Explanatory Memorandum to COM(2025)250 - Mobilisation of the EU Solidarity Fund to provide assistance to Austria, Poland, Czechia, Slovakia and Moldova relating to floods occurred in September 2024 and Bosnia and Herzegovina relating to floods occurred in October 2024

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1. Context of the proposal

This decision covers the mobilisation of the European Union Solidarity Fund (hereinafter referred to as ‘the EUSF’) in accordance with Council Regulation (EC) No 2012/2002 1 (hereinafter referred to as ‘the EUSF Regulation’) for an amount of EUR 280 740 903 to provide assistance to Austria, Poland, Czechia, Slovakia, Moldova and Bosnia and Herzegovina in relation to the natural disaster (floods) that took place in 2024.

This mobilisation is accompanied by DEC No 10/2025 that proposes to transfer the amount of EUR 270 077 316 from the European Solidarity Reserve (hereinafter referred as ‘the ESR’) reserve line to the EUSF operational budget line, both in commitments and payments appropriations.

2. Information and conditions

2.1Austria – neighbouring country natural disaster: floods in September 2024

On 29 November 2024, Austria submitted an application for a financial contribution from the EUSF to finance emergency and recovery operations following the floods in September 2024.

Austria applied for a contribution from the EUSF within the deadline of 12 weeks after the first damage caused by the disaster occurred on 13 September 2024. The application contains all the information required under Article 4 of the EUSF Regulation. On 6 December 2024, Austria submitted an updated application to complement the information included in the original application package.

The disaster is of natural origin and therefore falls within the field of application of the EUSF.

The Austrian authorities submitted the application under the “neighbouring country natural disaster” criterion as laid down in Article 2 i of the EUSF Regulation, which stipulates that assistance from the EUSF may also be mobilised for any natural disaster in an eligible state that is also a major natural disaster in a neighbouring eligible state. Austria estimates the total direct damage caused by the disaster at EUR 1 711.6 million. This amount represents 0.38% of Austria’s Gross National Income (GNI) in 2022. As the same natural disaster qualifies a “major natural disaster” in Czechia, the application from Austria is eligible for a contribution from the EUSF without a specific threshold.

The total direct damage is the basis for the calculation of the amount of the financial contribution from the EUSF. The financial contribution may only be used for essential emergency and recovery operations as defined in Article 3 of the EUSF Regulation.

Austria requested the payment of an advance pursuant to Article 4a of the EUSF Regulation. On the basis of the preliminary assessment, the Commission concluded that the conditions for paying an advance from the EUSF were met. Therefore, an advance of EUR 10 663 587 was awarded by Commission Implementing Decision C(2025) 1124 of 17 February 2025. The advance was paid to Austria on 3 April 2025.

Between 12 and 16 September 2024, exceptionally high levels of rainfall occurred in Austria causing severe flooding. Lower Austria, Upper Austria and Vienna were particularly affected. In some parts of Lower Austria, 300-420 mm of rain fell in five days. The entire province of Lower Austria was declared a disaster area. Protective measures had to be put in place along the Danube River. In Lower Austria, nearly 2 000 houses had to be evacuated, thousands of households were without electricity, drinking water and sewerage for days. The floods led to five fatalities and 24 people were injured in Lower Austria.

The Austrian authorities did not request assistance through the European Union Civil Protection Mechanism.

Austria estimated the cost of operations eligible under Article 3(2) of the EUSF Regulation at EUR 394.1 million and presented the costs broken down by type of operation. The largest share of the cost of emergency operations concerns the restoration of the working order of infrastructure and plants in the fields of energy, water and wastewater, telecommunications, transport, health, and education amounting to EUR 277.4 million. The second largest share of cost concerns securing the preventive infrastructure and measures of protection of cultural heritage amounting to EUR 75.9 million. The third largest share of cost concerns temporary accommodation and rescue services amounts to EUR 22 million. The costs concerning cleaning up of the disaster-stricken area amount to EUR 18.8 million.

Directive 2007/60/EC 2 has been fully transposed in Austria by the 2011 amendment of the Water Law Act (WRG).

At the date of submitting the application, Austria was not subject to infringement proceedings concerning Union legislation relating to the nature of the disaster.

The Austrian authorities indicated that public infrastructure generally is not insured in Austria. Therefore, insured costs are excluded from the eligible costs.

2.2Poland – regional natural disaster: floods September 2024

On 29 November 2024, Poland submitted an application for a financial contribution from the EUSF to finance emergency and recovery operations following the floods in September 2024.

Poland applied for a contribution from the EUSF within the deadline of 12 weeks after the first damage caused by the disaster occurred on 11 September 2024. The application contains all the information required under Article 4 of the EUSF Regulation.

The disaster is of natural origin and therefore falls within the field of application of the EUSF.

The Polish 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). The Polish authorities estimate the total direct damage caused by the disaster at EUR 3.04 billion. According the EUSF regulation, where the natural disaster concerns several regions at NUTS level 2, the threshold shall be applied to the average GDP of those regions weighted according to the share of total damage in each region. The direct damage expressed as a percentage of total weighted regional GDP of Dolnośląskie, Opolskie, Śląskie and Lubuskie provinces is 8.46%. This amount exceeds 1.5% of the weighted average regional GDP of Dolnośląskie, Opolskie, Śląskie and Lubuskie provinces.

The total direct damage is the basis for the calculation of the amount of the financial contribution from the EUSF. The financial contribution may only be used for essential emergency and recovery operations as defined in Article 3 of the EUSF Regulation.

Poland did not request the payment of an advance pursuant to Article 4a of the EUSF Regulation.

Between 11 and 16 September 2024, heavy rain occurred in south-western Poland which led to the flooding of several rivers. The most impacted provinces were the Dolnośląskie, Opolskie, Śląskie and Lubuskie provinces. Subsequently, nearly 10 600 residential and more than 2 000 farm buildings were flooded. Over 200 000 people were directly affected by the disaster. Numerous businesses were forced to temporarily suspend or significantly reduce their operations which led to significant financial losses.

The Polish authorities requested assistance through the European Union Civil Protection Mechanism. The needs included disinfectants, dehumidifiers, rubber boots, gloves and vaccines. Assistance was received from Belgium, Denmark, Germany, Lithuania, Slovenia, Sweden, Austria.

Poland estimated the cost of operations eligible under Article 3(2) of the EUSF Regulation at EUR 2 755.2 million and presented the costs broken down by type of operation. The largest share of the cost of emergency operations concerns the restoration of the working order of infrastructure and plants in the fields of energy, water and wastewater, telecommunications, transport, health, and education amounting to EUR 2 721.3 million. The second largest share of cost concerns the cleaning up of the disaster-stricken area amount to EUR 19.8 million. The third largest share of cost concerns temporary accommodation and rescue services amounts to EUR 14.2 million.

Directive 2007/60/EC 3 has been fully transposed in Poland.

At the date of submitting the application, Poland was not subject to infringement proceedings concerning Union legislation relating to the nature of the disaster.

The Polish authorities indicated that insured costs were excluded from the eligible costs.

2.3Czechia – major natural disaster: floods in September 2024

On 4 December 2024, Czechia submitted an application for a financial contribution from the EUSF to finance emergency and recovery operations following the floods in September 2024. On 4 April 2025, Czechia submitted additional clarifications regarding the data and the information provided in the EUSF application.

Czechia applied for a contribution from the EUSF within the deadline of 12 weeks after the first damage caused by the disaster occurred on 12 September 2024. The application contains all the information required under Article 4 of the EUSF Regulation.

The disaster is of natural origin and therefore falls within the field of application of the EUSF.

The Czech authorities estimate the total direct damage caused by the disaster at EUR 2.82 billion. This amount exceeds the ‘major natural disaster’ threshold for Czechia of 0.6% of its Gross National Income, which was EUR 1.58 billion in 2024. Therefore, the disaster qualifies as a ‘major natural disaster’ according to Article 2(2) of the EUSF Regulation.

The total direct damage is the basis for the calculation of the amount of the financial contribution from the EUSF. The financial contribution may only be used for essential emergency and recovery operations as defined in Article 3 of the EUSF Regulation.

Czechia did not request the payment of an advance on the contribution pursuant to Article 4a of the EUSF Regulation.

Between 12 and 17 September 2024, very strong winds and heavy rain struck the entire country which led to flooding. The most affected regions were the Moravian-Silesian and the Olomouc Region. Dozens of houses and approximately 1 000 road and railway bridges and 2 000 km of roads and railway lines were destroyed, or damaged. More than 350 schools were flooded. Over 250 000 households were left without electricity, heat and drinking water. As a result, over 13 000 people, as well as several hospitals had to be evacuated. The floods also led to eight fatalities.

The Czech authorities did not request assistance through the European Union Civil Protection Mechanism.

Czechia estimated the cost of operations eligible under Article 3(2) of the EUSF Regulation at EUR 1 699.5 million and presented the costs broken down by type of operation. The largest share of cost concerns the restoration of the working order of infrastructure and plants in the fields of energy, water, wastewater, telecoms, transport, health, and education amounting to EUR 1 583.9 million. The second largest share of cost concerns temporary accommodation and rescue services amounting to EUR 80 million. The third largest share of cost concerns the cleaning up of the disaster-stricken area amounting to EUR 33.3 million. The fourth largest share of the cost of emergency operations concerns securing the preventive infrastructure and measures of protection of cultural heritage amounting to over EUR 2.4 million.

In Czechia, the transposition of Directive 2007/60/EC of the European Parliament and of the Council took place mainly through Act No. 254/2001 Coll., on waters, as amended. The issue of flood protection is the subject of Title IX of this Act.

At the date of submitting the application Czechia was not subject to infringement proceedings concerning Union legislation relating to the nature of the disaster.

The Czech authorities did not indicate any insurance coverage of the eligible cost.

2.4Slovakia – neighbouring country natural disaster: floods in September 2024

On 7 December 2024, Slovakia submitted an application for a financial contribution from the EUSF to finance emergency and recovery operations following the floods in September 2024.

Slovakia applied for a contribution from the EUSF within the deadline of 12 weeks after the first damage caused by the disaster occurred on 15 September 2024. The application contains all the information required under Article 4 of the EUSF Regulation.

The disaster is of natural origin and therefore falls within the field of application of the EUSF.

The Slovakian authorities submitted the application under the “neighbouring country natural disaster” criterion as laid down in Article 2 i of the EUSF Regulation, which stipulates that assistance from the EUSF may also be mobilised for any natural disaster in an eligible state that is also a major natural disaster in a neighbouring eligible state. Slovakia estimates the total direct damage caused by the disaster at EUR 84.3 million. This amount represents 0.07% of Slovakia’s Gross National Income (GNI) in 2022. As the same natural disaster qualifies a “major natural disaster” in Czechia, the application from Slovakia is eligible for a contribution from the EUSF without a specific threshold.

The total direct damage is the basis for the calculation of the amount of the financial contribution from the EUSF. The financial contribution may only be used for essential emergency and recovery operations as defined in Article 3 of the EUSF Regulation.

Slovakia did not request the payment of an advance pursuant to Article 4a of the EUSF Regulation.

As of 15 September 2024, Slovakia experienced substantial flooding, particularly in Bratislava and the surrounding regions. Both the Danube and Morava rivers saw significant water level rises, with return periods exceeding 100 years in some locations. Cumulative rainfall reached up to 400 mm in the Záhorie region, exacerbating the impact. The most significant damage was attributed to smaller rivers, where levee breaches were reported, amplifying the flooding and leading to destruction in both rural and urban areas. Roads, bridges, and other critical infrastructure were severely affected, straining emergency response efforts.

The Slovakian authorities did not request assistance through the European Union Civil Protection Mechanism.

Slovakia estimated the cost of operations eligible under Article 3(2) of the EUSF Regulation at EUR 3.7 million and presented the costs broken down by type of operation. The largest share of the cost of emergency operations concerns the cleaning up of the disaster-stricken area amounting to EUR 2.3 million. The second largest share of cost concerns the restoration of the working order of infrastructure and plants in the fields of energy, water and wastewater, and transport amounting to EUR 1.4 million.

Slovakia transposed Directive 2007/60/EC 4 into its national law through Act No. 7/2010 Coll.

At the date of submitting the application, Slovakia was not subject to infringement proceedings concerning Union legislation relating to the nature of the disaster.

The Slovakian authorities indicated that insurance costs were excluded from the eligible costs..

2.5Moldova – regional natural disaster: floods in September 2024

On 5 December 2024, Moldova submitted an application for a financial contribution from the EUSF to finance emergency and recovery operations following the floods in in September 2024.

Moldova applied for a contribution from the EUSF within the deadline of 12 weeks after the first damage caused by the disaster occurred on 14 September 2024. The application contains all the information required under Article 4 of the EUSF Regulation.

The disaster is of natural origin and therefore falls within the field of application of the EUSF.

The Moldovan 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). The Moldovan authorities estimate the total direct damage caused by the disaster at EUR 7.8 million. According the EUSF regulation, where the natural disaster concerns several regions at NUTS level 2, the threshold shall be applied to the average GDP of those regions weighted according to the share of total damage in each region. The direct damage expressed as a percentage of total weighted regional GDP of Moldova Centre and Moldova South NUTS 2 regions is 51.74%. This amount exceeds 1.5% of the weighted average regional GDP of “Moldova Centre” and “Moldova South” regions.

The total direct damage is the basis for the calculation of the amount of the financial contribution from the EUSF. The financial contribution may only be used for essential emergency and recovery operations as defined in Article 3 of the EUSF Regulation.

Moldova is a country involved in accession negotiations with the Union and thus eligible for assistance from the EUSF. However, since it is not a Member State, it does not qualify for the payment of an advance pursuant to Article 4a of the EUSF Regulation.

Between 14 and 16 September 2024, torrential rain and the resulting floods hit the Cantemir, Hincesti, Leova, Straseni, Floresti and Telenesti districts of Moldova. Over 200 000 people were affected by the disaster. The floods destroyed or damaged 20 bridges, 8 educational institutions and several public buildings. Dozens of houses and cellars were flooded and over 60 people needed to be rescued.

The Moldovan authorities did not request assistance through the European Union Civil Protection Mechanism.

Moldova estimated the cost of operations eligible under Article 3(2) of the EUSF Regulation at EUR 7.2 million and presented the costs broken down by type of operation. Almost the totality of the cost of emergency operations concerns the restoration of the working order of infrastructure and plants in the fields of transport, and education.

Directive 2007/60/EC 5 has been partially transposed in Moldova.

The Moldovan authorities indicated that insured costs were excluded from the eligible costs.

2.6Bosnia and Herzegovina – major natural disaster: floods in October 2024

On 27 December 2024, Bosnia and Herzegovina submitted an application for a financial contribution from the EUSF to finance emergency and recovery operations following the floods in September 2024.

Bosnia and Herzegovina applied for a contribution from the EUSF within the deadline of 12 weeks after the first damage caused by the disaster occurred on 4 October 2024. The application contains all the information required under Article 4 of the EUSF Regulation.

The disaster is of natural origin and therefore falls within the field of application of the EUSF.

The authorities of Bosnia and Herzegovina estimate the total direct damage caused by the disaster at EUR 841.85 million. This amount exceeds the ‘major natural disaster’ threshold for Bosnia and Herzegovina of 0.6% of its Gross National Income, which was EUR 138.33 million in 2024. Therefore, the disaster qualifies as a ‘major natural disaster’ according to Article 2(2) of the EUSF Regulation.

The total direct damage is the basis for the calculation of the amount of the financial contribution from the EUSF. The financial contribution may only be used for essential emergency and recovery operations as defined in Article 3 of the EUSF Regulation.

Bosnia and Herzegovina is a country involved in accession negotiations with the Union and thus eligible for assistance from the EUSF. However, since it is not a Member State, , it does not qualify for the payment of an advance pursuant to Article 4a of the EUSF Regulation.

Between 3 and 17 October 2024, Bosnia and Herzegovina was hit by heavy rainfall, which caused catastrophic flash floods, landslides and flooding in the central, southern and western parts of the country. Herzegovina-Neretva, Central Bosnia, Zenica-Doboj and Canton 10 were the most affected cantons. In addition to power outages lasting several days and disruptions to landline and mobile phone services, there was also a complete disruption to road and rail transport. This caused severe physical and financial damage to residential and commercial buildings, as well as to the transport, water and sewage system. The floods led to 27 fatalities and 22 people were injured. Many families were forced to leave their homes and were accommodated in temporary shelters.

On 5 October 2024, the authorities of Bosnia and Herzegovina requested assistance through the European Union Civil Protection Mechanism. In total, 8 Member States and 5 participating states responded to the request.

Bosnia and Herzegovina estimated the cost of operations eligible under Article 3(2) of the EUSF Regulation at EUR 792.15 million and presented the costs broken down by type of operation. The largest share of cost concerns the restoration of the working order of infrastructure and plants in the fields of energy, water, wastewater, telecoms, transport, health, and education amounting to EUR 782.93 million. The second largest share of cost concerns temporary accommodation and rescue services amounting to EUR 5.68 million. The third largest share of cost concerns the cleaning up of the disaster-stricken area amounting to EUR 3.45 million. The fourth largest share of the cost of emergency operations concerns securing the preventive infrastructure and measures of protection of cultural heritage amounting to over EUR 82.41 thousand.

In Bosnia and Herzegovina, the transposition of Directive 2007/60/EC is under way.

The authorities of Bosnia and Herzegoviana indicated that insured costs were excluded from the eligible costs.

2.7Conclusion

In light of the considerations set out above and following the assessment of the submitted information, the Commission concludes that the disasters referred to in the application submitted by Austria, Poland, Czechia, Slovakia, Moldova and Bosnia and Herzegovina meet the conditions set out in the EUSF Regulation for mobilising the EUSF.

3. Financing

Council Regulation (EU, Euratom) No 2020/2093 of 17 December 2020 laying down the multiannual financial framework for the years 2021-2027 6 (hereafter the “MFF Regulation"), allows for the mobilisation of the EUSF in the context of the Solidarity and Emergency Aid Reserve (SEAR). Point 10 of the Interinstitutional Agreement of 16 December 2020 between the European Parliament, the Council and the Commission on budgetary discipline, on cooperation on budgetary matters and on sound financial management 7 (IIA) as well as on the new own resources, including a roadmap towards the introduction of new own resources, lays down the modalities for the mobilisation of the EUSF in the context of the SEAR.

As solidarity was the main justification for the creation of the EUSF, the Commission takes the view that aid should be progressive. Consequently, the portion of the damage exceeding the “major natural disaster” threshold for mobilising the EUSF (i.e. 0,6 % of GNI or EUR 3 billion in 2011 prices, whichever is the lower amount, cf. Article 2(2) EUSF Regulation) should give rise to higher aid intensity than the portion of the damage below the threshold. That means that the aid amount for a country affected by disaster complying with the conditions for a ‘major natural disaster’ is calculated by adding up two amounts: 2.5% of the total direct damage under the threshold and 6% for the part of the total direct damage above the threshold.

The rate applied for defining the aid amounts for ‘regional natural disasters’, which remains below the national threshold, is 2.5% of total direct damage. When applying for the EUSF assistance based on the ‘neighbouring country’ criterion, there are no thresholds for the sustained total direct damage. The rate applied for defining an aid amount for a disaster under ‘neighbouring country’ criterion is the same as in case of a ‘regional disaster’, i. e. 2.5% of the total direct damage. The EUSF contribution may not exceed the estimated total cost of eligible operations.

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.

1.

The Commision therefore proposes to the budgetary authority to mobilise the following amounts:


DisasterTotal direct damage (EUR)Applied disaster threshold

2.

(EUR)

2,5% of total direct damage (up to the threshold for major diasters) (EUR)6% of direct damage above the major disaster threshold (EUR)2.5% of total direct damageTotal amount of aid proposed (EUR)Advance paid

3.

(EUR)

Balance to be paid

4.

(EUR)

Austria-floods

5.

(neighbouring disaster)

1 711 563 002N/AN/AN/A42 789 07542 789 07510 663 587

6.

32 125 488

Poland-floods

7.

(regional disaster)

3 039 957 574538 909 893N/AN/A75 998 93975 998 939N/A

8.

75 998 939

Czechia

9.

(major disaster)

2 821 143 0191 579 680 00039 492 00074 487 781N/A113 979 781N/A

10.

113 979 781

Slovakia-floods

11.

(neighbouring disaster)

84 327 482N/AN/AN/A2 108 1872 108 187N/A

12.

2 108 187

Moldova-floods

13.

(regional disaster)

7 807 840226 331N/AN/A195 196195 196N/A

14.

195 196

Bosnia and Herzegovia-floods

15.

(major disaster)

841 851 670138 325 0003 458 12542 211 600N/A45 669 725N/A

16.

45 669 725

TOTAL280 740 90310 663 587270 077 316


Council Regulation 2024/765 8 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 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 bemade available on 1 October of each year.

Moreover, according to the Article 4a i 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.

Finally, in accordance with Article 9(2) of the MFF Regulation, any portion of the annual amount not used is a given year n may be used up to year n+1. Therefore, the amount of EUR 194.3 million has been carried over from 2024.

Therefore, the maximum amount that can be used by the EUSF at this stage is EUR 908,95 million (excluding the reserve for advances and the amount that will become available on 1 October). After this mobilisation EUR 980,64 million will remain available for upcoming mobilisations.

Amount available under the EUSF in 2025 (EUR):
Total annual 2025 EUSF allocation (incl. 1 October tranche)1 167 064 638
Amount carried over from 2024 (incl. unused advances) (+)194 316 161
Credits reserved for advance payments (-)50 000 000
Amount already used for advances to Spain and Austria (-)110 663 587
Amount available only after 1 October (-)291 766 160
Total amount currenty available (excl. reserve for advances and 1 October tranche)908 951 052
Amount proposed for mobilisation under current Mobilisation Decision (only balance to be paid)270 077 316
Remaining amount for future applications (inc. for advances and 1 October tranche)980 639 896