opinion parliamentary committee, 10 September 2026
On the general budget of the European Union for the financial year 2027 – all sections
Document AFET-AD-790817 · (2026/0196(BUD))
Committee on Foreign Affairs · Rapporteur: Matjaž Nemec
AI:In short
The Committee on Foreign Affairs calls on the Committee on Budgets to incorporate its suggestions into the 2027 EU budget resolution. It warns that Heading 6 funding is insufficient for geopolitical and security challenges, and asks for more money for neighbourhoods, enlargement, humanitarian aid, civil society and the EEAS. It wants the NDICI cushion preserved for crises, more funding for the Eastern and Southern Neighbourhoods, Ukraine, Moldova, the South Caucasus and Africa, and continued conditionality on rule of law and human rights. It puts 50% of Serbia's Reform and Growth Facility allocations in reserve over democratic backsliding, and calls for freezing support to the Georgian government while backing independent Russian and Belarusian civil society.
Position. The Committee on Foreign Affairs asks the Committee on Budgets to incorporate its suggestions into the 2027 budget resolution. It seeks higher Heading 6 funding for neighbourhoods, enlargement, humanitarian aid, civil society and the EEAS, with conditionality on rule of law and human rights.
Key points
- Warns that the remaining NDICI cushion is only EUR 159 million, regrets its use for geopolitical and trade initiatives such as EUR 500 million for the EU-India trade agreement, and insists on preserving flexibility for crises.
- Notes the Commission's draft budget follows Heading 6 financial programming, that frontloading causes reductions compared with 2026, and that the available margin is only EUR 100 million.
- Increases appropriations for the Eastern and Southern Neighbourhoods and other NDICI and Instrument for Pre-accession Assistance lines, financed by rebalancing borrowing cost repayment ratios.
- Calls for sufficient, merit-based and conditional support for candidate countries, with Common Foreign and Security Policy alignment as a consideration, and for predictable long-term geographic and thematic programmes.
- Calls for increased support against hybrid threats, cyberattacks and foreign information manipulation, and for external financing to complement the Union's security and defence objectives, including its defence industrial base.
- Urges a substantial and sustained increase in humanitarian aid, delivered under neutrality, transparency and accountability with robust oversight, and calls for resources for the Global Gateway strategy.
- Calls for additional funding for East and Central Africa, an enhanced Heading 6 contribution to the Union Secure Connectivity Programme, and more support for international nuclear safety and safeguards.
- Puts 50% of Serbia's Reform and Growth Facility allocations in reserve over democratic backsliding, while protecting and increasing funds for civil society and independent media, and urges rigorous conditionality.
- Calls for support for Albania's democratic governance and rule of law, predictable support for Moldova, continued South Caucasus peace support, and continued freezing of financial support to the Georgian government.
- Calls for predictable assistance under the Ukraine Facility and Ukraine Support Loan, reinforced Eastern Neighbourhood funding including for DG ENEST, and more Southern Neighbourhood funding including a dedicated envelope for Gaza reconstruction.
- Calls on the Commission to honour its contribution to UNRWA in due form and time, and to increase NDICI thematic programmes, particularly human rights, democracy and civil society, and funding for Sub-Saharan Africa and the Sahel.
- Calls for predictable support for civil society, human rights defenders and journalists, including Russian and Belarusian exiles, for gender equality and LGBTIQ+ rights, for Sudan humanitarian aid, and for a higher EEAS budget.
Who is affected
- Serbia: 50% of its Reform and Growth Facility allocations are put in reserve over democratic backsliding.
- Georgia: financial support should continue to be frozen over erosion of democracy.
- Ukraine: predictable assistance under the Ukraine Facility and Ukraine Support Loan.
- EEAS: budget should be increased to the level it requested, with more security and staff.
- Palestinian Authority and UNRWA: strengthened support and honoured EU contributions.
Figures and deadlines
- EUR 159 million: the remaining NDICI cushion.
- EUR 500 million: disbursed as part of the EU-India trade agreement in January 2026.
- EUR 100 million: the available margin under Heading 6.
- 50%: share of Serbia's Reform and Growth Facility allocations put in reserve.
- 2%: cap on administrative expenditure that should not apply to the EEAS.
Written by AI from the full text · every figure comes from the text · ¶ opens the paragraph · 25 Sept 2026 · Report a problem
Full text
Opinion 35 paragraphs
The Committee on Foreign Affairs calls on the Committee on Budgets, as the committee responsible, to incorporate the following into its motion for a resolution:
A.whereas the 2027 EU budget will be the last budget during the current MFF and therefore offers little room for manoeuvre;
B.whereas the EU budget represents a critical instrument for strengthening the European Union’s global role and advancing its foreign policy objectives;
C.whereas the funding provided under Heading 6, even after the MFF revision in 2024, has proven insufficient to address the growing geopolitical and security challenges facing the Union, including Russia's war of aggression against Ukraine, instability in the Middle East, hybrid threats, irregular migration and increasing strategic competition;
1.Is highly concerned that the remaining NDICI cushion stands at only EUR 159 million which is clearly not sufficient given the unstable geopolitical context and the near certainty that crises with financial consequences will happen in 2027; regrets that the Commission keeps using the cushion to support geopolitical and trade-related initiatives, such as the disbursement of EUR 500 million as part of the conclusion of the EU-India trade agreement in January 2026; insists that this practice undermines the nature of the cushion to address crises and emergencies; regrets that this procedure deprives the European Parliament of its prerogative for oversight and control as budgetary authority; stresses the need to preserve sufficient flexibility within Heading 6 to enable the Union to respond rapidly to unforeseen geopolitical crises while safeguarding long-term external policy priorities;
2.Notes that the draft budget presented by the Commission is largely in line with the financial programming in heading 6; notes that the frontloading at the beginning of this MFF now has consequences with partially serious reductions of commitment appropriations as compared to 2026;
3.Notes that the available margin under heading 6 is merely EUR 100 million, which leaves little flexibility for the budgetary authority to adjust the budget for priority areas; nevertheless, increases the appropriations for the Eastern and Southern Neighbourhoods as well as other budget lines under NDICI and the Instrument for Pre-accession Assistance, to be financed by rebalancing borrowing cost repayment ratios;
4.Stresses that the financial needs for both the Eastern and the Southern Neighbourhoods are far greater and need to be addressed with urgency when deciding on the 2028-2034 MFF;
5.Underlines the importance of preserving predictable long-term geographic and thematic programmes, while ensuring sufficient flexibility to respond to emerging crises; deplores the reduction of both commitments and payment appropriations in the thematic programmes of NDICI;
6 Reiterates that EU enlargement remains a strategic geopolitical investment in the Union's peace, security and prosperity; calls for sufficient financial support to candidate countries implementing accession-related reforms, while ensuring that all financial assistance remains strictly merit-based and conditional upon tangible progress in fulfilling the accession criteria; stresses that progress in alignment with the Union's Common Foreign and Security Policy should remain an important consideration when allocating external financial assistance;
7.Calls for increased support for partner countries to strengthen resilience against hybrid threats, cyberattacks, foreign information manipulation and interference, including through strategic communication, cybersecurity and independent media;
8.Underlines that the Union's external financing instruments should contribute to strengthening the security and resilience of partner countries and complement the Union's broader security and defence objectives; including by contributing where appropriate to strengthening the Union's defence industrial base and European security interests;
Read the rest (23 paragraphs)
9.Stresses that all Union humanitarian assistance should be delivered in accordance with the principles of neutrality, transparency and accountability, accompanied by robust oversight mechanisms to ensure that Union funds cannot be diverted or misused; urges a substantial and sustained increase in EU humanitarian aid to respond effectively to escalating global crises, food insecurity, and displacement, particularly to compensate for structural gaps in global humanitarian financing resulting from cuts by other major international donors;
10.Calls for sufficient resources for the implementation of the Global Gateway strategy, with a particular focus on sustainable infrastructure, secure energy and digital connectivity, resilient supply chains, transport corridors, access to critical raw materials and strategic partnerships with like-minded countries, thereby strengthening the Union's economic security, reducing strategic dependencies and reinforcing its geopolitical influence, while promoting high standards of transparency and sustainability;
11.Stresses that the implementation of the Union's external financing should maximise European added value by promoting strategic investments, strengthening the Union's global competitiveness and advancing its geopolitical interests;
12.Recalls that development cooperation remains a key vehicle to address the root causes of fragility and instability; calls for additional funding for East and Central Africa to underpin regional engagement and bilateral partnerships focused on poverty eradication, conflict prevention, and long-term sustainable investments;
13.Underlines that a strong European space sector is fundamental for open strategic autonomy, global connectivity, and the protection of critical infrastructure; calls for an enhanced contribution from Heading 6 to the Union Secure Connectivity Programme to ensure worldwide access to secure governmental satellite communications, facilitating external actions, diplomacy, and agile crisis management;
14.Highlights that, given the ongoing volatility in conflict zones and broader geopolitical tensions, the EU must step up its targeted financial support for international nuclear safety, radiation protection, and safeguards to help prevent nuclear risks and secure vulnerable facilities globally;
15.Considers that democratic backsliding in Serbia has reached a level that merits action by the budgetary authority; puts, therefore, 50 % of the allocations foreseen for Serbia under the Reform and Growth Facility for the Western Balkans in reserve; underlines however, that funds supporting civil society and independent media should not be affected and even be increased; ; urges the Commission to apply rigorously the conditionality provisions under the Reform and Growth Facility and to ensure that any future disbursements are subject to tangible progress in the rule of law, democratic governance, media freedom, the fight against corruption and alignment with the Union's Common Foreign and Security Policy;
16.Underlines that continued EU financial support for Albania must contribute to strengthening democratic governance, the rule of law, transparency regarding the EU financial support and public trust in institutions, including by supporting measures responding to citizens legitimate concerns, e.g. effectively dismantling structures of organised crime;
17.Reiterates the need for predictable and sustained financial support for Moldova to strengthen democratic institutions, resilience against hybrid threats and the implementation of accession-related reforms; and to strengthen its capacity to address security challenges in the context of Russia’s ongoing war of aggression against Ukraine;
18.Calls for continued EU support for sustainable peace and regional stability in the South Caucasus, including confidence-building measures, connectivity and assistance to conflict-affected populations; calls to continue freezing financial support to the Georgian government as it continues to erode the foundations of democracy in Georgia, undermining EU values such as democracy, the rule of law, and media pluralism;
19.Calls on the Commission to make full use of the applicable conditionality mechanisms in the event of serious and persistent shortcomings in these areas mentioned above;
20.Stresses the need for predictable financial assistance under the Ukraine Facility and the Ukraine Support Loan to safeguard Ukraine’s macro-financial stability, recovery, and defence against Russia's war of aggression
21.Calls for the continued, predictable and adequate funding for the Eastern Neighbourhood, including support for the promotion of democracy, human rights and the rule of law in this region; urges for a reinforced fight against foreign information manipulation and interference and hybrid threats in countries such as Armenia, Georgia and Moldova, including disinformation campaigns targeting electoral processes; calls in this regard for appropriate support for DG ENEST; stresses that allocations under Heading 6 should reflect the Union's strategic priorities and a 360-degree approach to European security;
22.Calls to reinforce the Southern Neighbourhood under Heading 6 with stable, adequate and predictable funding, necessitated by various simultaneous conflicts and challenges in the Middle East and to support the work of UN agencies in the region; stresses that the reconstruction of Gaza, Lebanon and Syria oblige budgetary reinforcement; regrets the considerable initial reduction in commitment and payment appropriations; welcomes, on the other hand, the reinforcement of the CSDP missions, among which the EUBAM Rafah; calls in this regard for appropriate financial and human resources for DG MENA and EEAS; further urges the EU to create a dedicated financial envelope to ensure stable, appropriate and predictable financial support to the reconstruction of Gaza; underlines that any disbursement from the Union budget to third countries should be conditional upon respect for the rule of law, human rights, democratic principles, international law;
23.Stresses that strengthening the Palestinian Authority and supporting the territorial continuity of the West Bank are fundamental prerequisites for a sustainable long-term peace process that leads to the two-state solution; recalls that the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNWRA) is the principal humanitarian assistance structure in Gaza and the West Bank as well as an essential service provider in the region and therefore possesses the unique infrastructure, technical and operational capabilities, and personnel required to deliver vital services across the region; calls therefore to the European Commission to honour its financial contribution to UNRWA in due form and time, stresses the importance of ensuring full transparency, accountability and continued reforms in the delivery of Union-funded assistance while maintaining comprehensive anti-corruption measures;
24.Calls for an increase of funding of the thematic programmes of NDICI, particularly the human rights and democracy actions and civil society organisations programmes, in order to promote democracy, defend the universality of human rights and the rule of law as well as multilateralism against attacks by authoritarian regimes, also given the discontinuation of USAID funds supporting such actions and a regrettable reduction in bilateral assistance from other countries; calls for a substantial, predictable scale-up of EU financial commitments to promote stability and resilience in response to geopolitical and structural crises in Africa; urges addressing the critical funding shortfall for Sub-Saharan Africa and the Sahel to support a long-term regional partnership aimed at tackling the root causes of instability, with a strong focus on reducing inequalities, promoting human development, and fostering socio-economic resilience;
25.Underlines the vital importance of civil society organisations in strengthening democratic principles, the rule of law and respect for fundamental rights, and recognises their key contribution to promoting democratic governance, accountability and institutional resilience; emphasises that civil society organisations are the prime target of a growing number of authoritarian regimes worldwide, and calls for predictable, flexible, and sustained support—including legal aid and core operational funding—to counter the phenomenon of shrinking civic space and to protect human rights defenders and independent journalists confronting these hostile environments; calls, in this context, for a targeted budgetary reinforcement to sustain local peacebuilding and bicommunal reconciliation efforts, notably by ensuring adequate financing for the Committee on Missing Persons in Cyprus and supporting the bicommunal Technical Committee on Cultural Heritage;
26.Stresses that, in the context of Russia’s ongoing war of aggression against Ukraine and the Lukashenka regime’s complicity therein, sustained support for independent Russian and Belarusian civil society, human rights defenders, independent journalists and media, NGOs, anti-war and pro-democracy activists, both within their countries and in exile, constitutes an integral part of the Union’s broader strategy of deterrence and resilience vis-à-vis Russia; underlines their essential role in countering authoritarian propaganda, disinformation, transnational repression and foreign interference, and in preserving the foundations for democratic change; calls, therefore, for adequate, predictable, dedicated and flexible Union funding, including multiannual core and emergency funding, to ensure their security, operational continuity and long-term sustainability;
27.Considers that, given the dramatic increase in forced exile of human rights defenders, journalists, NGOs and pro-democracy activists from countries such as Nicaragua, Belarus, Afghanistan, Russia, Myanmar, Sudan and Venezuela, among others, predictable, dedicated, and flexible funding for all forced into exile due to repression and criminalisation in their own countries, should be prioritised and strengthened;
28.Emphasises the importance of ensuring adequate, flexible and predictable funding for actions promoting gender equality, preventing and combating gender-based violence, advancing women's rights, including sexual and reproductive health and rights, and protecting the rights of LGBTIQ+ persons;
29.Reiterates its call to urgently increase humanitarian support for Sudan, including for survivors of sexual violence, those facing hunger, IDPs and refugees;
30.Notes with concern that the ongoing structural underfunding of the EEAS severely damages the EU external action capacities, as well as the perception of the EU in third countries; reiterates that the 2 % cap on administrative expenditure should not be applied to the EEAS given its specificities as the only EU body with delegations worldwide; commends the recent progress made on the reinforcement of security but stresses that a number of delegations do not comply yet with security standards; stresses that in a context of high inflation and evolving geopolitical threats, the budget for security personnel, secure communications and infrastructure must be at a level to ensure the minimum security standards of EU delegations and the necessary renewal of armoured vehicles; highlights further that critical initiatives such as the EU Cyber Defence Coordination Centre (CDCC) must function adequately; stresses that further investments are required to increase building security, cyber-security, particularly in delegations; calls for the EEAS to be adequately staffed with regards to strengthening the European Union Military Staff and to reinforce the EU’s Security and Defence Partnerships with key bilateral partners, given the current international and security environment; recalls the importance of reinforcing the information and communication technology capabilities of the EEAS, particularly in the field of information security; urges therefore the budgetary authority to ensure the secure and effective functioning of the EU's diplomatic network worldwide; calls therefore to increase its budget to the level requested by the EEAS in its estimates;
31.Stresses the need to increase EU visibility and geopolitical position in the world, in order to enhance the EU international presence and counter anti-EU narratives and Foreign Information Manipulation and Interference operations, especially in the EU neighbourhood; calls in this regard to strengthen EU digital diplomacy, particularly in the field of AI, the fight against disinformation and foreign interference , the promotion of peace and security, as well as to lead the fight against climate change and the promotion of sustainable development; calls in this regard to reinforce the financial and human resources of DG ENEST, DG MENA, DG FPI and the EEAS.
Annex: declaration of input 1 paragraph
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.
Information on adoption by the committee asked for opinion 1 paragraph
| Date adopted | 10.9.2026 | |
| Result of final vote | +: –: 0: | 43 12 8 |
Procedure pages
How the committees handled the text, and how their members voted on it.
Final vote by roll call by the committee asked for opinion 3 paragraphs
43 · For
- ECR
- Geadis Geadi
- EPP
- Ioan-Rareş Bogdan, Krzysztof Brejza, Sandra Kalniete, Seán Kelly, Łukasz Kohut, Ondřej Kolář, Andrey Kovatchev, Miriam Lexmann, Reinhold Lopatka, David McAllister, Vangelis Meimarakis, Francisco José Millán Mon, Nicolás Pascual de la Parte, Davor Ivo Stier, Riho Terras, Matej Tonin, Pekka Toveri, Željana Zovko, Milan Zver
- Renew
- Petras Auštrevičius, Dan Barna, Christophe Grudler, Bernard Guetta, Ilhan Kyuchyuk, Marjan Šarec, Marie-Agnes Strack-Zimmermann, Hilde Vautmans
- S&D
- Lucia Annunziata, Vasile Dîncu, Nikolas Farantouris, Elisabeth Grossmann, Alicia Homs Ginel, Yannis Maniatis, Nacho Sánchez Amor, Marco Tarquinio, Marta Temido, Nicola Zingaretti
- Greens
- Hannah Neumann, Nela Riehl, Mounir Satouri, Villy Søvndal, Thomas Waitz
12 · Against
- ECR
- Sebastian Tynkkynen
- ESN
- Petr Bystron, Alexander Sell, Stanislav Stoyanov
- No group
- Ľuboš Blaha, Grzegorz Braun, Kostas Papadakis
- Patriots
- Mieke Andriese, Fabrice Leggeri, Hermann Tertsch, Pierre-Romain Thionnet, Harald Vilimsky
8 · Abstained
- ECR
- Rihards Kols, Şerban Dimitrie Sturdza, Ivaylo Valchev, Mariateresa Vivaldini
- EPP
- Christophe Gomart
- The Left
- Marc Botenga, Danilo Della Valle, Giorgos Georgiou