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opinion parliamentary committee draft, 15 April 2026

On the proposal for a Regulation of the European Parliament and of the Council establishing the Union support for internal security for the period 2028 to 2034

Document BUDG-PA-787049 · (COM(2025)0542 – C100178/2025 – 2025/0542(COD))

Committee on Budgets · Rapporteur: Andrzej Halicki

On Parliament’s site PDF Word

AI:In short

The Committee on Budgets gives its budgetary assessment of the proposed regulation on Union support for internal security for 2028 to 2034, prepared for the Committee on Civil Liberties, Justice and Home Affairs. It says the programme envelope should be increased from EUR 6 843 331 500 in current prices (EUR 6.1 billion in constant prices) to a figure from the Interim report. It insists on stable, predictable and dedicated funding, and warns that flexibility between Home Affairs objectives must not reduce ex ante predictability for internal security. It asks that all substantive policy choices be set in the basic act, that Parliament and Council be on equal footing in approving national programmes, and that at least two dedicated budget lines be created.

Position. The Committee on Budgets concludes that the programme envelope should be increased, that funding must be stable and predictable, that substantive policy choices belong in the basic act, and that at least two dedicated budget lines are needed.

Key points

  1. The proposal aims to ensure a high level of security in the Union by preventing and combating serious and organised crime, intensifying operational law enforcement cooperation and facilitating information exchange.
  2. It introduces a new objective of enhancing the resilience of critical entities against hostile acts and managing security-related incidents, risks and crises.
  3. Under the proposed NRP Regulation, the financial envelope for the three Home Affairs Regulations is a ring-fenced minimum, and member states may reallocate part of the indicative amounts if all objectives are addressed proportionately.
  4. The proposed NRP Regulation provides for only two budget lines merging the three Home Affairs Regulations, one for operational expenditure under the NRPPs and one under the EU Facility, compared with multiple budget lines in 2021-2027.
  5. The Committee considers the programme envelope should be increased from EUR 6 843 331 500 in current prices (EUR 6.1 billion in constant prices) to a figure from the Interim report.
  6. It insists on stable, predictable and dedicated funding, and says flexibility between Home Affairs objectives must not reduce ex ante predictability of the effective funding level for internal security.
  7. It believes all substantive policy choices, such as objectives, spending priorities, financial allocations, funding rates, eligibility, selection and award criteria, conditions, definitions and calculation methods, must be determined in the basic act, with supplementing elements adopted only through delegated acts.
  8. It insists that Parliament and Council be placed on equal footing throughout the procedure for approving national programmes.
  9. It raises concerns about the absence of clear criteria for what the Commission would consider an adequate or sufficient level of resources for migration, border management and internal security, as highlighted by the European Court of Auditors in Opinion 09/2026.
  10. It deplores the lack of a sufficiently detailed indicative budgetary nomenclature for internal security in the Legislative Financial and Digital Statement, and recommends fixing indicative sub-envelopes in the basic act.
  11. It calls for at least two dedicated budget lines for Union support for internal security in the Legislative Financial and Digital Statement, one for operational expenditure under the NRPPs and one under the EU Facility, to ensure oversight and minimise overlaps.
  12. It recalls that additional funding through the EU Facility will be established in the annual budgetary procedure, respecting the prerogatives of the budgetary authority, and calls on the lead committee to coordinate its amendments with those adopted to the NRP Regulation.

Who is affected

  • Member states, which may reallocate part of the indicative amounts among the three Home Affairs Regulations if all objectives are addressed proportionately.
  • The Commission, which is asked to provide clear criteria on adequate resource levels and a detailed budgetary nomenclature.
  • The budgetary authority, whose ability to steer policy priorities in the annual budgetary procedure could be hampered by the lack of a detailed nomenclature.
  • The lead committee, which is called on to coordinate its amendments with those adopted to the NRP Regulation.

Figures and deadlines

  • EUR 6 843 331 500 in current prices, the programme envelope the Committee says should be increased.
  • EUR 6.1 billion in constant prices, the programme envelope the Committee says should be increased.
  • 2028 to 2034, the period of the proposed regulation.
  • 2021-2027 programming period, when internal security had multiple budget lines.

Written by AI from the full text · every figure comes from the text · ¶ opens the paragraph · 25 Sept 2026 · Report a problem

Full text

Budgetary assessment 15 paragraphs

for the Committee on Civil Liberties, Justice and Home Affairs on the proposal for a Regulation of the European Parliament and of the Council establishing the Union support for internal security for the period 2028 to 2034

(COM(2025)0542 – C100178/2025 – 2025/0542(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 proposal aims at ensuring a high level of security in the Union, in particular by preventing and combating serious and organised crime, intensifying operational law enforcement cooperation and facilitating the exchange of information among relevant actors; whereas the proposal introduces a new objective of enhancing the resilience of critical entities against hostile acts and managing security-related incidents, risks and crises;

B.whereas, in line with the proposed NRP Regulation, the financial envelope for the three Home Affairs Regulations constitutes a ring-fenced minimum; whereas Member States may reallocate part of the indicative amounts set out in each of the three Regulations to implement their objectives, provided that all objectives are addressed in a proportionate manner;

C.whereas, the proposed NRP Regulation provides for only two budget lines merging the three Home Affairs Regulations, one for operational expenditure under the NRPPs and one under the EU Facility, compared with the 2021-2027 programming period where internal security had multiple budget lines;

1.Considers that the programme envelope should be increased from EUR 6 843 331 500 in current prices (EUR 6.1 billion in constant prices) to [number from the Interim report, in current and 2025 prices] in order to fulfil its objectives;

2.Insists on the need to ensure stable, predictable and dedicated funding to the programme in order to allow it to pursue its objectives and deliver on citizens expectations; underlines that any flexibility between Home Affairs objectives should in no way result in a lack of ex ante predictability regarding the effective level of funding allocated to internal security;

3.Believes that all substantive policy choices such as programme objectives, spending priorities, financial allocations, funding rates, eligibility, selection and award criteria, conditions, definitions and calculation methods must be determined in the relevant basic act legislation, with full respect for Parliament’s prerogatives as co-legislator and budgetary authority, and that any supplementing and non-essential elements entailing policy choices that are not included in the basic act be adopted exclusively through delegated acts; further insists, in the context of the approval of NRPP, that Parliament and Council are placed on equal footing in the entire procedure;

4.Raises concerns regarding the absence of clear criteria as to what the Commission would consider an adequate or sufficient level or resources to be allocated to migration, border management and internal security in order to meet all objectives in the area of Home Affairs, as highlighted by the European Court of Auditors in its Opinion 09/2026;

5.Deplores the lack of a sufficiently detailed indicative budgetary nomenclature for internal security proposed in the Legislative Financial and Digital Statement (LFDS) accompanying the NRP Regulation; considers that this can hamper oversight and the budgetary authority’s ability to steer accurately policy priorities in the annual budgetary procedure; recommends fixing indicative sub-envelopes in the basic act;

6.Calls for at least two dedicated budget lines for the Union support for internal security in the LFDS accompanying the NRP Regulation, one for operational expenditure under the NRPPs and one under the EU Facility; considers them essential to ensure proper oversight at all stages of the budgetary cycle and to minimise risks of overlaps;

7.Recalls that additional funding allocated to the Union support for internal security through the EU Facility will be established in the framework of the annual budgetary procedure with full respect of the prerogatives of the budgetary authority;

8.Calls on the lead committee to coordinate its amendments so that they are entirely consistent with those adopted to the NRP Regulation.

Amendments 16 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 20 a (new)

Text proposed by the CommissionAmendment
(20a) The provisions of this Regulation as well as its governance arrangements must be conducive to proper decision-making by the budgetary authority and to appropriate parliamentary oversight. In particular, any specification of the internal architecture of the Union support for internal security should be duly reflected in the budget nomenclature through the introduction of corresponding budget lines.

Or. en

Amendment 2

Proposal for a regulation

Recital 20 b (new)

Text proposed by the CommissionAmendment
(20b) 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[1].
+ Pro memoria: Budgetary assessment of the European Parliament’s Committee on Budgets of [date] on the proposal for a Regulation of the European Parliament and of the Council establishing the Union support for internal security for the period 2028 to 2034
(COM((2025)0542).
[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).

Or. en

Amendment 3

Proposal for a regulation

Article 4 – paragraph 1

Text proposed by the CommissionAmendment
The indicative financial envelope for the implementation of the objectives set out in Article 3 for the period from 2028 to 2034 is set at EUR 6 843 331 500 in current prices.The indicative financial envelope for the implementation of the objectives set out in Article 3 for the period from 2028 to 2034 is set at ... [insert number from the Interim report on the proposal for the multiannual financial framework for 2028-2034 (2025/0571R(APP)), in current and 2025 prices];

Or. en