendment 9

Proposal for a regulation

Recital 8 a (new)

Amendment: Text proposed by the Commission and Amendment
Text proposed by the CommissionAmendment
(8a) The reassignments of the EFSD guarantee surpluses are particularly pertinent in view of the Union’s geostrategic interests and the stability of partner countries as well as the increased scarcity of resources to fund development cooperation and humanitarian aid.

Or. en

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https://news.eu-parl.st-solutions.dev/texts/CJ19-PR-776794
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Cite as

European Parliament (2025). “DRAFT REPORT on the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2021/947 as regards increased efficiency of the External Action Guarantee”. Text, 5 September 2025. docId CJ19-PR-776794. EU Parl Watch Research. https://news.eu-parl.st-solutions.dev/texts/CJ19-PR-776794 (retrieved 25 September 2026). Data: EP Open Data API: document record, https://data.europarl.europa.eu/api/v2/documents/CJ19-PR-776794 (CC BY 4.0).
BibTeX 
@misc{epw-text-cj19-pr-776794,
  author = {{European Parliament}},
  title = {{DRAFT REPORT on the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2021/947 as regards increased efficiency of the External Action Guarantee}},
  year = {2025},
  date = {2025-09-05},
  howpublished = {\url{https://news.eu-parl.st-solutions.dev/texts/CJ19-PR-776794}},
  url = {https://news.eu-parl.st-solutions.dev/texts/CJ19-PR-776794},
  urldate = {2026-09-25},
  publisher = {EU Parl Watch Research},
  note = {Text. docId CJ19-PR-776794. Data: EP Open Data API: document record (CC BY 4.0)}
}