Text · Opinion parliamentary committee
On the proposal for a regulation of the European Parliament and of the Council on the Union Civil Protection Mechanism and Union support for health emergency preparedness and response, and repealing Decision No 1313/2013/EU (Union Civil Protection Mechanism)
Full title
On the proposal for a regulation of the European Parliament and of the Council on the Union Civil Protection Mechanism and Union support for health emergency preparedness and response, and repealing Decision No 1313/2013/EU (Union Civil Protection Mechanism)
Document CONT-AD-787628 · COM(2025)0548 – C10-0174/2025 – 2025/0223(COD)
- Kind
- Opinion parliamentary committee CONT-AD-787628
- Date
- 8 June 2026
- Committee
- Committee on Budgetary Control
- Rapporteur
- Jonas Sjöstedt
- Dossier
- 2025-0223
More facts (3)
- Formats
- Official page PDF Word
- Subject matter
- SANT, PCIV
- Reference
- COM(2025)0548 – C10-0174/2025 – 2025/0223(COD)
In short
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The Committee on Budgetary Control gives its opinion on the proposed regulation on the Union Civil Protection Mechanism and Union support for health emergency preparedness and response. It proposes amendments to strengthen accountability, traceability and sound financial management. The amendments add definitions of Union added value, final recipient and unique identifier, and require measurable expected results and indicators in work programmes. They close the loophole in Article 11(5) so the same costs, or the same underlying activity, output, result or milestone, cannot be financed twice or lead to overcompensation. Financing not linked to costs and simplified cost options are made subject to prior justification, verifiable payment conditions, record-keeping and proportionate corrective consequences. The opinion inserts a horizontal provision on protection of the Union's financial interests, with audit, control and investigation rights for the Commission, the Court of Auditors, OLAF and, where applicable, the EPPO. It requires annual reporting to Parliament and the Council on financial implementation, exceptional procedures, support covering up to 100% of costs, and errors, irregularities, recoveries and anti-double-funding controls.
Position. The Committee on Budgetary Control proposes amendments to the proposed regulation to strengthen accountability, traceability and sound financial management, without altering its policy architecture. It focuses on financing not linked to costs, simplified cost options, double funding, measurable objectives, visibility on the financial envelope, and audit rights in third countries.
Key points
- The rapporteur supports strengthening the Union Civil Protection Mechanism but says flexibility must not weaken accountability, traceability or sound financial management.
- The amendments introduce definitions of Union added value, final recipient and unique identifier, and require specific and measurable expected results and indicators.
- Work programmes must set out indicative allocations, funding modalities, verification arrangements, expected results and indicators with baselines and target values.
- The same costs, or the same underlying activity, output, result or milestone, cannot be financed twice, and combined Union support cannot exceed total eligible costs or lead to overcompensation.
- A unique identifier and a horizontal overview of Union financial support are required to enable complementarity checks and prevent double funding across programmes.
- Financing not linked to costs and simplified cost options require prior justification, verifiable payment conditions, record-keeping and proportionate corrective consequences including suspension, reduction or recovery.
- Carried-over appropriations must remain separately identifiable and traceable in budget implementation, accounting and reporting.
- A horizontal provision requires equivalent audit, control and investigation rights for the Commission, the Court of Auditors, OLAF and, where applicable, the EPPO.
- The Commission must report annually to Parliament and the Council on financial implementation, exceptional procedures, support covering up to 100% of costs, and errors, irregularities, recoveries and anti-double-funding controls.
- Transparency on beneficiaries, contractors and other recipients is improved, and integrity screening and beneficial-ownership transparency are reinforced for grants to private entities or support under indirect management.
- Security considerations may not be used to deprive Parliament or the Union's audit and investigative bodies of information needed to exercise their prerogatives.
- Member States must transmit risk assessments to the Commission at least once every 3 years, and the Commission must produce a cross-sectoral disaster risk report at least once every 3 years.
Who is affected
- Member States: must transmit risk assessments to the Commission at least once every 3 years and report on follow-up to recommendations.
- The Commission: must ensure traceability, audit rights, annual reporting and protection of the Union's financial interests.
- Beneficiaries, contractors and final recipients: must declare all Union contributions and provide beneficial-ownership information on request.
- Third countries: must grant audit, control and investigation rights to the Commission, the Court of Auditors, OLAF and, where applicable, the EPPO.
Figures and deadlines
- Member States must transmit risk assessments to the Commission at least once every 3 years.
- The Commission must produce a cross-sectoral disaster risk report at least once every 3 years.
- Member States must make available a summary of risk assessments by 31 December 2028.
- Union support to response may cover up to 100% of the costs only where duly justified.
- The Commission must transmit an annual report to Parliament and the Council by 30 June each year.
- Carried-over appropriations may be committed and paid up to 31 December of the following year.
- The transitional period for prolonging national aerial fire-fighting means is until 2034.
- New aerial fire-fighting means financed under rescEU are expected to become progressively available starting in 2028.
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Short justification
The rapporteur supports strengthening the Union Civil Protection Mechanism and Union support for health emergency preparedness and response, but considers that the proposal must be reinforced wherever greater flexibility could weaken accountability, traceability or sound financial management. Drawing substantially on ECA Opinion 06/2026, the present opinion focuses on financing not linked to costs and simplified cost options, the risk of double funding and overcompensation, the absence of measurable objectives and indicators, limited visibility on the financial envelope, and the need for full audit, control and investigation rights where Union funds are implemented in third countries. The recital amendments confirm that rule of law conditionality applies and that simplification cannot lower transparency or budget protection.
The amendments make the instrument more performance-oriented and auditable without altering its policy architecture. They introduce definitions of Union added value, final recipient and unique identifier; require specific and measurable expected results and indicators; and strengthen work programmes by requiring greater transparency on indicative allocations, funding modalities and verification arrangements. They close the loophole under Article 11(5) so that the same costs, or, under financing not linked to costs, the same underlying activity, output, result or milestone, cannot be financed twice or lead to overcompensation, precluding de facto Union financing above 100%. The unique identifier and horizontal overview make complementarity checks operational and prevent double funding across programmes, while clarifying coordination to avoid overlap between the civil-protection and health-emergency components and between the Hub and the ERCC.
A central priority of the rapporteur is to ensure that simplification does not come at the expense of compliance, transparency or audit trail. Financing not linked to costs and simplified cost options are made subject to prior justification, verifiable payment conditions, record-keeping obligations and proportionate corrective consequences, including suspension, reduction proportionate to partial non-fulfilment, or full recovery in cases of total non-fulfilment. Carried-over appropriations must remain separately identifiable and traceable in reporting. The rapporteur also inserts a horizontal provision on the protection of the Union’s financial interests, with equivalent audit, control and investigation rights for the Commission, the Court of Auditors, OLAF and, where applicable, the EPPO. Traceability through CECIS is strengthened by tightening requirements on the completeness, accuracy and auditability of operational data.
Finally, the rapporteur strengthens Parliament’s capacity to exercise budgetary scrutiny. Annual reporting to Parliament and the Council is required on financial implementation, exceptional procedures, support covering up to 100 % of costs, and errors, irregularities, recoveries and anti-double-funding controls. Transparency on beneficiaries, contractors and other recipients is improved, and integrity screening and beneficial-ownership transparency are reinforced for grants to private entities or support implemented through indirect management. Security considerations may not be used to deprive Parliament or the Union’s audit and investigative bodies of the information needed to exercise their prerogatives. Taken together, the amendments secure the conditions for sound implementation and a robust future discharge while leaving the lead committee’s policy architecture intact.
The Committee on Budgetary Control submits the following to the Committee on the Environment, Climate and Food Safety and the Committee on Public Health, as the committees responsible:
| Text proposed by the Commission | Amendment |
|---|---|
| (1) In view of the significant increase in the numbers and severity of natural and human-induced hazards in recent years, the strengthening of cooperation in the field of civil protection at Union level is necessary to create a resilient Union with the capabilities required to anticipate and manage those risks and threats, independently of their nature of origin, to ensure that the citizens of the Union enjoy adequate protection. The Union Civil Protection Mechanism (the ‘Union Mechanism’) should fulfil this role by strengthening cooperation and coordination among Member States to enhance the overall ability to prevent, prepare for, and respond to disasters and crises. | (1) In view of the significant increase in the numbers and severity of natural and human-induced hazards in recent years, the strengthening of cooperation in the field of civil protection at Union level is necessary to create a resilient Union with the capabilities required to anticipate and manage those risks and threats, independently of their nature of origin, to ensure that the citizens of the Union enjoy adequate protection. The Union Civil Protection Mechanism (the ‘Union Mechanism’) should fulfil this role by strengthening cooperation and coordination among Member States to enhance the overall ability to prevent, prepare for, and respond to disasters and crises. It should in particular support sustainable Union disaster management, across sectors and borders, through soundly managed Union support, increased synergies and integration into relevant Union instruments. |
| Text proposed by the Commission | Amendment |
|---|---|
| (1a) This Regulation recognises that prevention and preparedness measures are key instruments for enhancing the resilience of the Union in the face of natural and human-induced disasters. Since preventive measures are generally more cost-effective than post-disaster reconstruction, they are also essential to safeguarding the financial interests of the Union. In order to ensure the best use of Union funds, the Union should better incentivise proactive risk reduction and ensure that Union funds are targeted to actions with demonstrable Union added value. |
| Text proposed by the Commission | Amendment |
|---|---|
| (3) While prevention and preparedness measures are essential to enhance the resilience of the Union in facing natural and human-induced disasters, the occurrence, timing and magnitude of disasters are by nature unpredictable. Financial resources required to ensure an adequate response can vary significantly from year to year and should be made available immediately. Reconciling the budgetary principle of predictability with the necessity to react rapidly to new needs therefore means having to adapt the financial implementation of the work programmes. Consequently, it is appropriate to authorise carry-over of unused appropriations, limited to the following year and solely devoted to response actions, in addition to the carry-over of appropriations authorised under Article 12(4) of Regulation (EU, Euratom) 2024/2509. | (3) While prevention and preparedness measures are essential to enhance the resilience of the Union in facing natural and human-induced disasters, the occurrence, timing and magnitude of disasters are by nature unpredictable. Financial resources required to ensure an adequate response can vary significantly from year to year and should be made available immediately. Reconciling the budgetary principle of predictability with the necessity to react rapidly to new needs therefore means having to adapt the financial implementation of the work programmes. Consequently, it is appropriate to authorise carry-over of unused appropriations, limited to the following year and solely devoted to response actions, in addition to the carry-over of appropriations authorised under Article 12(4) of Regulation (EU, Euratom) 2024/2509, while ensuring strict respect for sound financial management, traceability, and budgetary discipline, and reporting to the European Parliament and the Council. |
| Text proposed by the Commission | Amendment |
|---|---|
| (4) In a rapidly changing economic, social and geopolitical environment, recent experience has shown the need for a more flexible multiannual financial framework and Union spending programmes. To that effect, the funding should duly consider the evolving policy needs and Union’s priorities as identified in relevant documents published by the Commission, in Council conclusions and European Parliament resolutions, while ensuring sufficient predictability for the budget implementation. | (4) In a rapidly changing economic, social and geopolitical environment, recent experience has shown the need for a more flexible multiannual financial framework and Union spending programmes. To that effect, the funding should duly consider the evolving policy needs and Union priorities as identified in relevant documents published by the Commission, in Council conclusions and European Parliament resolutions, while ensuring sufficient predictability, transparency and accountability for the budget implementation and compliance with the principles of sound financial management, efficiency and value for money in the use of Union funds. Such flexibility should be exercised in full respect of the budgetary authority’s prerogatives, including timely information, transparency and appropriate reporting to the European Parliament and the Council on the use and reprogramming of Union funds. |
| Text proposed by the Commission | Amendment |
|---|---|
| (5) In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council, Council Regulation (EC, Euratom) No 2988/954 , Council Regulation (Euratom, EC) No 2185/965 and Council Regulation (EU) 2017/1939, the financial interests of the Union are to be protected through proportionate measures, including the prevention, detection, correction and investigation of irregularities and fraud, the recovery of funds lost, wrongly paid or incorrectly used and, where appropriate, the imposition of administrative sanctions. In particular, in accordance with Regulation (EU, Euratom) No 883/2013 and Regulation (Euratom, EC) No 2185/96 the European Anti-Fraud Office (OLAF) may carry out investigations, including on-the-spot checks and inspections, with a view to establishing whether there has been fraud, corruption or any other illegal activity affecting the financial interests of the Union. In accordance with Regulation (EU) 2017/19396 , the European Public Prosecutor's Office (EPPO) may investigate and prosecute fraud and other illegal activities affecting the financial interests of the Union as provided for in Directive (EU) 2017/1371 of the European Parliament and of the Council7 . In accordance with Regulation (EU, Euratom) 2024/2509, any person or entity receiving Union funds is to fully cooperate in the protection of the Union’s financial interests, to grant the necessary rights and access to the Commission, OLAF, the EPPO and the Court of Auditors and to ensure that any third parties involved in the implementation of Union funds grant equivalent rights. | (5) In accordance with Regulation (EU, Euratom) 2024/2509, Regulation (EU, Euratom) No 883/2013 of the European Parliament and of the Council, Council Regulation (EC, Euratom) No 2988/954 , Council Regulation (Euratom, EC) No 2185/965 and Council Regulation (EU) 2017/1939, the financial interests of the Union are to be protected through proportionate measures, including the prevention, detection, correction and investigation of irregularities and fraud, the recovery of funds lost, wrongly paid or incorrectly used and, where appropriate, the imposition of administrative sanctions, in line with the principles of sound financial management, namely economy, efficiency, effectiveness, transparency and accountability. In particular, in accordance with Regulation (EU, Euratom) No 883/2013 and Regulation (Euratom, EC) No 2185/96, the European Anti-Fraud Office (OLAF) may carry out investigations, including on-the-spot checks and inspections, with a view to establishing whether there has been fraud, corruption or any other illegal activity affecting the financial interests of the Union, on the basis of a risk-based and proportionate control approach and in full respect of the need to avoid administrative duplication. In accordance with Regulation (EU) 2017/19396, the European Public Prosecutor’s Office (EPPO) may investigate and prosecute fraud and other illegal activities affecting the financial interests of the Union as provided for in Directive (EU) 2017/1371 of the European Parliament and of the Council7. In accordance with Regulation (EU, Euratom) 2024/2509, any person or entity receiving Union funds is to fully cooperate in the protection of the Union’s financial interests, to grant the necessary rights and access to the Commission, OLAF, the EPPO and the Court of Auditors, including in third countries, and to ensure that any third parties involved in the implementation of Union funds grant equivalent rights and to ensure timely reporting to the budgetary authority, including the European Parliament and the Council, on the implementation and control of the Union funds in order to guarantee full democratic oversight and budgetary scrutiny. To facilitate those tasks, the Commission should ensure appropriate transparency on beneficiaries and final recipients of Union funding under this Regulation. |
| 4 OJ L 312, 23.12.1995, p. 1–4 | 4 OJ L 312, 23.12.1995, p. 1–4 |
| 5 OJ L 292, 15.11.1996, p. 2–5 | 5 OJ L 292, 15.11.1996, p. 2–5 |
| 6 OJ L 283, 31.10.2017, p. 1–71 | 6 OJ L 283, 31.10.2017, p. 1–71 |
| 7 OJ L 198, 28.7.2017, p. 29–41 | 7 OJ L 198, 28.7.2017, p. 29–41 |
| Text proposed by the Commission | Amendment |
|---|---|
| (5a) This Regulation should be implemented in full respect of the Union framework protecting the budget, including Regulation (EU, Euratom) 2020/20921a. The Commission should ensure appropriate transparency and reporting to the European Parliament and the Council on expenditure under this Regulation, including on measures affecting such expenditure adopted under that framework. The control framework should enable full traceability of operations, beneficiaries and final recipients and ensure that data necessary for checks, audits and investigations are complete, reliable and made available through relevant Union monitoring, reporting and control systems. | |
| a Regulation (EU, Euratom) 2020/2092 of the European Parliament and of the Council of 16 December 2020 on a general regime of conditionality for the protection of the Union budget (OJ L 433I, 22.12.2020, p. 1, ELI: http://data.europa.eu/eli/reg/2020/2092/oj). |
| Text proposed by the Commission | Amendment |
|---|---|
| (7) The Union Mechanism should promote solidarity between the Member States through practical cooperation and coordination, without prejudice to the Member States’ primary responsibility to protect people, the environment and property, including cultural heritage, on their territory against all disasters and to provide their disaster-management systems with sufficient capabilities to enable them to prevent, and cope adequately and in a consistent manner with, disasters of a nature and magnitude that can reasonably be expected and prepared for. | (7) The Union Mechanism should promote solidarity between the Member States through practical cooperation and coordination, without prejudice to the Member States’ primary responsibility and competence to protect people, the environment and property, including cultural heritage, on their territory against all disasters and to provide their disaster-management systems with sufficient capabilities to enable them to prevent, and cope adequately and in a consistent manner with, disasters of a nature and magnitude that can reasonably be expected and prepared for. |
| Text proposed by the Commission | Amendment |
|---|---|
| (9) In order to foster an integrated and comprehensive approach to disaster risk management, the Union action should cover all priorities for action under the Sendai framework. While structural resilience and preparedness measures are addressed horizontally and in relevant Union programmes, the Mechanism should address them in its different phases of the disaster management cycle, namely prevention, preparedness and response, through coordinated planning and action that anticipate and mitigate risks, enhance preparedness and enable effective response while recovery and reconstruction should remain addressed in other Union instruments. The Union should promote the importance of disaster prevention and the integration of preventive measures into governance and sectoral policies, with a view to reducing risks, strengthening the resilience of population, infrastructure and essential services and minimising the impact of disasters, as well as aim to further develop the Union disaster resilience goals established by Regulation (EU) 2021/836 of the European Parliament and of the Council8 . A stronger collective operational response at Union level, together with support for the individual capabilities of Member States through capacity-building measures, is essential to ensure the skills, resources and knowledge needed to manage risks, reduce vulnerabilities and enhance resilience to future risks and threats. | (9) In order to foster an integrated and comprehensive approach to disaster risk management, Union action should cover all priorities for action under the Sendai framework. While structural resilience and preparedness measures are addressed horizontally and in relevant Union programmes, the Mechanism should address them in its different phases of the disaster management cycle, namely prevention, preparedness and response, through coordinated planning and action that anticipate and mitigate risks, better incentivise proactive risk reduction, enhance preparedness and enable effective response while recovery and reconstruction should remain addressed in other Union instruments, in order to ensure complementarity, avoid overlap and prevent double funding. The Union should promote the importance of disaster prevention and the integration of preventive measures into governance and sectoral policies, with a view to reducing risks, strengthening the resilience of population, infrastructure and essential services and minimising the impact of disasters, as well as aim to further develop the Union disaster resilience goals established by Regulation (EU) 2021/836 of the European Parliament and of the Council8. A stronger collective operational response at Union level, together with support for the individual capabilities of Member States through capacity-building measures, is essential to ensure the skills, resources and knowledge needed to manage risks, reduce vulnerabilities and enhance resilience to future risks and threats. |
| 8 Regulation (EU) 2021/836 of the European Parliament and of the Council of 20 May 2021 amending Decision No 1313/2013/EU on a Union Civil Protection Mechanism (OJ L 185, 26.5.2021, p. 1, ELI: http://data.europa.eu/eli/reg/2021/836/oj). | 8 Regulation (EU) 2021/836 of the European Parliament and of the Council of 20 May 2021 amending Decision No 1313/2013/EU on a Union Civil Protection Mechanism (OJ L 185, 26.5.2021, p. 1, ELI: http://data.europa.eu/eli/reg/2021/836/oj). |
| Text proposed by the Commission | Amendment |
|---|---|
| (10) To ensure a comprehensive and up-to-date overview and understanding of the risk landscape on the national and appropriate sub-national level, Member States should regularly conduct and publish assessments of risks, the information on which they should share with the Commission at least once every 5 years, or where a significant change in the risk landscape requires the updating of such assessments. Those risk assessments, or the summaries thereof, should be used by the Commission and to produce and develop Union level disaster scenarios, plans, risks and threats assessments and risks management measures reports as necessary for a comprehensive understanding of risks affecting the Union, and the capabilities to address them. Such assessments and plans should be consistent and coordinated with other relevant national and Union level processes. | (10) To ensure a comprehensive and up-to-date overview and understanding of the risk landscape national and, where appropriate, sub-national level, Member States should regularly conduct and publish assessments of risks, the information on which they should transmit to the Commission at least once every 3 years, or where a significant change in the risk landscape requires the updating of such assessments. Those risk assessments, or the summaries thereof, should be used by the Commission to support and complement Member State efforts and to produce and develop Union-level disaster scenarios, plans, risk and threat assessments and risk-management-measures reports as necessary for a comprehensive understanding of risks affecting the Union, and the capabilities to address them. Such assessments and plans should be consistent and coordinated with other relevant national and Union-level processes, in line with the principles of consistency, interoperability and avoidance of duplication of reporting obligations. |
| Text proposed by the Commission | Amendment |
|---|---|
| (14) Unlike typical procurement activities, procurement activities related to preventing possible health crisis situations from escalating to actual crisis situations require a certain level of flexibility and reactivity. Hence, the Regulation should allow adding new contracting authorities without reaching the threshold required by Regulation (EU, Euratom) 2024/2509 in order to avoid that a potential serious health crisis unfolds. | (14) Unlike typical procurement activities, procurement activities related to preventing possible health crisis situations from escalating to actual crisis situations require a certain level of flexibility and reactivity. Hence, the Regulation should allow, in duly justified circumstances, the addition of new contracting authorities below the thresholds set out in Regulation (EU, Euratom) 2024/2509, provided that such flexibility is strictly necessary and proportionate in order to prevent a potential serious health crisis from unfolding. Such derogations should be subject to appropriate transparency, reporting and audit requirements, ensuring full respect of the principles of sound financial management. |
| Text proposed by the Commission | Amendment |
|---|---|
| (14a) The simplification and acceleration measures provided for by this Regulation, including the use of simplified forms of funding and accelerated response or procurement actions, should not reduce transparency, or the level of protection of the Union budget. Those measures should be based on appropriate and proportionate safeguards, including ex ante and ex post controls, reporting and audit arrangements, and ensuring sound financial management and the protection of the Union budget, while avoiding unnecessary administrative burden that could delay emergency response and civil protection operations. The Commission should establish appropriate guidance where necessary, under which such measures may be applied. |
| Text proposed by the Commission | Amendment |
|---|---|
| (18) In response to the increasing frequency and severity of natural and human-induced disasters, enhancing intergenerational societal resilience is essential and a collective responsibility. It requires harnessing the collective resources of youth and civil society organisations, media, education, training and cultural institutions, scientific institutions and academia, public authorities, social partners, the private sector, local networks and communities, and citizens in anticipating, preventing, managing, and recovering from disasters and crises. Effective population preparedness for all, including women and groups in vulnerable situations, children, older persons, refugees, people with a minority racial or ethnic background, such as Roma, and persons with disabilities as well as tourists and those who are temporarily present in the territory of a Member State and may be exposed to cross-border risks, strengthens societal resilience by ensuring that all people, irrespective of their ability, possess the knowledge, skills, and resources necessary to protect themselves and support others against potential risks and threats. | (18) In response to the increasing frequency and severity of natural and human-induced disasters, enhancing intergenerational societal resilience is essential and a collective responsibility. It requires harnessing the collective resources of youth and civil society organisations, media, education, training and cultural institutions, scientific institutions and academia, public authorities, social partners, the private sector, local networks and communities, and citizens in anticipating, preventing, managing, and recovering from disasters and crises. Effective population preparedness for all, including women and groups in vulnerable situations, children, older persons, refugees, people with a minority racial or ethnic background, such as Roma, and persons with disabilities as well as tourists and those who are temporarily present in the territory of a Member State and may be exposed to cross-border risks, strengthens societal resilience by ensuring that all people, irrespective of their ability, possess the knowledge, skills, and resources necessary to protect themselves and support others against potential risks and threats. In order to monitor whether Union spending under this Regulation effectively reaches the intended beneficiaries and strengthens population preparedness, and without prejudice to Regulation (EU) [XXX/XXXX] [Performance Regulation], performance data should, where relevant, proportionate and feasible, allow for an assessment of the effectiveness, efficiency and coverage of the actions financed, including as regards persons and communities most exposed to disaster risks. Such monitoring should contribute to transparency, accountability, sound financial management and the protection of the financial interests of the Union. |
| Text proposed by the Commission | Amendment |
|---|---|
| (26) Crises often show cross-sectoral nature, impacting multiple sides of society and requiring a coordinated and integrated response from various sectors. Whether stemming from natural hazards, security or public health emergencies, these crises tend to transcend traditional boundaries and affect multiple sectors simultaneously. Rules should be established to enable the Union Mechanism to effectively support cross-sectoral crisis management in complementarity with measures and procedures existing under other Union instruments. | (26) Crises often show cross-sectoral nature, impacting multiple sides of society and requiring a coordinated and integrated response from various sectors. Whether stemming from natural hazards, security or public health emergencies, these crises tend to transcend traditional boundaries and affect multiple sectors simultaneously. Rules should be established to enable the Union Mechanism to effectively support cross-sectoral crisis management in complementarity with measures and procedures existing under other Union instruments, while ensuring sound financial management. |
| Text proposed by the Commission | Amendment |
|---|---|
| (27) The multifaceted nature of cross-sectoral crises demands a comprehensive and integrated approach to their management, necessitating close and efficient cooperation to effectively navigate the challenges they present. National civil protection authorities should remain the primary competent authorities supporting the Union Mechanism. At the same time, it is necessary to ensure coordination, monitoring and support of cross-sectoral operation at the Union level, in support of national efforts. For this reason, a Crisis Coordination Hub (the ‘Hub’) should be established. The Hub shall operate in synergy with the Emergency Response Coordination Centre (ERCC) and complement its function, making use of the existing structures and expertise of the ERCC. The ERCC will continue its mandate supporting the Union Mechanism, and to provide a central point for operational coordination with Member States authorities, including entities authorised by the Member States, Union institutions and bodies, as well as Commission services. To maximise these efforts, rules should be put in place allowing the scaling up of Union support to Member State action, to accurately reflect the demands and the urgency of the needs. In order to link external action with internal crisis response more effectively and avoid duplication of efforts, the Hub should cooperate with the European External Action Service (EEAS), and in particular its Crisis Response Centre, in respect to the role and competences of the High Representative. | (27) The multifaceted nature of cross-sectoral crises demands a comprehensive and integrated approach to their management, necessitating close and efficient cooperation to effectively navigate the challenges they present. National civil protection authorities should remain the primary competent authorities supporting the Union Mechanism. At the same time, it is necessary to ensure coordination, monitoring and support of cross-sectoral operations at Union level, in support of national efforts. For this reason, a Crisis Coordination Hub (the ‘Hub’) should be established. The Hub should operate in synergy with the Emergency Response Coordination Centre (ERCC) and complement its function, making use of the existing structures and expertise of the ERCC. The ERCC will continue its mandate supporting the Union Mechanism and provide a central point for operational coordination with Member State authorities, including entities authorised by the Member States, Union institutions and bodies, as well as Commission services. To maximise these efforts, rules should be put in place allowing the scaling up of Union support to Member State action, to accurately reflect the demands and the urgency of the needs. In order to link external action with internal crisis response more effectively and avoid duplication of efforts, the Hub should cooperate with the European External Action Service (EEAS), and in particular its Crisis Response Centre, in respect of the role and competences of the High Representative, without creating additional administrative layers or duplications. The division of tasks between the Hub, the ERCC and other relevant Union crisis-management structures should be clear, traceable and auditable. |
| Text proposed by the Commission | Amendment |
|---|---|
| (34) With rising temperatures and prolonged periods of drought, the risk of wildfires in the Union is increasing and such fires are becoming more frequent and more intense; at the same time the limited availability of specialised response capacities, including amphibious aerial forest-fire-fighting means, remains a major concern and constitutes the Union’s principal operational challenge where multiple wildfires occur simultaneously. To ensure a smooth transition to the full implementation of rescEU, the Union-level reserve of capacities established by Decision (EU) 2019/420 of the European Parliament and of the Council12 , it is essential to prolong that transitional period as laid down in Decision (EU) 2023/2671 of the European Parliament and of the Council13 until 2034, so that the Union can continue financing national aerial fire-fighting means and make them available for response operations under the Union Mechanism while the permanent rescEU aerial forest-fire-fighting fleet is being progressively established; those new aerial-fire-fighting means, financed under rescEU, are currently under development and are expected to become progressively available starting in 2028. | (34) With rising temperatures and prolonged periods of drought, the risk of wildfires in the Union is increasing and such fires are becoming more frequent and more intense; at the same time the limited availability of specialised response capacities, including amphibious aerial forest-fire-fighting means, remains a major concern and constitutes the Union’s principal operational challenge where multiple wildfires occur simultaneously. To ensure a smooth transition to the full implementation of rescEU, the Union-level reserve of capacities established by Decision (EU) 2019/420 of the European Parliament and of the Council12 , it is essential to prolong that transitional period as laid down in Decision (EU) 2023/2671 of the European Parliament and of the Council13 until 2034, so that the Union can continue financing national aerial fire-fighting means and make them available for response operations under the Union Mechanism while the permanent rescEU aerial forest-fire-fighting fleet is being progressively established; those new aerial-fire-fighting means, financed under rescEU, are currently under development and are expected to become progressively available starting in 2028, ensuring cost-efficiency and continuity of critical operational capabilities. |
| 12 Decision (EU) 2019/420 of the European Parliament and of the Council of 13 March 2019 amending Decision No 1313/2013/EU on a Union Civil Protection Mechanism (OJ L 77I, 20.3.2019, p. 1, ELI: http://data.europa.eu/eli/dec/2019/420/oj). | 12 Decision (EU) 2019/420 of the European Parliament and of the Council of 13 March 2019 amending Decision No 1313/2013/EU on a Union Civil Protection Mechanism (OJ L 77I, 20.3.2019, p. 1, ELI: http://data.europa.eu/eli/dec/2019/420/oj). |
| 13 Decision (EU) 2023/2671 of the European Parliament and of the Council of 22 November 2023 amending Decision No 1313/2013/EU to extend the rescEU transitional period (OJ L, 2023/2671, 28.11.2023, ELI: http://data.europa.eu/eli/dec/2023/2671/oj). | 13 Decision (EU) 2023/2671 of the European Parliament and of the Council of 22 November 2023 amending Decision No 1313/2013/EU to extend the rescEU transitional period (OJ L, 2023/2671, 28.11.2023, ELI: http://data.europa.eu/eli/dec/2023/2671/oj). |
| Text proposed by the Commission | Amendment |
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| (44) Recognising the importance of fostering international cooperation in the field of civil protection, and without prejudice to rules governing the association of third countries to the Union Mechanism, it is essential for the Commission to engage in coordinated efforts with third countries having similar objectives in disaster risk management and civil protection. That should allow the Commission to align policy priorities and coordinate operations with national authorities of third countries designated as strategic partner countries. | (44) Recognising the importance of fostering international cooperation in the field of civil protection, and without prejudice to rules governing the association of third countries to the Union Mechanism, it is essential for the Commission to engage in coordinated efforts with third countries having similar objectives in disaster risk management and civil protection, while ensuring the protection of the Union’s financial interests. That should allow the Commission to align policy priorities and coordinate operations with national authorities of third countries designated as strategic partner countries. |
| Text proposed by the Commission | Amendment |
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| (48) The Union Mechanism is to be implemented in accordance with Regulation (EU) [XXX]* of the European Parliament and of the Council [performance regulation] which establishes the rules for the expenditure tracking and the performance framework for the budget, including rules for ensuring a uniform application of the principles of ‘do no significant harm’ and gender equality referred to in Article 33(2), points (d) and (f), of Regulation (EU, Euratom) 2024/2509 respectively, rules for monitoring and reporting on the performance of Union programmes and activities, rules for establishing a Union funding portal, rules for the evaluation of the programmes, as well as other horizontal provisions applicable to all Union programmes such as those on information, communication and visibility. | (48) The Union Mechanism is to be implemented in accordance with Regulation (EU) [XXX] of the European Parliament and of the Council [Performance Regulation], which establishes the rules for expenditure tracking and the performance framework for the budget, including rules for ensuring a uniform application of the horizontal principles and requirements laid down in Regulation (EU, Euratom) 2024/2509 and applicable to Union programmes and activities respectively, rules for monitoring and reporting on the performance of Union programmes and activities, rules for establishing a Union funding portal, rules for the evaluation of programmes, and other horizontal provisions applicable to all Union programmes such as those on information, communication and visibility. |
| Text proposed by the Commission | Amendment |
|---|---|
| (48a) Performance under this Regulation should be measured by its contribution to Union preparedness and response capacity and the effective protection of citizens. The indicators applied should, where appropriate, be result- and impact-oriented. Output indicators should demonstrate concrete added value and effectiveness. Implementation should also be consistent with Union rules and mechanisms aimed at protecting the Union’s financial interests, including through appropriate information exchange, anti-fraud cooperation and developments in the Union anti-fraud architecture. |
| Text proposed by the Commission | Amendment |
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| (48b) Without prejudice to the Performance Regulation [XXX], the specific objectives of this Regulation should be implemented and monitored through a clear performance framework, based on specific, measurable and, where appropriate, time-bound expected results and on output, result and, where appropriate, impact indicators, with baselines and target values where relevant. Those indicators should, as appropriate, cover the main fields of action under this Regulation, including prevention, preparedness, response, cross-sectoral crises and health emergency preparedness and response, and should be set out in the work programmes referred to in Article 12. Where relevant and to the extent possible, they should also reflect the applicable horizontal monitoring and implementation requirements referred to in Article 33(2), points (b) and (d), of Regulation (EU, Euratom) 2024/2509. The Commission should report annually to the European Parliament and to the Council on the methodology and coefficients used, the steps taken to ensure their reliability, the main results achieved, and any downward revisions following ex post verification. |
| Text proposed by the Commission | Amendment |
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| (49a) The rapidly changing risk and geopolitical context makes it appropriate to conduct a mid-term evaluation of whether this Regulation provides an adequate response. That evaluation should also assess the objectives, the suitability of the output and result indicators used, the effectiveness, efficiency, coherence and Union added value of this Regulation. |
| Text proposed by the Commission | Amendment |
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| 3a. This Regulation shall support proactive risk reduction, prevention and preparedness measures where they contribute to safeguarding the financial interests of the Union, in particular by reducing the need for more costly post-disaster response or reconstruction, and where they demonstrate Union added value. |
| Text proposed by the Commission | Amendment |
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| (25a) ‘final recipient’ means a contractor, subcontractor, remunerated external expert or a person or entity receiving grants, prizes or funds under this Regulation; government ministries, agencies or other bodies that oversee, regulate or administer the funds shall be considered final recipients where they are themselves involved in the execution and direct application of the work or service and bear the associated costs; |
| Text proposed by the Commission | Amendment |
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| (25b) ‘unique identifier’ means a distinct reference assigned to each action or contribution supported under this Regulation, enabling the consistent tracking of Union support across systems and sources of financing, facilitating interoperability and cross-checks to prevent double funding, and supporting audit and investigation activities, while respecting confidentiality, security and data-protection requirements. |
| Text proposed by the Commission | Amendment |
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| (a) strengthen the understanding and anticipation of disaster risks and threats, including those linked to climate change and public health, and work proactively to prevent or mitigate their potential impacts; foster prevention and preparedness; and enhance collaboration between civil protection, health and other relevant authorities; | (a) strengthen the understanding and anticipation of disaster risks and threats, including those linked to climate change and public health, and work proactively to prevent or mitigate their potential impacts; foster prevention and preparedness, including by better incentivising proactive risk reduction; and enhance collaboration between civil protection, health and other relevant authorities; |
| Text proposed by the Commission | Amendment |
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| 1a. Before the adoption of the first work programme referred to in Article 12, the Commission shall transmit to the European Parliament and the Council an indicative financial breakdown of the amount referred to in paragraph 1 by specific objective, by actions under Title II and Title III and by main category of action, together with the main assumptions and methodology used for estimating those amounts. The Commission shall update that breakdown where those assumptions are substantially revised. |
| Text proposed by the Commission | Amendment |
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| 4. The financial envelope referred to in paragraph 1 of this Article and the amounts of additional resources referred to in Article 7 may also be used for technical and administrative assistance for the implementation of the Regulation, such as preparatory, monitoring, control, audit and evaluation activities, corporate information technology systems and platforms, information and communication activities, including corporate communication on the political priorities of the Union, and all other technical and administrative assistance or staff related expenses incurred by the Commission for the management under this Regulation. | 4. The financial envelope referred to in paragraph 1 of this Article and the amounts of additional resources referred to in Article 7 may also be used for technical and administrative assistance for the implementation of this Regulation, such as preparatory, monitoring, control, audit and evaluation activities, including the design and operation of systems and methodologies to ensure the quality and, where appropriate, independent verification of performance and financial-management data and interoperability with relevant Union systems for monitoring, reporting and control, necessary information technology systems and platforms for implementation and control purposes, information and communication activities, including corporate communication on the political priorities of the Union, related to the objectives and implementation of this Regulation, and all other technical and administrative assistance or staff related expenses incurred by the Commission for the management of this Regulation. |
| Text proposed by the Commission | Amendment |
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| 5. In addition to Article 12(4) of Regulation (EU, Euratom) 2024/2509, commitment and payment appropriations that have not been used by the end of the financial year for which they were entered in the annual budget shall be automatically carried over and may be respectively committed and paid up to 31 December of the following year. The carried-over appropriations shall be used solely for response actions. The carried-over appropriations shall be the first appropriations to be used in the following financial year. | 5. In addition to Article 12(4) of Regulation (EU, Euratom) 2024/2509, commitment and payment appropriations that have not been used by the end of the financial year for which they were entered in the annual budget shall be automatically carried over and may be respectively committed and paid up to 31 December of the following year. The carried-over appropriations shall be used solely for response actions and shall be the first appropriations to be used in the following financial year. The Commission shall ensure that those carried-over appropriations are identifiable and traceable in budget implementation, accounting and reporting and shall indicate, in the annual report referred to in Article 12c, the amounts carried over, committed and paid and the actions financed. |
| Text proposed by the Commission | Amendment |
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| 5a. The Commission shall ensure that the implementation of this Regulation fully respects the principles of sound financial management set out in Regulation (EU, Euratom) 2024/2509. It shall ensure appropriate audit rights, full traceability of funds, the protection of the Union’s financial interests, and transparency in the implementation and use of Union funding. |
| Text proposed by the Commission | Amendment |
|---|---|
| 2. Resources allocated to Member States under shared management may, at their request, be made available under this Regulation. The Commission shall implement those resources directly or indirectly in accordance with Article 62(1), points (a) or (c) of Regulation (EU, Euratom) 2024/2509. They shall be additional to the amount referred to in Article 6(1) of this Regulation. Those resources shall be used for the benefit of the Member State concerned. Where the Commission has not entered into a legal commitment under direct or indirect management for additional amounts thus made available under this Regulation, the corresponding uncommitted amounts may, at the request of the Member State concerned, be transferred back to one or more respective source programmes or their successors. | 2. Resources allocated to Member States under shared management may, at their request, be made available under this Regulation. The Commission shall implement those resources directly or indirectly in accordance with Article 62(1), points (a) or (c), of Regulation (EU, Euratom) 2024/2509. They shall be additional to the amount referred to in Article 6(1) of this Regulation. Those resources shall be used for the benefit of the Member State concerned. Where the Commission has not entered into a legal commitment under direct or indirect management for additional amounts thus made available under this Regulation, the corresponding uncommitted amounts may, at the request of the Member State concerned, be transferred back to one or more respective source programmes or their successors, provided that such transfer does not jeopardise the implementation of this Regulation and is duly justified in terms of budgetary execution and programme needs. The Commission shall ensure full traceability and clear identification of all transferred amounts. |
| Text proposed by the Commission | Amendment |
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| 1. This Regulation shall be implemented in synergy with Union programmes. An action that has received a Union contribution from another programme may also receive a contribution under this Regulation. The rules of the relevant Union programme shall apply to the corresponding contribution, or a single set of rules may be applied to all contributions and a single legal commitment may be concluded. If all Union contributions are provided based on eligible cost, the cumulative support from the Union budget shall not exceed the total eligible costs of the action and may be calculated on a pro-rata basis in accordance with the documents setting out the conditions for support. | 1. This Regulation shall be implemented in synergy with Union programmes. An action that has received a Union contribution from another programme may also receive a contribution under this Regulation only where the same costs or, in the case of financing not linked to costs or simplified cost options, the same underlying activity, output, result or milestone are not financed more than once from the Union budget and no overcompensation arises. Applicants and beneficiaries shall declare all Union contributions received, requested or expected for the same action. The Commission, or the entity entrusted with implementation, shall ensure, through appropriate and proportionate safeguards, including arrangements for coordination, traceability and risk-based verification where appropriate, to ensure coordination and prevent double funding across Union programmes, while fully respecting forms of funding and financing not linked to costs. The rules of the relevant Union programme shall apply to the corresponding contribution, or, where possible, a single set of rules shall be applied to all contributions and a single legal commitment may be concluded. If all Union contributions are provided based on eligible costs, the cumulative support from the Union budget shall not exceed the total eligible costs of the action and may be calculated on a pro-rata basis in accordance with the documents setting out the conditions for support. Where at least one Union contribution is provided as financing not linked to costs or simplified cost options, the documents setting out the conditions for support shall specify appropriate arrangements to ensure compliance with the principles of sound financial management and the avoidance of double funding, while fully respecting the specific nature of financing not linked to costs and simplified cost options. |
| Text proposed by the Commission | Amendment |
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| 1a. For actions receiving combined or cumulative funding from the Union budget, the Commission shall ensure that the action is assigned a unique identifier and, while respecting confidentiality, security and data-protection requirements, shall maintain, to the extent possible, a horizontal overview of Union financial support to actions and initiatives in the areas covered by this Regulation that are also financed under other Union programmes. That overview shall identify, where available, the objectives, beneficiaries or implementing entities, amounts committed and paid and the main funding forms used, and shall be used for complementarity checks, prevention of overlap and double funding, and assessment of Union added value. The Commission shall provide, as part of the annual reporting referred to in Article 12c, a mapping of synergies and non-duplication between this Regulation and other relevant Union instruments. |
| Text proposed by the Commission | Amendment |
|---|---|
| (d) guarantee the rights of the Union to ensure sound financial management and to protect its financial interests; | (d) guarantee the rights of the Union to ensure sound financial management, a full audit trail and the protection of its financial interests, including effective monitoring, access to data and recovery mechanisms in case of irregularities or misuse of funds, and the audit, control and investigation rights of the Commission, the Court of Auditors, OLAF and, where applicable, the EPPO, with respect to all recipients and final recipients in the third country; |
| Text proposed by the Commission | Amendment |
|---|---|
| (ea) ensure compliance with the Union framework protecting the budget, including the rule of law where relevant for sound financial management and the protection of the Union’s financial interests, as well as appropriate and effective cooperation with the Union and its Member States; |
| Text proposed by the Commission | Amendment |
|---|---|
| (eb) provide for mechanisms enabling the Commission, where serious or persistent deficiencies risk undermining sound financial management, the protection of the Union’s financial interests or the obligations laid down in this paragraph, to assume the relevant functions itself, to transfer them to entities not affected by such deficiencies, or to apply appropriate corrective measures. |
| Text proposed by the Commission | Amendment |
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| For the purposes of point (d), the third country shall grant the necessary rights and access required under Regulations (EU, Euratom) 2024/2509 and (EU, Euratom) No 883/2013, and guarantee that enforcement decisions imposing a pecuniary obligation on the basis of Article 299 of the Treaty, as well as judgements and orders of the Court of Justice of the European Union, are enforceable. | For the purposes of point (d), the third country shall grant the necessary rights and access required under Regulations (EU, Euratom) 2024/2509 and (EU, Euratom) No 883/2013, including the right of the Court of Auditors to access relevant information and carry out audits and the right of OLAF and, where applicable, the EPPO to conduct investigations, on-the-spot checks and inspections, and guarantee that enforcement decisions imposing a pecuniary obligation on the basis of Article 299 TFEU, as well as judgments and orders of the Court of Justice of the European Union, are enforceable. |
| Text proposed by the Commission | Amendment |
|---|---|
| 3. Direct grants may be awarded by the Commission to Member States without a call for proposals for actions under the specific objectives referred to in Article 4(2) in accordance with Regulation (EU, Euratom) 2024/2509. | 3. Direct grants may be awarded by the Commission to Member States without a call for proposals for actions under the specific objectives referred to in Article 4(2) only in duly substantiated circumstances and in accordance with Regulation (EU, Euratom) 2024/2509. The work programme or the award documentation shall define in advance the exact conditions for such direct support and shall specify the justification for dispensing with a call for proposals, the categories of eligible actions and beneficiaries, and the safeguards applied to ensure transparency, equal treatment and absence of conflicts of interest. |
| Text proposed by the Commission | Amendment |
|---|---|
| 5. Where Union funding is provided in the form of a grant, funding shall be provided as financing not linked to costs or, where necessary, simplified cost options, in accordance with Regulation (EU, Euratom) 2024/2509. Funding may be provided in the form of actual eligible cost reimbursement only where the objectives of an action cannot be achieved otherwise. | 5. Where Union funding is provided in the form of a grant, funding may be provided as financing not linked to costs or, where applicable, other simplified cost options only where the work programme or the award documentation demonstrates that those forms of funding are appropriate having regard to the nature, objectives, measurability and risk profile of the action, are supported by robust result indicators and attribution methods, and ensure compliance with the principles of sound financial management, transparency, accountability and traceability. The use of those forms of funding shall be subject to Article 10a. In all other cases, funding shall be provided in the form of reimbursement of actual eligible costs in accordance with Regulation (EU, Euratom) 2024/2509. |
| Text proposed by the Commission | Amendment |
|---|---|
| 6. For the purposes of Article 153(3) of Regulation (EU, Euratom) 2024/2509, the evaluation committee may be composed partially or fully of independent external experts. | 6. For the purposes of Article 153(3) of Regulation (EU, Euratom) 2024/2509, the evaluation committee may be composed partially or fully of independent external experts. Where external experts are used, the granting authority shall ensure full transparency and traceability in the selection and appointment of experts, robust and documented management of conflicts of interest, and an appropriate level of independence and expertise commensurate with the risk, complexity and size of the action. The granting authority shall perform regular and risk-based ex ante and ex post checks, including random verifications where appropriate, to verify compliance with the declarations of conflicts of interest submitted by external experts, with a view to safeguarding sound financial management and protecting the Union’s financial interests. These requirements shall be applied in a proportionate manner so as not to create unnecessary administrative burden or delay the use of external expertise, while preserving the mechanism's ability to be activated swiftly in the event of a crisis. |
| Text proposed by the Commission | Amendment |
|---|---|
| Article 10a | |
| Conditions for the use of financing not linked to costs and simplified cost options | |
| 1 Financing not linked to costs or simplified cost options shall be used only where the action can be assessed by means of objective, specific, measurable and verifiable milestones, targets or other conditions for payment established in advance. | |
| 2. The work programme, call document or award documentation, while preserving the mechanism's ability to be activated swiftly in the event of a crisis, shall specify at least: | |
| (a) the methodology for determining the amount of Union support; | |
| (b) the outputs, results, milestones or other conditions triggering payment; | |
| (c) the evidence and supporting documentation required to demonstrate fulfilment of those conditions; | |
| (d) the arrangements for checks, audits, ex post verification and, where appropriate, on-the-spot controls; | |
| (e) the consequences of partial or non-fulfilment, including proportional reductions, suspension, recovery or other financial corrections. | |
| 3. Beneficiaries, entrusted entities and any third parties involved in implementation shall keep records and supporting documents sufficient to ensure a solid and reliable audit trail and to enable verification of the underlying action, including for the purposes of preventing double funding and overcompensation. | |
| 4. The use of financing not linked to costs or simplified cost options shall not affect the application of Union rules on exclusion, conflicts of interest, avoidance of double funding, recovery, audit and investigation rights, including those of the Court of Auditors, OLAF and, where applicable, the EPPO. |
| Text proposed by the Commission | Amendment |
|---|---|
| 5. In award procedures for grants, actions shall not be eligible for funding where those actions or parts thereof, are already fully financed from other public or private sources, except contributions from the Union in the context of synergy actions referred to in Article 8. | 5. In award procedures for grants, actions or parts thereof shall not be eligible for funding where they are already fully financed from other public or private sources, including other Union programmes, except in synergy actions referred to in Article 8. In such synergy actions, the same costs or, where financing not linked to costs or simplified cost options is used, the same underlying activity, output, result or milestone, shall not be financed more than once, and the combined Union support shall not exceed the total eligible costs of the action or otherwise lead to overcompensation. |
| Text proposed by the Commission | Amendment |
|---|---|
| The Regulation shall be implemented by work programmes referred to in Article 110 Regulation (EU, Euratom) 2024/2509. | This Regulation shall be implemented by work programmes referred to in Article 110 of Regulation (EU, Euratom) 2024/2509. |
| Text proposed by the Commission | Amendment |
|---|---|
| The work programmes shall, as appropriate, set out: | |
| (a) the budgetary allocations by specific objective, by management mode and, on an indicative basis, between actions under Title II and actions under Title III and between the main categories of prevention, preparedness and response; | |
| (b) the forms of Union funding to be used, including the specific conditions for direct grants awarded without a call pursuant to Article 10(3) and the justification for the use of financing not linked to costs or simplified cost options; | |
| (c) the expected results and the output, result and, where appropriate, impact indicators in line with the Regulation (EU, Euratom) 2024/2509, together with baselines and target values where relevant; | |
| (d) the data collection, reporting and verification arrangements necessary for monitoring performance and protecting the financial interests of the Union; | |
| (e) the measures ensuring complementarity, coordination and non-duplication with related actions financed under other Union programmes; | |
| (f) how the actions financed are expected to deliver Union added value and, where appropriate, value for money. |
| Text proposed by the Commission | Amendment |
|---|---|
| Any significant reallocation between actions under Title II and actions under Title III or between the main categories of prevention, preparedness and response shall be specifically justified in the work programme concerned or in its amendment. |
| Text proposed by the Commission | Amendment |
|---|---|
| Those work programmes shall also include an indicative financial allocation for programmable prevention and preparedness activities, without prejudice to the flexibility needed to respond to crises and emergencies. |
| Text proposed by the Commission | Amendment |
|---|---|
| Article 12a | |
| Protection of the financial interests of the Union and audit, control and investigation rights | |
| 1. The Commission shall take appropriate measures to ensure that, when actions financed under this Regulation are implemented, the financial interests of the Union are protected by the application of preventive measures against fraud, corruption, conflicts of interest, double funding and any other illegal activities, by effective controls and, if irregularities are detected, by the recovery of amounts wrongly paid and, where appropriate, by effective, proportionate and dissuasive administrative and financial penalties. | |
| 2. The Commission shall take all necessary measures to prevent double funding of the same costs or, where financing not linked to costs or simplified cost options is used, of the same underlying activity, output, result or milestone under this Regulation and under other Union programmes. On a risk-based basis, the Commission shall verify that Union support granted under this Regulation does not finance the same costs, activity, output, result or milestone twice. Each action receiving combined or cumulative funding from the Union budget shall be assigned a unique identifier to facilitate coordination, cross-checks, prevention of double funding across Union programmes, and the work of audit and investigation bodies while avoiding unnecessary administrative burden. | |
| 3. OLAF may carry out investigations related to funding under this Regulation, including on-the-spot checks and inspections, with a view to establishing whether there has been fraud, corruption or any other illegal activities affecting the financial interests of the Union. The EPPO is competent, in accordance with Regulation (EU) 2017/1939, to investigate and prosecute criminal offences affecting the financial interests of the Union. | |
| 4. Any person or entity receiving Union funds under this Regulation, whether in a Member State or a third country and whether under direct or indirect management, shall keep records and supporting documents sufficient to permit a full audit trail, shall fully cooperate in the protection of the Union’s financial interests, shall grant the necessary rights and access to the Commission, the Court of Auditors, OLAF and, where applicable, the EPPO, and shall ensure that any third parties involved in the implementation of Union funds grant equivalent rights and access. Those persons or entities shall also provide the Commission, upon request, with the information and supporting documentation necessary for the exercise by the European Parliament of its prerogatives in matters of budgetary control and discharge. | |
| 5. Financing agreements, contribution agreements, grant agreements, procurement contracts and any other legal commitments under this Regulation shall expressly reflect the obligations laid down in paragraph 4 and shall ensure that the Commission may transmit or make available to the European Parliament the information, documents and data necessary for the exercise of its prerogatives in matters of budgetary control and discharge, subject to applicable confidentiality, security and data-protection rules. | |
| 6. The Commission shall make available to the European Parliament, in particular for the purposes of the discharge procedure under Article 319 TFEU, subject to applicable confidentiality, security and data-protection rules and, where necessary, under appropriate arrangements for the handling of sensitive or EU classified information, the information, documents and data necessary for the exercise of Parliament’s prerogatives in matters of budgetary control and discharge. | |
| 7. The Commission shall, by 30 June each year, report to the European Parliament and the Council on cases of fraud, irregularities and suspected fraud detected under this Regulation during the preceding financial year, on the amounts involved, and on the state of recovery proceedings. |
| Text proposed by the Commission | Amendment |
|---|---|
| Article 12b | |
| Access to information for control, audit and investigation | |
| The Commission shall ensure that the European Parliament, in particular for the purposes of the discharge procedure under Article 319 TFEU, and Union institutions, bodies, offices and agencies involved in the implementation, audit, control, scrutiny or investigation of the Union budget have access, in accordance with applicable security rules, to the information, documents and data, including EU classified information, necessary for award procedures, implementation, reporting and payments and for checks, reviews, audits, scrutiny and investigations under this Regulation. The Commission shall ensure that practical arrangements for access to EU classified information for audit, scrutiny and investigative purposes, including for the discharge procedure under Article 319 TFEU, are established and implemented in a timely manner, including secure access modalities and appropriate handling procedures, so as not to limit effective scrutiny, audit or investigation. |
| Text proposed by the Commission | Amendment |
|---|---|
| Article 12c | |
| Annual reporting to the European Parliament and the Council | |
| 1. Without prejudice to Regulation (EU) [Performance Regulation] and Regulation (EU, Euratom) 2024/2509, the Commission shall transmit to the European Parliament and the Council, by 30 June each year, an annual report on the implementation of this Regulation for the preceding financial year, enabling the exercise of budgetary control and discharge responsibilities. | |
| 2. The annual report shall include, at least: | |
| (a) the financial implementation by specific objective, by actions under Title II and Title III, by management mode and by form of Union support, including the use of appropriations carried over pursuant to Article 6(5); | |
| (b) information on the geographical distribution of support among Member States, associated countries and, where applicable, third countries, including the main type of support provided; | |
| (c) the use of additional resources referred to in Article 7 and any amounts transferred back to the source programmes; | |
| (d) the use of financing not linked to costs, simplified cost options and actual cost reimbursement, including the number and volume of actions concerned; | |
| (e) the use of direct grants without a call for proposals pursuant to Article 10(3), including the legal basis, justification, number of cases and corresponding amounts; | |
| (f) the measures taken to ensure complementarity and prevent overlap, double funding and overcompensation, and the main findings of related controls; | |
| (g) the use of derogations and exceptions from Regulation (EU, Euratom) 2024/2509 and other applicable budgetary rules, including direct contract award procedures, negotiated procedures without prior publication and other exceptional measures deviating from the standard rules applicable to procurement or grants, together with their legal basis, justification, number of cases and corresponding amounts; | |
| (h) the use of Union support covering up to 100 % of the costs pursuant to Article 29(2), including the situations in which it was applied and the amounts committed and paid; | |
| (i) a summary of detected errors, irregularities, suspected and established fraud, conflicts of interest, exclusions and other protective measures under Regulation (EU, Euratom) 2024/2509, the main results of audits and controls, and recoveries and financial corrections, including outstanding recoveries and the amounts recovered during the year; | |
| (j) the result- and impact-oriented outcomes measured by the indicators in line with the Regulation (EU, Euratom) 2024/2509, with baselines and against targets fixed in the work programmes referred to in Article 12. | |
| 3. Where the annual report shows that the targets fixed in the work programmes referred to in Article 12 have not been substantially achieved, the Commission shall present to the European Parliament and the Council an assessment of the reasons for such underachievement and propose appropriate corrective measures. |
| Text proposed by the Commission | Amendment |
|---|---|
| Article 12d | |
| Transparency of Union support | |
| 1. The Commission shall ensure transparency of Union support provided under this Regulation in accordance with Regulation (EU, Euratom) 2024/2509 and shall publish annually, in a machine-readable format, information on beneficiaries, contractors and, where applicable and available, subcontractors, final recipients and other recipients, including at least the name, country of establishment, title or purpose of the action, specific objective, form of support and amounts committed and paid. | |
| 2. Any restriction of publication under this Article shall be necessary and proportionate, shall take account of security, public order and the protection of sensitive operational information, and shall be documented. Where publication is restricted, the Commission shall publish a non-confidential summary of the relevant information. |
| Text proposed by the Commission | Amendment |
|---|---|
| Article 12e | |
| Integrity screening and beneficial ownership information | |
| 1. The Commission shall ensure that support under this Regulation is not granted to, or for the benefit of, persons or entities subject to restrictive measures adopted by the Union under Article 215 TFEU, or to any other person or entity where awarding Union support would be prohibited under applicable Union law. | |
| 2. Applicants, beneficiaries, contractors, subcontractors, entrusted entities and other persons or entities receiving Union support under this Regulation shall provide, upon request and in accordance with applicable law, information on their beneficial ownership and control structure, including any changes occurring during implementation, for the purpose of protecting the financial interests of the Union. | |
| 3. Where support is implemented under indirect management, entrusted entities shall apply proportionate, risk-based integrity screening and due-diligence procedures in accordance with applicable Union and national law. | |
| 4. The Commission and, where relevant, entrusted entities shall ensure that legal commitments and agreements under this Regulation provide for suspension, termination, reduction, exclusion or recovery where paragraphs 1, 2 or 3 are breached, without prejudice to Regulation (EU, Euratom) 2024/2509. |
| Text proposed by the Commission | Amendment |
|---|---|
| To foster the development of a shared understanding of disaster risks and threats at Union level, identify common needs in disaster risk management capability building, support the implementation of the Union disaster resilience goals, and facilitate the exchange of good practices, the Member States, without prejudice to national rules and procedures, shall make available to the Commission a summary in accordance with the guidelines referred to in Article 16(2), by 31 December 2028 and at least once every 5 years thereafter: | To foster the development of a shared understanding of disaster risks and threats at Union level, identify common needs in disaster risk management capability building, support the implementation of the Union disaster resilience goals, and facilitate the exchange of good practices, the Member States, without prejudice to national rules and procedures, shall make available to the Commission a summary in accordance with the guidelines referred to in Article 16(2), by 31 December 2028 and, thereafter, at least once every 3 years, or where a significant change in the risk landscape requires the updating of such assessments: |
| Text proposed by the Commission | Amendment |
|---|---|
| (a) produce at least once every 5 years a report providing a cross-sectoral overview of natural and human-induced disaster risks that the Union faces, and the progress made in the implementation of Article 14 and the Union disaster resilience goals referred to in Article 13; | (a) produce at least once every 3 years a report providing a cross-sectoral overview of natural and human-induced disaster risks that the Union faces, and the progress made in the implementation of Article 14 and the Union disaster resilience goals referred to in Article 13; |
| Text proposed by the Commission | Amendment |
|---|---|
| (b) make recommendations to strengthen the level of prevention and preparedness in the Member State concerned. The Commission and that Member State shall keep each other informed about any measures taken following such recommendations. | (b) make recommendations to strengthen the level of prevention and preparedness in the Member State concerned. The Commission and that Member State shall keep each other informed about any measures taken following such recommendations. The Member State concerned shall, within the timeframe set by the Commission, report on the follow-up given to such requests or recommendations, including any remaining gaps and support needs. The Commission shall take that follow-up into account in the reports referred to in paragraph 1 and, where appropriate, in the preparation of support measures under this Regulation. |
| Text proposed by the Commission | Amendment |
|---|---|
| 3. The Commission and the Member States shall promote gender-balanced and inclusive participation in the establishment and the functioning of the Knowledge Network. | 3. The Commission and the Member States shall promote gender-balanced, geographically balanced and inclusive participation in the establishment and functioning of the Knowledge Network. |
| Text proposed by the Commission | Amendment |
|---|---|
| (b) strengthen the dissemination and uptake of research and innovation results in all phases of civil protection and disaster risk management, and stimulating interaction between research and innovation results, the private sector, and Member State authorities. | (b) strengthen the dissemination and uptake of research and innovation results in all phases of civil protection and disaster risk management, and stimulate interaction between research and innovation actors, the private sector, relevant public-interest and civil society stakeholders and Member State authorities. |
| Text proposed by the Commission | Amendment |
|---|---|
| 6. Member States shall on a voluntary basis identify, commit and register the response capacities which they offer to the ECPP, including relevant military capacities that could be used as part of assistance. The registration of multinational modules provided by two or more Member States shall be undertaken jointly by all the Member States concerned. | 6. Member States shall, on a voluntary basis, identify, commit and register in CECIS the response capacities which they offer to the ECPP, including relevant military capacities that could be used as part of assistance, and shall update that information when necessary. The registration of multinational modules provided by two or more Member States shall be undertaken jointly by all the Member States concerned. |
| Text proposed by the Commission | Amendment |
|---|---|
| 8. rescEU capacities may only be used for national purposes, including dual-use capacities, when not being used or needed for response. | 8. rescEU capacities may only be used for national purposes, including dual-use capacities, when not being used or needed for response and subject to prior approval by the Commission through the ERCC. Such national use and its impact on the availability of rescEU capacities shall be notified without delay through CECIS. |
| Text proposed by the Commission | Amendment |
|---|---|
| 1a. The Commission is empowered to adopt delegated acts in accordance with Article [in accordance with the provisions of this Regulation governing the exercise of the delegation] to supplement this Regulation by laying down the detailed arrangements for the functioning of the Hub, including its responsibilities, coordination with the ERCC and with other relevant Union crisis-management structures, the division of tasks, and the procedures for information-sharing, traceability of operational decisions and the avoidance of overlap and duplication. |
| Text proposed by the Commission | Amendment |
|---|---|
| 9. Interventions outside of the Union under this Article may be conducted either as an autonomous assistance intervention or as a contribution to an intervention led by an international organisation. The Union coordination shall be fully integrated with the overall coordination provided by United Nations and its agencies and shall respect their leading role. In the case of human-induced disasters or complex emergencies, the Commission shall ensure consistency with the European Consensus on Humanitarian Aid, and respect for humanitarian principles. | 9. Interventions outside of the Union under this Article may be conducted either as an autonomous assistance intervention or as a contribution to an intervention led by an international organisation. The Union coordination shall be fully integrated with the overall coordination provided by the United Nations and its agencies and shall respect their leading role. In the case of human-induced disasters or complex emergencies, the Commission shall ensure consistency with the European Consensus on Humanitarian Aid, and respect for humanitarian principles. Where Union support under this Article is provided in the territory of a third country, the Commission shall ensure appropriate, risk-based control and accountability measures, proportionate to the nature, value and risks of the support provided, with a view to safeguarding the legality and regularity of expenditure, sound financial management and the protection of the Union’s financial interests, including, where appropriate, arrangements to verify the use of Union-funded equipment and capacities, and shall report annually thereon to the European Parliament and the Council. Union support under this Article shall be implemented in accordance with the Charter of Fundamental Rights of the European Union and applicable international human rights and humanitarian law. |
| Text proposed by the Commission | Amendment |
|---|---|
| 2. In the cases referred to in paragraph 1, the Union support to response may cover up to 100% of the costs to reflect the scale and the impact of the crisis. | 2. In the cases referred to in paragraph 1, the Union support to response may cover up to 100 % of the costs only where that level of support is duly justified, on the basis of a documented needs and risk assessment, by the scale, urgency and impact of the crisis. The relevant legal commitment or award documentation shall set out the specific safeguards applicable to such support, including arrangements for audit, control, traceability and reporting. |
| Text proposed by the Commission | Amendment |
|---|---|
| 3. In the cases referred to in paragraph 1, the Commission may procure or award grants to Member States for the procurement of material means and any necessary enabling service needed to complement assistance under the Union Mechanism. | 3. In the cases referred to in paragraph 1, and in accordance with Regulation (EU, Euratom) 2024/2509, the Commission may procure or award grants to Member States for the procurement of material means and any necessary enabling service needed to complement assistance under the Union Mechanism, provided that the legal commitment or procurement documents specify the justification, scope, duration, applicable control and reporting arrangements and the measures to prevent overlap, double funding and overcompensation. Any use of accelerated or exceptional procedures shall be duly substantiated and documented. The Commission shall ensure full transparency, traceability and accountability of Union expenditure, including through appropriate monitoring, reporting and audit requirements. |
| Text proposed by the Commission | Amendment |
|---|---|
| The work programmes shall specify the funding rates applicable to actions under this Article and the justification for those rates, including any case where Union support covers up to 100 % of the eligible costs. |
| Text proposed by the Commission | Amendment |
|---|---|
| Support under this Article shall be implemented in complementarity with Regulations (EU) 2022/2371 and (EU) 2022/2372 and with relevant Union agencies and structures. The work programmes and legal commitments shall specify, as appropriate, which tools, capacities and structures under this Regulation, including those under Title II, may support actions under this Article, under which conditions they may be used, and the arrangements ensuring coordination, traceability, monitoring and avoidance of overlap, duplication and double funding. |
Back matter, 1
Parts that accompany the text rather than belong to it: explanatory statement, annexes, opinions appended by other committees. Collapsed.
Annex: declaration of input 1 block
The rapporteur for opinion declares under his exclusive responsibility that he did not include in his opinion input from interest representatives falling within the scope of the Interinstitutional Agreement on a mandatory transparency register, or from representatives of public authorities of third countries, including their diplomatic missions and embassies, to be listed in this Annex pursuant to Article 8 of Annex I to the Rules of Procedure.
Procedure pages and committee votes
How the committees handled the text and how their members voted on it. Collapsed.
Procedure – committee asked for opinion 1 block
| Title | Union Civil Protection Mechanism and Union support for health emergency preparedness and response, and repealing Decision No 1313/2013/EU (Union Civil Protection Mechanism) | |
| References | COM(2025)0548 – C10-0174/2025 – 2025/0223(COD) | |
| Committee(s) responsible Date announced in plenary | ENVI 23.10.2025 | SANT 23.10.2025 |
| Opinion by Date announced in plenary | CONT 23.10.2025 | |
| Rapporteur for opinion Date appointed | Jonas Sjöstedt 15.1.2026 | |
| Discussed in committee | 5.5.2026 | |
| Date adopted | 2.6.2026 | |
| Result of final vote | +: –: 0: | 22 2 4 |
Final vote by roll call by the committee asked for opinion 3 blocks
22 · For
- ECR
- Bert-Jan Ruissen
- EPP
- Georgios Aftias, Paulo Cunha, András Tivadar Kulja, Jacek Protas, Andreas Schwab, Susana Solís Pérez, Angelika Winzig, Tomáš Zdechovský
- Patriots
- Ondřej Knotek
- Renew
- Gilles Boyer, Olivier Chastel, Gerben-Jan Gerbrandy
- S&D
- Delara Burkhardt, Christophe Clergeau, Giuseppe Lupo, Marit Maij, Csaba Molnár
- The Left
- Jonas Sjöstedt, Pasquale Tridico
- Greens
- Daniel Freund, Rasmus Nordqvist
Connections
The dossier, the decisions on this text and its other versions.
No connections found for this item.
Sources & citation
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- Data source
- Licensed CC BY 4.0.
- Retrieved
- 25 September 2026
Cite as
European Parliament (2026). “OPINION on the proposal for a regulation of the European Parliament and of the Council on the Union Civil Protection Mechanism and Union support for health emergency preparedness and response, and repealing Decision No 1313/2013/EU (Union Civil Protection Mechanism)”. Text, 8 June 2026. docId CONT-AD-787628. EU Parl Watch Research. https://news.eu-parl.st-solutions.dev/texts/CONT-AD-787628 (retrieved 25 September 2026). Data: EP Open Data API: document record, https://data.europarl.europa.eu/api/v2/documents/CONT-AD-787628 (CC BY 4.0).
BibTeX
@misc{epw-text-cont-ad-787628,
author = {{European Parliament}},
title = {{OPINION on the proposal for a regulation of the European Parliament and of the Council on the Union Civil Protection Mechanism and Union support for health emergency preparedness and response, and repealing Decision No 1313/2013/EU (Union Civil Protection Mechanism)}},
year = {2026},
date = {2026-06-08},
howpublished = {\url{https://news.eu-parl.st-solutions.dev/texts/CONT-AD-787628}},
url = {https://news.eu-parl.st-solutions.dev/texts/CONT-AD-787628},
urldate = {2026-09-25},
publisher = {EU Parl Watch Research},
note = {Text. docId CONT-AD-787628. Data: EP Open Data API: document record (CC BY 4.0)}
}