REPORT FROM THE COMMISSION FOURTH REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE EUROPEAN COUNCIL AND THE COUNCIL on the operationalisation of the European Border and Coast Guard
Date: 2017-06-13
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU migration policy, EU office or agency, European cooperation, Schengen Agreement, border control, external border of the EU, illegal migration, operation of the Institutions, paramilitary force, return migration

EN 

   EN 

   EUROPEAN COMMISSION  Strasbourg, 13.6.2017  COM(2017) 325 final   REPORT FROM THE COMMISSION FOURTH REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE EUROPEAN COUNCIL AND THE COUNCIL  on the operationalisation of the European Border and Coast Guard   
 
 
1.  EUROPEAN  BORDER  AND  COAST  GUARD  –  PUTTING  IN  PLACE 

EUROPEAN INTEGRATED BORDER MANAGEMENT  

The effective  protection of the European  Union's external  borders is the prerequisite for the 
normal functioning of the Schengen area without internal border controls and for the delivery 
of the European Agenda on Migration. The joint investment and engagement in ensuring that 
the European Border and Coast Guard becomes fully operational as quickly as possible, are a 
practical  expression  of  the  commitment  of  Member  States  to  share  responsibility  and 
demonstrate solidarity in the common interest. With this in mind, the Commission has been 
reporting  on  a  regular  basis  on  the  operationalisation  of  the  European  Border  and  Coast 
Guard. 

The present report takes stock of the progress made since the beginning of May 2017 in this 
respect.  In  the  light  of  the  progress  achieved  in  the  implementation,  it  highlights  the  key 
actions  which  the  European  Border  and  Coast  Guard  Agency  (hereinafter:  the  Agency),  the 
Commission and Member States need to take in the coming months.  

The  Agency  has  completed  the  baseline  vulnerability  assessment  for  almost  all  Schengen 
States  regarding  their  capacity  to  cope  with  the  challenges  at  their  EU  external  border 
sections. This led the Agency to identify vulnerabilities in a number of Schengen States and 
recommendations to remedy the identified vulnerabilities. As set out in the European Border 
and  Coast  Guard  Regulation  (hereinafter:  the  Regulation),  the  Agency  will  carry  out 
simulation  exercises  and  continue  emerging  threat  assessments  in  view  of  assisting  the 
Schengen  States  in  identifying  vulnerabilities  related  to  possible  future  or  already  emerging 
challenges at the external borders. 

The Agency has been carrying out joint operations along the main migratory routes, notably 
in the Central Mediterranean, the Eastern Mediterranean and further on the Western Balkans 
route. The Agency has also launched a new joint operation to address the irregular migratory 
flows on the Western Mediterranean route. 

2.  OPERATIONAL SUPPORT TO MEMBER STATES 

The  Agency  continues  providing  operational  support  on  the  ground  to  Member  States  in 
border management with over 1,600 border guards and other relevant staff being deployed at 
different sections of the EU external borders. Previous reports identified gaps in deployment 
which still remain. The gaps are partly filled by assets and border guards deployed by the host 
Member States and co-financed by the Agency. However, Member States’ contributions are 
needed to boost efficiently and sustainably the overall capacity of the host Member States to 
protect effectively their EU external border sections. 

2.1. Deployment in frontline Member States 

Greece  

The Agency implements three different operations in Greece. Joint Operation Poseidon in the 
Aegean Sea supports Greece in border control and the implementation of the hotspot approach 
on the Aegean islands and of the EU-Turkey Statement.  

891 officers are deployed by the Agency in the context of Joint Operation Poseidon including 
the  support for  readmission  activities  and  280  security  officers,  co-financed  by  the Agency, 

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that  are  deployed  by  the  Greek  Police.  The  figure  includes  experts  assisting  in  the 
implementation of the hotspot approach as well as crew members of the deployed assets and 
coordination  staff.  The  deployment  also  includes  2  offshore  patrol  vessels,  3  coastal  patrol 
vessels,  10  coastal  patrol  boats,  1  fixed-wing  aircraft,  2  helicopters,  16  patrol  cars,  4  buses 
and 3 thermo-vision vehicles.  

The  Agency  also  supports  Greece  through  Joint  Operations  Flexible  Operational  Activities 
and  Focal  Points  in  border  control  activities,  with  the  current  deployment  of  altogether  53 
officers  supported  by  2  thermo-vision  vans,  14  patrol  cars,  1  dog  team  and  3  smartdeck 
cameras at the Greek land borders with Turkey, Albania and the former Yugoslav Republic of 
Macedonia  as  well  as  relevant  air  operations.  The  operational  activity  in  Northern  Greece 
enhances  border  surveillance  and  prevents  irregular  secondary  movements,  thus  further 
reinforcing the EU's response to the challenges at the Western Balkan route.  

The  current  deployment  at  the  Greek  land  border  with  Albania  and  the  former  Yugoslav 
Republic  of  Macedonia  consists  of  28  officers  (with  2  smartdeck  cameras  and  1  patrol  car) 
whereas  the  agreed  operational  plan  foresees  63  officers,  meaning  a  continued  shortfall  of 
around 35 officers.  

Italy 

Under  the  umbrella  of  Joint  Operation  Triton  deployed  in  Italy  and  in  the  Central 
Mediterranean  Sea,  the  Agency  has  deployed  402  officers,  including  crew  members  of  the 
deployed assets, coordination staff and experts assisting in the implementation of the hotspot 
approach. The deployment is supported by 3 aircrafts, 3 helicopters, 4 offshore patrol vessels, 
7 coastal patrol vessels and 3 coastal patrol boats.  

Bulgaria  

The  Agency  continues  to  assist  Bulgaria  in  controlling  the  land  borders,  also  in  view  of 
preventing irregular secondary movements. The support is provided through Joint Operations 
Flexible  Operational Activities and Focal Points at Bulgaria's land borders with Turkey and 
Serbia  as  well  as  relevant  air  operations.  The  current  deployment  comprises  166  officers 
(including crew members of the deployed assets) supported by 12 dog teams, 6 thermo-vision 
vehicles, 50 patrol cars, 6 CO₂ detectors, 39 smartdeck cameras and 1 helicopter. 

Spain 

Joint Operation Indalo 2017 was launched on 3 May 2017 to support coordinated operational 
activities at the external sea borders of the Western Mediterranean region in order to control 
irregular  migration  flows  towards  the  EU  and  to  tackle  cross  border  crime.  The  current 
deployment is 65 officers (including crew members of the deployed assets, coordination staff 
and debriefing teams), supported by 1 aircraft and 1 offshore patrol vessel. 

Western Balkans  

127 officers are currently deployed in Member States to assist in border management in the 
Western Balkan region. The most important deployments are carried out in the framework of 
Joint Operations Flexible Activities at the land borders of Croatia and Hungary with Serbia as 
well  as  Focal  Points  and  Coordination  Points  at  the  land  borders  respectively.  They  are 
supported by 9 dog teams, 4 thermo-vision vehicles, 31 patrol cars, 1 heartbeat detector, 10 
CO₂ detectors and 12 smartdeck cameras.  

3 

 
 
2.2. Pooling of resources and building own capacities of the Agency in view of providing 

operational support 

In  its  last  report,  the  Commission  identified  the  importance  of  elaborating  a  comprehensive 
strategy to develop the Agency's own capabilities. As explained there, as of 2017, the Agency 
has  EUR  10  million  per  year  (EUR  40  million  in  total  for  2017-2020)  to  acquire  its  own 
equipment, in particular small and medium size assets. On 13-14 June 2017 the Agency will 
present to the Management Board a draft of this comprehensive strategy taking into account 
different possible options (i.e. purchasing, renting, leasing, long-term deployments) and how 
to keep them operational after acquisition. 

Next steps 

The European Border and Coast Guard Agency should:  

 

intensify  efforts  to  proactively  seek  the  necessary  contributions  to  the  ongoing 
operations in the framework of bilateral contacts with Member States; 

  ensure the swift endorsement by the Management Board of the comprehensive strategy 

on how the Agency's own capabilities will be developed and used in 2017-2020. 

Member States should: 

  ensure that the agreed resources are made available to the Agency for the running of 

operations and the mandatory pools; 

  provide the following resources on the basis of the currently identified gaps: 

Gaps for Greece - Joint Operation Poseidon 

  16 May – 29 June 2017: 13 officers (operational needs: 197 officers); 
  June 2017: 3 coastal patrol boats (30% of the operational needs  - due to lack of 
offers, the gap is covered by host Member State assets financed by the Agency), 1 
fixed-wing aircraft (100% of the operational needs, the gap is covered partially by 
host  Member  State  asset  financed  by  the  Agency  and  deployment  of  the  fixed-
wing aircraft rented airplane is going to cover part of the period), 1 offshore patrol 
vessel (50% of the operational needs - due to lack of offers, the gap is covered by 
host Member State asset financed by the Agency), 2 transport vehicles (33% of the 
operational needs); 

  29 June – 17 August 2017: 43 officers (operational needs: 197 officers); 
  July  2017:  4  coastal  patrol  boats  (40%  of  the  operational  needs),  1  helicopter 
(50%  of  the  operational  needs),  1  offshore  patrol  vessel  (50%  of  the  operational 
needs), 1 patrol car, 2 transport vehicles (33% of the operational needs);  

  August  2017:  7  coastal  patrol  boats  (54%  of  the  operational  needs),  1  coastal 
patrol vessel (33% of the operational needs), 2 offshore patrol vessels (67% of the 
operational needs), 2 transport vehicles (33% of the operational needs); 

  17 August – 28 September 2017: 35 officers (operational needs: 197 officers); 
  September 2017: 5 coastal patrol boats (38% of the operational needs), 2 offshore 
patrol vessels (67% of the operational needs), 2 transport vehicles (33% of the 
operational needs); 

  28 September – 16 November: 25 officers (operational needs: 197 officers). 

Gaps for Greece - Joint Operation Flexible Operational Activities 2017 Land  

  24  May  –  21  June  2017:  36  officers  (operational  needs:  79  officers),  17  patrol 
cars (55% of the operational needs), 2 transport vehicles (100% of the operational 
needs); 

4 

 
 
  21 June – 19 July 2017: 45 officers (operational needs: 79 officers), 21 patrol cars 
(68%  of  the  operational  needs),  2  transport  vehicles  (100%  of  the  operational 
needs); 

  19 July  2017  – 16 August  2017:  46 officers (operational needs:  79 officers),  22 
patrol  cars  (71%  of  the  operational  needs),  2  transport  vehicles  (100%  of  the 
operational needs); 

  16 August – 13 September 2017: 45 officers (operational needs: 79 officers), 21 
patrol  cars  (68%  of  the  operational  needs),  2  transport  vehicles  (100%  of  the 
operational needs); 

  13 September – 11 October 2017: 46 officers (operational needs: 79 officers), 20 
patrol  cars  (65%  of  the  operational  needs),  2  transport  vehicles  (100%  of  the 
operational needs). 

Gaps for Greece - Joint Operation Focal Points 2017 Land 

  24 May – 21 June 2017: 7 officers (operational needs: 16 officers);  
  21  June  –  19  July  2017:  7  officers  (operational  needs:  16  officers),  1  heartbeat 

detector (100% of the operational needs);  

  19  July  2017  –  16  August  2017:  8  officers  (operational  needs:  16  officers),  1 

heartbeat detector (100% of the operational needs); 

  16  August  –  13  September  2017:  6  officers  (operational  needs:  16  officers),  1 

heartbeat detector (100% of the operational needs). 

Gaps for Italy - Joint Operation Triton 

  June  2017:  23  officers  (operational  needs:  126  officers),  1  coastal  patrol  boat 
(33% of the operational needs - due to lack of offers, the gap is covered by host 
Member State asset financed by the Agency), 4 coastal patrol vessels (67% of the 
operational needs - due to lack of offers, the gap is covered by host Member State 
assets financed by the Agency); 

  July 2017: 24 officers (operational needs: 126 officers), 1 coastal patrol boat (33% 
of the operational needs), 4 coastal patrol vessels (67% of the operational needs), 
0.5 month of fixed-wing aircraft (25% of the operational needs), 1 helicopter (50% 
of the operational needs); 

  August 2017: 15 officers (operational needs: 126 officers), 2 coastal patrol boats 
(67%  of  the  operational  needs),  4  coastal  patrol  vessels  (67%  of  the  operational 
needs), 1 helicopter (50% of the operational needs); 

  September  2017:  10  officers  (operational  needs:  126  officers),  4  coastal  patrol 
vessels  (67%  of  the  operational  needs),  1  offshore  patrol  vessel  (50%  of  the 
operational needs). 

Gaps for Bulgaria - Joint Operation Flexible Operational Activities 2017 Land  

  24 May – 21 June 2017: 58 officers (operational needs: 175 officers - due to the 
lack  of  offers  24  officers  from  host  Member  State  to  be  cofinanced  by  the 
Agency), 22 patrol cars (37% of the operational needs), 2 thermo-vision vehicles 
(25% of the operational needs); 

  21 June – 19 July 2017: 77 officers (operational needs: 175 officers - due to the 
lack  of  offers  24  officers  from  host  Member  State  to  be  cofinanced  by  the 
Agency), 30 patrol cars (50% of the operational needs - due to the lack of offers 12 
patrol  cars  from  host  Member  State  to  be  cofinanced  by  the  Agency),  3  thermo-
vision vehicles (38% of the operational needs); 

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  19 July 2017 – 16 August: 67 officers (operational needs: 175 officers - due to the 
lack  of  offers  24  officers  from  host  Member  State  to  be  cofinanced  by  the 
Agency), 28 patrol cars (47% of the operational needs - due to the lack of offers 12 
patrol  cars  from  host  Member  State  to  be  cofinanced  by  the  Agency),  2  thermo-
vision vehicles (25% of the operational needs); 

  16 August – 13 September: 59 officers (operational needs: 175 officers - due to 
the  lack  of  offers  24  officers  from  host  Member  State  to  be  cofinanced  by  the 
Agency), 29 patrol cars (48% of the operational needs - due to the lack of offers 12 
patrol  cars  from  host  Member  State  to  be  cofinanced  by  the  Agency),  1  thermo-
vision vehicle (13% of the operational needs); 

  13 September – 11 October: 59 officers (operational needs: 175 officers - due to 
the  lack  of  offers  24  officers  from  host  Member  State  to  be  cofinanced  by  the 
Agency), 26 patrol cars (43% of the operational needs - due to the lack of offers 12 
patrol cars from host Member State to be cofinanced by the Agency). 

Gaps for Bulgaria - Joint Operation Focal Points 2017 Land 

  24 May – 21 June 2017: 3 officers (operational needs: 12 officers);  
  21 June – 19 July 2017: 3 officers (operational needs: 12 officers); 
  19 July 2017 – 16 August 2017: 3 officers (operational needs: 12 officers); 
  16 August – 13 September 2017: 4 officers (operational needs: 12 officers). 

Gaps for Spain - Joint Operation Indalo 

  June 2017: 4 officers (operational needs: 11 officers - due to the lack of offers, the 
gap is partially covered by 3 officers from host Member State to be cofinanced by 
the Agency), 1 offshore patrol vessel (100% of the operational needs - due to lack 
of offers, the gap is covered by host Member State asset financed by the Agency); 

  July 2017: 3 officers (operational needs: 11 officers); 
  August  2017:  3  officers  (operational  needs:  11  officers),  1  fixed-wing  aircraft 

(100% of the operational needs); 

  September 2017: 3 officers (operational needs: 11 officers). 

Gaps for Spain - Joint Operation Hera 

  August  2017:  2  officers  (operational  needs:  2  officers),  1  offshore  patrol  vessel 
(100%  of  the  operational  needs),  1  coastal  patrol  vessel  (100%  of  the  operational 
needs). 

Gaps for Spain - Joint Operation Minerva 

  14 July – 15 September 2017: 32 officers (operational needs: 74 officers), 12 dog 

teams (44% of the operational needs). 

Gaps for Western Balkans - Joint Operation Focal Points 2017 Land 

  25 May – 21 June 2017: 1 officer (operational needs: 22 officers) at the Romanian-

Serbian border; 

  21 June – 19 July 2017: no outstanding gaps; 
  19  July  –  16  August  2017:  1  officer  (operational  needs:  22  officers)  at  the 
Romanian-Serbian border, 1 heartbeat detector (100% of the operational  needs) at 
the Croatian-Serbian border; 

  16  August  –  13  September  2017:  1  heartbeat  detector  (100%  of  the  operational 

needs) at the Croatian-Serbian border. 

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3.  PROGRESS MADE IN THE IMPLEMENTATION OF THE PRIORITY AREAS  

3.1. Reinforcing  the  European  Border  and  Coast  Guard  Agency’s  rapid  reaction 

capabilities, including the mandatory pooling of resources 

Rapid Reaction Pool 

While  the  full  availability  of  more  than  1,500  border  guards  and  other  officers  has  been 
confirmed, two issues still affect the full readiness of the Rapid Reaction Pool in line with the 
Regulation:   

1) Nomination of border guards  

The  requirement  to  nominate  the  border  guards  is  clearly  defined  in  Article  20(4)  of  the 
Regulation.  The  Agency  needs  the  names  of  officers  to  ensure  the  quality  of  the  pool  by 
verifying  whether  the  nominated  border  guards  correspond  to  the  defined  profiles  and  by 
ensuring  that  they  are  adequately  trained  prior  to  their  participation  in  the  operational 
activities. Since the last report four more Schengen States have provided the names of experts 
matching or even exceeding the size of their respective contributions foreseen in Annex 1 to 
the  European  Border  and  Coast  Guard  Regulation.  However,  this  amounts  to  only  ten 
Schengen  States  altogether  (Belgium,  the  Czech  Republic,  Estonia,  Finland,  France, 
Luxembourg, the Netherlands, Romania, Switzerland and partly Germany).  
Following the different discussions to find a practical solution1, the Agency is due to present a 
concept note containing different options for the nomination of experts to the rapid reaction 
pool at the Management Board meeting of 13-14 June 2017. In addition, the Commission will 
again invite Member States to make a full nomination of their experts, allowing the Agency to 
ensure compliance with the profiles and to provide training if needed. 

2) Harmonisation of profiles 

Since  the  last  report,  the  Agency  had  bilateral  meetings  with  Member  States  in  view  of 
ensuring that the number of experts pledged by the Member States per profile is in line with 
the  thresholds  set  up  in  the  relevant  implementing  decision  of  the  Management  Board. 
However, the Agency is still waiting for the final responses of the Member States. While 137 
border surveillance officers and several officers for other profiles were over-pledged, there is 
a  deficit  of  167  registration/fingerprinting  experts  and  38  screening  experts.  Furthermore, 
France has not yet provided the final information with regard to its 25 officers.  

The  lack  of  harmonisation  between  the  profiles  is  further  emphasising  the  need  for  full 
nomination  of  individual  experts,  allowing  the  Agency  to  verify  their  compliance  with  the 
required profiles but also to ensure that the overall thresholds for each profile as agreed by the 
Management Board, are reached.  

Rapid Reaction Equipment Pool 

As  set  out  in  previous  reports,  the  Agency  has  again  requested  additional  pledges  from 
Member  States  at  the  meeting  of  the  Pooled  Resourced  Network  on  25-26  April  2017. 
However, by the end of May 2017, no new additional pledges were made  for coastal patrol 
boats, offshore patrol vessels and thermo-vision vehicles, still leaving considerable gaps.  

1   All of the 5,000 officers in the regular European Border and Coast Guard Pool will be nominated (registered 
by names) and Member States will indicate which of those 5,000 officers will form part of the 1,500-person 
Rapid Reaction Pool. This indication could be adjusted at any time during the year or in case of rapid border 
intervention  being  activated  with  the  replacements  within  the  same  profiles  from  the  regular  part  of  the 
European Border and Coast Guard pool.  

7 

 
 
                                                            
The Pool continues to be ensured by only 14 Member States (Austria, Bulgaria, Croatia, the 
Czech Republic, Germany, Finland, Hungary, Italy, Latvia, the Netherlands, Poland, Portugal, 
Romania and Slovenia). 

Next steps 

The European Border and Coast Guard Agency should: 

  continue  urgently  bilateral  discussions  with  the  Schengen  States,  in  particular  with 
those that have not yet contributed to the Rapid Reaction Equipment Pool (Belgium, 
Cyprus, Denmark, Estonia, France, Greece, Malta, Norway, Luxembourg, Lithuania, 
Spain, Slovakia and Sweden) in view of filling the identified equipment gaps; 

  rapidly  ensure  that  the  experts  nominated  to  the  Rapid  Reaction  Pool,  especially 
registration/fingerprinting  officers  and  screening  officers,  are  provided according  to 
the numbers of specific profiles defined by the Management Board;  

  rapidly verify the availability of all 1,500 border guards in the Rapid Reaction Pool 
and carry out by the end of October 2017 a mock deployment of human and technical 
resources from the Pools.  

Member States should:  

  rapidly  fill  the  identified  gaps  of  the  Rapid  Reaction  Equipment  Pool.  Particular 

efforts should be made by those Member States which have not yet contributed; 

  communicate by the end of June 2017 the names of the experts to the Rapid Reaction 

Pool. 

3.2. Carrying out preventive vulnerability assessments based on a common methodology 

The  reinforcement  of  preventive  assessments  guaranteeing  the  effective  functioning  of  the 
Schengen area continues to be a top political priority for the European Union. Intense efforts 
have been made by the Agency to prepare the vulnerability assessments, which are essential 
for the Schengen  quality control process, in accordance with the common methodology and 
the agreed calendar.  
Except  for Denmark2  and  Germany,  the  Agency  has  the  baseline  assessment  reports,  i.e.  an 
in-depth  analysis  of  Member  States'  existing  capacities  in  conjunction  with  current  threat 
indicators against a set of objective criteria. The baseline assessment report for Germany is to 
be finalised by mid-June, whereas the preparation of such assessment for Denmark can only 
start once it has provided the underlying data to the Agency. 

Based on the baseline assessment reports, the Agency’s Executive Director has decided on 5 
June  2017  to  address  recommendations  proposing  concrete  measures  as  provided  for  in 
Article  13  (7)  of  the  Regulation  to  20  Schengen  States.  Given  the  key  objective  of  the 
vulnerability  assessments,  especially  for  those  Schengen  States  facing  specific  and 
disproportionate challenges, the recommendations – as matter of priority – focus on the most 
urgent vulnerabilities in relation to the current challenges at the external border. 

The  Agency  will  effectively  monitor  the  implementation  of  the  recommendations  and 
measures by the Schengen States. In case of non-implementation of the measures within the 

2   In accordance with Article 4 of Protocol No 22 on the position of Denmark annexed to the TEU and to the 
TFEU, Denmark has notified that it would implement the European Border and Coast Guard Regulation as of 
14 March 2017. Germany has submitted the relevant data with a delay. 

8 

 
 
 
                                                            
set time limit, the Executive Director has to refer the matter further to the Management Board 
and to notify the Commission.  

The vulnerability assessment as well as any ensuing recommendations shall be seen as tools 
for  assisting  the  Member  States  in  identifying  any  threats  which  may  affect  the  effective 
management  of  their  external  borders  and  set  out  and  implement  ensuing  measures. 
Consequently,  the  Commission  considers  the  monitoring  of  the  implementation  of  the 
measures  identified  as  an  integral  part  of  the  joint  European  endeavour  aimed  at  managing 
migration  in  all  its  dimensions.  The  Commission  will  therefore  also  follow  up  closely  at 
political level and stands ready to work with the Member States, the European Parliament and 
the Council in view of remedying any current or future vulnerabilities. 

The  baseline  assessments  have  also  resulted  in  the  identification  of  six  Member  States  in 
relation to which the Agency will carry out the so-called simulation exercises to assess their 
capacities  to  face  future  challenges  at  the  external  borders.  These  exercises  would  examine 
and  test  the  Member  States'  capacities,  in  particular  their  contingency  planning,  against  the 
risks  and  scenarios  which  have  not  materialised  but  which  could  be  assumed  based  on  the 
analysis  of  the  situation  in  neighbouring  third  countries  and  main  countries  of  origin  and 
transit. Once the results of the simulation exercises are available by the end of October 2017, 
a second round of possible recommendations can be addressed by the Executive Director to 
the Member States concerned. 

As  of  April  2017  the  Agency  runs  the  so  called  Emerging  Threat  Assessment.  Based  on  a 
monthly  scanning  of  Member  States  through  relevant  indicators,  the  Agency  may  trigger  at 
any  time  a  specific  assessment/simulation  to  examine  capacities  of  a  Member  State  to  face 
new emerging threats, leading possibly to further recommendations on vulnerabilities which 
have  not  been  taken  into  consideration  in  the  previous  baseline  assessments  or  simulation 
exercises. Currently, such an Emerging Threat Assessment is being carried out with regard to 
Greece,  Italy  and  Spain.  These  Member  States  were  chosen  on  the  basis  of  constant 
situational monitoring and latest trends of migratory movements.    

Next steps 

The European Border and Coast Guard Agency should:  

  ensure  the  adequate  staffing  of  the  team  dealing  with  the  vulnerability  assessment 

process by summer 2017; 

  by  15  June  2017,  transmit  the  first  results  of  the  vulnerability  assessments  to  the 
European  Parliament,  the  Council  and  the  Commission  in  accordance  with  Article 
13(9) of the Regulation;  

  carry out simulation exercises on the future challenges from now till October 2017; 
  continue  monitoring  the  situation  at  the  external  borders,  complete  the  on-going 
Emerging  Threat  Assessments  and  deliver  their  results  to  the  Member  States 
concerned in due time; 

  by  the  end  of  November  2017,  adopt  the  revised  common  methodology  for 

vulnerability assessments based on the experiences gained.  

Member States should:  

  Denmark should submit without any further delay, but in any case no later than by 15 
June 2017 the necessary data in order to allow the Agency to carry out the baseline 
assessment [DK agreed to send its data on 4 June – to be verified]; 

9 

 
 
 

 in view of the recurrent vulnerability assessments that the Agency shall carry out at 
least once a year, Member States, which did not provide the complete data on existing 
capacities, should improve their respective national processes of data collection.  

  Member  States,  which  will  receive  recommendations 

the  baseline 
assessment,  should  set  up  the  necessary  action  plans  and  report  regularly  to  the 
Agency. 

following 

  Member States selected for the simulation exercise should respond swiftly to requests 

from the Agency for additional data and information. 

3.3. Support for return 

The use of the Agency's enhanced mandate in the field of return has brought positive results 
in supporting Member States in conducting return operations. However, the Agency and the  
Member States still need to fully operationalise and exploit the potential of some of the new 
tools. 

The pace of return operations supported by the Agency has continued to increase. Between 
1  January  and  9  June  2017,  the  Agency  provided  support  to  144  return  operations  of  third-
country  nationals during which 6799 illegally  staying third-country  nationals were returned, 
with  further  43  operations  under  preparation.  This  represents  an  increase  of  over  157% 
compared to the same period of last year. The majority of these operations (101 out of 144) 
concerned flights to the Western Balkans. The Agency is developing a targeted pilot project 
for an agreement with commercial carriers to a number of defined target destinations, with a 
feasibility study on financial and administrative procedures under way; this should facilitate 
carrying out return operations towards third countries other than the Western Balkans.  

Moreover,  only  a  few  Member  States  request  the  Agency's  assistance  in  organising 
return operations3. Therefore it is for the Member States that are not using it to step up the 
use of this tool. At the same time, the Agency should also start using its right to pro-actively 
propose  the  organisation  of  return  operations,  based  on  the  monthly  information  to  be 
provided  by  the  Member  States4.  Together  with  the  European  Asylum  Support  Office,  the 
Agency can play a key role in particular when it comes to supporting Member States of first 
arrival in dealing quickly and effectively with the return of applicants who are considered to 
be manifestly not in need of international protection. 

The three return pools of forced-return monitors, forced-return escorts and return specialists 
are  available  for  operational  support,  but  still  need  to  be  fully  operationalised.  By  26  May 
2017, all Member States have contributed to at least one of these pools by providing 549 of 
the 690 experts that are needed5. The return pools have been put to use in practice: by 26 May 
2017, 34 return operations have been monitored by a forced-return monitor from the pool.  

A  still  outstanding  urgent  issue  is  to  provide  clarity  on  the  practical  modalities  and  rules 
concerning  the  deployment  of  personnel  to  the  pool,  their  operational  tasks  and  legal 
responsibilities.  

3  

4  

5  

In 2017, most return operations were initatied by Germany (20), and Austria (12), followed by Belgium, 
Sweden and Greece (each 4). On the other hand, several Member States in need of support make only 
very limited use or do not use joint return operations at all (for instance France with only one operation 
or Bulgaria with no engagament at all in 2016 and 2017).  
See section 3.3 of the Second Report on the operationalisation of the European Border and Coast Guard, 
COM(2017) 201 final. 
By 26 May 2017, the number of experts offered by Member States for the pool of forced-return experts 
still does not match the requested number (419 experts offered for 600 places).  

10 

 
 
                                                            
Despite  the  steps  taken  to  fill  the  available  staff  positions,  the  Agency  continues  to  face 
challenges  in  attracting  skilled  and  experienced  applicants.  With  regard  to  the  budget 
allocated to return, the Agency has improved its absorption capacity and appears to be well on 
track in meeting the targets, with the significant exception of pre-return assistance6. 

Next steps 

The European Border and Coast Guard Agency should: 

  pro-actively  propose  the  organisation  of  return  operations,  based  on  the  monthly 

 

information to be provided by the Member States; 
immediately  finalise  the  practical  modalities,  rules,  operational  tasks  and  legal 
responsibilities for the deployment of the pools' members;  
launch a targeted pilot project for an agreement with commercial carriers; 

 
  continue to fill the available staff positions allocated to return activities;  
  ensure that financial resources allocated to pre-return activities for 2017 are used.   

The Member States should: 

 

immediately  start  providing,  on  a  monthly  basis,  information  about  the  indicative 
planning of national return operations, including on the number of returnees and third 
countries of return; 

  as a matter of urgency, fill all remaining gaps in the pools; 
  make  full  use  of  the  support  offered  by  the  Agency  for  the  organisation  of  return 

operations; 

  provide  the  Agency  with  skilled  and  experienced  staff  through  the  deployment  of 

Seconded National Experts.  

3.4. Setting  up  of  the  European  Border  and  Coast  Guard  Agency’s  complaint 

mechanism 

In  this  reporting  period,  nine  additional  complaints  have  been  received  by  the  Fundamental 
Rights  Officer  (FRO).  Two  of  them  have  been  declared  admissible  and  forwarded  to  the 
respective national authorities and the Agency’s Executive Director. The FRO is conducting 
further assessment of admissibility in four of the complaints received in May. The Agency is 
currently  working  on  ensuring  that  the  complaint  mechanism  is  accessible  and  it  will  be 
visible on the Agency’s website. This should be followed by an information campaign by the 
Agency to raise awereness about the complaint mechanism.  

As for additional staff to support the Fundamental Rights Officer, recruitment procedures for 
two assistants started in May/June 2017. Moreover, the Agency is planning to dedicate further 
staff for the Fundamental Rights Officer, to  support other tasks assigned to the FRO in the 
Regulation.  

An important aspect of the implementation of the Regulation is related to child protection in 
the  context  of  the  Agency’s  activities.  Following  some  key  recommendations  from  the 
Consultative Forum on Fundamental Rights in May 2017, the Agency, in close coordination 
with  the  Fundamental  Rights  Officer,  will  enhance  child  protection  aspects  with  a  special 
focus also given in the on-going revision of the Agency's Fundamental Rights Strategy. 

6  

Of the total EUR 50 million allocated to return operations for 2017, by 25 May 2017 EUR 18,65 million 
has been committed. Concerning readmission activities, EUR 3,05 million has been committed out of 
the total budget allocation of EUR 6 million. Out of the total budget allocation of EUR 4,85 million for 
pre-return assistance, only EUR 0,21 million has been committed. 

11 

 
 
                                                            
Next steps 

The European Border and Coast Guard Agency should: 

  recruit additional staff members to support the Fundamental Rights Officer by the end 

of November 2017; 

  complete by end of June 2017 the IT infrastructure to make the complaint forms more 

accessible;  

  run  an  information  campaign  aiming  at  a  better  dissemination  of  the  complaint 

mechanism; 

  revise and further develop its fundamental rights strategy by November 2017 paying 
special attention to child protection and to other vulnerable categories of persons in 
all activities of the Agency. 

3.5. Paving the way for better operational cooperation with priority third countries  

The Agency has presented a concept note to its Management Board on cooperation between 
the  Agency's  Liaison  Officers,  Liaison  Officers  of  the  Member  States  and  European 
Migration Liaison Officers who are deployed in the same locations. 

The Liaison Officer to be deployed in Niger has joined the Agency on 16 May 2017 and is 
now undergoing predeployment training to be deployed to Niger in July 2017. 

The Liaison Officer to the Western Balkans will join the Agency on 1 July 2017. Following 
a predeployment training the Liaison Officer will be deployed in Belgrade in August 2017. 

The predeployment training includes training in the Headquarters, visits to selected external 
partners and to relevant joint operations coordinated by the Agency. 

The  Agency  is  further  strengthening  its  cooperation  with  CSDP  actors.  Since  May  2017  an 
expert  of the Agency is supporting the EU Border Assistance Mission Libya in Tunis.   

A  second  round  of  negotiations  with  Serbia  on  the  status  agreement  required  for  the 
deployment of European Border and Coast Guard teams on its territory took place on 11-12 
May  2017,  leaving  only  a  limited  number  of  issues  pending.  Negotiations  with  the  former 
Yugoslav  Republic  of  Macedonia  have  not  started  yet.  The  Commission  also  intends  to 
shortly  present  a  proposal  for  negotiating  mandates  for  the  status  agreements  with  Albania, 
Bosnia and Herzegovina and Montenegro.  

Next steps 

The Commission will: 

  open  the  formal  negotiations  with  the  former  Yugoslav  Republic  of  Macedonia  once 

the latter is ready to start negotiations on the status agreement;  

  shortly finalise the negotiations with Serbia; 
  shortly  present  proposals  for  negotiating  mandates  for  the  status  agreements  with 

Albania, Bosnia and Herzegovina as well as with Montenegro. 

The European Border and Coast Guard Agency should: 

  deploy the Liaison Officers to Niger and Serbia by July and August 2017 as planned.  

3.6.  Headquarters agreement  

Poland is still expected to ratify the headquartes agreement and is expected to report on the 
state of play of the ratification process at the upcoming Management Board meeting in June 
2017. 

12 

 
 
 
Next step 

  Poland should ratify the headquarters agreement as soon as possible.  

3.7. Deployment of Liaison Officers in Member States 

The Agency should monitor regularly the management of the external borders by the Member 
States  not  only  through  risk  analysis,  information  exchange  and  the  European  Border 
Surveillance  System  (EUROSUR),  but  also  through  the  presence  of  its  Liaisons  Officers  in 
Member States.  

At the Management Board meeting of 13-14 June 2017, the Executive Director will present 
the  final  draft  decision  for  the  Management  Board's  approval  defining  the  role  and  tasks  of 
such Liaison Officers, their access to information and, where relevant posting a single Liaison 
Officer  to  several  Member  States.  By  October  2017  the  Agency  is  expected  to  sign  a 
Memorandum  of  Understanding  with  each  Member  State  to  set  out  the  modalities  of 
deployment. In the meantime, the Agency is expected to launch the procedure to recruit and 
train the selected candidates.  

Next steps 

The European Border and Coast Guard Agency should: 

  Adopt the relevant implementing decision by the end of June 2017.  
  Launch the relevant selection procedure for the recruitment of the Liaison Officers in 
view of  their eventual recruitment, training  and effective deployment at the latest by 
the end of 2017.  

Member States should: 

  Agree  with  the  Agency  on  the  Memorandum  of  Understanding  setting  out  the 

modalities of Liaison Officers' deployment by October 2017. 

4.  CONCLUSIONS 

The fourth report shows that the roll-out of the activities and tools of the European Border and 
Coast Guard Regulation, to ensure as soon as possible a reinforced EU capability to protect 
and manage effectively its external borders, has continued.  

In  particular,  the  Agency  delivered  a  first  set  of  recommendations  to  almost  all  Schengen 
States  - with concrete measures proposed to 20 of them - to address vulnerabilities, identified 
in the first baseline vulnerability assessments.  

Further progress has been made in the negotiations with Serbia on the status agreement that - 
once concluded - will provide for a clear legal framework for operational cooperation between 
the border guard authorities of the Member States and Serbia, facilitated and coordinated by 
the European Border and Coast Guard Agency.  

However,  Member  States  still  have  to  deliver  their  commitments  regarding  the  full 
operational capability of the rapid reaction pools, in  particular to  fill the gaps  for the Rapid 
Reaction  Equipment  Pool.  Further  efforts  are  also  needed  to  close  persisting  gaps  for  the 
deployments to the ongoing Joint Operations in support of the frontline Member States in the 
effective management of the external borders. These gaps need to be addressed as a matter of 
priority. The Member States are also encouraged to rapidly increase the use of the reinforced 
capacity of the Agency to assist them in the area of return operations. 

13 

 
 
The push factors from migration to Europe remain. Therefore ensuring as soon as possible a 
reinforced EU capability to protect and manage effectively its external borders, should be still 
further accelerated.  

In  this  regard,  the  Commission  invites  the  European  Parliament,  the  European  Council  and 
the Council to review the progress achieved so far and invites the Council to encourage the 
Agency and the competent authorities of the Schengen States to take the proposed steps.  

The Commission will report again on the progress made to reinforce the external borders in 
the autumn. 

14