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opinion parliamentary committee, 23 June 2026

On the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2023/956 as regards the extension of its scope to downstream goods and anti-circumvention measures

Document BUDG-AD-785442 · (COM(2025)0989 – C100352/2025 – 2025/0419(COD))

Committee on Budgets · Rapporteur: Sandra Gómez López

On Parliament’s site PDF Word

AI:In short

The Committee on Budgets gives its budgetary assessment of the proposal to amend the Carbon Border Adjustment Mechanism (CBAM) Regulation by extending its scope to downstream goods and adding anti-circumvention measures. It welcomes the extension as broadening the base for CBAM-based own resources, but says scope decisions should follow a strict environmental rationale and not be driven mainly by revenue. It notes extra 2027 commitment appropriations of EUR 5 million and payment appropriations of EUR 1 million, and regrets that the financial statement does not separate the new tasks from the CBAM Regulation as a whole. It insists that CBAM revenue and any penalty proceeds be treated as EU own resources and general revenue, and calls on the Council to unblock the own resources stalemate. It submits three amendments: a new recital on assessing competitiveness effects, a new recital on proportionate monitoring for small and medium-sized enterprises, and a new recital on the budgetary assessment under Article 310(4) of the Treaty on the Functioning of the European Union.

Position. The Committee on Budgets welcomes the extension of the CBAM Regulation as broadening the own resources base, but insists that scope decisions follow an environmental rationale, that new tasks be financed by fresh resources, and that CBAM revenue and penalty proceeds be treated as EU own resources. It submits three amendments to the proposal.

Key points

  1. The proposal extends the scope of the CBAM Regulation to tackle attempts to avoid compliance and to simplify provisions on electricity imports.
  2. The extension is projected to bring additional revenue of about EUR 580 million annually by 2030 and EUR 690 million by 2035.
  3. The Commission's extra tasks are estimated to need EUR 5 million in commitment appropriations and EUR 1 million in additional payment appropriations in 2027 under Heading 3, with no additional administrative costs.
  4. Total commitment appropriations for CBAM operational and administrative expenditure under the 2028-2034 multiannual financial framework (MFF) are estimated at around EUR 40 million per year.
  5. The Committee regrets that the additional costs for 2028-2034 are not detailed or separated from earlier CBAM implementation cost estimates.
  6. It welcomes the extension as following the Commission's December 2025 report and Parliament's calls to broaden the base for CBAM-based own resources.
  7. It encourages further scope extensions, such as to downstream products, which would broaden the own resources base without changing the Council Decision on Own Resources.
  8. It says scope decisions should follow a strict environmental rationale based on environmental effectiveness, competitiveness, administrative feasibility and innovation capacity, not primarily revenue.
  9. It reiterates that new tasks should in principle be financed by fresh resources and deplores the limited margins under Heading 3 and Heading 7 for 2027.
  10. It assumes the additional tasks will be covered by existing and already planned staff, since the financial statement does not separate the staff needed for the extension.
  11. It insists that any negotiated amendments must not contradict Parliament's position on CBAM revenue as an own resource, and that it take part in further negotiations including trilogues.
  12. It calls on the Council to unblock the stalemate since 2020 on a basket of new own resources to reach at least EUR 60 billion per year, and lists possible levies to explore.

Who is affected

  • European energy industries and sectors exposed to international trade, whose competitiveness the Commission should regularly assess.
  • Undertakings, in particular small and medium-sized enterprises, which should face proportionate monitoring, verification and reporting obligations.
  • The Commission, which would receive additional tasks and resources for implementing the extended scope.
  • The Council, which is asked to unblock the own resources stalemate.

Figures and deadlines

  • less than 0.001 % of GDP — projected fiscal impact of extending the scope to downstream goods
  • EUR 580 million annually by 2030 — projected additional revenue
  • EUR 690 million by 2035 — projected additional revenue
  • EUR 5 million — additional commitment appropriations in 2027 for operational expenditure under Heading 3
  • EUR 1 million — additional payment appropriations in 2027
  • around EUR 40 million per year — estimated total commitment appropriations for CBAM operational and administrative expenditure in 2028-2034
  • at least EUR 60 billion per year — amount of own-resources revenue the Council is called to reach

Legal basis. Article 310(4) of the Treaty on the Functioning of the European Union

Written by AI from the full text · every figure comes from the text · ¶ opens the paragraph · 20 Sept 2026 · Report a problem

Full text

Budgetary assessment 20 paragraphs

for the Committee on the Environment, Climate and Food Safety on the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2023/956 as regards the extension of its scope to downstream goods and anti-circumvention measures

(COM(2025)0989 – C100352/2025 – 2025/0419(COD))

The Committee on Budgets has carried out a budgetary assessment of the proposal under Rule 58 of the Rules of Procedure and has reached the following conclusions:

The Committee on Budgets,

A.whereas the present proposal aims at extending the scope of the Regulation on the Carbon Border Adjustment Mechanism (CBAM), in order to tackle attempts to avoid compliance, and improve and further simplify certain provisions pertaining to electricity imports;

B.whereas on 20 June 2023, the Commission proposed that the proceeds of the CBAM become an EU own resource; whereas Parliament approved that proposal in its position of 9 November 2023; whereas the proposal on new own resources dating from 2021 has still not been approved by the Council; whereas the latest proposal, of 16 July 2025, on the system of own resources, reaffirms that the use of CBAM-based own resources remains an integral element of the Commission’s own resources package for the 2028-2034 multiannual financial framework (MFF) period;

C.whereas the proposal strives to strike a balance between short-term industrial competitiveness and long-term decarbonisation objectives; whereas the macro-economic impacts of an extension of the scope of the Regulation to downstream goods are projected to be fiscally negligible (less than 0.001 % of GDP);

D.whereas the proposal is projected to entail additional revenue in the order of EUR 580 million annually by 2030 and EUR 690 million by 2035;

E.whereas the additional tasks for the Commission linked to the extension of the Regulation’s scope are estimated to require EUR 5 million in commitment appropriations and EUR 1 million in additional payment appropriations in 2027 for operational expenditure under Heading 3, with no additional administrative costs; whereas the total commitment appropriations for the CBAM’s operational and administrative expenditure under the 2028-2034 MFF period are estimated to amount to around EUR 40 million per year;

F.whereas the additional costs linked to the extension of the Regulation’s scope for the 2028-2034 MFF period are not indicated in detail, and nor are they separated from previous estimates of the cost of implementing the CBAM Regulation, as a whole;

G.whereas an interinstitutional agreement was reached in 2020, approving a package of new own resources devised to enable the EU to finance the joint debt issued after the adoption of the NextGenerationEU funds, one of which is the CBAM; whereas this agreement has since been blocked in the Council and has therefore not yet been implemented, with all of the consequences that this entails for the financing of EU budgets, for the repayment of debt accrued as a result of the NextGenerationEU funds and for the preparation of the 2028-2034 MFF, which is limited in revenue due to non-compliance with that agreement, and has therefore prompted new proposals for own resources and levies that would be detrimental to the EU’s competitive capacity;

1.Welcomes the fact that, following up on the recommendations of the Commission’s December 2025 report on the application of the CBAM Regulation, the proposal to extend the scope of the CBAM Regulation and improve its functioning coincides with Parliament’s repeated calls to broaden the base for CBAM-based own resources;

Read the rest (8 paragraphs)

2.Underlines that the additional revenue would be covered by the Council decision, proposed by the Commission in December 2025, on the system of own resources and would constitute, though modest in volume, genuine, ‘fresh’ and additional revenue, as repeatedly called for in Parliament’s April 2026 interim report on the proposal for the MFF for 2028-2034;

3.Strongly encourages potential further extensions of the scope of the CBAM Regulation in the future, such as an extension of its scope to downstream products; stresses that such scope extensions would automatically broaden the base for CBAM-own resources without requiring further changes to the Council Decision on Own Resources; re-affirms, in this context, that any future revision of the scope or definition of the CBAM Regulation’s sectors and products should follow a strict environmental rationale, on the basis of its environmental effectiveness, implications for EU competitiveness in the global markets, administrative feasibility and innovation capacity; concludes, therefore, that decisions regarding the scope of the CBAM Regulation should not be driven primarily by revenue considerations; emphasises, nevertheless, that an expanded scope, as well as higher CO2 prices, would, all else being equal, lead to higher levels of public income in a domain of exclusive EU competence;

4.Takes note of the necessary additional operational commitment appropriations, as indicated in the Legislative Financial Statement (LFS), amounting to EUR 5 million above the programmed amount for the CBAM line in 2027; reiterates its long-standing position that new tasks and responsibilities should, in principle, be financed by fresh resources; deplores the limited margins available under Heading 3 and Heading 7 of the MFF for 2027; recalls that any redeployments are subject to confirmation as part of the annual budgetary procedure;

5.Takes note of the indicative figures for operational and administrative costs in the LFS, broken down by year, for the 2028-2034 MFF period; considers that these are tangible implications that must be integrated into the budget lines for actions financed under the Commission’s prerogatives under the new Headings 2 and 4, respectively; regrets, in this context, the fact that the LFS does not distinguish, more explicitly, the number of staff members required to cover the tasks related to the extension of the Regulation’s scope to downstream goods from the total number of staff members necessary for the implementation of the CBAM Regulation; assumes, therefore, that the additional tasks are to be covered by existing and already planned numbers of staff members;

6.Is aware of the inherent link between the revision of the CBAM Regulation and the introduction of a temporary decarbonisation fund, which is subject to a separate, dedicated budgetary assessment;

7.Recalls that the amendments or compromises made in the course of the negotiations must not lead to any provisions contradicting Parliament’s established position on the use of CBAM revenue as an own resource; considers it necessary, therefore, to take part in any further negotiations, including the trilogues, in order to monitor consistency with Parliament’s position on own resources and other pertinent budget-related provisions, and to ensure that the final agreement is compatible with the current MFF and Parliament’s position on the 2028-2034 MFF;

8.Acknowledges that any substantive changes in the governance of the implementation and enforcement of the CBAM Regulation, such as those related to penalties for non-compliance, would be beyond the scope of the present initiative; insists, therefore, that in the light of the planned revision of the CBAM Regulation, the proceeds of such penalties must be considered as general revenue for the EU budget;

9.Strongly reiterates the crucial need for sustainable, transparent, predictable and resilient revenue for the EU budget that should match the expenditure side, and the strategic priorities and financing needs of the EU; welcomes the Commission’s efforts to identify new own resources and to put forward certain calibrations of traditional own resources; supports the broader ‘basket approach’ proposed by the Commission, and calls on the Council to unblock the stalemate observed since 2020 on a basket of new genuine own resources, in order to reach an amount of own-resources revenue of at least EUR 60 billion per year; recalls Parliament’s position in its April 2026 interim report that the revenue potential of, among others, a digital services levy aimed at major digital platforms, an online gambling and betting services levy, the extension of the scope of the CBAM Regulation and a levy based on a uniform call rate on capital gains from crypto assets should all be explored as possible additional solutions, in order to ensure tax fairness and a revenue level that is commensurate with needs; stresses that expenditure commitments should be aligned with available resources and that long-term budgetary sustainability should remain a guiding principle of the 2028-2034 MFF.

Amendment 13 paragraphs

As part of its budgetary assessment, the Committee on Budgets also submits the following amendments to the proposal:

Amendment 1

Proposal for a regulation

Recital 13 a (new)

Text proposed by the CommissionAmendment
(13a) The Commission should regularly assess the impact of the CBAM on the competitiveness of European energy industries and those exposed to international trade;

Amendment 2

Proposal for a regulation

Recital 18 a (new)

Text proposed by the CommissionAmendment
(18a) The monitoring, verification and reporting obligations provided for in this Regulation should be implemented in a proportionate manner and taking into account the size, resources and administrative capacity of undertakings, in particular small and medium-sized enterprises, avoiding unnecessary administrative burdens;

Amendment 3

Proposal for a regulation

Recital [50] a (new)

Text proposed by the CommissionAmendment
(50a) The implications of this Regulation for the Union budget have been assessed+ pursuant to Article 310(4) of the Treaty on the Functioning of the European Union. Sufficient financial and human resources should be provided for its implementation, while considering the impact of the financing on other Union programmes or policies and ensuring its compatibility with the multiannual financial framework, the system of own resources and the corresponding interinstitutional agreement, as well as with the budgetary principles laid down in Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council.
+ Pro memoria: Budgetary assessment of the European Parliament’s Committee on Budgets of 23 June 2026 on the proposal for a Regulation of the European Parliament and of the Council amending Regulation (EU) 2023/956 as regards the extension of its scope to downstream goods and anti-circumvention measures (COM(2025)0989).
[1] Regulation (EU, Euratom) 2024/2509 of the European Parliament and of the Council of 23 September 2024 on the financial rules applicable to the general budget of the Union (OJ L, 2024/2509, 26.9.2024, ELI: http://data.europa.eu/eli/reg/2024/2509/oj).
Annex: declaration of input 1 paragraph

The rapporteur for budgetary assessment declares under her exclusive responsibility that she did not include in her budgetary assessment 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

How the committees handled the text, and how their members voted on it.

Procedure – committee asked for budgetary assessment 1 paragraph
TitleAmending Regulation (EU) 2023/956 as regards the extension of its scope to downstream goods and anti-circumvention measures
ReferencesCOM(2025)0989 – C10-0352/2025 – 2025/0419(COD)
Committee(s) responsible Date announced in plenaryENVI 12.2.2026
Budgetary assessment by Date announced in plenaryBUDG 12.2.2026
Rapporteur for budgetary assessment Date appointedSandra Gómez López 3.3.2026
Discussed in committee7.5.2026
Date adopted23.6.2026
Result of final vote+: –: 0:23 10 1
Final vote by roll call in committee asked for budgetary assessment 3 paragraphs

23 · For

EPP
Isabel Benjumea Benjumea, Michalis Hadjipantela, Andrzej Halicki, Monika Hohlmeier, Janusz Lewandowski, Gabriel Mato, Danuše Nerudová, Karlo Ressler, Hélder Sousa Silva
Renew
Olivier Chastel, Fabienne Keller, Lucia Yar
S&D
Mohammed Chahim, Matthias Ecke, Nikolas Farantouris, Jean-Marc Germain, Sandra Gómez López, Victor Negrescu, Matjaž Nemec, Nils Ušakovs
Greens
Ignazio Roberto Marino, Rasmus Nordqvist, Nicolae Ștefănuță

10 · Against

ECR
Tobiasz Bocheński, Arkadiusz Mularczyk, Bogdan Rzońca
ESN
Alexander Jungbluth
Patriots
Tomasz Buczek, Valérie Deloge, Tamás Deutsch, Aleksandar Nikolic, Antonín Staněk
The Left
João Oliveira

1 · Abstained

No group
Thomas Geisel