Brussels, 2.10.2025

COM(2025) 563 final

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL

Financial information on the European Development Fund (EDF):












Forecasts of commitments, payments and contributions from the parties to the European Development Fund for 2025, 2026, 2027 and non-binding forecasts for the years 2028-2029













































































1.Foreword 1

In accordance with Article 19(2) of Council Regulation (EU) 2018/1877 2 on the Financial Regulation applicable to the 11th European Development Fund (hereinafter referred to as "11th EDF Financial Regulation"), the Commission presents in this document the estimates of the commitments 3 , payments and contributions for the period 2025-2027, considering the forecasts of the European Investment Bank (EIB).

This document sets out the financial implementation of the EDFs (9th to 11th) for 2025 until 2027. In addition, this document makes non-binding estimates for the EDF contributions from the parties to the European Development Fund for the years 2028-2029.

The parties to the European Development Fund contribute funds directly to the EIB for the instruments, which it manages under the 9th, 10th, and 11th EDFs (the Investment Facility and interest rate subsidies).

2.Introduction

The Commission and the EIB have updated their forecasts for 2025, 2026 and 2027 for each of the African, Caribbean and Pacific (ACP) countries and the Overseas Countries and Territories (OCTs). The payment forecasts in particular have been compiled with the aim of helping the parties to the European Development Fund to assess as accurately as possible the amounts they need to earmark in their national budgets while ensuring that sufficient financial resources are available for the EDF to avoid liquidity problems.

In accordance with Article 19(2) of the 11th EDF Financial Regulation, the estimates of commitments and payments have been updated following the latest forecasts.

The graph below shows the general evolution in gross commitments and payments since 1999 until 2024 and projections for the period 2025-2027 (Commission and EIB cumulated amounts).

Gross commitments and payments: trend 1999-2027 (EUR million)

Note: Figures from implementation of the European Development Funds until 31 December 2023 (commitments and payments) and forecasts for 2024-2026. Since the sunset clause of the 11th EDF elapsed on 31.12.2020, there are no new commitments with the exception of:

(1) the funds stemming from reflows under the ACP Investment Facility from operations under the 9th, 10th and 11th EDFs (ref prolongation of the IF into 2021, by Council Decision (EU) 2020/2233), and

(2) commitments of the funds stemming from the reuse of the 10th & 11th EDF reserve under Council Decision (EU) 2022/1223, regarding the special measures for the EU response to the food security crisis and economic shock in African, Caribbean and Pacific (ACP) countries following Russia's war of aggression against Ukraine.

3.Financial forecasts for 2025 - 2027 (EUR million)

The following table provides an update of the commitments, the payments and of the contributions, based on the Commission's latest forecasts.

Forecasts 2025-2027 (*)

2025

2026

2027

Commitments

Commission

0

0

0

 

EIB

0

0

0

 

Total

0

0

0

 

 

 

 

 

Payments

Commission

1 000

750

500

 

EIB

395

144

 

 

Total

1 395

894

500

 

 

 

 

 

Contributions

Commission (11th EDF)

800

700

460

 

EIB (11th EDF)**

9

0

0

 

Total

809

700

460

* Gross amounts, i.e. no decommitments or recoveries/reflows have been deducted. This approach is in line with that used for the general budget of the EU.

** EIB called all its share of the 11th EDF with the 1st instalment of 2025.

4. Non-Binding Estimates of Contributions for 2027 – 2028 (EUR million)

Forecasts 2028-2029*

2028

2029

Contributions

Commission (11th EDF)

400

300

 

EIB (11th EDF)**

0

0

 

Total

400

300

*Article 19(2) of the 11th EDF Financial Regulation: indicative, non-binding forecast based on a statistical approach for the expected annual amounts of contributions

** EIB called all its share of the 11th EDF with the 1st instalment of 2025.

5. Financial implementation forecasts for 2025-2027 4

For 2025 and 2026, the estimates for payments and EDF parties’ contributions remain unchanged compared to the June 2025 Communication. Our estimations for the year 2027 confirm the decreasing trend of payments.

With respect to the non-committed and decommitted funds from the Ninth EDF, the Commission proposes to refund to the “EU-15 MS” the amount of EUR 1.2 million currently available in the Ninth reserve 5 . This refund will be done by reducing the amount to be paid by the “EU-15 MS” for the first instalment 2026 (i.e the same approach as in the previous years). Any remaining balances in the Ninth EDF reserve will continue, in principle, to be refunded once a year until the complete restitution of non-committed or decommitted funds.

Regarding the 10th and the 11th EDF reserve, the UK formally requested in March 2023 that the Commission refund its outstanding share of the 10th and 11th EDF reserves by offsetting it against their remaining EDF contributions. This request was made in accordance with Article 153 of the Withdrawal Agreement, which stipulates that the UK’s share of EDF reserves cannot be reused. To date, a total of EUR 233,2 million  6 has been refunded to the UK. For any future de-committed funds, we will continue the refund, using the regular netting-out approach  on the second instalment of each year 7 . 

Attachments 1, 2 and 3 show respectively the forecasts of commitments, forecasts of payments and the financial situation compared with previous forecasts for the period 2025-2029.

Attachments 4 and 5 show respectively the contributions for 2026 and for 2027 per instalment and per EDF party. Attachment 6 shows the annual contributions for the period 2026-2029 per EDF party.

5.1.Attachment 1: Forecasts of commitments 8 for 2025 to 2027 (EUR million)

Figures for 2025

Figures for 2026

Figures for 2027

 

Communication June 2025

Communication October 2025

Communication June 2025

Communication October 2025

Communication June 2025

Communication October 2025

Regions

 

 

 

 

 

 

Eastern and Central Africa

 

 

 

 

 

 

West and Southern Africa

 

 

 

 

 

 

Caribbean

 

 

 

 

 

 

Pacific

 

 

 

 

 

 

Sub-total

 

 

 

 

 

 

Other

 

 

 

 

 

 

Special measures for Food Security

 

 

 

 

 

 

Human Development, Human rights

 

 

 

 

 

 

EU-Africa, African Peace Facility

 

 

 

 

 

 

EUTF Africa

 

 

 

 

 

 

Planet and Prosperity

 

 

 

 

 

 

Resources, Evaluation, Process

 

 

 

 

 

 

DG ECHO, EACEA, DG EAC

 

 

 

 

 

 

Sub-total

 

 

 

 

 

 

Total European Commission

0

0

0

0

0

0

Investment Facility subsidies (*)

 

0

 

0

 

0

Total EIB

0

0

0

0

0

0

TOTAL EC+EIB

0

0

0

0

0

0

* Including subsidy for technical assistance and interest rate subsidies from the current EDF and IRS disbursement under previous EDFs

Figures for 2025

Figures for 2026

Figures for 2027

 

Communication June 2025

Communication October 2025

Communication June 2025

Communication October 2025

Communication June 2025

Communication October 2025

Investment facility revolving fund**

 

0

 

0

 

0

**The commitment under the revolving fund cannot be assimilated to budgetary commitments. It shall be therefore reported separately.

5.2.Attachment 2: Forecasts of payments 9 for 2025 to 2027 (EUR million)

Figures for 2025

Figures for 2026

Figures for 2027

Communication June 2025

Communication October 2025

Communication June 2025

Communication October 2025

Communication June 2025

Communication October 2025

Regions

 

 

 

 

 

 

Eastern and Central Africa

220

220

 

 

 

West and Southern Africa

415

415

 

 

 

Caribbean

80

80

 

 

 

Pacific

35

35

 

 

 

 

Sub-total

750

750

 

 

 

 

Other

 

 

 

 

 

Special measures for Food Security

40

40

 

 

 

Human Development, Human rights

10

10

 

 

 

EU-Africa, African Peace Facility

35

35

 

 

 

EUTF Africa

30

30

 

 

 

Planet and Prosperity

90

90

 

 

 

Resources, Evaluation, Process

40

40

 

 

 

DG ECHO, EACEA, DG EAC

5

5

 

 

 

 

Sub-total (*)

250

250

 

 

 

 

Total European Commission

1 000

1 000

750

750

0

500

Investment Facility subsidies (**)

68

46

10

80

 

0

Total EIB

68

46

10

80

0

0

TOTAL EC+EIB

1 068

1 046

760

830

0

500

*Due to the rounding effects, the sum of individual rounded amounts shown may differ slightly from the corresponding totals

** Including subsidy for technical assistance and interest rate subsidies from the current EDF and IRS disbursement under previous EDFs

Figures for 2025

Figures for 2026

Figures for 2027

 

Communication June 2025

Communication October 2025

Communication June 2025

Communication October 2025

Communication June 2025

Communication October 2025

Investment facility revolving fund ***

349

349

64

64

0

 

*** The disbursement under the revolving fund cannot be assimilated to budgetary gross payment. It shall be therefore reported separately.

5.3.Attachment 3: Financial forecasts for 2025-2027 and non-binding estimations for 2028-2029 (EUR million)

Communication June 2025 1

Communication October 2025 1

Commission

EIB 

TOTAL

Commission

EIB 

TOTAL

 

Balance at 31/12/2024 4,6

411

675

1 086

411

675

1 086

2025

Member States & UK Contributions for 2025:

800

9

809

800

9

809

1st instalment

350

9

359

350

9

359

2nd instalment

250

 

250

250

 

250

3rd instalment

200

 

200

200

 

200

Reflows 2

 

328

328

 

244

244

Contrib. & Adjust. 2025 received in 2024

- 43

 

- 43

- 43

 

- 43

Recoveries, interest and adjustment

50

 

50

50

 

50

Refund of 9th EDF to MS&UK

-6

 

- 6

-6

 

- 6

Refund of 10th & 11th EDF to UK

-30.0

 

- 30

-30.0

 

- 30

Total payments 3

- 1 000

- 417

- 1 417

- 1 000

- 395

- 1 395

Balance at 31/12/2025 4,6

181

595

776

181

533

714

2026

Member States & UK Contributions for 2026:

700

0

700

700

0

700

1st instalment

300

 

300

300

 

300

2nd instalment

250

 

250

250

 

250

3rd instalment

150

 

150

150

 

150

Reflows 2

 

 

0

 

 

0

Recoveries, interest and adjustment

50

 

50

50

 

50

Estimated Refund of 10th & 11th EDF to UK7

- 40

 

- 40

- 40

 

- 40

Refund of 9th EDF to MS&UK

 

 

0

- 1

 

- 1

Total payments 3

- 750

- 74

- 824

- 750

- 144

- 894

Balance at 31/12/2026 4,6

141

521

662

140

389

529

2027

Member States & UK Contributions for 2027 5

460

0

460

460

0

460

1st instalment

 

 

 

200

 

200

2nd instalment

 

 

 

160

 

160

3rd instalment

 

 

 

100

 

100

Reflows 2

 

 

 

 

 

0

Recoveries, interest and adjustment

 

 

 

50

 

50

Estimated Refund of 10th & 11th EDF to UK7

 

 

 

- 20

 

- 20

Estimated Refund of 9th EDF to MS&UK8

 

 

 

 

 

0

Total payments 3

 

 

 

- 500

 

- 500

Balance at 31/12/2027 4,6

 

 

 

130

389

519

2028

Member States & UK Contributions for 2028 5

400

0

400

400

0

400

2029

Member States & UK Contributions for 2029 5

 

 

 

300

0

300

1

Funds available for operations;

2

Net of write-offs, EIB management fees and other costs such as swaps/hedging; does not include the UK share of reflows,
according to art. 153 of the Withdrawal Agreement these shall not be reused. Refer to IF Financial Statements for full details.

3

Including interest rates subsidies under the previous EDFs;

 

4

Balances do not include: (i) Cofinancings received, (ii) Receipts in bank not yet allocated to a specific EDF line

 

5

Art.19 (2)(d): Financial Regulation: non-binding forecast based on a statistical approach for the expected annual contributions

 

6

The balance of the EIB is related to the nature of the Investment Facility. please consult the IF Financial Statements for the complete view and detailed balance as at year end

7

This is a very rough estimate based on a historical analysis of the decommitment rate of previous EDFs

8

The estimate of the 9th EDF refund will be determined during the year 2027, according to our current projections it will be limited

5.4.Attachment 4: MS & UK contributions for 2026 (EUR) to the Commission *

MEMBER STATES & UK

11th EDF Key (%)

1st instalment

2nd instalment

3rd instalment

Total for 2026

BELGIUM

3.24927

9 747 810

8 123 175

4 873 905

22 744 890

BULGARIA

0.21853

655 590

546 325

327 795

1 529 710

CZECHIA

0.79745

2 392 350

1 993 625

1 196 175

5 582 150

DENMARK

1.98045

5 941 350

4 951 125

2 970 675

13 863 150

GERMANY

20.57980

61 739 400

51 449 500

30 869 700

144 058 600

ESTONIA

0.08635

259 050

215 875

129 525

604 450

IRELAND

0.94006

2 820 180

2 350 150

1 410 090

6 580 420

GREECE

1.50735

4 522 050

3 768 375

2 261 025

10 551 450

SPAIN

7.93248

23 797 440

19 831 200

11 898 720

55 527 360

FRANCE

17.81269

53 438 070

44 531 725

26 719 035

124 688 830

CROATIA

0.22518

675 540

562 950

337 770

1 576 260

ITALY

12.53009

37 590 270

31 325 225

18 795 135

87 710 630

CYPRUS

0.11162

334 860

279 050

167 430

781 340

LATVIA

0.11612

348 360

290 300

174 180

812 840

LITHUANIA

0.18077

542 310

451 925

271 155

1 265 390

LUXEMBOURG

0.25509

765 270

637 725

382 635

1 785 630

HUNGARY

0.61456

1 843 680

1 536 400

921 840

4 301 920

MALTA

0.03801

114 030

95 025

57 015

266 070

NETHERLANDS

4.77678

14 330 340

11 941 950

7 165 170

33 437 460

AUSTRIA

2.39757

7 192 710

5 993 925

3 596 355

16 782 990

POLAND

2.00734

6 022 020

5 018 350

3 011 010

14 051 380

PORTUGAL

1.19679

3 590 370

2 991 975

1 795 185

8 377 530

ROMANIA

0.71815

2 154 450

1 795 375

1 077 225

5 027 050

SLOVENIA

0.22452

673 560

561 300

336 780

1 571 640

SLOVAKIA

0.37616

1 128 480

940 400

564 240

2 633 120

FINLAND

1.50909

4 527 270

3 772 725

2 263 635

10 563 630

SWEDEN

2.93911

8 817 330

7 347 775

4 408 665

20 573 770

UNITED KINGDOM

14.67862

44 035 860

36 696 550

22 017 930

102 750 340

TOTAL EU-27 & UK**

100.00

300 000 000

250 000 000

150 000 000

700 000 000

* EIB called all its share of the 11th EDF in 2025.

** The amount of contributions presented in the table do not include the refund of 9th EDF decommitted funds to the Member States and the UK; nor the refund of 10th and 11th EDF decommitted funds to the UK.

   

   

5.5.Attachment 5: MS & UK contributions for 2027 (EUR) to the Commission *

MEMBER STATES & UK

11th EDF Key (%)

1st instalment

2nd instalment

3rd instalment

Total for 2027

BELGIUM

3.24927

6 498 540

5 198 832

3 249 270

14 946 642

BULGARIA

0.21853

437 060

349 648

218 530

1 005 238

CZECHIA

0.79745

1 594 900

1 275 920

797 450

3 668 270

DENMARK

1.98045

3 960 900

3 168 720

1 980 450

9 110 070

GERMANY

20.57980

41 159 600

32 927 680

20 579 800

94 667 080

ESTONIA

0.08635

172 700

138 160

86 350

397 210

IRELAND

0.94006

1 880 120

1 504 096

940 060

4 324 276

GREECE

1.50735

3 014 700

2 411 760

1 507 350

6 933 810

SPAIN

7.93248

15 864 960

12 691 968

7 932 480

36 489 408

FRANCE

17.81269

35 625 380

28 500 304

17 812 690

81 938 374

CROATIA

0.22518

450 360

360 288

225 180

1 035 828

ITALY

12.53009

25 060 180

20 048 144

12 530 090

57 638 414

CYPRUS

0.11162

223 240

178 592

111 620

513 452

LATVIA

0.11612

232 240

185 792

116 120

534 152

LITHUANIA

0.18077

361 540

289 232

180 770

831 542

LUXEMBOURG

0.25509

510 180

408 144

255 090

1 173 414

HUNGARY

0.61456

1 229 120

983 296

614 560

2 826 976

MALTA

0.03801

76 020

60 816

38 010

174 846

NETHERLANDS

4.77678

9 553 560

7 642 848

4 776 780

21 973 188

AUSTRIA

2.39757

4 795 140

3 836 112

2 397 570

11 028 822

POLAND

2.00734

4 014 680

3 211 744

2 007 340

9 233 764

PORTUGAL

1.19679

2 393 580

1 914 864

1 196 790

5 505 234

ROMANIA

0.71815

1 436 300

1 149 040

718 150

3 303 490

SLOVENIA

0.22452

449 040

359 232

224 520

1 032 792

SLOVAKIA

0.37616

752 320

601 856

376 160

1 730 336

FINLAND

1.50909

3 018 180

2 414 544

1 509 090

6 941 814

SWEDEN

2.93911

5 878 220

4 702 576

2 939 110

13 519 906

UNITED KINGDOM

14.67862

29 357 240

23 485 792

14 678 620

67 521 652

TOTAL EU-27 & UK**

100.00

200 000 000

160 000 000

100 000 000

460 000 000

* EIB called all its share of the 11th EDF in 2025

** The amount of contributions presented in the table do not include the possible refund of 9th EDF decommitted funds to MS and UK; nor the refund of 10th and 11th EDF decommitted funds to UK.

5.6.Attachment 6: MS & UK contributions for 2026-2029 (EUR) to the Commission*

MEMBER STATES & UK

11th EDF Key (%)

EDF contributions to the Commission for the 11th EDF

2026

2027

2028

2029

BELGIUM

3.24927

22 744 890

14 946 642

12 997 080

9 747 810

BULGARIA

0.21853

1 529 710

1 005 238

874 120

655 590

CZECHIA

0.79745

5 582 150

3 668 270

3 189 800

2 392 350

DENMARK

1.98045

13 863 150

9 110 070

7 921 800

5 941 350

GERMANY

20.57980

144 058 600

94 667 080

82 319 200

61 739 400

ESTONIA

0.08635

604 450

397 210

345 400

259 050

IRELAND

0.94006

6 580 420

4 324 276

3 760 240

2 820 180

GREECE

1.50735

10 551 450

6 933 810

6 029 400

4 522 050

SPAIN

7.93248

55 527 360

36 489 408

31 729 920

23 797 440

FRANCE

17.81269

124 688 830

81 938 374

71 250 760

53 438 070

CROATIA

0.22518

1 576 260

1 035 828

900 720

675 540

ITALY

12.53009

87 710 630

57 638 414

50 120 360

37 590 270

CYPRUS

0.11162

781 340

513 452

446 480

334 860

LATVIA

0.11612

812 840

534 152

464 480

348 360

LITHUANIA

0.18077

1 265 390

831 542

723 080

542 310

LUXEMBOURG

0.25509

1 785 630

1 173 414

1 020 360

765 270

HUNGARY

0.61456

4 301 920

2 826 976

2 458 240

1 843 680

MALTA

0.03801

266 070

174 846

152 040

114 030

NETHERLANDS

4.77678

33 437 460

21 973 188

19 107 120

14 330 340

AUSTRIA

2.39757

16 782 990

11 028 822

9 590 280

7 192 710

POLAND

2.00734

14 051 380

9 233 764

8 029 360

6 022 020

PORTUGAL

1.19679

8 377 530

5 505 234

4 787 160

3 590 370

ROMANIA

0.71815

5 027 050

3 303 490

2 872 600

2 154 450

SLOVENIA

0.22452

1 571 640

1 032 792

898 080

673 560

SLOVAKIA

0.37616

2 633 120

1 730 336

1 504 640

1 128 480

FINLAND

1.50909

10 563 630

6 941 814

6 036 360

4 527 270

SWEDEN

2.93911

20 573 770

13 519 906

11 756 440

8 817 330

UNITED KINGDOM

14.67862

102 750 340

67 521 652

58 714 480

44 035 860

TOTAL EU-27 & UK**

100.00

700 000 000

460 000 000

400 000 000

300 000 000

* EIB called all its share of the 11th EDF in 2025

** The amount of contributions presented in the table do not include the refund of 9th EDF decommitted funds to MS and UK; nor the refund of 10th and 11th EDF decommitted funds to UK.

(1)      This document takes into account Articles 152 and 153 of the withdrawal agreement of the United Kingdom of Great Britain and Northern Ireland from the European Union and the European Atomic Energy Community, which stipulate that the United Kingdom shall remain party to the EDF until the closure of the 11th EDF and all previous unclosed EDFs; however the United Kingdom’s share in decommitted funds from projects under the 11th EDF or previous EDFs shall not be reused.
(2)    Council Regulation (EU) 2018/1877 of 26 November 2018 on the financial regulation applicable to the 11th European Development Fund, and repealing Regulation (EU) 2015/323 (OJ L 307, 3.12.2018, p. 1–21).
(3)      Commitments of the funds stemming from the reuse of the 10th & 11th EDF according to Council Decision (EU) 2022/1223 of 12 July 2022 concerning the allocation of funds de-committed from projects under the 10th and 11th European Development Funds for the purpose of financing actions addressing the food security crisis and economic shock in African, Caribbean and Pacific (ACP) countries following Russia’s war of aggression against Ukraine.
(4) The figures presented in this narrative concern the European Commission only; the figures for EIB are included in the tables 5.2 and 5.3.
(5)  With this refund, the total amount refunded to the “EU-15 MS” from the Ninth reserve, since 2015, will reach EUR 1.926 billion.
(6) The COM refunded to the UK EUR 154,12 million in 2023, EUR 49 million in 2024 and EUR 30 million in 2025.
(7) In February 2025, the UK formally requested to proceed with the refund of the EDF reserves for the 10th and 11th EDF, once per year along with the second instalment.
(8) Gross commitments, i.e. without de-commitments being deducted.
(9)    Gross payments, i.e. without recoveries being deducted.