Date: 2025-11-20Category: Not ApplicableState: Union GovernmentCountry: Europe
Council Decision (EU) 2025/2362 of 13 November 2025 establishing the position to be taken on behalf of the European Union within the Joint Committee established by the Agreement on the withdrawal of the United Kingdom of Great Britain and Northern Ireland from the European Union and the European Atomic Energy Community as regards the adoption of a decision adding a newly adopted Union act to Annex 2 to the Windsor Framework
**Executive Summary**
This Council Decision (EU) 2025/2362, dated 13 November 2025, establishes the EU's position within the Joint Committee regarding the Windsor Framework. The decision concerns the addition of a newly adopted Union act, specifically the provisions of Regulation (EU) 2025/14, to Annex 2 of the Windsor Framework. The Joint Committee is expected to adopt a corresponding decision at its next meeting.
**Key Points / Main Content**
* **Purpose:** Establish the EU position within the Joint Committee.
* **Windsor Framework Amendment:**
* Authorizes the Joint Committee to amend Annexes to the Windsor Framework by adding newly adopted Union acts.
* Specifies that these additions should not amend or replace existing Union acts already listed in the Annexes.
* Article 51 of Regulation (EU) 2025/14 is applicable pursuant to Article 13(3) of the Windsor Framework
* **Regulation (EU) 2025/14 Inclusion:**
* Regulation (EU) 2025/14, related to the approval and market surveillance of non-road mobile machinery, is being added to Annex 2 of the Windsor Framework.
* Specifically, it will be added under point 14 'Construction products, machinery, cableways, personal protective equipment'.
* **Joint Committee Decision:**
* The Joint Committee is tasked with adopting a decision to add Regulation (EU) 2025/14 to Annex 2.
* Decisions adopted by the Joint Committee are binding on the Union and the United Kingdom and have the same legal effect as the Withdrawal Agreement.
* **Entry into Force:** The Council Decision takes effect on the date of its adoption. The Joint Committee Decision shall enter into force on the day following the date of its adoption.
**Impact Analysis**
**European Union (EU):**
* **Impact:** Defines the EU's stance in upcoming Joint Committee discussions and actions concerning the Windsor Framework.
* **Action Required:** Prepare for the Joint Committee meeting to advocate for the inclusion of Regulation (EU) 2025/14 into Annex 2 of the Windsor Framework.
**United Kingdom (UK):**
* **Impact:** Requires implementation of the Joint Committee's decision, adding Regulation (EU) 2025/14 to Annex 2, affecting trade and regulations related to non-road mobile machinery.
* **Action Required:** Implement the Joint Committee's decision.
**Businesses involved with non-road mobile machinery:**
* **Impact:** Companies producing, distributing, or using non-road mobile machinery may need to adapt to the regulatory changes introduced by Regulation (EU) 2025/14.
* **Action Required:** Review and comply with Regulation (EU) 2025/14 as implemented under the Windsor Framework.
Key Entities Referenced
Windsor Framework: A framework forming an integral part of the Withdrawal Agreement, governing certain aspects of the relationship between the EU and the UK, particularly concerning Northern Ireland.
Joint Committee: A committee established under the Withdrawal Agreement, empowered to adopt decisions regarding the Windsor Framework, including amendments to relevant Annexes.
Agreement on the withdrawal of the United Kingdom of Great Britain and Northern Ireland from the European Union and the European Atomic Energy Community: The agreement governing the terms of the UK's withdrawal from the EU, also known as the Withdrawal Agreement.
Regulation (EU) 2025/14: Regulation (EU) 2025/14 of the European Parliament and of the Council of 19 December 2024 on the approval and market surveillance of non-road mobile machinery circulating on public roads and amending Regulation (EU) 2019/1020
Official Journal EN
of the European Union L series
2025/2362 20.11.2025
COUNCIL DECISION (EU) 2025/2362
of 13 November 2025
establishing the position to be taken on behalf of the European Union within the Joint Committee
established by the Agreement on the withdrawal of the United Kingdom of Great Britain and
Northern Ireland from the European Union and the European Atomic Energy Community as regards
the adoption of a decision adding a newly adopted Union act to Annex 2 to the Windsor Framework
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty on European Union, and in particular Article 50(2) thereof,
Having regard to the Treaty on the Functioning of the European Union, and in particular Article 218(9) thereof,
Having regard to the proposal from the European Commission,
Whereas:
(1) The Agreement on the withdrawal of the United Kingdom of Great Britain and Northern Ireland from the European
Union and the European Atomic Energy Community(1)(the ‘Withdrawal Agreement’) was concluded by the Union
by Council Decision (EU) 2020/135(2) and entered into force on 1 February 2020.
(2) Pursuant to Article 13(4) of the Windsor Framework(3), which forms an integral part of the Withdrawal Agreement,
the Joint Committee established under Article 164(1) thereof (the ‘Joint Committee’) is empowered to adopt
decisions to amend the relevant Annexes to the Windsor Framework by adding newly adopted Union acts that fall
within the scope of the Windsor Framework, but which neither amend nor replace Union acts listed in the Annexes
to the Windsor Framework.
(3) Whilst Article 51 of Regulation (EU) 2025/14 of the European Parliament and of the Council(4) is applicable
pursuant to Article 13(3) of the Windsor Framework, the remainder of the provisions of that Regulation are
provisions of a newly adopted Union act falling within the scope of the Windsor Framework which should be added
to Annex 2 to the Windsor Framework.
(4) The Joint Committee, at its next meeting, should adopt a decision pursuant to Article 13(4) of the Windsor
Framework adding this newly adopted Union act to Annex 2 to the Windsor Framework.
(5) It is appropriate to establish the position to be taken on behalf of the Union within the Joint Committee as regards
the adoption of a decision adding the newly adopted Union act to Annex 2 to the Windsor Framework,
HAS ADOPTED THIS DECISION:
Article 1
The position to be taken on behalf of the European Union within the Joint Committee established under Article 164(1) of
the Agreement on the withdrawal of the United Kingdom of Great Britain and Northern Ireland from the European Union
and the European Atomic Energy Community (the ‘Joint Committee’) is set out in the draft decision of the Joint Committee
attached to this Decision.
(1) OJ L 29, 31.1.2020, p. 7, ELI: http://data.europa.eu/eli/treaty/withd_2020/sign.
(2) Council Decision (EU) 2020/135 of 30 January 2020 on the conclusion of the Agreement on the withdrawal of the United Kingdom
of Great Britain and Northern Ireland from the European Union and the European Atomic Energy Community (OJ L 29, 31.1.2020,
p. 1, ELI: http://data.europa.eu/eli/dec/2020/135/oj).
(3) Joint Declaration No 1/2023 of the Union and the United Kingdom in the Joint Committee established by the Agreement on the
withdrawal of the United Kingdom of Great Britain and Northern Ireland from the European Union and the European Atomic
Energy Community of 24 March 2023 (OJ L 102, 17.4.2023, p. 87).
(4) Regulation (EU) 2025/14 of the European Parliament and of the Council of 19 December 2024 on the approval and market
surveillance of non-road mobile machinery circulating on public roads and amending Regulation (EU) 2019/1020 (OJ L, 2025/14,
8.1.2025, ELI: http://data.europa.eu/eli/reg/2025/14/oj).
ELI: http://data.europa.eu/eli/dec/2025/2362/oj 1/3EN
OJ L, 20.11.2025
Article 2
This Decision shall enter into force on the date of its adoption.
Done at Brussels, 13 November 2025.
For the Council
The President
S. LOSE
2/3 ELI: http://data.europa.eu/eli/dec/2025/2362/ojEN
OJ L, 20.11.2025
DRAFT
DECISION No …/2025 OF THE JOINT COMMITTEE ESTABLISHED BY THE AGREEMENT ON THE
WITHDRAWAL OF THE UNITED KINGDOM OF GREAT BRITAIN AND NORTHERN IRELAND
FROM THE EUROPEAN UNION AND THE EUROPEAN ATOMIC ENERGY COMMUNITY
of …
adding a newly adopted Union act to Annex 2 to the Windsor Framework
THE JOINT COMMITTEE,
Having regard to the Agreement on the withdrawal of the United Kingdom of Great Britain and Northern Ireland from the
European Union and the European Atomic Energy Community(1) (the ‘Withdrawal Agreement’), and in particular
Article 13(4) of the Windsor Framework(2),
Whereas:
(1) Article 13(4) of the Windsor Framework empowers the Joint Committee established under Article 164(1) of the
Withdrawal Agreement (the ‘Joint Committee’) to adopt decisions adding newly adopted Union acts falling within
the scope of the Windsor Framework to the relevant Annexes to the Windsor Framework.
(2) Pursuant to Article 166(2) of the Withdrawal Agreement, the decisions adopted by the Joint Committee are binding
on the Union and the United Kingdom. The Union and the United Kingdom are to implement such decisions, which
have the same legal effect as the Withdrawal Agreement.
(3) Whilst Article 51 of Regulation (EU) 2025/14 of the European Parliament and of the Council of 19 December 2024
on the approval and market surveillance of non-road mobile machinery circulating on public roads and amending
Regulation (EU) 2019/1020(3)is applicable pursuant to Article 13(3) of the Windsor Framework, the remainder of
the provisions of that Regulation are provisions of a newly adopted Union act falling within the scope of the
Windsor Framework which should be added to Annex 2 to the Windsor Framework,
HAS ADOPTED THIS DECISION:
Article 1
Regulation (EU) 2025/14 of the European Parliament and of the Council of 19 December 2024 on the approval and market
surveillance of non-road mobile machinery circulating on public roads and amending Regulation (EU) 2019/1020 shall be
added to Annex 2 to the Windsor Framework under point 14 ‘Construction products, machinery, cableways, personal
protective equipment’.
Article 2
This Decision shall enter into force on the day following the date of its adoption.
Done at …, …
For the Joint Committee
The Co-chairs
(1) OJ EU L 29, 31.1.2020, p. 7, ELI: http://data.europa.eu/eli/treaty/withd_2020/sign.
(2) Joint Declaration No 1/2023 of the Union and the United Kingdom in the Joint Committee established by the Agreement on the
withdrawal of the United Kingdom of Great Britain and Northern Ireland from the European Union and the European Atomic
Energy Community of 24 March 2023, (OJ EU L 102, 17.4.2023, p. 87).
(3) OJ EU L, 2025/14, 8.1.2025, ELI: http://data.europa.eu/eli/reg/2025/14/oj.
ELI: http://data.europa.eu/eli/dec/2025/2362/oj 3/3