EU multiannual financial framework (2021–2027)

KEY POINTS

The multiannual financial framework (MFF) regulation sets, for the 2021–2027 period, annual maximum amounts (‘MFF ceilings’) for EU expenditure as a whole and for the main categories of expenditure reflecting major policy areas (‘MFF headings’).

The MFF regulation is adopted under a special legislative procedure, with the Council of the European Union acting unanimously after obtaining the consent of the European Parliament.

The three main EU budgetary institutions (the Parliament, the Council and the European Commission) must ensure that expenditure in the EU’s annual budgets complies with the MFF ceilings.

For the 2021–2027 period, the MFF sets a maximum level of spending of €1,074 billion (all amounts in 2018 prices), covering seven major areas, broken down as follows:

• single market, innovation and digital: €132.8 billion,
• cohesion, resilience and values: €377.8 billion,
• natural resources and environment: €356.4 billion,
• migration and border management: €22.7 billion,
• security and defence: €13.2 billion,
• neighbourhood and the world: €98.4 billion,
• European public administration: €73.1 billion.

In particular, the MFF also earmarks maximum levels of commitment payments over the period to two large-scale projects:

• the EU space programme (€13.202 billion),
• the international thermonuclear experimental reactor (€5 billion).

The MFF also sets out maximum amounts that may be spent in addition to the MFF ceilings for emergency response or unforeseen needs, making use of ‘special instruments’, as follows:

• a European Globalisation Adjustment Fund (€186 million annually);
• a Solidarity and Emergency Aid Reserve (€1.2 billion annually);
• a Brexit Adjustment Reserve for areas and sectors worst affected by the United Kingdom leaving the EU (€5 billion over the period);
• a Single Margin Instrument allowing the shifting of margins available between financial years and in some cases also between MFF headings;
• a Flexibility Instrument to cover unforeseen expenditure that cannot be financed within the MFF ceilings (€915 million annually).

Various adjustments are made to the MFF’s ceilings during its lifetime. These are:

• annual technical adjustments in current prices when the Commission is drafting the following year’s draft annual budget;
• programme-specific adjustments whereby an extra amount, equivalent to the annual income the EU receives from fines it levies for breaking EU rules, will be allocated to specific EU programmes/policies – this totals €11 billion between 2022 and 2027.

Other adjustments to the MFF may include:

• re-entering budgetary commitments that have been suspended to ensure sound economic governance or to protect the EU budget – once the suspension is lifted, the amounts may be used in a following year;
• the reprogramming over time of budgetary commitments and payments related to new rules or programmes adopted after 1 January 2021.

The MFF may be revised – in accordance with the same special legislative procedure for its adoption – due to:

• unforeseen circumstances;
• the revision of the EU’s treaties with budgetary consequences;
• the accession of new EU Member States;
• the reunification of Cyprus.

The MFF was revised in February 2024 by amending Regulation (EU, Euratom) 2024/765. This revision made available a further €64.6 billion to address new and emerging challenges facing the EU and to meet legal obligations that could not otherwise be met within the existing budgetary ceilings. This additional funding includes:

• support for Ukraine – €50 billion (€17 billion in grants and €33 billion in loans);
• migration and border management – €2 billion;
• neighbourhood and the world – €7.6 billion;
• the European Defence Fund under the Strategic Technologies for Europe Platform instrument – €1.5 billion;
• the Flexibility Instrument – €2 billion;
• the Solidarity and Emergency Aid Reserve – €1.5 billion.

The Parliament, the Council and the Commission must take measures to facilitate the annual budgetary procedure, cooperate in good faith and work in a coherent manner under the interinstitutional agreement on budgetary discipline, cooperation and sound financial management (see summary).

The MFF requires the Commission to present a proposal for a new MFF before 1 July 2025.