Multiannual Financial Framework 2028–2034: The Council agrees on a negotiating position on EU support for migration, border management and internal security

On 15 July, the Council agreed on its partial negotiating position on the regulation establishing EU financial support for migration, border management and visas, and internal security for the period 2028–2034. These financial instruments will help Member States to implement the Pact on Migration and Asylum, ensure the efficient management of the EU’s external borders and the processing of visas, and combat threats to internal security.

The three regulations provide the legal framework for EU support in these areas and form part of the EU’s general budget for the period 2028–2034.

The negotiating position is ‘partial’ because it excludes the financial packages and cross-cutting issues. These are currently being discussed as part of the general negotiations on the next multiannual financial framework (MFF), covering the period 2028–2034.

“It is clear that, as a Union, we must manage migration and borders jointly. With today’s agreement, we are paving the way to provide vital support to EU countries in implementing the Pact on Migration and Asylum and in modernising border management. It is also necessary to provide support to combat crime and terrorism, both online and offline, and to help law enforcement agencies carry out their work.” – Jim O’Callaghan, Ireland’s Minister for Justice, Home Affairs and Migration

Key elements of EU support

In the area of migration and asylum, EU support will help to strengthen the Common European Asylum System and promote legal migration, integration and social inclusion. It will ensure solidarity and the fair sharing of responsibilities among Member States. It will also contribute to effective, safe and dignified returns, focusing on aspects that go beyond border management, such as readmission and reintegration in non-EU countries, whilst helping to combat irregular migration.

In the areaof border management and visas, EU support will focus on promoting the efficient management of external borders and effective, safe and dignified returns. It will also contribute to the effectiveness of visa policy, the smooth functioning of the Schengen area and help safeguard the free movement of people.

In the area of internal security, the key objectives are to better prevent and combat threats to internal security, including serious and organised crime, terrorism, violent extremism and cybercrime; to improve the exchange of information at Union level and with non-EU countries; to step up police cooperation and manage security-related incidents, risks and crises. A new objective will focus on strengthening the resilience of critical infrastructure against hostile acts.

As a significant change compared with the EU’s long-term budget for the period 2021–2027, EU support for migration, border management and internal security will be channelled through national and regional partnership plans. Each Member State will draw up a single comprehensive plan setting out its planned investments and reforms.

Within the framework of national and regional partnership plans, Member States will be able to respond to the most urgent needs and to changes in the Union’s policies and priorities, as well as to direct funding towards actions with high added value for the Union.

Council’s position

In this position, the Council grants Member States greater flexibility in managing the available funds to maximise impact. Member States would not be required to contribute to all of the Union’s support objectives, but would instead focus on the most relevant ones, in line with their specific needs and challenges.

Changes were also introduced to ensure the legal soundness of the three regulations, taking into account the specific legal characteristics of EU action in the fields of migration, asylum, border management, internal security, and judicial and police cooperation.

Next steps

The partial negotiating position adopted today constitutes the Council’s mandate to begin negotiations with the European Parliament. The financial allocations for the three instruments for the period 2028–2034 will depend on the final agreement on the next Multiannual Financial Framework (MFF).

Background

On 16 July 2025, the European Commission proposed three sectoral regulations setting out the legal framework for the Union’s support in the areas of migration, border management and internal security for the period 2028–2034.

As the proposed legislation forms part of the set of proposals linked to the Multiannual Financial Framework (MFF), all provisions in the text with budgetary implications or relating to elements that form part of horizontal negotiations have been set aside and excluded from the partial general approach, pending further developments in the MFF.

Following the European Commission’s initial proposals for the period 2028–2034, presented in July and September 2025, an EU agreement on the overall Multiannual Financial Framework (MFF) before the end of 2026 would allow for the adoption of legislative acts in 2027, which is necessary to ensure that EU funding reaches beneficiaries without interruption from January 2028.

 

More information: European Council