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report parliamentary committee draft, 16 April 2026

On the proposal for a regulation of the European Parliament and of the Council establishing the Justice programme for the period 2028-2034 and repealing Regulation (EU) 2021/693

Document CJ03-PR-787047 · (COM2025)0463 – C100197/2025 – 2025/0255(COD))

Committee on Legal Affairs Committee on Civil Liberties, Justice and Home Affairs · Rapporteur: Tineke Strik, Jaroslav Bžoch

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Draft european parliament legislative resolution 73 paragraphs

(COM2025)0463 – C100197/2025 – 2025/0255(COD))

(Ordinary legislative procedure: first reading)

The European Parliament,

–having regard to the Commission proposal to Parliament and the Council (COM2025)0463),

–having regard to Article 294(2), Article 81(1) and (2) and Article 82(1) of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C100197/2025),

–having regard to Article 294(3) of the Treaty on the Functioning of the European Union,

–having regard to the budgetary assessment by the Committee on Budgets,

–having regard to Rule 60 of its Rules of Procedure,

–having regard to the joint deliberations of the Committee on Legal Affairs and Consumer Protection and the Committee on Civil Liberties, Justice and Home Affairs under Rule 59 of the Rules of Procedure,

–having regard to the report of the Committee on Legal Affairs and the Committee on Civil Liberties, Justice and Home Affairs (A100000/2026),

1.Adopts its position at first reading hereinafter set out;

2.Calls on the Commission to refer the matter to Parliament again if it replaces, substantially amends or intends to substantially amend its proposal;

Read the rest (61 paragraphs)

3.Instructs its President to forward its position to the Council, the Commission and the national parliaments.

Amendment 1

Proposal for a regulation

Recital 7

Text proposed by the CommissionAmendment
(7) The Programme is to be implemented in accordance with Regulation (EU) XXX of the European Parliament and of the Council [Performance Regulation]10 which establishes the rules for the expenditure tracking and the performance framework for the budget, including rules for ensuring a uniform application of the principles of ‘do no significant harm’ and gender equality referred to in Article 33(2), points (d) and (f), of Regulation (EU, Euratom) 2024/2509 respectively, rules for monitoring and reporting on the performance of Union programmes and activities, rules for establishing a Union funding portal, rules for the evaluation of the programmes, as well as other horizontal provisions applicable to all Union programmes such as those on information, communication and visibility.(7) The Programme is to be implemented in accordance with Regulation (EU) XXX of the European Parliament and of the Council [Performance Regulation]10 which establishes the framework rules for the expenditure tracking and the performance framework for the budget, including rules for ensuring a uniform application of the principles of ‘do no significant harm’ and gender equality referred to in Article 33(2), points (d) and (f), of Regulation (EU, Euratom) 2024/2509 respectively, rules for monitoring and reporting on the performance of Union programmes and activities, rules for establishing a Union funding portal, rules for the evaluation of the programmes, as well as other horizontal provisions applicable to all Union programmes such as those on information, communication and visibility. The inclusion of horizontal provisions in a single framework should enable more effective tracking and evaluation methodologies and parliamentary scrutiny without creating any additional burden.
10 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing a budget expenditure tracking and performance framework and other horizontal rules for the Union programmes and activities (OJ L …, …., ELI: …).10 Proposal for a Regulation (EU) XXX of the European Parliament and of the Council establishing a budget expenditure tracking and performance framework and other horizontal rules for the Union programmes and activities (OJ L …, …., ELI: …).

Or. en

Amendment 2

Proposal for a regulation

Recital 11

Text proposed by the CommissionAmendment
(11) In criminal matters, the Programme should help implement rules and procedures to ensure the recognition of judgments and decisions throughout the Union and support the protection of the Union financial interests. It should contribute to removing obstacles to effective mutual trust and cooperation, including through support for measures that ensure the correct transposition of Union legal acts approximating national criminal laws. The Programme should also support actions aimed at facilitating cooperation in relation to forms of serious crime such as corruption, terrorism and environmental crime. In particular, the Programme should enhance coordination and cooperation between law enforcement, judicial authorities and other competent authorities. Furthermore, it should support cooperation with and awareness raising of the role of Union bodies and agencies, such as the European Union Agency for Criminal Justice Cooperation (Eurojust) and the EPPO, thereby enabling a more integrated system of judicial cooperation in the Union.(11) In criminal matters, the Programme should help implement rules and procedures to ensure the recognition of judgments and decisions throughout the Union and support the protection of the Union financial interests. It should contribute to removing obstacles to effective mutual trust and cooperation, including through support for measures that ensure the correct transposition of Union legal acts approximating national criminal laws. The Programme should also support actions aimed at facilitating cooperation in relation to forms of serious crime such as corruption, terrorism and environmental crime. In particular, the Programme should enhance coordination and cooperation between law enforcement, judicial authorities and other competent authorities. Furthermore, it should support cooperation with and awareness raising of the role of Union bodies and agencies, such as the European Union Agency for Criminal Justice Cooperation (Eurojust) and the EPPO, as well as of the European Judicial Network (EJN) in criminal matters established by Council Joint Action 98/428/JHA1a, later replaced by Council Decision 2008/976/JHA1b, thereby enabling a more integrated system of judicial cooperation in the Union.
1a Joint Action of 29 June 1998 adopted by the Council on the basis of Article K.3 of the Treaty on European Union, on the creation of a European Judicial Network (98/428/JHA) (OJ L 191, 7.7.1998, p. 4, ELI: http://data.europa.eu/eli/joint_action/1998/428/oj).
1b Council Decision 2008/976/JHA of 16 December 2008 on the European Judicial Network (OJ L 348, 24.12.2008, p. 130, ELI: http://data.europa.eu/eli/dec/2008/976/oj).

Or. en

Amendment 3

Proposal for a regulation

Recital 13

Text proposed by the CommissionAmendment
(13) The Programme should support the training of the judiciary and judicial staff. Training activities should contribute to the implementation of Union strategic priorities, including for instance, training on civil and criminal law, on the effective application of the Charter, on mutual recognition as well as on procedural safeguards (including safeguards for strategic lawsuits against public participation (anti-SLAPP)). Training activities under the Programme should have a strong focus on digitalisation of justice, providing a supportive environment for the judiciary and judicial staff, including through increasing digital skills, knowledge and awareness. Training should also support the digitalisation of cross-border judicial proceedings. Support to training should happen in synergy with measures at national level, thus leveraging the impact of the Programme.(13) The Programme should support the training of the judiciary and judicial staff and should play a key role in implementing the European Judicial Training Strategy 2025-2030. Training activities should contribute to the implementation of Union strategic priorities, including for instance, training on civil and criminal law, on the effective application of the Charter, on mutual recognition as well as on procedural safeguards (including safeguards for strategic lawsuits against public participation (anti-SLAPP)). Training activities under the Programme should have a strong focus on digitalisation of justice, providing a supportive environment for the judiciary and judicial staff, including through increasing digital skills, knowledge and awareness. Training should also support the digitalisation of cross-border judicial proceedings. Support to training should happen in synergy with measures at national level, thus leveraging the impact of the Programme.

Or. en

Amendment 4

Proposal for a regulation

Recital 16

Text proposed by the CommissionAmendment
(16) The Programme should contribute to digitalisation of justice, including by developing, rolling-out and maintaining tools at Union level. It could thus leverage tools facilitating digital communication between courts and parties such as the European Electronic Access Point, allowing easier access to judicial data such as the European Case Law Identifier, or enhancing the efficiency and security of digitalised judicial procedures such as trust services under Regulation (EU) No 910/2014 and the European Digital Identity Wallets. A well-functioning Union area of justice with effective and resilient national justice systems is necessary for a flourishing internal market and it is a precondition for economic growth, sound financial markets and competitiveness. Digitalisation enhances the efficiency of cross-border judicial procedures in civil and criminal matters as well as access to justice within the Union, which in turn are a driver for investments. Digitalisation of justice also enables and facilitates the effective and efficient cooperation with other competent authorities in the implementation and enforcement of key pieces of the EU digital rulebook, such as for instance the Digital Services Act. Digitalising justice systems helps also to reduce costs for both public budgets and end users, while maintaining effective services for citizens and businesses. It enables justice professionals to focus on core tasks, improving the quality and efficiency of proceedings. Digital tools also expand access to justice, by allowing remote communication and easy access to judicial files, thereby enhancing transparency. Moreover, digitalisation strengthens the resilience of national justice systems in times of crisis (such as pandemics), ensuring they can continue to operate effectively for the benefit of citizens and businesses. That strengthens trust in the justice system’s ability to function reliably under unexpected circumstances.(16) The Programme should contribute to digitalisation of justice, without replacing the responsibility of Member States regarding the digitalisation of their national justice systems, including by developing, rolling-out and maintaining tools at Union level. It could thus leverage tools facilitating digital communication between courts and parties such as the European Electronic Access Point, allowing easier access to judicial data such as the European Case Law Identifier, or enhancing the efficiency and security of digitalised judicial procedures such as trust services under Regulation (EU) No 910/2014 and the European Digital Identity Wallets. A well-functioning Union area of justice with effective and resilient national justice systems is necessary for a flourishing internal market and it is a precondition for economic growth, sound financial markets and competitiveness. Digitalisation enhances the efficiency of cross-border judicial procedures in civil and criminal matters as well as access to justice within the Union, which in turn are a driver for investments. Digitalisation of justice also enables and facilitates the effective and efficient cooperation with other competent authorities in the implementation and enforcement of key pieces of the EU digital rulebook, such as for instance the Digital Services Act. Digitalising justice systems helps also to reduce costs for both public budgets and end users, while maintaining effective services for citizens and businesses. It enables justice professionals to focus on core tasks, improving the quality and efficiency of proceedings. Digital tools also expand access to justice, by allowing remote communication and easy access to judicial files, thereby enhancing transparency. Moreover, digitalisation strengthens the resilience of national justice systems in times of crisis (such as pandemics), ensuring they can continue to operate effectively for the benefit of citizens and businesses. That strengthens trust in the justice system’s ability to function reliably under unexpected circumstances.

Or. en

Amendment 5

Proposal for a regulation

Recital 17 a (new)

Text proposed by the CommissionAmendment
(17a) In order to fulfil the objectives of this Regulation, the power to adopt acts in accordance with Article 290 TFEU should be delegated to the Commission in respect of supplementing this Regulation through the adoption of work programmes. It is of particular importance that the Commission carry out appropriate consultations during its preparatory work, including at expert level, and that those consultations be conducted in accordance with the principles laid down in the Interinstitutional Agreement of 13 April 2016 on Better Law-Making1a. In particular, to ensure equal participation in the preparation of delegated acts, the European Parliament and the Council receive all documents at the same time as Member States' experts, and their experts systematically have access to meetings of Commission expert groups dealing with the preparation of delegated acts.
1a OJ L 123, 12.5.2016, p. 1, ELI: http://data.europa.eu/eli/agree_interinstit/2016/512/oj.

Or. en

Amendment 6

Proposal for a regulation

Article 7 a (new)

Text proposed by the CommissionAmendment
Article 7a
Types of action
Actions contributing to the achievement of a specific objective as set out in Article 3 may receive funding under this Regulation.
In particular, the following activities shall be eligible for funding:
(a) awareness-raising and dissemination of information to improve knowledge of Union policies and Union law, including both substantive and procedural law, of judicial cooperation instruments, of relevant case-law of the Court of Justice of the European Union and of comparative law and European and international standards, including the understanding of the interaction between different areas of law;
(b) mutual learning and the exchange of good practices among stakeholders to improve knowledge and mutual understanding of both civil and criminal law and the legal and judicial systems of the Member States, including the rule of law and access to justice, and to enhance mutual trust;
(c) analytical and monitoring activities to improve knowledge and understanding of potential obstacles to the smooth functioning of a European area of justice, and to improve the implementation of Union law and policies in the Member States, such as activities including the collection of data and statistics; the development of common methodologies and, where appropriate, of indicators or benchmarks; studies, research, analyses and surveys; evaluations; impact assessment; and the development and publication of guidelines, reports and educational material;
(d) training relevant stakeholders to improve knowledge of Union law and policies, including both substantive and procedural law, fundamental rights, the use of Union judicial cooperation instruments, relevant case-law of the Court of Justice of the European Union, legal language and comparative law;
(e) developing and maintaining information and communication technology (ICT) as well as e-justice tools, taking into account privacy and data protection requirements, to improve the efficiency of judicial systems and cooperation between them by means of ICT, including cross-border interoperability of systems and applications;
(f) developing the capacity of key European-level networks and European judicial networks, including networks established by Union law to ensure the effective application and enforcement of Union law, to promote and further develop Union law, values, policy goals and strategies in the areas of the Programme;
(g) supporting civil society organisations and non-profit stakeholders active in the areas covered by the Programme to increase their capacity to react and advocate as well as to ensure adequate access for all citizens to their services, counselling activities and support activities, thereby also contributing to the strengthening of democracy, the rule of law and fundamental rights;
(h) enhancing knowledge of the Programme and disseminating and transferring its results in a transparent manner, and fostering citizen outreach, including by organising forums for discussion for stakeholders.

Or. en

Amendment 7

Proposal for a regulation

Article 9 – paragraph 5

Text proposed by the CommissionAmendment
5. The work programme referred to in Article 110 of Regulation (EU, Euratom) 2024/2509, the calls for proposals and calls for tenders may further specify the eligibility criteria set out in this Regulation or set additional eligibility criteria for specific actions.5. The work programme referred to in Article 10, the calls for proposals and calls for tenders may further specify the eligibility criteria set out in this Regulation or set additional eligibility criteria for specific actions.

Or. en

Amendment 8

Proposal for a regulation

Article 10 – paragraph 1

Text proposed by the CommissionAmendment
The Programme shall be implemented by work programmes referred to in Article 110 of Regulation (EU, Euratom) 2024/2509.1. The Programme shall be implemented by work programmes.

Or. en

Amendment 9

Proposal for a regulation

Article 10 – paragraph 1 a (new)

Text proposed by the CommissionAmendment
1a. The Commission shall adopt delegated acts in accordance with Article 10c to supplement this Regulation by setting out the work programmes referred to in paragraph 1 of this Article.

Or. en

Amendment 10

Proposal for a regulation

Article 10 a (new)

Text proposed by the CommissionAmendment
Article 10a
Monitoring and reporting
1. Indicators shall be used to report on the progress of the Programme towards the achievement of the general and specific objectives laid down in Article 3 in accordance with the general framework set out in the [Performance Regulation].
2. The performance reporting system set out in this Regulation and the [Performance Regulation] shall ensure that data for monitoring the implementation and results of the Programme are collected efficiently, effectively and in a timely manner. To that end, proportionate reporting requirements shall be imposed on recipients of Union funds and, where appropriate, on Member States.
3. The Commission shall report on the performance of the Programme annually to the European Parliament and to the Council, within the existing reporting mechanisms, in particular the EU Justice Scoreboard. In particular, the Commission shall report on the use of the funds allocated to each specific objective. In its report, it shall specify the types of action that have received funding, including actions linked to the promotion of gender equality. On the basis of that report, the European Parliament may make recommendations. The Commission shall duly take those recommendations into account.

Or. en

Amendment 11

Proposal for a regulation

Article 10 b (new)

Text proposed by the CommissionAmendment
Article 10b
Evaluation
1. Evaluations of the Programme shall be carried out in a timely manner with a view to feeding into the decision-making process.
2. The Commission shall carry out an interim evaluation of the Programme once there is sufficient information available about the implementation of the Programme, but no later than by 1 July 2031.
3. The Commission shall carry out a final evaluation of the Programme at the end of its implementation, but no later than by 31 December 2038.
4. The Commission shall communicate the conclusions of its evaluations referred to in paragraphs 2 and 3, accompanied by its observations, to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions.

Or. en

Amendment 12

Proposal for a regulation

Article 10 c (new)

Text proposed by the CommissionAmendment
Article 10c
Exercise of the delegation
1. The power to adopt delegated acts is conferred on the Commission subject to the conditions laid down in this Article.
2. The power to adopt delegated acts referred to in Article 10 shall be conferred on the Commission for a period of … years from … [date of entry into force of the basic legislative act or any other date set by the co-legislators] .
3. The delegation of power referred to in Article 10 may be revoked at any time by the European Parliament or by the Council. A decision to revoke shall put an end to the delegation of the power specified in that decision. It shall take effect the day following the publication of the decision in the Official Journal of the European Union or at a later date specified therein. It shall not affect the validity of any delegated acts already in force.
4. Before adopting a delegated act, the Commission shall consult experts designated by each Member State in accordance with the principles laid down in the Interinstitutional Agreement of 13 April 2016 on Better Law-Making.
5. As soon as it adopts a delegated act, the Commission shall notify it simultaneously to the European Parliament and to the Council.
6. A delegated act adopted pursuant to Article 10 shall enter into force only if no objection has been expressed either by the European Parliament or by the Council within a period of two months of notification of that act to the European Parliament and the Council or if, before the expiry of that period, the European Parliament and the Council have both informed the Commission that they will not object. That period shall be extended by two months at the initiative of the European Parliament or of the Council.

Or. en