REPORT on the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2021/947 as regards increased efficiency of the External Action Guarantee

7.11.2025 - (COM(2025)0262 – C10‑0107/2025 – 2025/0262(COD)) - ***I

Committee on Foreign Affairs
Committee on Development
 
(Joint committee procedure – Rule 59 of the Rules of Procedure)
Rapporteurs: Charles Goerens, David McAllister

Amendments

• 001-017 (PDF - 129 KB)
• 001-017 (DOC - 36 KB)
• 018-018 (PDF - 141 KB)
• 018-018 (DOC - 54 KB)
• 019-021 (PDF - 113 KB)
• 019-021 (DOC - 36 KB)

DRAFT EUROPEAN PARLIAMENT LEGISLATIVE RESOLUTION

on the proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2021/947 as regards increased efficiency of the External Action Guarantee

(COM(2025)0262 – C10‑0107/2025 – 2025/0262(COD))

(Ordinary legislative procedure: first reading)

The European Parliament,

– having regard to the Commission proposal to Parliament and the Council (COM(2025)0262),

– having regard to Article 294(2) and Articles 209 and 212 of the Treaty on the Functioning of the European Union, pursuant to which the Commission submitted the proposal to Parliament (C10‑0107/2025),

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

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

– having regard to the report of the Committee on Foreign Affairs and the Committee on Development (A10-0221/2025),

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;

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

 

Amendment  1

 

Proposal for a regulation

Recital -1 (new)

Text proposed by the Commission	Amendment
	(-1) The Union’s external financing instruments, including the EFSD+, continue to be guided by the Union’s foreign policy objectives as set out in Article 21 of the Treaty on European Union, notably the promotion of democracy, the rule of law, human rights and respect for the principles of the United Nations Charter, while also reinforcing the Union’s capacity to act as a global strategic player , safeguarding partners’ sovereignty, countering external interference, and strengthening resilience to geopolitical and economic shocks. Measures to enhance the efficiency of the External Action Guarantee should be pursued in a manner fully consistent with those objectives while ensuring greater alignment between Union policies and partner countries’ own priorities. Such measures are also crucial to positioning the Union as a reliable and sustainable partner and promoting Union values and standards in global investment. Funds allocated under Regulation (EU) 2021/947 of the European Parliament and of the Council1a have the primary objective of reducing and, in the long term, eradicating poverty, in accordance with Article 208 of the TFEU, as also laid down in the European Consensus on Development, and in alignment with the UN's 2030 Agenda for Sustainable Development.
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	1a Regulation (EU) 2021/947 of the European Parliament and of the Council of 9 June 2021 establishing the Neighbourhood, Development and International Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU of the European Parliament and of the Council and repealing Regulation (EU) 2017/1601 of the European Parliament and of the Council and Council Regulation (EC, Euratom) No 480/2009.

Amendment  2

 

Proposal for a regulation

Recital 1

Text proposed by the Commission	Amendment
(1) The global geopolitical and geoeconomic context requires that the Union reaffirms its commitment to establish mutually beneficial partnerships with partner countries.	(1) The global geopolitical and geoeconomic context requires that the Union reaffirms its commitment to establish mutually beneficial partnerships with partner countries, in order to consolidate democratic institutions and strengthen regional stability and security, thereby tackling the root causes of migration and human trafficking. At the same time, such partnerships should aim to diversify supply chains and uphold the rules-based international order, taking into account factors such as stances towards  Russia’s war of aggression against Ukraine, thereby fostering sustainable prosperity and advancing human development. Concrete action to face challenges related to climate change, biodiversity, gender equality and respect for human rights should be mainstreamed in the Union’s external action as they have significant implications for stability and sustainable development.

Amendment  3

 

Proposal for a regulation

Recital 1 a (new)

Text proposed by the Commission	Amendment
	(1a) The Union’s strategic ambitions under Regulation (EU) 2021/947 of the European Parliament and of the Council require not only financial and technical delivery but also strong public and diplomatic visibility in order to maximise geopolitical impact and citizen engagement. The Union and its Member States collectively remain the world’s largest providers of official development assistance. That fact, however, is not sufficiently visible, especially when using indirect management with implementing partners such as blended finance operations with many stakeholders within the EFSD+. Accordingly, communication regarding Union-funded actions should be strengthened and greater coherence between the Union and its Member States is needed to present external action as a unified Union effort. Doing so requires systematically displaying the EU flag and logo and agreeing visibility strategies with Member States and delegations. In particular, the Union must manage potential tensions between national visibility objectives and the collective European narrative, as uncoordinated or competing communication risks diluting the Union’s identity and weakening the strategic impact of its engagement worldwide.

Amendment  4

 

Proposal for a regulation

Recital 2

Text proposed by the Commission	Amendment
(2) The Draghi report recommends ensuring a greater involvement of the private sector and to reduce excessive external dependencies by securing supply of raw materials, clean energy, sustainable transport fuels, and clean tech from across the world, thereby upgrading and leveraging the Global Gateway1 as well as the growth plans for the enlargement countries, which require additional resources.	(2) The Draghi report recommends ensuring greater involvement of the private sector. The report further advises to reduce excessive external dependencies by securing supply of raw materials, clean energy, sustainable transport fuels, and clean tech from across the world, thereby upgrading and leveraging the Global Gateway1 as well giving specific priority to the growth plans for the enlargement countries, which require additional resources. At the same time, the challenges related to the growing reliance on private financing to tackle global development shortfalls must be taken into account. The report further highlights the need to accelerate efforts to reduce reliance on Russian energy and to strengthen Europe’s resilience by diversifying away from excessive dependencies, particularly on China.
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1 “The Global Gateway”, Joint Communication to the European Parliament, the Council, the European Economic and Social Committee, the Committee of the Regions and the European Investment Bank, JOIN(2021) 30 final, 1.12.2021	1 “The Global Gateway”, Joint Communication to the European Parliament, the Council, the European Economic and Social Committee, the Committee of the Regions and the European Investment Bank, JOIN(2021) 30 final, 1.12.2021

Amendment  5

 

Proposal for a regulation

Recital 3

Text proposed by the Commission	Amendment
(3) In addition to a more focused approach to enlargement, the political guidelines of the 2024-2029 Commission recognise the importance of a more focused approach to our wider neighbourhood, especially the Middle East, North Africa and the Gulf. The strategic relevance should be supported by concrete projects and strategic investments, both a regional level, e.g. T-MED, and at bilateral level through the implementation of the Strategic Partnerships. Depending on the evolution of the situation on the ground, additional resources could also be needed to maintain stability and support early recovery/reconstruction among key partners in the Middle East.	(3) In addition to a more focused approach to enlargement, the political guidelines of the 2024-2029 Commission recognise the importance of a more focused approach to our wider neighbourhood, especially the Middle East, North Africa and the Gulf as well as Central Asia and the Southern Caucasus. The strategic relevance should be supported by concrete projects and strategic investments, both at regional level, e.g. T-MED, and at bilateral level through the implementation of Strategic Partnerships. Depending on the evolution of the situation on the ground, additional resources might also be required to maintain stability and support early recovery among key partners in the Middle East.

Amendment  6

 

Proposal for a regulation

Recital 3 a (new)

Text proposed by the Commission	Amendment
	(3a) The political guidelines also set the goal of creating long-term, mutually beneficial partnerships and recognise the need for a new impetus in Union’s partnership with Africa. Furthermore, Article 6(2), point (a), of Regulation (EU) 2021/947 of the European Parliament and of the Council stipulates a minimum financial envelope for Sub-Saharan Africa which is currently not being attained.

Amendment  7

 

Proposal for a regulation

Recital 3 b (new)

Text proposed by the Commission	Amendment
	(3b) In partner and enlargement countries, Union financial support under the External Action Guarantee should explicitly promote reform in the areas of rule of law, democratic governance and the fight against corruption, thereby underpinning credibility and public trust in the accession processes.

Amendment  8

 

Proposal for a regulation

Recital 3 c (new)

Text proposed by the Commission	Amendment
	(3c) It is essential that the External Action Guarantee strengthens the human development dimension, ensuring that supported projects have a positive impact on education, health, social inclusion and poverty reduction in partner countries, in line with the UN 2030 Agenda. To that end, the implementation of the External Action Guarantee should promote local ownership and ensure complementarity with the national development strategies of partner countries, while adopting a differentiated approach that reflects the specific needs, vulnerabilities and development priorities of low- and middle-income countries.

Amendment  9

 

Proposal for a regulation

Recital 4

Text proposed by the Commission	Amendment
(4) An important Union financing instrument to deliver on the Global Gateway objectives and the strategic investments is the European Fund for Sustainable Development Plus (EFSD+), and notably its budgetary guarantee, a component of the External Action Guarantee established by Regulation (EU) 2021/947 of the European Parliament and of the Council2 . Efficiency gains on the External Action Guarantee would allow funding EU external action priorities, including possibly scaling up the Global Gateway.	(4) An important Union financing instrument to deliver on the Global Gateway objectives and the strategic investments is the European Fund for Sustainable Development Plus (EFSD+), and notably its budgetary guarantee, a component of the External Action Guarantee established by Regulation (EU) 2021/947 of the European Parliament and of the Council2. Efficiency gains on the External Action Guarantee would allow funding EU external action priorities, including possibly scaling up the Global Gateway, taking into account that the EFSD+ requires additional effort from Union delegations to deal with guarantee operations. In those operations, attention is expected to be paid to the specific investment priorities of EU enlargement countries and the distinct nature and needs of fragile contexts, less developed countries, low income countries and countries in debt distress, including small island states, which face specific vulnerabilities related to climate change, food insecurity, and political instability etc.
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2 Regulation (EU) 2021/947 of the European Parliament and of the Council of 9 June 2021 establishing the Neighbourhood, Development and International Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU of the European Parliament and of the Council and repealing Regulation (EU) 2017/1601 of the European Parliament and of the Council and Council Regulation (EC, Euratom) No 480/2009 (OJ L 209, 14.6.2021, p. 1, ELI: http://data.europa.eu/eli/reg/2021/947/oj).	2 Regulation (EU) 2021/947 of the European Parliament and of the Council of 9 June 2021 establishing the Neighbourhood, Development and International Cooperation Instrument – Global Europe, amending and repealing Decision No 466/2014/EU of the European Parliament and of the Council and repealing Regulation (EU) 2017/1601 of the European Parliament and of the Council and Council Regulation (EC, Euratom) No 480/2009 (OJ L 209, 14.6.2021, p. 1, ELI: http://data.europa.eu/eli/reg/2021/947/oj).

Amendment  10

 

Proposal for a regulation

Recital 4 a (new)

Text proposed by the Commission	Amendment
	(4a) The EU and beneficiary partners should ensure that Chinese companies and entities do not secure funds under the EFSD+, particularly where such companies are associated with the Chinese Belt and Road Initiative or owned by the Chinese state or influenced by the Chinese Communist Party.

Amendment  11

 

Proposal for a regulation

Recital 5 a (new)

Text proposed by the Commission	Amendment
	(5a) In view of the negotiations on the post-2027 multiannual financial framework, in line with Article 42(5) of Regulation (EU) 2021/947 and following the recommendation of ECA Opinion 03/2024, the Commission should consider preparing an evaluation of the External Action Guarantee, with emphasis not only on the use of the Guarantee but also on project delivery and impact on the ground, including the Guarantee’s contribution to the overarching objectives of the Neighbourhood, Development and International Cooperation Instrument (NDICI). The Commission should apply the lessons learnt to its next proposals. It should in particular evaluate whether the current maximum guarantee capacity and the levels of provisioning are adequate, taking into account the escalated geopolitical risks and volatile global environments. That evaluation should be prepared by early 2027 and should be carried out in close consultation with the European Parliament, Member States and relevant stakeholders, in order to ensure transparency and accountability.

Amendment  12

 

Proposal for a regulation

Recital 5 b (new)

Text proposed by the Commission	Amendment
	(5b) While efficiency and simplification of procedures for implementing partners are necessary, they must be accompanied by enhanced transparency and accountability in the financing of the EU’s external actions. Reporting obligations should therefore continue to provide clear information on risk exposure, development impact and the geopolitical relevance of the operations concerned. The European Parliament should receive a detailed annual report on the use of resources from the EFSD+ guarantee including a breakdown by sectors and regions, the impact on the sustainable Development goals and the level of participation of civil society organisations.

Amendment  13

 

Proposal for a regulation

Recital 6

Text proposed by the Commission	Amendment
(6) The guarantee cover of EFSD+ could be increased until 2027 with surpluses from the European Sustainable Development Fund (EFSD) and by using more efficiently the Union guarantee by reducing its EU liability under the EIB’s exclusive dedicated investment window for operations with sovereign counterparts and non-commercial sub-sovereign counterparts from 65 % to 60 %. The latter would only come into effect after amending the corresponding guarantee agreement between the Commission and the EIB. The assignment of surpluses from legacy instruments to the benefit of EFSD+ is without prejudice to the negotiations on the post-2027 multiannual financial framework.	(6) The guarantee cover of EFSD+ could be increased until 2027 with surpluses from the European Sustainable Development Fund (EFSD) and by using more efficiently the Union guarantee by reducing its EU liability under the EIB’s exclusive dedicated investment window for operations with sovereign counterparts and non-commercial sub-sovereign counterparts from 65 % to 60 %. The latter would only come into effect after amending the corresponding guarantee agreement between the Commission and the EIB. The assignment of surpluses from legacy instruments to the benefit of EFSD+ is without prejudice to the negotiations on the post-2027 multiannual financial framework. At the same time, the increased reliance on the External Action Guarantee and financial instruments to advance geopolitical goals and to achieve the sustainable development goals and the objectives of Regulation (EU) 2021/947 require enhanced democratic accountability. Simplification of procedures should not weaken transparency or the Commission’s accountability towards the European Parliament as budgetary authority. The European Parliament should be duly informed of the implementation and outcomes of the simplification process. The European Parliament and the Council, as the budgetary authority of the Union, should therefore, in a timely manner, be systematically, comprehensively and regularly informed about the performance of EFSD and EFSD+, including clear information on the fund leveraging, the fund allocation to programmes and projects, total surpluses and deficits identified, the origin of any surpluses and the amounts proposed for reallocation, thus allowing an assessment of the results achieved and of additionality and leverage effects, through clear tracking from the initial budgetary line to the results on the ground. The EFSD+ website should function as a fully compliant and easily accessible public information portal. The website should go beyond basic project descriptions and publish all data and documentation required by Regulation (EU) 2021/947, especially focusing on contributions to objectives of that Regulation, additionality, and leverage effects achieved.

Amendment  14

 

Proposal for a regulation

Recital 8 a (new)

Text proposed by the Commission	Amendment
	(8a) The reassignments of the EFSD guarantee surpluses are particularly pertinent in view of the Union’s geostrategic interests and the stability of partner countries, as well as the increased scarcity of resources to fund development cooperation and humanitarian aid.

Amendment  15

 

Proposal for a regulation

Recital 9

Text proposed by the Commission	Amendment
(9) The capacity of the EIB, the EBRD and the DFIs to efficiently implement additional resources should be increased by the simplification of the framework for blending operations, the consolidation of guarantee and technical assistance agreements with the same implementing partner and the reduction of the financial reporting from a quarterly frequency to a semi-annual one.	(9) The capacity of the EIB, the EBRD and the DFIs to efficiently implement additional resources should be increased by the simplification of the framework for blending operations, the consolidation of guarantee and technical assistance agreements with the same implementing partner and the reduction of the financial reporting from a quarterly frequency to a semi-annual one. Such simplification is crucial to mobilise private investment at scale, increase the leverage effect of Union funds and create a more predictable environment for private partners willing to co-invest in sustainable development.

Amendment  16

 

Proposal for a regulation

Recital 10 a (new)

Text proposed by the Commission	Amendment
	(10a) Article 2(10) of Regulation (EU) 2021/947 provides a precise definition of additionality, a key evaluation requirement for EFSD+. In its Opinion 03/2024, on the Commission’s evaluation of the External Action Guarantee, the European Court of Auditors (ECA) noted that the Commission has yet to demonstrate to what extent the External Action Guarantee has mobilised additional investment beyond what would otherwise have occurred. In future, the Commission should provide clear and regular reporting on the additionality of EFSD+ operations, including evidence that supported portfolios carry a higher risk profile than comparable normal investment activities of implementing partners.

Amendment  17

 

Proposal for a regulation

Recital 10 b (new)

Text proposed by the Commission	Amendment
	(10b) Furthermore, the ECA found insufficient evidence that current spending under the EFSD+ contributes to the objectives of Regulation (EU) 2021/947, particularly the eradication of poverty.

 

 

 

ANNEX: DECLARATIONS OF INPUT

DECLARATION OF INPUT FROM CHARLES GOERENS

The rapporteur declares under his exclusive responsibility that he did not include in his report input from interest representatives falling within the scope of the Interinstitutional Agreement on a mandatory transparency register[1], 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.

 

DECLARATION OF INPUT FROM DAVID MCALLISTER

The rapporteur declares under his exclusive responsibility that he did not include in his report input from interest representatives falling within the scope of the Interinstitutional Agreement on a mandatory transparency register[2], 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 – COMMITTEE RESPONSIBLE

Title	Amending Regulation (EU) 2021/947 as regards increased efficiency of the External Action Guarantee
References	COM(2025)0262 – C10-0107/2025 – 2025/0262(COD)
Date submitted to Parliament	28.5.2025
Committee(s) responsible  Date announced in plenary	AFET 19.6.2025	DEVE 19.6.2025
Committees asked for opinions  Date announced in plenary	BUDG 19.6.2025
Not delivering opinions  Date of decision	BUDG 30.6.2025
Rapporteurs  Date appointed	David McAllister 20.8.2025	Charles Goerens 20.8.2025
Rule 59 – Joint committee procedure  Date announced in plenary	19.6.2025
Discussed in committee	24.9.2025
Date adopted	5.11.2025
Result of final vote	+: –: 0:	47 10 14
Members present for the final vote	Mika Aaltola, Abir Al-Sahlani, Barry Andrews, Lucia Annunziata, Petras Auštrevičius, Dan Barna, Robert Biedroń, Ioan-Rareş Bogdan, Helmut Brandstätter, Danilo Della Valle, Özlem Demirel, Elio Di Rupo, Rosa Estaràs Ferragut, Giorgos Georgiou, Charles Goerens, Christophe Gomart, Rasa Juknevičienė, Sandra Kalniete, Łukasz Kohut, Ondřej Kolář, Andrey Kovatchev, Sergey Lagodinsky, Murielle Laurent, Reinhold Lopatka, Antonio López-Istúriz White, Lukas Mandl, Costas Mavrides, David McAllister, Vangelis Meimarakis, Francisco José Millán Mon, Ana Miranda Paz, Tiago Moreira de Sá, Arkadiusz Mularczyk, Hannah Neumann, Leoluca Orlando, Kostas Papadakis, Nacho Sánchez Amor, Mounir Satouri, Villy Søvndal, Kristoffer Storm, Stanislav Stoyanov, António Tânger Corrêa, Marta Temido, Riho Terras, Hermann Tertsch, Pierre-Romain Thionnet, Sebastian Tynkkynen, Hilde Vautmans
Substitutes present for the final vote	Sandra Gómez López, Małgorzata Gosiewska, Paolo Inselvini, Assita Kanko, Ilhan Kyuchyuk, András László, Miriam Lexmann, Marit Maij, Erik Marquardt, Gabriel Mato, Liudas Mažylis, Carolina Morace, Matjaž Nemec, Tineke Strik, Marco Tarquinio
Members under Rule 216(7) present for the final vote	Peter Agius, Sunčana Glavak, Sophia Kircher, Fabrice Leggeri, César Luena, Verena Mertens, André Rougé, Alexandre Varaut
Date tabled	10.11.2025

 

FINAL VOTE BY ROLL CALL BY THE COMMITTEE RESPONSIBLE

47	+
PPE	Mika Aaltola, Peter Agius, Ioan-Rareş Bogdan, Rosa Estaràs Ferragut, Sunčana Glavak, Christophe Gomart, Rasa Juknevičienė, Sandra Kalniete, Sophia Kircher, Łukasz Kohut, Ondřej Kolář, Andrey Kovatchev, Miriam Lexmann, Reinhold Lopatka, Antonio López-Istúriz White, David McAllister, Lukas Mandl, Gabriel Mato, Liudas Mažylis, Vangelis Meimarakis, Verena Mertens, Francisco José Millán Mon, Riho Terras
Renew	Abir Al-Sahlani, Barry Andrews, Petras Auštrevičius, Dan Barna, Helmut Brandstätter, Charles Goerens, Ilhan Kyuchyuk, Hilde Vautmans
S&D	Lucia Annunziata, Robert Biedroń, Elio Di Rupo, Sandra Gómez López, Murielle Laurent, César Luena, Marit Maij, Costas Mavrides, Matjaž Nemec, Nacho Sánchez Amor, Marco Tarquinio, Marta Temido
Verts/ALE	Erik Marquardt, Ana Miranda Paz, Mounir Satouri, Villy Søvndal

 

10	-
ECR	Małgorzata Gosiewska, Arkadiusz Mularczyk, Kristoffer Storm, Sebastian Tynkkynen
ESN	Stanislav Stoyanov
NI	Kostas Papadakis
The Left	Danilo Della Valle, Özlem Demirel, Giorgos Georgiou, Carolina Morace

 

14	0
ECR	Paolo Inselvini, Assita Kanko
PfE	András László, Fabrice Leggeri, Tiago Moreira de Sá, André Rougé, António Tânger Corrêa, Hermann Tertsch, Pierre-Romain Thionnet, Alexandre Varaut
Verts/ALE	Sergey Lagodinsky, Hannah Neumann, Leoluca Orlando, Tineke Strik

 

Key to symbols:

+ : in favour

- : against

0 : abstention

 

 

• [1] Interinstitutional Agreement of 20 May 2021 between the European Parliament, the Council of the European Union and the European Commission on a mandatory transparency register (OJ L 207, 11.6.2021, p. 1, ELI: http://data.europa.eu/eli/agree_interinstit/2021/611/oj).
• [2] Interinstitutional Agreement of 20 May 2021 between the European Parliament, the Council of the European Union and the European Commission on a mandatory transparency register (OJ L 207, 11.6.2021, p. 1, ELI: http://data.europa.eu/eli/agree_interinstit/2021/611/oj).