REPORT on the proposal for a decision of the European Parliament and of the Council on the mobilisation of the European Union Solidarity Fund to provide assistance to Spain[...]

MOTION FOR A EUROPEAN PARLIAMENT RESOLUTION

on the proposal for a decision of the European Parliament and of the Council on the mobilisation of the European Union Solidarity Fund to provide assistance to Spain regarding the floods in the Valencia Region of Spain in October 2024 and France following the damages caused by cyclone Chido in Mayotte in December 2024 and cyclone Garance in Réunion in February 2025

(COM(2025)0855 - C10-0239/2025 - 2025/0318(BUD))

The European Parliament,

- having regard to the Commission proposal to the European Parliament and the Council (COM(2025)0855 - C10-0239/2025),

- having regard to Council Regulation (EC) No 2012/2002 of 11 November 2002 establishing the European Union Solidarity Fund[1],

- having regard to Council Regulation (EU, Euratom) 2020/2093 of 17 December 2020 laying down the multiannual financial framework for the years 2021 to 2027[2], and in particular Article 9 thereof,

- having regard to the Interinstitutional Agreement of 16 December 2020 between the European Parliament, the Council and the Commission on budgetary discipline, on cooperation in budgetary matters and on sound financial management, as well as on new own resources, including a roadmap towards the introduction of new own resources[3], and in particular point 10 thereof,

- having regard to Regulation (EU) 2021/1058 of the European Parliament and of the Council of 24 June 2021 on the European Regional Development Fund and on the Cohesion Fund[4],

- having regard to Regulation (EU) 2021/1057 of the European Parliament and of the Council of 24 June 2021 establishing the European Social Fund Plus (ESF+)[5],

- having regard to Regulation (EU) 2021/2115 of the European Parliament and of the Council of 2 December 2021 establishing rules on support for strategic plans to be drawn up by Member States under the common agricultural policy (CAP Strategic Plans) and financed by the European Agricultural Guarantee Fund (EAGF) and by the European Agricultural Fund for Rural Development (EAFRD) and repealing Regulations (EU) No 1305/2013 and (EU) No 1307/2013[6],

- having regard to the report by the Committee on Employment and Social Affairs and the Committee on Regional Development (A10-0031/2024) in the framework of the legislative procedure to adopt Regulation (EU) 2024/3236 of the European Parliament and of the Council of 19 December 2024 amending Regulations (EU) 2021/1057 and (EU) 2021/1058 as regards Regional Emergency Support to Reconstruction (RESTORE)[7], and in particular the budgetary assessment by the Committee on Budgets attached to that report,

- having regard to its resolution of 7 May 2025 on a revamped long-term budget for the Union in a changing world[8],

- having regard to the EEA Report No 1/2024 - European Climate Risk Assessment (EUCRA)[9],

- having regard to the report of the Committee on Budgets (A10-0215/2025),

A. whereas between 28 October and 4 November 2024, a storm bringing heavy rain struck the entire Valencia region of Spain and led to severe flooding resulting in total direct damages estimated by the Commission at EUR 18,08 billion and affecting 845 000 people from 84 municipalities, 170 educational establishments, more than 50 health institutions and public infrastructure; whereas the floods caused at least 229 fatalities;

B. whereas the estimation of the enormous impact of the storms and floods on the regions' economy is of EUR 18 billion, affecting 63 industrial areas, 64 000 companies (99,6 % of which are SMEs), 250 000 workers, and 243 388 compensation claims, as stipulated by the studies presented by the regional government of Valencia and the Valencian Business Confederation;

C. whereas on 14 December 2024, the eye of a cyclone called Chido hit the island of Mayotte, France, and led to wind guests exceeding 180 kilometre per hour and heavy rainfall combined with high wave heights resulting in total direct damages estimated by the Commission at EUR 3,6 billion; whereas the cyclone affected 337 000 people and caused at least 39 fatalities; whereas 200 people are still missing;

D. whereas on 28 February 2025, a cyclone named Garance hit the island of Réunion, France, and led to wind speeds of up to 215 kilometre per hour, heavy rain and dangerous sea conditions resulting in total direct damages estimated by the French authorities at EUR 849,45 million mainly in electric network and communication infrastructure; whereas the cyclone affected 160 000 people and caused at least 4 fatalities;

1. Expresses its deepest solidarity with all the victims, their families and all the individuals affected by the destructive floods in the region of Valencia, Spain, and devastating cyclones in Mayotte and Réunion, France, as well as with the national, regional and local authorities involved in the relief efforts;

2. Welcomes the decision as a tangible and visible form of the Union's solidarity with its citizens and the regions in the affected areas, but notes that such solidarity cannot replace the direct responsibility of local, regional and national authorities in preventing and managing climate-related natural disasters;

3. Reiterates the importance of communicating to the public the tangible benefits brought about by the European Union Solidarity Fund (EUSF), also to further increase citizens' awareness of Union tools and programmes;

4. Highlights the increasing number of severe, destructive and deadly natural disasters in Europe and calls on Member States and the Commission to increase investments in prevention, public infrastructure, climate mitigation and adaptation as well as emergency preparedness measures to avoid human and economic losses; calls on Member States to take into consideration that climate risks and other natural disasters disproportionately affect vulnerable populations and small and medium enterprises due to socio-economic and demographic factors as well as vulnerable territories such as outermost regions; considers that it is essential to ensure a high level of democratic scrutiny by the budgetary authority of the EUSF; recalls that the EUSF has a limited budget and cannot be regarded as the sole instrument for addressing major natural disasters; calls therefore for an assessment of the Union budget's financial capacity and for consideration of a possible increase in its resources in order to provide assistance commensurate to the magnitude of such disasters to citizens; notes that increasing this kind of assistance would allow Member States to respond more effectively and quickly to disasters while other instruments, particularly cohesion funds whose primary purpose is not disaster response, could be preserved;

5. Stresses that the EUSF is only a curative instrument and that the Union should also continue to address climate change adaptation and mitigation by supporting European and national policies to prevent natural disasters as well as underpinning the "build back better" principle in all its actions; underlines that EEA Report No 1/2024 'European Climate Risk Assessment' warned that the Union is unprepared for the effects of climate change and stresses the need for action to avoid the climate risks identified reaching critical levels; calls on Member States and the Commission to take the necessary measures to bring the Union to achieve the commitments made in the Paris Agreement; recalls the need for effective synergies with other Union policies and programmes and underlines that Member States should make best use of funding opportunities in particular, of the European Regional Development Fund, the European Social Fund+ and the rural development programmes; calls on the Commission to assess with due urgency any reasoned requests by Member States to reallocate funds within the National Recovery and Resilience plans to natural disaster assistance, in accordance with the rules laid down in Regulation (EU) 2021/241 of the European Parliament and of the Council[10], especially when taking into account the high percentage of resources from this mechanism that are still unspent; stresses also the need for preventive measures, not only to mitigate future damage but also to prevent the exacerbation of risk conditions following catastrophic events, such as floods, wildfires, landslides or the drying up of lakes and rivers; further stresses the risks that extreme weather and natural disasters such as heatwaves possess for the public health across Europe and calls on the Commission to consider this aspect in relevant policies; encourages the use of innovative digital tools, satellite data (e.g. Copernicus), and early-warning systems to enhance disaster preparedness; underlines the importance of adequate flexibility between the different programmes; underscores that assistance provided under the EUSF should not be to the detriment of Union funding received by Member States under other Union policies or programmes; recalls that Member States can grant State aid, in accordance with the applicable Union rules, notably for agricultural businesses that have suffered damages due to natural disasters;

6. Recalls that RESTORE[11]and the specific measures under the European Agricultural Fund for Rural Development (EAFRD)[12]provide additional assistance to Member States affected by natural disasters through further flexibilities in the use of the funds; stresses that Member States should make use of these opportunities;

7. Regrets that it takes an average of one year for the full amount of an EUSF grant to reach a beneficiary; recalls the importance of rapid and solid damage assessment that takes due account of the economic repercussions and calls for increased operational efforts to be made in order to reduce the average time for the release of advanced payments, while ensuring the Union budget is protected; notes that the methodology for calculating the total amount of the aid could better take into account the ratio between the total direct damage and the GNI of the territory affected, particularly when outermost regions are affected;

8. Stresses the urgent need to release immediate financial assistance through the EUSF to ensure that support can reach the affected regions in a timely manner to support a quick and long-lasting recovery; stresses the importance of reducing the time between the submission of an application for EUSF assistance and the financing decision; calls for effort to be made to ensure that EUSF aid reaches its final recipients promptly, including businesses, SMEs, families, and affected citizens, as well as infrastructure reconstruction and material damage repair, all with the corresponding impact assessment and appropriate control mechanisms; underlines the need to simplify and accelerate internal procedures without undermining the institutional balance, in particular the rights of the European Parliament as one of two arms of the budgetary authority; notes that the proposed governance of the post-2027 successor of the European Solidarity Fund is not in line with the European Parliament's position expressed in its resolution of 7 May 2025 "A revamped long-term budget for the Union in a changing world"[13];

9. Approves the decision annexed to this resolution;

10. Instructs its President to sign the decision with the President of the Council and arrange for its publication in the Official Journal of the European Union;

11. Instructs its President to forward this resolution, including its annex, to the Council and the Commission.

ANNEX: DECISION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL

on the mobilisation of the European Union Solidarity Fund to provide assistance to Spain regarding the floods in the Valencia Region of Spain in October 2024 and France following the damages caused by cyclone Chido in Mayotte in December 2024 and cyclone Garance in Réunion in February 2025

THE EUROPEAN PARLIAMENT AND THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty on the Functioning of the European Union,

Having regard to Council Regulation (EC) No 2012/2002 of 11 November 2002 establishing the European Union Solidarity Fund[14]and in particular Article 4(3) thereof,

Having regard to Council Regulation (EU, Euratom) 2020/2093 of 17 December 2020 laying down the multiannual financial framework for the years 2021 to 2027[15], and in particular Article 9 thereof,

Having regard to the Interinstitutional Agreement of 16 December 2020 between the European Parliament, the Council of the European Union and the European Commission on budgetary discipline, on cooperation in budgetary matters and on sound financial management as well as on new own resources, including a roadmap towards the introduction of new own resources[16], and in particular point 10 thereof,

Having regard to the proposal from the European Commission,

Whereas:

(1) The European Union Solidarity Fund ('the Fund') aims to enable the Union to respond in a rapid, efficient and flexible manner to emergency situations in order to show solidarity with the population of regions struck by major or regional natural disasters or major public health emergency.

(2) The Fund is not to exceed the ceilings laid down in Article 9 of Council Regulation (EU, Euratom) 2020/2093[17].

(3) On 20 January 2025, Spain submitted an application to mobilise the Fund following the floods in October 2024.

(4) On 7 March 2025, France submitted an application to mobilise the Fund following the damages caused cyclone Chido in Mayotte in December 2024.

(5) On 23 May 2025, France submitted an application to mobilise the Fund following the damages caused by cyclone Garance in Réunion in February 2025.

(6) Those applications meet the conditions for providing a financial contribution from the Fund, as laid down in Article 4 of Regulation (EC) No 2012/2002.

(7) The Fund should therefore be mobilised to provide a financial contribution to Spain and France.

(8) To minimise the time taken to mobilise the Fund, this Decision should apply from the date of its adoption,

HAVE ADOPTED THIS DECISION:

Article 1

For the general budget of the Union, the European Union Solidarity Fund shall be mobilised as follows in commitment and payment appropriations in relation to natural disasters:

(a) the amount of EUR 946 153 691 shall be provided to Spain to respond to the emergency situation resulting from the floods in October 2024;

(b) the amount of EUR 89 628 050 shall be provided to France to respond to the emergency situation resulting from the damages caused by cyclone Chido in Mayotte in December 2024;

(c) the amount of EUR 21 236 336 shall be provided to France to respond to the emergency situation resulting from the damages caused by cyclone Garance in Réunion in February 2025.

Article 2

This Decision shall enter into force on the day following that of its publication in the Official Journal of the European Union.

It shall apply from [the date of its adoption][*].

Done at Brussels,

For the European Parliament For the Council

The President The President

EXPLANATORY STATEMENT

The Commission proposes to mobilise the European Union Solidarity Fund (EUSF) in accordance with Council Regulation (EC) No 2012/2002 (EUSF regulation) for an amount of EUR 1 057 018 077 to provide assistance to Spain following the floods in the Valencia Region in October 2024 and France following the damages caused by cyclone Chido in Mayotte in December 2024 and cyclone Garance in Réunion in February 2025.

Spain - major natural disaster: floods in October 2024

Between 28 October and 4 November 2024, a storm bringing heavy rain struck the entire Valencia region of Spain which led to severe flooding. The disaster affected 2 600 houses and an area of over 500 square kilometres. Thousands of households were left without electricity, drinking water and phone service, as well as significant damage was done to public infrastructure and goods. Over 170 educational establishments and more than 50 health institutions were impacted. The floods caused at least 229 fatalities.

The Commission estimates the total direct damage caused by the disaster at EUR 18.08 billion. This amount exceeds the 'major natural disaster' threshold for Spain of 0.6% of its Gross National Income, which was EUR 3.96 billion in 2025. Therefore, the disaster qualifies as a 'major natural disaster' according to Article 2(2) of the EUSF Regulation.

France - regional natural disaster: cyclones in Mayotte in December 2024

On 14 December 2024, the eye of a cyclone called Chido hit the island of Mayotte, France. The cyclone's wind gusts exceeded 180 kilometre per hour across the territory. The cyclone also brought heavy rainfall to the island, with an estimated total of 100 to 150 mm of rain within 12 hours. The heavy rainfall and strong winds were combined with dangerously high wave heights of 5 to 9 metres. Subsequently, all dwellings were destroyed. The electricity grid and water network shut down completely and several means of crossing between the two islands of Mayotte were severely affected. Public transport and school transport services were forced to temporarily suspend or significantly reduce their operations. The cyclone caused at least 39 fatalities.

The French authorities submitted the application under the 'regional natural disaster' criterion as laid down in Article 2(3) of the EUSF Regulation, which is any natural disaster in a region at NUTS level 2 of an eligible State resulting in direct damage exceeding 1.5% of that region's gross domestic product (GDP) or 1% of regional GDP for the outermost regions. The Commission estimates the total direct damage caused by the disaster at EUR 3.6 billion. This amount exceeds the indicated applicable threshold for "regional disaster", which is EUR 33.47 million for Mayotte in 2025.

France - regional natural disaster: cyclone in Réunion in February 2025

On 28 February 2025, a cyclone named Garance hit the island of Réunion, France. The cyclonic winds in some areas reached speed of 215 kilometre/hour and brought heavy rain and dangerous sea conditions. Subsequently, the road network was heavily impacted, and the economy was greatly disrupted. The agricultural sector, especially the cane sector, as well as companies relying on tourism suffered major damages due to the cyclone. To help the affected population, 123 accommodation centres were opened for people to seek shelter. The cyclone caused at least 4 fatalities.

The French authorities submitted the application under the 'regional natural disaster' criterion as laid down in Article 2(3) of the EUSF Regulation. The French authorities estimate the total direct damage caused by the disaster at EUR 849.45 million. This amount exceeds the indicated applicable threshold for "regional disaster", which is EUR 216.68 million for Réunion in 2025.

Conclusion

The methodology for calculating the aid was set out in the 2002-2003 Annual Report on the EUSF and accepted by the Council and the European Parliament. The Commission therefore proposes to the budget authority to mobilise the following amounts for the applications submitted by Spain and France:

Council Regulation 2024/765[18]of 29 February 2024 amending Regulation (EU, Euratom) 2020/2093 laying down the multiannual financial framework for the years 2021-2027 split the Solidarity and Emergency Aid Reserve (SEAR) in two separate instruments: the European Solidarity Reserve and the Emergency Aid Reserve. The European Solidarity Reserve (ESR) with an annual amount of EUR 1 016 million (in 2018 prices, corresponding to EUR 1 167.1 million in 2025 prices) will be used for assistance to respond to emergency situations covered by the EUSF.

In line with Article 3(7) of the EUSF Regulation and Article 9(2), second subparagraph, of the amended MFF Regulation, 25% of the annual EUSF allocation (i.e. EUR 291.8 million for 2025) must be made available on 1 October of each year.

Moreover, according to the Article 4a(4) of the EUSF Regulation, the amount of EUR 50 000 000 has been already inscribed in the EU general budget 2025 (in commitments and payments appropriations) for the payment of possible advances. In 2025, the Commission has already paid four advances for a total amount of EUR 139 754 683.

Finally, the mobilisation for Austria, Poland, Czechia, Slovakia, Moldova and Bosnia and Herzegovina used an amount of EUR 270 077 316 from the ESR.

Therefore, the total available allocation (including 25% of the annual allocation that becomes available on 1 October but excluding the amount still to be used for possible advances until the end of the year) is EUR 928 376 487, which is sufficient to cover the payment needs of this communication. This leaves a remaining balance of EUR 23 172 314 to cover any new applications for advances and additional EUR 449 506 on the reserve line.

The Rapporteur recommends the swift approval of the Commission proposal for a decision annexed to this report, leading to the rapid mobilisation of the aforementioned amounts, as a sign of European solidarity with Spain and France. The rapporteur calls on the Commission that this financial contribution should be delivered with particular urgency.

ANNEX: DECLARATION OF INPUT

The rapporteur declares under her exclusive responsibility that she did not include in her report input from interest representatives falling within the scope of the Interinstitutional Agreement on a mandatory transparency register[19], 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.

INFORMATION ON ADOPTION IN COMMITTEE RESPONSIBLE

FINAL VOTE BY ROLL CALL BY THE COMMITTEE RESPONSIBLE

Key to symbols:

+ : in favour

- : against

0 : abstention