opinion parliamentary committee, 23 July 2026
On the proposal for a regulation of the European Parliament and of the Council Establishing the Union support for asylum, migration and integration for the period from 2028 to 2034
Document DEVE-AD-782280 · (COM(2025)0540 – C100177/2025 – 2025/0540(COD))
Committee on Development · Rapporteur: Ondřej Kolář
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Short justification 114 paragraphs
The Commission has presented to the European Parliament and the Council a proposal establishing the Union support for asylum, migration and integration for the period from 2028 to 2034. Migration is a common European problem that requires a shared, rules-based response, as it is also mentioned in the Commission's Political Guidelines for 2024–2029.
For development policy the focus is on the external dimension of this support. The growing influx of migrants from Africa and Asia, frequently orchestrated by third countries like Russia and its proxies to destabilise Europe through hybrid tactics, underscores the urgent need for the European Union to bolster controls on irregular migration flows while preserving safe and legal pathways. Escalating conflicts in the Middle East and North Africa, combined with potential loss of control and inadequate EU involvement, pose a major migration risk to the Union.
Migration has also increasingly been instrumentalised as a political weapon, by some third countries, most notably by Lukashenko’s regime in Belarus, that deliberately facilitated the movement of migrants toward EU borders to put a pressure on Member States. Similar tactics have been observed elsewhere, including Turkey’s periodic use of migration flows in negotiations and pressure on the EU, and Libya’s role as a transit hub where instability and external influence directly affect departures toward Europe.
This is how artificially created migration flows or irregular migration becomes an instrument, a tool for political purposes and a hybrid threat. When engaging with third countries and providing financial or technical assistance, the European Union must clearly define concrete conditions linked to its strategic interests, particularly in the management and control of migration flows. Development cooperation and aid should be based on transparent rules and mutual obligations, ensuring that partner countries actively contribute to preventing irregular migration, combating smuggling networks, and facilitating effective border and return management. Establishing conditionality in migration-related cooperation including development is therefore essential to ensure that EU support to third countries delivers tangible outcomes and aligns with the Union’s broader migration and security objectives.
AMENDMENTS
The Committee on Development submits the following to the Committee on Civil Liberties, Justice and Home Affairs, as the committee responsible:
Amendment 1
Proposal for a regulation
Recital 1
| Text proposed by the Commission | Amendment |
|---|---|
| (1) The purpose of this Regulation is to contribute to the Union’s objective of constituting an area of freedom, security and justice in accordance with the Treaty on the Functioning of the European Union (TFEU) through provision of Union support for the development of a common policy on asylum, subsidiary protection and temporary protection with a view to offering appropriate status to any third-country national requiring international protection and ensuring compliance with the principle of non-refoulement in accordance with Article 77 TFEU, and a common immigration policy aimed at ensuring, at all stages, the efficient management of migration flows, fair treatment of third-country nationals residing legally in Member States, and the prevention of, and enhanced measures to combat, illegal immigration and trafficking in human beings in accordance with Article 79 TFEU. | (1) The purpose of this Regulation is to contribute to the Union’s objective of constituting an area of freedom, security and justice in accordance with the Treaty on the Functioning of the European Union (TFEU) through provision of Union support for the development of a common policy on asylum, subsidiary protection and temporary protection with a view to offering appropriate status to any third-country national requiring international protection through fair and efficient procedures and ensuring compliance with the principle of non-refoulement in accordance with Article 77 TFEU, and a common immigration policy aimed at ensuring, at all stages, the efficient management of migration flows, fair treatment of third-country nationals residing legally in Member States, and the prevention of, and enhanced measures to counter irregular immigration and trafficking in human beings in accordance with Article 79 TFEU. |
Amendment 2
Proposal for a regulation
Read the rest (102 paragraphs)
Recital 1 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (1a) Actions supported under development cooperation instruments have as their primary objective the reduction and, in the long term, the eradication of poverty, in line with Article 208 TFEU. |
Amendment 3
Proposal for a regulation
Recital 3
| Text proposed by the Commission | Amendment |
|---|---|
| (3) This Regulation lays down the objectives of the Union support on asylum, migration and integration policy. Member States should ensure that their National and Regional Partnership Plans address each of the objectives set out by this Regulation. | (3) This Regulation lays down the objectives of the Union support on asylum, migration and integration policy. Member States should ensure that their National and Regional Partnership Plans address each of the objectives set out by this Regulation, taking into account the specific circumstances of the Member State concerned, including the risks arising from the instrumentalisation of migration. |
Amendment 4
Proposal for a regulation
Recital 6 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| Europe’s geopolitical context has significantly changed, profoundly affecting the Union’s migration management, also due to the role of State actors in artificially creating and facilitating irregular migration, instrumentalising migratory flows as a tool for political purposes, and to the use of hybrid warfare tactics, such as the weaponisation of migration8 , to destabilise the European Union and its Member States. Member States need to be able to rapidly and effectively respond to developments of migratory flows and receive Union support for that purpose. To respond to these European challenges, the allocation of Union support should reflect the Union’s priorities. Therefore, the Union support implemented under the rules governing the Member States National and Regional Partnership Plans should contribute to effectively addressing the challenges identified in the context of the long-term European Asylum and Migration Management Strategy and the annual migration management cycle established in accordance with Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 20249 , including the annual solidarity mechanism and the Union Resettlement and Humanitarian Admission Framework. | Europe’s geopolitical context has significantly changed, profoundly affecting the Union’s migration management, also due to the role of State actors in artificially creating and facilitating irregular migration, and to the use of hybrid threats, such as the weaponisation of migration8, to destabilise the European Union and its Member States. Member States need to be able to rapidly and effectively respond to developments of migratory flows and receive Union support for that purpose. Therefore, the Union support implemented under the rules governing the Member States National and Regional Partnership Plans should contribute to effectively addressing the challenges identified in the context of the long-term European Asylum and Migration Management Strategy and the annual migration management cycle established in accordance with Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 20249 , including the annual solidarity mechanism and the Union Resettlement and Humanitarian Admission Framework. |
| 8 Communication from the Commission to the European Parliament and the Council on countering hybrid threats from the weaponisation of migration and strengthening security at the EU’s external borders (COM(2024) 570 final of 11.12.2024). | 8 Communication from the Commission to the European Parliament and the Council on countering hybrid threats from the weaponisation of migration and strengthening security at the EU’s external borders (COM(2024) 570 final of 11.12.2024). |
| 9 Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 2024 on asylum and migration management, amending Regulations (EU) 2021/1147 and (EU) 2021/1060 and repealing Regulation (EU) No 604/2013, OJ L, 2024/1351, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1351/oj). | 9 Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 2024 on asylum and migration management, amending Regulations (EU) 2021/1147 and (EU) 2021/1060 and repealing Regulation (EU) No 604/2013, OJ L, 2024/1351, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1351/oj). |
Amendment 5
Proposal for a regulation
Recital 7
| Text proposed by the Commission | Amendment |
|---|---|
| (7) As challenges in the area of migration and asylum are constantly evolving, there is a need to adapt the allocation of the Union support under this Regulation to the changes in migration flows and asylum. To respond to pressing needs and changes in policy and Union priorities, and to steer funding towards actions with a high level of Union added value, part of the Union support under this Regulation should be implemented in direct, shared and indirect management via the EU Facility established pursuant to Regulation (EU) […] establishing the European Fund for economic, social and territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and security. The EU Facility offers flexibility in the management of the Union support, and, for shared management, it should be implemented through the Member States’ National and Regional Partnership Plans. | (7) As challenges in the area of migration and asylum are constantly evolving, there is a need to adapt the allocation of the Union support under this Regulation to the changes in migration flows and asylum. To respond to pressing needs and changes in policy and Union priorities, and to steer funding towards actions with a high level of Union added value, while ensuring predictability and respect for fundamental rights, part of the Union support under this Regulation should be implemented in direct, shared and indirect management via the EU Facility established pursuant to Regulation (EU) […] establishing the European Fund for economic, social and territorial cohesion, agriculture and rural, fisheries and maritime, prosperity and security. The EU Facility offers flexibility in the management of the Union support, and, for shared management, it should be implemented through the Member States’ National and Regional Partnership Plans. |
Amendment 6
Proposal for a regulation
Recital 8
| Text proposed by the Commission | Amendment |
|---|---|
| (8) The Commission and the Member States should ensure that the knowledge, expertise and experience of relevant Union bodies, offices and agencies are taken into account in the development of Member States’ National and Regional Plans and when implementing measures or addressing challenges in relation to migration management, border control and management and internal security. Where appropriate, the Commission should also be able to involve the relevant Union bodies, offices and agencies in activities aiming to ensure that the measures supported by the Union support comply with the relevant Union acquis and agreed Union priorities. | (8) The Commission and the Member States should ensure that the knowledge, expertise and experience of relevant Union bodies, offices, agencies and civil society, including organisations working in the field of fundamental rights and international protection are taken into account in the development of Member States’ National and Regional Plans and when implementing measures or addressing challenges in relation to migration management, border control and management and internal security. Where appropriate, the Commission should also be able to involve the relevant Union bodies, offices and agencies in activities aiming to ensure that the measures supported by the Union support comply with the Charter of Fundamental Rights of the European Union, the relevant Union acquis and agreed Union priorities. |
Amendment 7
Proposal for a regulation
Recital 11
| Text proposed by the Commission | Amendment |
|---|---|
| (11) The Union support should contribute to ensuring consistency, coherence, synergies and complementarities between the Union’s internal and external policies. An increased coherence is needed between migration, asylum, return and external policies and it is important to ensure that the Union’s external assistance and Union support under this Regulation contribute to a coordinated, holistic and structured approach to migration, maximising synergies and increasing leverage. Union support under this Regulation may also include support to the relevant resources of the EU delegations in duly justified cases, and be coordinated between the Member States and the Commission in programming and implementation stages. | (11) The Union support should contribute to ensuring consistency, coherence, synergies and complementarities between the Union’s internal and external policies while in full respect of the EU's agenda for policy coherence for development. An increased coherence is needed between migration, asylum, return and external policies and it is important to ensure that the Union’s external assistance and Union support under this Regulation contribute to a coordinated, holistic and structured approach to migration, maximising synergies and increasing leverage. Union support under this Regulation may also include support to the relevant resources of the EU delegations, such as liaison officers, in duly justified cases, and be coordinated between the Member States and the Commission in programming and implementation stages. |
Amendment 8
Proposal for a regulation
Recital 11 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (11a) Tackling the root causes of irregular migration requires long-term investment in inclusive growth, social protection, climate resilience and governance; it also requires support for sustainable development policies in partner countries, particularly in education, health, renewable energy and gender equality, as the achievement of the Sustainable Development Goals is essential to improve livelihood in third countries and can also have an impact on migration flows. |
Amendment 9
Proposal for a regulation
Recital 11 b (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (11b) The European Commission should continue to commit to Policy Coherence for Development, thus ensuring the complementarity of the EU external migration policy with broader foreign policy and development cooperation objectives. |
Amendment 10
Proposal for a regulation
Recital 16
| Text proposed by the Commission | Amendment |
|---|---|
| (16) A third country that has concluded an agreement with the Union on the criteria and mechanisms for establishing the State responsible for examining an application for international protection registered in a Member State or registered in that third country should be allowed to participate in the Union support through this Regulation provided certain conditions are fulfilled. | (16) The Union support through this Regulation should be open for participation of third countries where this is in the interest of the Union. A third country that has concluded an agreement with the Union on the criteria and mechanisms for establishing the State responsible for examining an application for international protection registered in a Member State or registered in that third country should be allowed to participate in the Union support through this Regulation provided certain conditions are fulfilled. In case the fulfilment of the agreement is jeopardised by the third country, the Union can suspend its support under this Regulation. Participation should be subject to a fair balance of contribution and benefits of the third country and ensure the protection of the financial and security interests of the Union. When deciding on the participation of third countries, the respective prerogatives of the European Parliament, the Council and the Commission under Article 218 TFEU are to be observed. |
Amendment 11
Proposal for a regulation
Recital 16 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (16a) In this regard, agreements with third countries should always be founded on the respect for fundamental rights, international law and the principle of non-refoulement. In addition, these agreements should also include measures to combat the root causes of migration, such as but not limited to, poverty reduction, conflict prevention, climate resilience, and sustainable development. |
Amendment 12
Proposal for a regulation
Article 1 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| This Regulation lays down the objectives and financing of the Union support for the implementation, strengthening and development of the common policy on asylum and the common immigration policy for the period from 1 January 2028 to 31 December 2034. The Union support shall contribute to the efficient management of migration flows and asylum, including by providing support for the implementation, strengthening and development of the Pact on Migration and Asylum, and the common system of temporary protection for displaced persons in the event of a mass influx. | This Regulation lays down the objectives and financing of the Union support for the implementation, strengthening and development of the common policy on asylum and the common immigration policy for the period from 1 January 2028 to 31 December 2034. The Union support shall contribute to the efficient management of migration flows and asylum, returns and integration, including by providing support for the implementation, strengthening and development of the Pact on Migration and Asylum, and the common system of temporary protection for displaced persons in the event of a mass influx. |
Amendment 13
Proposal for a regulation
Article 2 – paragraph 1 – point 12 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (12a) ‘return’ means return as defined in Article 3, point (3) of Directive 2008/115/EC. |
Amendment 14
Proposal for a regulation
Article 3 – paragraph 1 – point b
| Text proposed by the Commission | Amendment |
|---|---|
| (b) enhancing effective, safe and dignified return and readmission, promoting and contributing to the effective reintegration in third countries, and contributing to countering irregular migration by preventing and combating migrant smuggling and trafficking in human beings as well as instrumentalisation and weaponisation of irregular migration; | (b) enhancing effective, safe and dignified return and readmission, promoting and contributing to the effective human rights and need-based reintegration in third countries, and contributing to countering irregular migration by preventing and combating migrant smuggling and trafficking in human beings as well as instrumentalisation and weaponisation of irregular migration; |
Amendment 15
Proposal for a regulation
Article 3 – paragraph 1 – point c
| Text proposed by the Commission | Amendment |
|---|---|
| (c) strengthening and developing legal migration to the Member States in accordance with their needs, and promoting and contributing to the effective integration and social inclusion of third-country nationals during the early phases of settlement; | (c) assisting Member States in managing, strengthening and developing legal migration in accordance with their needs, and promoting and contributing to the effective integration and social inclusion of third-country nationals; |
Amendment 16
Proposal for a regulation
Article 3 – paragraph 1 – point d a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (da) engaging with partner countries on the basis of a comprehensive approach towards migration; |
Amendment 17
Proposal for a regulation
Article 3 – paragraph 1 – point d b (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (db) in case of identifying shortcomings in a partner country related to the mutual obligations under this Regulation, or in case such a country uses migration as a hybrid tool, the Commission shall suspend funding under this Regulation with such a country; |
Amendment 18
Proposal for a regulation
Article 3 – paragraph 1 – point d c (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (dc) contributing, where relevant, to addressing the root causes of migration, such as but not limited to, poverty reduction, conflict prevention, climate resilience, and sustainable development. |
Amendment 19
Proposal for a regulation
Article 3 – paragraph 3 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| 3a. The Union policy shall aim to maximise synergies and develop comprehensive partnerships, with particular attention to countries of origin, transit and departure, ensuring a coherent whole-of-route strategy. The approach shall take into account the effectiveness of cooperation and the implementation of Union arrangements and dialogues on migration. All actions under this approach shall be implemented in full compliance with international law, including international humanitarian, human rights and refugee law, and with due respect for Union and national competences. Actions in third countries shall complement, and not duplicate or replace, development cooperation instruments established under Regulation (EU) 2021/947. |
Amendment 20
Proposal for a regulation
Article 3 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| Article 3a | |
| Union support for activities in and in relation to third countries | |
| Union support may be provided for actions in and in relation to third countries, provided that those actions contribute to the objectives set out in Article 3 of this Regulation. Such activities shall serve the interests of internal and external Union policies and be consistent with activities undertaken within the Union. |
Amendment 21
Proposal for a regulation
Article 7 – title
| Text proposed by the Commission | Amendment |
|---|---|
| Third countries associated to the Union support | Third countries participating in the Union support |
Amendment 22
Proposal for a regulation
Article 7 – paragraph 1
| Text proposed by the Commission | Amendment |
|---|---|
| 1. The Union support under this Regulation shall be open to third countries that fulfil the criteria listed in paragraph 2, in accordance with the conditions laid down in a specific agreement covering the participation of the third country in the Union support. | 1. The Union support under this Regulation shall be open to the participation of the third countries that fulfil the criteria listed in paragraph 2, in accordance with the conditions laid down in a specific agreement covering the participation of the third country in the Union support. |
Amendment 23
Proposal for a regulation
Article 7 – paragraph 2 a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| 2a. Particular attention shall be given to unaccompanied minors, victims of trafficking of human beings, persons with disabilities and survivors of gender-based violence. Union support shall prioritise child-protection systems and specialised reception and support services. |
Amendment 24
Proposal for a regulation
Article 7 – paragraph 3 – subparagraph 1 – introductory part
| Text proposed by the Commission | Amendment |
|---|---|
| The specific agreement referred to in paragraph 1 shall at a minimum: | The specific agreement for participation in the Union support referred to in paragraph 1 shall at a minimum: |
Amendment 25
Proposal for a regulation
Article 7 – paragraph 3 – subparagraph 1 – point b a (new)
| Text proposed by the Commission | Amendment |
|---|---|
| (ba) include measures to combat the root causes of migration; such as but not limited to, poverty reduction, conflict prevention, climate resilience, and sustainable development; |
Amendment 26
Proposal for a regulation
Article 7 – paragraph 3 – subparagraph 1 – point c
| Text proposed by the Commission | Amendment |
|---|---|
| (c) ensure a fair balance as regards the contributions made by, and the benefits received by, the third country participating in the Union support; | (c) promote mutually beneficial partnerships by ensuring a fair balance as regards the contributions made by, and the benefits received by, the third country participating in the Union support; |
Amendment 27
Proposal for a regulation
Article 7 – paragraph 3 – subparagraph 1 – point d
| Text proposed by the Commission | Amendment |
|---|---|
| (d) lay down the conditions of participation in the Union support, including the calculation of financial contributions to the Union support, and its administrative costs; | (d) lay down the conditions of participation in the Union support, including the calculation of financial contributions, to the Union support, and its general administrative costs; |
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.
Procedure pages
How the committees handled the text, and how their members voted on it.
Procedure – committee asked for opinion 1 paragraph
| Title | Establishing the Union support for asylum, migration and integration for the period from 2028 to 2034 | |
| References | COM(2025)0540 – C10-0177/2025 – 2025/0540(COD) | |
| Committee(s) responsible Date announced in plenary | LIBE 23.10.2025 | |
| Opinion by Date announced in plenary | DEVE 23.10.2025 | |
| Rapporteur for opinion Date appointed | Ondřej Kolář 5.11.2025 | |
| Discussed in committee | 24.2.2026 | |
| Date adopted | 15.7.2026 | |
| Result of final vote | +: –: 0: | 13 5 4 |
Final vote by roll call by the committee asked for opinion 3 paragraphs
13 · For
- EPP
- Hildegard Bentele, Niels Geuking, Ondřej Kolář, Angelika Niebler, Paulius Saudargas
- Renew
- Barry Andrews, Charles Goerens, Hilde Vautmans
- S&D
- Robert Biedroń, Udo Bullmann, Marit Maij, Leire Pajín, Birgit Sippel
5 · Against
- ESN
- Tomasz Froelich
- Patriots
- Marieke Ehlers, Viktória Ferenc
- The Left
- Damien Carême, Isabel Serra Sánchez
4 · Abstained
- ECR
- Małgorzata Gosiewska, Kristoffer Storm
- Greens
- Erik Marquardt, Ana Miranda Paz