What changed between the plenary report and the adopted text

FINAL Budget 2025 – Elements for joint conclusions

These joint conclusions cover the following sections:

1. Budget 2025

2. Statements

Summary overview

According to the elements for joint conclusions:

- The overall level of commitment appropriations in the 2025 budget is set at EUR 199 438,4 million. Overall, this leaves a margin below the MFF ceilings for 2025 of EUR 800,5 million in commitment appropriations.

- The overall level of payment appropriations in the 2025 budget is set at EUR 155 209,3 million. Overall, this leaves a margin below the MFF ceiling for 2025 of EUR 28 302,7 million in payment appropriations.

- The Flexibility Instrument for 2025 is mobilised in commitment appropriations for an amount of EUR 1 162,4 million, of which EUR 4,7 million for sub-heading 2a Economic, social and territorial cohesion, EUR 1 136,8 million for sub-heading 2b Resilience and Values, EUR 15,6 million for heading 5 Security and Defence and EUR 5,2 million for heading 6 Neighbourhood and the World.

- In accordance with Article 11(1) a of the MFF Regulation, the Single Margin Instrument is mobilised in commitment appropriations for an amount of EUR 721,0 million for heading 7 European Public Administration.

The 2025 payment appropriations related to the mobilisation of the Flexibility Instrument in the years 2022 to 2025 are estimated by the Commission at EUR 1 398,8 million. The estimated payment schedule of the related outstanding amounts for these years is detailed in the following table:

1. Budget 2025

1.1. 'Closed' lines

Additionally, unless stated otherwise, all budget lines amended by the Council and agreed by the Parliament in its reading are confirmed as amended by the Council.

For the other budget lines, the Conciliation Committee has agreed on the conclusions included in sections 1.2 to 1.7 below.

1.2. Horizontal issues

Decentralised agencies

 Under sub-heading 2b:

 The European Public Prosecutor’s Office (EPPO, budget article 07 10 08), for which the level of commitment and payment appropriations is increased by EUR 2,0 million including to finance additional 14 SNEs to support the work of the permanent chambers.

 Under heading 5:

 The European Union Agency for Law Enforcement Cooperation (Europol, budget article 12 10 01), for which 15 posts are added to the establishment plan and the level of commitment and payment appropriations is increased by EUR 5,0 million.

Executive agencies

Pilot Projects/Preparatory Actions

A comprehensive package of 33 pilot projects/preparatory actions (PP/PA), of which 22 new, for a total amount of EUR 104,5 million in commitment appropriations is agreed as proposed by the Parliament.

This package respects the ceilings for pilot projects and preparatory actions set out in the Financial Regulation.

1.3. Expenditure headings of the financial framework - commitment appropriations

After taking into account the above conclusions on agencies and pilot projects and preparatory actions, the Conciliation Committee has agreed on the following:

Heading 1 – Single Market, Innovation and Digital

Commitment appropriations are set at the level proposed by the Commission in the Draft Budget, as amended by Amending Letter 1/2025 but with the following adjustments, agreed by the Conciliation Committee, set out in the table below:

In accordance with Article 15.3 of the Financial Regulation, the Conciliation Committee agrees to make commitment appropriations available again on the research budget lines for a total of EUR 115,9 million in commitment appropriations, i.e. an increase of EUR 20,0 million as compared to the level proposed by the Commission in the Draft Budget, as amended by Amending Letter 1/2025. The following budget line is reinforced, and its budget remarks revised accordingly:

These appropriations are part of the additional top-up to EUR 100 million (in 2018 prices) agreed in the context of the MFF revision. Including the original MFF agreement, this leaves up to EUR 152,6 million in 2018 prices available for the 2026-2027 period, of which EUR 62,6 million from the 2019 and 2020 de-commitments.

As a consequence, the agreed level of commitment appropriations is set at EUR 21 480,1 million, leaving a margin of EUR 115,9 million under the expenditure ceiling of heading 1.

Sub-heading 2a – Economic, social and territorial Cohesion

Commitment appropriations are set at the level proposed by the Commission in the Draft Budget but with the following adjustments, agreed by the Conciliation Committee, set out in the table below:

As a consequence, the agreed level of commitment appropriations is set at EUR 66 365,7 million, with no margin left under the expenditure ceiling of sub-heading 2a and the mobilisation of the Flexibility Instrument for an amount of EUR 4,7 million in accordance with Article 12 of the MFF Regulation.

Sub-heading 2b – Resilience and Values

Commitment appropriations are set at the level proposed by the Commission in the Draft Budget, as amended by Amending Letter 1/2025 but with the following adjustments, agreed by the Conciliation Committee, set out in the table below:

For Erasmus+, Article 07 03 03 Promoting learning mobility of sport coaches and staff, as well as cooperation, inclusion, creativity and innovation at the level of sport organisations and sport policies would allow a contribution to the financing of actions related to the next special Olympics. The Commission will monitor the needs of the line throughout the year.

The overall needs of the EURI interest line of EUR 2 283,2 million above the financial programming for 2025 are financed in part by the remaining margin under sub-Heading 2b of EUR 4,7 million and the mobilisation of EUR 1 136,8 million under the Flexibility Instrument, an overall amount of EUR 1 141,6 million corresponding to the benchmark of 50 % of the 2025 cost overrun. The remaining 50 %, i.e. EUR 1 141,6 million will be covered by the de-commitments made since 2021 in line with Article 10a para 3(a) of the MFF Regulation. The 50% benchmark will be targeted annually.

As a consequence, the agreed level of commitment appropriations is set at EUR 11 614,4 million, with no margin left under the expenditure ceiling of sub-heading 2b and the mobilisation of the Flexibility Instrument for an amount of EUR 1 136,8 million in accordance with Article 12 of the MFF Regulation and the mobilisation of the EURI instrument for an amount of EUR 1 141,6 million in accordance with Article 10a para 3(a) of the MFF Regulation.

Heading 3 – Natural Resources and Environment

Commitment appropriations are set at the level proposed by the Commission in the Draft Budget, as amended by Amending Letter 1/2025 but with the following adjustments, agreed by the Conciliation Committee, set out in the table below:

As a consequence, the agreed level of commitment appropriations is set at EUR 56 731,3 million, leaving a margin of EUR 604,7 million under the expenditure ceiling of heading 3.

Heading 4 – Migration and Border Management

Commitment appropriations are set at the level proposed by the Commission in the Draft Budget, as amended by Amending Letter 1/2025 but with the following adjustments, agreed by the Conciliation Committee, set out in the table below:

As a consequence, the agreed level of commitment appropriations is set at EUR 4 791,1 million, leaving a margin of EUR 79,9 million under the expenditure ceiling of heading 4.

Heading 5 – Security and Defence

Commitment appropriations are set at the level proposed by the Commission in the Draft Budget, as amended by Amending Letter 1/2025 but with the following adjustments, agreed by the Conciliation Committee, set out in the table below:

As a consequence, the agreed level of commitment appropriations is set at EUR 2 632,6 million, with no margin left under the expenditure ceiling of heading 5 and the mobilisation of the Flexibility Instrument for an amount of EUR 15,6 million in accordance with Article 12 of the MFF Regulation.

Heading 6 – Neighbourhood and the World

Commitment appropriations are set at the level proposed by the Commission in the Draft Budget but with the following adjustments, agreed by the Conciliation Committee, set out in the table below:

As a consequence, the agreed level of commitment appropriations is set at EUR 16 308,2 million, with no margin left under the expenditure ceiling of heading 6 and the mobilisation of the Flexibility Instrument for an amount of EUR 5,2 million in accordance with Article 12 of the MFF Regulation.

Heading 7 – European Public Administration

The number of posts in the establishment plans of the institutions and the appropriations proposed by the Commission in the Draft Budget, as amended by Amending Letter 1/2025 are agreed by the Conciliation Committee with the following exceptions:

 The amendments introduced by the European Council to its own section and confirmed by the European Parliament in its reading are reinstated also making due consideration of the adjustments proposed in Amending Letter 1/2025. Overall, this results in three additional posts and a level of appropriations of EUR 715,9 million, which represents an increase of EUR 195 000 in comparison with the Draft Budget as amended by Amending Letter 1/2025;

 The section of the Court of Justice of the European Union for which two posts are added to the establishment plan and the level of commitment and payment appropriations increased by EUR 140 000;