What changed between the plenary report and the adopted text

Change 1

Removed:EXPLANATORY STATEMENT - SUMMARY OF FACTS AND FINDINGS

Added:P10_TA(2025)0307

Change 2

Changed:The Trade and Cooperation AgreementImplementation betweenof the EUEU-UK Trade and theCooperation UKAgreement

Change 3

Removed:The Trade and Cooperation Agreement (TCA) establishes a new framework for the post-Brexit relationship between the European Union (EU) and the United Kingdom (UK). It was signed on 30 December 2020 and entered into force on 1 January 2021. The TCA provides the basis for comprehensive relations between the parties, which covers a wide variety of areas including trade, energy, judicial cooperation in criminal matters and law enforcement, fisheries, transport and social security coordination. Furthermore, the TCA ensures a level playing field for fair competition and sustainable development, including dispute settlement and governance mechanisms, as well as respect for fundamental rights.

Added:Committee on Foreign Affairs , Committee on International Trade

Removed:The TCA between the UK and the EU is unique amongst other Free Trade Agreements (FTAs) between the EU and third countries as this agreement deals with trade and cooperation with a former EU Member State. In this way, this TCA replaced trade arrangements and cooperation which had been in place whilst the UK was still a Member State and benefitted from the EU Customs Union and the single market.

Added:PE768.086

Removed:EU-UK relations

Added:European Parliament resolution of 27 November 2025 on the implementation of the EU-UK Trade and Cooperation Agreement (2024/2108(INI))

Removed:Despite Brexit, the UK and the EU remain allies and neighbours with a long shared history, continuing to uphold common interests and values on the global stage. Engagement between the UK and EU has improved since the political agreement on the Windsor Framework in February 2023 and more recently with the UK Prime Minister’s pledge to renew the UK’s relationship with the EU in July 2024.

Removed:The new UK Government has signalled an interest in exploring new possible areas of collaboration with the EU based on three pillars: foreign policy, defence, and security cooperation; safety of citizens; growth and trade. The red lines set by the UK Government continue to be: no single market membership, no customs union and no freedom of movement.

Removed:On 2 October 2024, the UK Prime Minister Starmer and the Commission President von der Leyen’s first meeting resulted in a commitment to hold regular EU-UK Summits, the first of which was held on 19 May 2025. Furthermore, the leaders reiterated their unwavering support for Ukraine’s sovereignty and agreed to strengthen EU-UK cooperation on global challenges such as economic headwinds, geopolitical competition, irregular migration, climate change, and energy prices.

Removed:At the General Affairs Council meeting of 17 December 2024, Ministers exchanged views on the EU-UK relations. They recalled the necessity of the full and faithful implementation of existing agreements and called for close cooperation with the UK in the field of foreign and security policy. Other priority areas considered were youth exchanges, fisheries and energy. On 18 March 2025 the General Affairs Council held another debate on the EU-UK relations in view of the EU-UK Summit of 19 May 2025. Ministers stressed the importance of working more closely with the UK in the field of security and defence.

Removed:On 2 April 2025, the European Parliament, in its resolutions on CFSP and CSDP, welcomed the renewed impetus from the new UK Government to reflect with the EU on possibilities for closer and more permanent foreign policy and security cooperation. It also highlighted the scope of the issues of common interest in fields such as defence, climate and energy, border management, the fight against terrorism, organised crime and the promotion of peace and stability.

Removed:On 19 May 2025, UK Prime Minister Starmer, Commission President von der Leyen and Council President Costa met in London. Following intense negotiations, both sides reached and signed a wide-ranging agreement. The outcomes of the summit were laid out in the three documents: (i) EU-UK Joint Statement; (ii) Security and Defence Partnership; and (iii) A renewed agenda for an EU-UK Cooperation Common Understanding.

Removed:The link between the Withdrawal Agreement and the Trade and Cooperation Agreement

Removed:Most of the challenges over the implementation of both agreements have been linked to the UK’s refusal to uphold its legal obligations under the Withdrawal Agreement. However, in the Windsor Political Declaration of 27 February 2023, both the Commission and the UK Government expressed their intention to fully exploit the potential of the TCA in the future.

Removed:The Windsor Framework aims to address the implementation challenges associated with the type of Brexit chosen by the UK, that the Protocol on Ireland/Northern Ireland tried to resolve in order to maintain the stability and peace brought about through the Good Friday Agreement, with an open and seamless border between the Republic of Ireland and Northern Ireland. The broad support for the Framework, as demonstrated by the vote of 10 December 2024 in the Northern Ireland Assembly, has increased expectations of a positive spillover into other areas of cooperation between the EU and the UK.

Removed:Institutional structure and role of the European Parliament

Removed:The institutional arrangements provided for in the TCA are fully operational since 2022. All joint bodies are up and running, holding regular meetings. The constructive involvement of civil society is a welcome development.

Removed:Concerning bilateral relations between the European Parliament and Parliament of the UK, the establishment of the EU-UK Parliamentary Partnership Assembly (PPA) has been a successful undertaking in line with the TCA, which promotes cooperation on common challenges. Since its establishment in 2022, it has met five times, most recently on 17-18 March 2025 in Brussels, marked by a spirit of cooperation and renewed enthusiasm for the partnership.

Removed:Concerning the involvement of UK devolved nations in the PPA, two Members of each of the devolved Assemblies are invited to participate as Observers by the UK Parliament. The European Parliament invites the President of the Committee of the Regions and the European Economic and Social Committee.

Removed:Free trade agreement: economic and social partnership

Removed:The TCA establishes a new economic and social partnership with the UK, covering not just trade in goods and services, but other areas as well, such as investment, competition, State aid, tax transparency, air and road transport, energy and sustainability, fisheries, personal data protection, and social security coordination. The TCA is the first FTA ever concluded by the EU providing zero tariffs and zero quotas on all goods that comply with the appropriate rules of origin.

Removed:Level playing field provisions are a crucial tenet of the agreement, whereby both parties have committed to maintaining high levels of protection in areas of the environmental protection, the fight against climate change and carbon pricing, social and labour rights, tax transparency and State aid, with effective, domestic enforcement, a binding dispute settlement mechanism and the possibility for both parties to take remedial measures.

Removed:The TCA establishes a new framework for the joint management of fish stocks in EU and UK waters.

Removed:On transport, the agreement provides for continued and sustainable air, road, rail and maritime connectivity, though market access falls below what the Single Market offers. It contains rules on competition, ensuring level playing field not to undermine passenger rights, worker’s rights and transport safety.

Removed:For energy, a new model for trading and interconnectivity has been set up, with guarantees for open and fair competition, including on safety standards for offshore, and production of renewable energy.

Removed:The TCA aims at ensuring a number of rights of EU citizens and UK nationals in the field of the social security coordination. This applies to citizens working in, travelling or moving to the other party of the TCA after 1 January 2021.

Removed:The TCA also provides for the possibility for the UK to participate in certain EU programmes subject to the adoption of bilateral protocols and financial contributions. As of 1 January 2024, the UK participates as an associated country in Horizon Europe Programme and in the Copernicus Programme.

Removed:Cooperation on Foreign Policy, Security and Defence

Removed:Despite the inclusion of EU-UK cooperation on foreign policy, external security and defence in the Political Declaration accompanying the Withdrawal Agreement, the UK government ultimately chose not to pursue negotiations on cooperation in this area within the TCA. Since January 2021 and until the adoption of the Security and Defence Partnership on 19 May 2025, no bilateral, institutionalised framework had existed through which a coordinated and unified response to foreign policy challenges can be agreed.

Removed:Nonetheless, cooperation between the EU and the UK in this area has been strong, particularly since the start of Russia’s illegal and unjustified war of aggression against Ukraine. While coordination has taken place through various frameworks and on a more ad hoc basis, it has delivered a strong and unified response in support of Ukraine’s sovereignty and territorial integrity.

Removed:On 14 October 2024, UK Foreign Secretary David Lammy participated in the Foreign Affairs Council, with talks focussing on the main challenges facing European security. Furthermore, High Representative Borrell and UK Foreign Secretary Lammy agreed that the EU and the UK would establish a six-monthly Foreign Policy Dialogue to enable strategic cooperation on the highest priority issues of joint interest, namely on Russia’s war of aggression against Ukraine, the Indo-pacific, hybrid threats and the Western Balkans.

Removed:On 3 February 2025 Prime Minister Starmer participated at a dinner with EU leaders discussing European defence and security at their informal meeting. Furthermore, the UK Prime Minister played an active role in initiating the ‘coalition of the willing’ aimed at establishing a coordinated international framework for the provision of support and assistance to Ukraine.

Removed:In its March 2025 White Paper on European Defence Readiness 2030, the Commission recognised the UK as a key European ally and called for closer security and defence cooperation in mutual interest, including a potential Security and Defence Partnership. It emphasised opportunities to build on existing agreements and expand collaboration in areas such as crisis management and defence industrial policy.

Removed:Parliament, in its resolution on the White Paper, recognised the need for the EU to act urgently to ensure its own autonomous security, while strengthening partnerships with like-minded partners and reducing its dependencies on non-EU countries. Parliament insisted on the need to ensure geographical coherence by taking stock of the will of the EU and the UK, first and foremost to build security guarantees for Ukraine and become even closer security partner.

Removed:Parliament recognises the contributions of the UK to Europe’s security and stability and welcomes the UK Government’s renewed commitment to explore closer and more lasting cooperation with the EU on foreign policy and security. In today’s geopolitical situation, the benefits of coordination between close geographical neighbours with shared democratic values are more evident than ever. Strengthening such cooperation not only reinforces mutual security and resilience, but also opens the door to developing a more structured cooperation, focused on achieving common.

Removed:On the procedure

Removed:The EU-UK Trade and Cooperation Agreement (TCA) is based on Article 217 (Part five: The Union’s external action, Title V: International Agreements), in conjunction with Article 218 (Part five: External action by the Union, Title IV: Restrictive measures), of the Treaty on the Functioning of the European Union (TFEU).

Removed:The TCA is unprecedented in terms of international agreements, due to its scope and complexity. Article 776 of the TCA puts an obligation for the parties to jointly review the implementation of the Agreement and supplementing agreements as well as any matters related thereto five years after its entry into force, and every five years thereafter.

Removed:Parliament therefore has developed a comprehensive, effective and transparent scrutiny process of the TCA, while ensuring a coherent and unified approach. Implementation reports on international agreements must take due account of the availability of reliable facts regarding the state of implementation of the relevant legislation. Effective scrutiny relies on the knowledge and expertise of all involved committees in accordance with their responsibilities and working practices. The monitoring of the TCA’s implementation is carried out by the Committees in a coordinated and inclusive manner, in full respect of their competences as laid out in Annex VI of the Rules of Procedure.

Removed:The report is the second evaluation by the European Parliament of the implementation of the TCA, since its provisional application from 1 January 2021 and entry into force on 1 May 2021. Since the entry into force, the Commission has published four implementation reports of the agreement for the years 2021 to 2024.

Removed:The report aims to take stock of the main issues linked to the implementation of the TCA, its satisfactory aspects and areas where implementation work needs to begin, and where work needs to continue, also highlighting elements which require continuous monitoring and scrutiny, including through the civil society and in particular, the domestic advisory group’s involvement.

Removed:The report has been elaborated in an inclusive manner by involving parliamentary committees in the broadest possible terms and recognising the particular sectorial expertise of each committee. Notably, ten parliamentary committees have been associated to the procedure under Rule 57 of the Rules of Procedure, namely BUDG, ECON, EMPL, ENVI, ITRE, IMCO, TRAN, PECH, CULT and LIBE.

Removed:The SANT Committee also provided an informal opinion, which was taken into account.

Removed:On 8 April 2025, the joint AFET -INTA committee held a public hearing ‘The implementation of the EU-UK Trade and Cooperation Agreement’ with the participation of four experts and the Commission.