COMMISSION STAFF WORKING DOCUMENT Accompanying the document REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL THIRD REPORT UNDER THE VISA SUSPENSION MECHANISM
Date: 2020-07-10
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU visa policy, Schengen Agreement, corruption, external border of the EU, foreign national, illegal migration, money laundering, organised crime, return migration, third country

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 10.7.2020  SWD(2020) 132 final  COMMISSION STAFF WORKING DOCUMENT Accompanying the document REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL  THIRD REPORT UNDER THE VISA SUSPENSION MECHANISM {COM(2020) 325 final}  
 
 
TABLE OF CONTENTS 

I. INTRODUCTION .................................................................................................................. 2 

II. ASSESSMENT OF SPECIFIC AREAS IN LINE WITH VISA LIBERALISATION 
BENCHMARKS ........................................................................................................................ 2 

II.1 WESTERN BALKANS ................................................................................................... 2 

II.1.1 ALBANIA ................................................................................................................. 2 

II.1.2 BOSNIA AND HERZEGOVINA ........................................................................... 11 

II.1.3 MONTENEGRO ..................................................................................................... 17 

II.1.4 REPUBLIC OF NORTH MACEDONIA ............................................................... 24 

II.1.5 SERBIA ................................................................................................................... 30 

II.2 EASTERN PARTNERSHIP .......................................................................................... 36 

II.2.1 GEORGIA ............................................................................................................... 36 

II.2.2 REPUBLIC OF MOLDOVA .................................................................................. 45 

II.2.3 UKRAINE ............................................................................................................... 52 

III. ANNEX – STATISTICS .................................................................................................... 61 

III.1 IRREGULAR MIGRATION ....................................................................................... 61 

III.2 ASYLUM ..................................................................................................................... 62 

III.3 RETURN AND READMISSION ................................................................................ 65 

1 

 
 
 
 
I. INTRODUCTION 

The Commission Staff Working Document (CSWD) accompanies the Third Report under the 
Visa  Suspension  Mechanism.  This  CSWD  builds  on  the  information  and  the  assessment 
provided in the First and Second Report under the Visa Suspension Mechanism and provides 
a  detailed  analysis  of  the  most  relevant  and  recent  developments  relating  to  the 
implementation of the visa liberalisation benchmarks. 

The  statistical  part  of  this  report  covers  26 EU  Member  States  that  apply  Regulation  (EU) 
2018/1806  of the European Parliament  and of the Council of 14 November 2018 listing the 
third  countries  whose  nationals  must  be  in  possession  of  visas  when  crossing  the  external 
borders and those whose nationals are exempt from that requirement and the four Schengen 
Associated  Countries  (hereinafter  referred  to  as  "Schengen+  area")1.  The  assessment  of 
specific areas is based primarily on the information provided to Eurostat2 by countries in the 
Schengen+  area,  information  provided  by  EU  Agencies  (Europol,  eu-LISA,  the  European 
Asylum  Support  Office  (EASO)  and  the  European  Border  Coast  Guard  Agency  (Frontex)3, 
the  exchange  of  information  between  the  Commission,  European  External  Action  Service 
(EEAS) and authorities of the visa-free countries as well as 2019 country enlargement reports, 
where  applicable.  The  report  has  also  benefitted  from  information  provided  by  some  EU 
Member States in the Visa Working Party, including by taking into account the assessment by 
the Finnish Presidency on 16 October 20194.  

II. ASSESSMENT OF SPECIFIC AREAS IN LINE WITH VISA LIBERALISATION 
BENCHMARKS 

II.1 WESTERN BALKANS 

II.1.1 ALBANIA 

Albania  was  the  first  country  for  which  an  EU  Member  State  has  sent  a  notification  to  the 
Commission  in  the  context  of  the  Visa  Suspension  Mechanism.  The  Netherlands  on  2  June 
2019  notified  the  Commission,  in  line  with  Regulation  2018/1806,5  that  it  faced 
circumstances that could lead to triggering the Visa Suspension Mechanism for Albania. The 
concerns of the Netherlands were predominantly linked to public order and security, but also 

2 

1    Belgium,  Bulgaria,  Croatia,  Cyprus,  the  Czech  Republic,  Denmark,  Germany,  Estonia,  Greece,  Spain, 
France, Italy, Latvia, Lithuania, Luxembourg, Hungary, Malta, the Netherlands, Austria, Poland, Portugal, 
Romania,  Slovenia,  Slovakia,  Finland  and  Sweden,  as  well  as  Switzerland,  Norway,  Liechtenstein  and 
Iceland.  
Eurostat  statistics  are  continuously  updated,  with  the  authorities  of  countries  in  the  Schengen+  area 
providing  more  accurate  data  throughout  time.  Bearing  this  in  mind,  statistics  for  the  previous  years 
(including the period covered by the First and Second Report under the Visa Suspension Mechanism) have 
been retroactively updated with the most recent information available at the moment of writing. 
European Border and Coast Guard Agency (EBCG), commonly referred to as Frontex. 
Presidency report. The Visa Suspension Mechanism. Reference: 13174/19. 

3  
4 
5   Regulation 2018/1806 of 14 November 2018 listing the third countries whose nationals must be in 

possession of visas when crossing the external borders and those whose nationals are exempt from that 
requirement. 

2 

 
 
 
 
 
                                                 
to irregular migration and unfounded asylum applications lodged by Albanian nationals. After 
careful examination of the content of the notification received from the Netherlands and based 
on  the  available  information  and  the  relevant  data,  the  Commission  responded  to  the 
Netherlands on 1 July 2019 and informed the European Parliament and the Finnish Presidency 
that  it  considered  that  the  circumstances  to  trigger  the  Visa  Suspension  Mechanism  for 
Albania  were  not  met.  At  the  same  time,  the  Commission  stressed  that  Albania  should 
continue  and  intensify  efforts  to  prevent  and  fight  organised  crime  and  address  the  issue  of 
unfounded asylum applications.  

Irregular migration, asylum applications, readmission 

Detections of illegal border crossing: According to Frontex data, the number of detections 
of illegal border crossings of Albanian nationals decreased by by 55%, from 4,593 detections 
in 2018 to 2,055 detections in 2019. The number of detections of illegal border crossings of 
Albanian nationals continues to be the highest of all the countries analysed in this report. 

Detections of illegal border crossing by nationals of Albania 

2019 

2018 

2017 

2016 

2015 

2 055 

4 593 

7 401 

5 475 

9 459 

Source: FRAN and JORA data (as of 06/02/20) 

Refusal  of  entry  at  the  external  borders:  The  number  of  refusals  of  entry  for  Albanian 
nationals in the Schengen+ area decreased by 9% in 2019 (from 21,515 in 2018 to 19,670 in 
2019).  As  in  previous  years,  in  2019  the  most-affected  EU  Member  State  in  terms  of  total 
numbers was  Greece. Despite the decrease,  Albanian nationals  were at  the top  of the list of 
Western Balkan visa-free nationals to be refused entry at the EU external borders in 2019. 

2010 

2 195 

Refusals of 
entry for 
nationals 
of Albania 
Schengen+ 
area 
Greece 
Italy 
Croatia 
Hungary 
Slovenia 
Eurostat, last update 13/05/20 

1 015 
575 

50 
250 

: 

: 

2011 

15 990 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

12 495 

12 260 

13 240 

15 835 

30 305 

34 310 

21 515 

19 670 

9 000 
4 930 

7 415 
2 920 

: 

210 
805 

180 
1 065 

4 845 
3 105 
1 125 
840 
1 260 

3 800 
3 375 
1 560 
1 400 
1 410 

4 440 
3 760 
1 730 
1 795 
1 410 

15 930 
5 280 
1 955 
1 855 
1 310 

17 045 
6 495 
2 380 
1 955 
1 125 

11 075 
: 
2 670 
2 345 
975 

5 145 
4 795 
2 855 
2 090 
1 150 

Illegal stay: The number of Albanian nationals found to be illegally staying in the Schengen+ 
area in 2019 increased by 6% compared to the year before (from 32,355 in 2018 to 34,410 in 
2019) after having decreased in 2018 by 14% compared to 2017. The overal number is  still 

3 

 
 
 
 
 
 
 
 
one  of  the  highest  among  the  countries  monitored  in  this  report.  Greece  and  Germany 
remained the most affected EU Member States also in 2019.  

Illegal stay by 
nationals of 
Albania 

Schengen+ 
area 
Greece 
Germany 
France 
Italy 
Hungary 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

52 280 

16 660 

17 795 

25 815 

29 895 

47 775 

33 480 

37 475 

32 355 

34 410 

47 120 
460 
560 
2 820 
135 

11 225 
545 
1 495 
1 715 
55 

10 525 
855 
1 750 
2 230 
65 

15 555 
1 345 
3 170 
2 265 
285 

15 090 
1 920 
5 255 
2 390 
575 

16 910 
17 995 
5 540 
2 555 
670 

11 335 
10 520 
4 635 
2 270 
440 

13 280 
10 640 
5 095 
2 330 
780 

11 190 
6 570 
4 355 
3 025 
1 070 

10 030 
7 480 
4 430 
3 225 
2 220 

Eurostat, last update 11/05/20 

Asylum applications: The number of asylum applications (including repeat  applications) in 
the Schengen+ area in 2019 decreased for the fourth year in a row. Between 2018 and 2019 it 
decreased by 5%, with 18,555 applications lodged in 2019 compared to 19,615 applications 
lodged  in  2018.  As  in  2018,  France  remained  the  most  affected  EU  Member  State  in  2019, 
with 9,235 asylum applications lodged by Albanian nationals (however, with a year-over-year 
decrease of 4%). Italy saw a 21% increase in asylum applications lodged compared to 2018, 
whereas  Germany  and  Greece  observed  a  11%  and  8%  decrease,  respectively.  The  asylum 
recognition rate6 in the Schengen+ area decreased from 7.6% in 2018 to 5.6% in 2019. 

While there was  a downward trend, Albania remained at the top of all the Western Balkans 
visa-free  countries  in  2019  in  terms  of  the  number  of  asylum  applications  lodged  by  its 
nationals in the Schengen+ area. 

Yearly total 
number of 
asylum 
applications 
by nationals 
of Albania 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

2 685 

1 720 

Schengen+ 
area 
France 
Greece 
Germany 
Italy  
Belgium 
Eurostat, last update 12/03/20 

515 
695 
45 
35 
245 

505 
275 
85 
45 
1 290 

6 670 

9 685 

15 185 

66 715 

30 840 

24 070 

19 615 

18 555 

2 705 
385 
250 
65 
1 075 

5 065 
580 
1 295 
115 
775 

3 000 
570 
8 110 
175 
730 

3 650 
1 005 
54 760 
425 
825 

7 445 
1 425 
17 230 
365 
815 

12 130 
2 450 
6 090 
470 
880 

9 665 
3 320 
2 895 
1 295 
670 

9 235 
3 055 
2 565 
1 570 
680 

As  regards  first-time  asylum  applications  lodged  by  Albanian  nationals  in  the  Schengen+ 
area, the situation is similar to that in the case of total asylum applications. In 2019, 15,825 
first-time  asylum  applications  were  lodged  by  Albanian  nationals,  compared  to  16,750 

6  

For the purposes of this report, asylum recognition rate is calculated as the share of all positive decisions at 
first instance (refugee status, subsidiary protection, humanitarian protection under national law) in the total 
number of decisions at first instance. 

4 

 
 
 
                                                 
applications  lodged in  2018 (6% decrease).  In 2019, France received the highest number of 
first-time asylum applications (8,010), followed by Greece (2,795).  

Yearly total 
number of  first 
time asylum 
applications by 
nationals of 
Albania 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

880 

Schengen+ 
area 
France 
Greece 
Germany 
Italy  
Belgium 
Eurostat, last update 12/03/20 

480 
n/a 
40 
35 
200 

2 475 

6 050 

9 085 

14 385 

64 895 

27 545 

20 595 

16 750 

15 825 

475 
275 
80 
45 
1 180 

2 645 
385 
230 
65 
605 

5 015 
580 
1 245 
115 
475 

2 845 
555 
7 865 
175 
495 

3 220 
915 
53 805 
425 
610 

6 945 
1 300 
14 855 
365 
650 

11 425 
2 345 
3 775 
465 
670 

8 300 
3 125 
1 875 
1 290 
505 

8 010 
2 795 
1 695 
1 545 
540 

The  number  of  asylum  applications  lodged  by  Albanian  nationals  continued  to  decrease  in 
2020, with 2,895 applications in the first quarter of 2020, 44% less than in the same period of 
2019. France remained the main destination of Albanian asylum seekers, although the number 
of applications lodged in the country decreased by 57% year-on-year. 

Asylum 
applications 
by 
nationals of 
Albania 
Schengen+ 
area 

France 

Greece 

Germany 

Italy 

Belgium 

Jan 
2019 

Feb 
2019 

Mar 
2019 

Apr 
2019 

May 
2019 

Jun 
2019 

Jul 
2019 

Aug 
2019 

Sep 
2019 

Oct 
2019 

Nov 
2019 

Dec 
2019 

Jan 
2020 

Feb 
2020 

Mar 
2020 

1 750 

1 635 

1 745 

1 610 

1 625 

1 435 

1 655 

1 300 

1 435 

1 755 

1 375 

1 195 

1 135 

1 135 

625 

835 

220 

360 

130 

70 

890 

220 

235 

105 

45 

960 

275 

155 

140 

45 

885 

255 

215 

115 

40 

800 

345 

195 

180 

35 

675 

280 

165 

170 

30 

790 

315 

230 

145 

60 

665 

220 

195 

70 

50 

645 

240 

210 

100 

85 

925 

270 

195 

150 

85 

615 

225 

230 

155 

65 

550 

190 

185 

105 

70 

435 

195 

265 

105 

65 

420 

225 

240 

75 

60 

300 

75 

100 

35 

35 

Eurostat, last update 09/06/20 

Readmission  and  return7:  EU  Member  States  praise  the  good  implementation  of  the  EU–
Albania  readmission  agreement.  Readmission  is  functioning  well,  with  the  country  swiftly 
honouring  readmission  requests  from  EU  Member  States  both  of  own  and  of  third  country 
nationals. The number of persons returned dropped from 18 765 in 2018 to 15,370 in 2019. 
While the return rate was above 100%8 in 2017, it dropped to 66% in 2018 and 50% in 2019, 
with  Greece  and  France  returning  more  than  half  of  all  returnees  from  the  Schengen+  area. 
Since EU Member States report good cooperation, this decrease may be due to the processing 

7  

8  

The  Schengen+  area  figures  for  readmission  and  return  do  not  include  the  figures  for  Switzerland  and 
Iceland, as no full data is available for both countries on the  number of persons ordered to leave and the 
number of persons effectively returned to a third country. 
For the calculation of the return rate, the number of returnees in a given year is compared to the number of 
return  orders  in  that  same  year.  A  return  rate  higher  than  100%  indicates  that  the  country  is  effectively 
catching up on a backlog from previous years. 

5 

 
 
 
 
                                                 
of  large  volumes  of  decisions  or  a  backlog  in  previous  years  and  possibly  secondary 
movements.  

2017 

Returned 

Ordered 
to leave 

Return 
rate 

Ordered 
to leave 

2018 

Returned 

Return 
rate 

Ordered 
to leave 

2019 

Returned 

Return 
rate 

Schengen+ 
area 
France 
Greece 
Italy 
Germany 
Belgium 

27 720 

29 840 

108% 

28 570 

18 765 

66% 

30 815 

15 370 

6 360 
9 135 
2 330 
4 330 
1 470 

3 235 
11 165 
1 230 
10 395 
760 

51% 
122% 
53% 
240% 
52% 

8 930 
8 740 
3 035 
2 435 
1 040 

3 715 
6 505 
1 380 
3 720 
630 

42% 
74% 
45% 
153% 
61% 

10 900 
8 795 
3 225 
2 710 
1 100 

3 375 
4 585 
1 530 
2 380 
745 

50% 

31% 
52% 
47% 
88% 
68% 

Eurostat, last update 11/05/20 

Cooperation on migration and border management 

In  June  2019,  the  Albanian  Government  adopted  a  National  Strategy  on  Migration  and  its 
Action Plan (2019-2022), in order to address the shortcomings in its migration policy as well 
as to establish a high-level co-ordination mechanism for the governance of migration. A new 
law  on  asylum  is  under  preparation  with  a  view  to  further  aligning  with  the  EU  acquis.  In 
December 2019, Albania adopted additional measures to prevent trafficking in human beings. 
The new draft of the national strategy for diaspora 2021-2025 and its related action plan was 
finalised in June 2019. 

Albania has  continued to  strengthen its operational  cooperation with  the EU Member States 
most  affected  by  irregular  migration  from  Albania  and  asylum  applications  by  Albanian 
nationals. A Belgian police liaison officer representing the Benelux countries has been posted 
at  the  Dutch  Embassy  in  Albania  and  a  Dutch  police  officer  has  been  deployed  in  Albania 
since  July  2018.  Three  Albanian  police  liaison  officers  are  currently  posted  to  France  to 
support  the  French  law  enforcement  authorities  in  investigating  criminal  cases  where 
Albanian  nationals  are  involved,  including  those  involved  in  organising  asylum  seekers’ 
journeys to France. A French liaison officer is located in Tirana to assist on exit checks. The 
bilateral  action  plan  between  Albania  and  France  of  July  2017  on  addressing  unfounded 
asylum applications lodged by Albanian nationals was reinforced in March 20199. 

The  Albanian authorities  have  in  particular worked  on  raising  awareness  among  the 
population  on  the  rights  and  obligations  of  the  visa-free  regime and  launched information 
campaigns,  as  recommended  in  the  Commission’s  previous  Reports  under  the  Visa 
Suspension  Mechanism.  Campaigns  carried  out  by  the  Albanian  authorities  so  far10  include 
the  production  and  distribution  of  leaflets  and  posters  with  information  on  the  rights  and 
obligations of Albanian citizens while traveling in the Schengen+ area, as well as penalties for 
violations  of  these  obligations.  Similar  types  of  information  are  also  published  regularly  on 

9     https://www.interieur.gouv.fr/fr/Actualites/Communiques/Rencontre-avec-M.-Sander-Lleshaj-ministre-de-

l-Interieur-albanais 

10   The Albanian National Strategy on Migration and its Action Plan for 2019-2022, includes among its key 
priorities the organisation of regular awareness-raising campaigns to inform Albanian citizens of the rules 
and conditions of visa-free travel in the EU. 

6 

 
 
 
 
 
 
 
 
                                                 
the  official  Facebook  account  of  the  Albanian  State  Police.  In  2017  and  2018,  the  project 
“Prevention of unsafe migration from  Albania to EU countries” funded by Belgium and the 
Netherlands  was  implemented  in  co-operation  with  the  International  Organisation  for 
Migration.11  A  similar  campaign  funded  by  the  Netherlands  is  being  implemented  in  2020. 
Return operations are often covered in the national media, including interviews with returnees 
and Albanian authorities, with the purpose of acting as a deterrent.  Rules on visa free travel 
and  movement  to  and  within  the  Schengen+  area  and  additional  measures  taken  by  the 
Albanian  authorities  are  published  on  the  website  of  the  Ministry  for  Europe  and  Foreign 
Affairs,12 Ministry of Interior13 and of the Albanian State Police.14 

The Albanian authorities have also introduced tighter border checks, including through more 
thorough  exit  interviews.  Strengthened  examination  of  minors  travelling  abroad  and  their 
accompanying persons has continued. As a result of the implementation of such measures, the 
number of Albanian nationals prevented from travelling abroad increased from 6,390 in 2016 
to 12,400  in  2017  and  finally  to  20,268  in  2018. Data  from  2019  show  that  the  number  of 
persons  prevented  from  travelling  abroad  has  declined  by  30%  in  comparison  to  the  same 
period in 2018 (from 20,268 to 14,224). This decline could be attributed to better awareness 
of travellers to meet all the requirements and present all necessary documents when travelling 
abroad.  At  the  same  time,  according  to  Frontex,  the  detection  of  Albanian  nationals  using 
fraudulent documents, including EU passports, increased by 64% between 2018 and 2019.  

Albania is the first country in the region to have signed a European Border and Coast Guard 
(Frontex)  Status  Agreement  with  the  EU  on  5  October  2018,  which  entered  into  force  on  1 
May  2019.  The  Status  Agreement  was  followed  on  21  May  2019  by  a  deployment  of  joint 
European Border and Coast Guard teams to Albania’s border with Greece. This operation has 
significantly  contributed  to  the  detection  and  interception  of  illegal  crossings  of  the  border. 
More  irregular  migrants  are  now  apprehended  at  the  border  rather  than  in  Tirana  or  other 
urban areas. Despite limitations related to the outbreak of COVID-19, the operation continues 
to yield good results. By June 2020, 20 EU Member States participated in this joint operation 
and  over  12,000  irregular  migrants  were  apprehended.  Albania  also  has  a  working 
arrangement  with  Frontex  to  strengthen    operational  cooperation.  The  Agency’s  second 
liaison  officer to  the Western  Balkans with  a regional  mandate covering  Albania, Kosovo*, 
and North Macedonia is expected to be posted in Tirana in autumn 2020.  

Albania’s  visa  policy  is  not  yet  fully  aligned  with  the  EU’s,  including  with  the  EU  lists  of 
countries  whose  nationals  require  a  visa  and  those  who  are  exempt  from  this  requirement. 
Albania has a visa free regime with Kazakhstan, Kuwait, Turkey, and China, which are not on 
the  EU’s  visa-free  list.  Between  April  and  October  each  year,  Albania  lifts  its  visa 
requirement  for  citizens  from  Bahrain,  Belarus,  Oman,  Qatar,  Russia,  Saudi  Arabia  and 
Thailand, a practice, which is not in line with the EU acquis. 

11  

In the framework of this project, awareness-raising meetings and workshops were held in the regions of 
Durres, Diber, Kukës, Elbasan, Shkodra, Korça, Vlora, Fier, Gjirokastra, Tirana, Berat, Lezha with the 
participation of various government agencies and institutions. 

12   https://punetejashtme.gov.al/levizja-e-lire-ne-vendet-e-hapesires-shengen 
13   https://mb.gov.al/wp-content/uploads/2018/01/16-07-26-03-38-58.pdf 
14   https://www.asp.gov.al/index.php/sherbime/2014-11-13-14-56-17 
* 

This designation is without prejudice to positions on status, and is in line with UNSCR 1244/1999 and the 
ICJ Opinion on the Kosovo declaration of independence. 

7 

 
 
                                                 
As a consequence of the COVID-19 crisis, Albania closed its borders on 16 March 2020 and 
subsequently declared a state of emergency on 24 March. The latter was lifted on 23 June. As 
of  22  March  all  commercial  flights  were  cancelled.  On  1  June,  Albania  opened  all  land 
borders with its neighbours. During this period, Albanian authorities repatriated around 2,500 
citizens from abroad (and primarily from the EU) through chartered repatriation flights. Some 
commercial flights (Vienna, Belgrade, and Athens) resumed on 15 June. The EU has provided 
EUR 50 million to Albania to fight COVID-19.  

Public order and security 

Albanian-speaking organised crime groups are poly-criminal and are particularly active across 
a broad range of criminal activities in the EU, although they cannot be linked to Albania or to 
Albanian  nationals  alone.  Albanian  speaking  organised  crime  groups  are  present  in  major 
European harbours that are the primary entry points for cocaine into the EU, such as Antwerp, 
Rotterdam, Hamburg, and Valencia. They are also among the key actors in the heroin trade in 
the  EU.  Albanian  speaking  organised  crime  groups  active  in  France,  Belgium  and  the 
Netherlands also facilitate illegal migration of Albanian irregular migrants and smuggle them, 
in particular to the United Kingdom. According to Europol, they are also frequently involved 
in  the trade of illegal  firearms and remain the most visible groups in  domestic burglaries in 
several EU Member States. 

According to Europol, Albanian nationals specifically are among the most frequently reported 
non-EU suspects for serious criminal offences. They are also among the most prevalent users 
of fraudulent documents on intra-Schengen air movements. 

In 2018 and 2019, Albanian authorities intensified efforts to crack down on organised crime. 
A  greater number of large police operations15 targeting organised  crime  groups  led to  high-
profile  arrests  and  important  indictments,  also  as  a  result  of  closer  cooperation  with  EU 
Member States and Europol. 

As regards the overall track-record in  the fight  against organised  crime, the number of new 
cases related to criminal organisations referred to prosecution has increased from 34 in 2017 
to 53 in 2018. In 2019, there were 50% referrals more, with 79 cases. In the first three months 
of 2020, five new cases related to criminal organisations and structured criminal groups were 
referred to prosecution. As regards indictments, there were seven in 2017, five in 2018 and 13 
in 2019 for organised crime specifically, thus showing an increasing trend. Eight people were 
convicted at  final  instance in  2017, eight  in  2018 and one in  2019.   There is  a considerable 
gap between the numbers of new referrals and final convictions. The justice reform currently 
underway is expected to lead to a more efficient follow-up in judicial proceedings and more 
final  convictions.  Moreover,  in  January  2020,  the  Albanian  government  adopted  a  special 
package  introducing  preventive  measures  to  enhance  its  capacity  to  counter  criminal 
organisations and step up its fight against corruption, organised crime and terrorism, focusing 
in  particular  on  seizure  and  confiscation  of  criminal  assets.  This  package  provides  a  set  of 
important  new  investigative  tools  put  at  disposal  of  the  Special  Prosecution  Office  (SPO) 
within the newly  established Special Anti-Corruption and Organised Crime Structure.  Since 
its  establishment  in  December  2019  until  mid-June  2020,  the  SPO  has  taken  over  from  the 

15   See the Commission’s 2019 Albania enlargement report SWD(2019) 215 final, at p. 33-34. 

8 

 
 
 
 
 
 
 
                                                 
Serious Crimes Prosecution office 215 criminal proceedings (167 are still under investigation 
while investigation in 48 proceedings has been concluded). 

Following  the  adoption  of  the  package,  the  new  “Power  of  Law  Operation”  Unit  of  the 
Albanian State Police seized over 174 criminal assets belonging to organised crime suspects 
by  mid-June  2020.  Since  the  entry  into  force  of  the  temporary  measures  until  mid-June,  84 
organised crime cases have been reported that involved seizures of assets. 

A coordinated approach between Albanian institutions, cooperation with EU Member States, 
and checks by the Albanian police to tackle the cultivation and trafficking of cannabis have 
brought  positive  results.  Albania  is  the  only  country  in  the  region  that  allows  an  intrusive 
monitoring mechanism by a third country in carrying out airborne monitoring of its territory. 
In  2018,  there  was  a  significant  decline  in  the  number  of  cannabis  crops  detected  by  the 
airborne surveillance campaign carried out by the Italian Guardia di Finanza and co-financed 
by  the  EU.  In  addition  to  airborne  surveillance,  the  police  carried  out  helicopter  and  drone 
monitoring of suspicious areas, and was active in inspecting greenhouses and warehouses. In 
2019,  the  number  of  identified  cannabis  plantations  and  narcotic  plants  eradicated  and 
destroyed  has  increased  compared  to  2018  (90,175  plants  destroyed  in  2019  compared  to 
35,985 in 2018), but remain at a low level in comparison to 2016 when 753,468 plants were 
destroyed. At the same time, there was a substantial increase in hashish seizures (from 363.5 
kg in 2018 to more than one ton in 2019).  

Albania  is  pursuing  a  thorough  and  comprehensive  justice  reform,  which  aims  at 
strengthening  the  professionalism  of  the  judiciary  and  rebuilding  trust  in  this  sector.  This 
reform  also  includes  the  temporary  re-evaluation  of  all  judges  and  prosecutors  (the  vetting 
process), which has advanced steadily, producing tangible results. The process is expected to 
strengthen  the  effectiveness  of  the  judiciary  and  the  overall  efforts  to  fight  corruption  and 
organised  crime.  The  vetting  process  has  continued  despite  the  impact  of  COVID-19 
pandemic.  Although  hearings  were  temporarily  suspended  due  to  lockdown,  investigative 
activities on vetting dossiers have continued through remote exchanges. The vetting hearings 
resumed on 3 June 2020. To date, of the total 811 magistrates that have to undergo vetting, 
the vetting institutions have completed 250 vetting cases at first instance, including all priority 
dossiers. Overall, 64% of the vetting dossiers processed so far have resulted in dismissals or 
voluntary resignations by the assesse.  

Albania  is  also  carrying  out  the  re-evaluation  (vetting)  of  officers  of  the  State  Police, 
Republican Guard, and Service for Internal Affairs and Complaints at the Ministry of Interior, 
The  evaluation  is  based  on  personal  integrity,  professional  capacity  and  verification  of 
officers’  assets.  Approximately  250  officers  of  all  ranks  had  resigned  before  this  vetting 
began. The vetting process and its results remain crucial to restore public trust in the judiciary 
and law enforcement bodies of the State. 

A working arrangement between Albania and the European Monitoring Centre for Drugs and 
Drug Addiction was initialled in October 2018 and signed in March 2019. This arrangement 
will  enable  crucial  expertise  to  be  provided  to  the  Albanian  authorities  in  the  field  of  data 
collection  and  on  data  itself,  as  well  as  open  the  possibility  for  enhanced  exchange  of 
expertise  and  data  on  new  psychoactive  substances,  on  experiences  regarding  health  and 
social  responses  to  drug  problems.  It  will  also  support  the  further  approximation  of  the 

9 

 
 
 
   
 
 
 
Albanian  national  legislation  and  policies  with  EU  legislation  and  policies  on  drug  related 
issues.  

In  February  2019,  Albania  adopted  a  new  National  Strategy  on  Small  Arms  and  Light 
Weapons  for  the  period  2019-2024.  It  also  adopted  a  corresponding  Action  Plan  for  2019-
2021.  Albania  also  participates  the  EU  Policy  Cycle  to  tackle  serious  and  international 
organised crime / European multidisciplinary platform against criminal threats (EMPACT) on 
firearms.  The  Firearms  Focal  Point  was  established  on  24  April  2019,  comprised  of 
representatives  from  all  Police  Departments  and  hosted  within  the  Department  of  Criminal 
Police  at  the  Directorate  of  Criminal  Information  Analysis.  Albania  is  also  involved  or 
partnering  up  in  several  other  EMPACT  priorities,  such  as  ‘facilitation  of  illegal 
immigration’,  ‘organised  property  crime’,  or  ‘drugs  trafficking’  and  ‘trafficking  in  human 
beings’.  

In  November  2018,  a  liaison  agreement  on  the  secondment  of  a  Europol  liaison  officer  in 
Albania was ratified and in June 2019, the Europol liaison officer was posted in Tirana, the 
first one in the Western Balkans. The liaison officer deployed has helped to further strengthen 
existing cooperation between Albania  and the EU Member States’ police forces in  the fight 
against organised crime and to further enhance police capacity to assess main organised crime 
threats. 

In  November  2019,  the  Eurojust-Albania  Cooperation  Agreement  entered  into  force.  The 
Agreement  aims  to  further  facilitate  judicial  cooperation  between  EU  and  Albanian 
practitioners therefore enhancing the fight against transnational organised crime.  

Between  2012  and  2015,  144  foreign  terrorist  fighters  travelled  from  Albania  to  Syria. 
According  to  the  authorities,  there  have  been  no  new  departures  since  2015.  An  estimated 
number of 79 Albanian nationals remain in Syria. Some 45 individuals have returned so far. 
Albania was the first country in the Western Balkans, together with North Macedonia, to have 
signed the bilateral implementing arrangement on counter-terrorism with the Commission on 
9 October 2019. This arrangement is a follow-up to the EU-Western Balkans Joint Counter-
Terrorism  Action  Plan  signed  in  October  2018.  The  priority  actions  to  be  taken  by  the 
Albanian authorities in 2019 and 2020 include strengthening local  communities’ capacity to 
prevent and counter violent extremism, tackling the possible return of foreign terrorist fighters 
and  their  families,  better  addressing  radical  content  online,  amending  legislation  on  anti-
money  laundering  and  countering  terrorism  financing,  increasing  financial  investigative 
capacities, and addressing illicit firearms trafficking. Albania submitted its first report on the 
implementation of the arrangement in June 2020. 

In the area of anti-corruption in Albania, the policy framework depicted in the Inter-sectoral 
Strategy  against  Corruption  2015-2020  and  its  Action  Plan(s)  2018-2020  and  2019-2023 
present  a  set  of  key  measures  for  prevention,  repression  and  awareness-raising.  The  overall 
positive  trend  as  regards  the  track-record  of  investigations,  prosecutions  and  convictions  in 
the  fight  against  corruption  continued,  although  it  requires  further  structured  and  consistent 
actions.  Final  convictions  for  high  level  officials  remain  rare  and  this  remains  an  important 
priority. 

The Albanian Parliament in June 2019 adopted "Moneyval package" to address deficiencies 
in  the  Albanian  system  for  tackling  money-laundering  and  terrorist  financing  highlighted  in 

10 

 
 
 
 
  
 
 
 
the  Council  of  Europe’s  Moneyval  report  of  December  2018.  On  21  February  2020,  the 
Financial  Action  Task  Force  (FATF)  listed  Albania  among  the  jurisdictions  with  strategic 
deficiencies  in  the  area  of  Anti-Money  Laundering  (AML)/Combating  the  Financing  of 
Terrorism  (CFT)  and  proposed  an  action  plan  targeting  the  most  serious  deficiencies  to  be 
implemented  by  October  2021  to  allow  Albania  to  be  removed  from  the  FATF  “grey  list”. 
Albania has made a high-level political commitment to implement the FATF action plan and 
the  implementation  of  the  measures  of  the  Plan  has  started  despite  the  COVID-19  crisis,  in 
particular  by  conducting  a  risk  analysis  regarding  banking  products  and  service  and  the 
misuse  of  legal  entities.  In  April  2020,  the  Albanian  government  notified  the  European 
Commission  its  commitment  to  align  with  the  body  of  acquis  on  anti-money  laundering, 
notably by developing the legal basis for the establishment of a beneficial ownership registry 
and a centralised bank account register. 

In  2019,  Albania  took  steps  to  amend  the  Law  on  Citizenship,  which  would  potentially 
establish an investor citizenship scheme. In October 2019, the Commission addressed a letter 
to  the  Albanian  authorities  asking  for  clarifications  in  this  regard  and  alerting  the  Albanian 
authorities about the inherent risks and possible consequences of introducing such a scheme. 
The  Commission  underlined  that  Albania  should  refrain  from  any  measure  that  could 
jeopardise attainment of the EU's objectives, when using its prerogatives to award nationality. 
The  Albanian  Parliament  is  still  expected  to  examine  the  draft  law.  As  highlighted  in  its 
Report on Investor Citizenship and Residence Schemes in the European Union of 23 January 
201916, the Commission is closely monitoring whether any scheme put in place by countries 
with  visa-free  access  to  the  EU  could  be  used  by  investors  from  visa-required  countries  to 
bypass the regular Schengen visa procedures, posing a migratory and security risk.  

II.1.2 BOSNIA AND HERZEGOVINA 

Irregular migration, asylum applications, readmission 

Detections of illegal border crossing: According to Frontex data, the number of detections 
for illegal border crossings has been decreasing since 2015. Only 23 people were detected in 
2019,  while  150  detections  of  illegal  border  crossings  were  recorded  in  2015.  With  the 
exception  of  one,  all  detections  were  made  by  Croatia,  mostly  at  the  country’s  land  border 
with Bosnia and Herzegovina. 

Detections of illegal border crossing  

2019 

2018 

2017 

2016 

2015 
Source: FRAN and JORA data (as of 06/02/20) 

23 

26 

85 

89 

150 

16   Report from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions on Investor Citizenship and Residence Schemes in the 
European Union, COM(2019) 12 final.  

11 

 
 
 
 
 
 
 
                                                 
Refusal of entry at the external borders: Between 2018 and 2019, the number of refusals of 
entry  decreased  by  20%  from  5,320  cases  in  2018  to  4,270  in  2019.  Croatia  is  the  most 
affected country, followed by Slovenia, Hungary, Germany and Sweden. 

Refusals of 
entry for 
nationals 
of Bosnia and 
Herzegovina 
Schengen+ 
area 
Croatia 
Slovenia 
Hungary 
Germany 
Sweden 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

865 

1 695 

1 610 

6 045 

4 910 

5 185 

5 150 

5 145 

5 320 

4 270 

: 

: 

: 

630 
140 
20 
0 

1 230 
210 
35 
10 

1 215 
225 
30 
5 

4 515 
1 145 
240 
35 
10 

3 540 
865 
360 
30 
25 

3 525 
865 
585 
45 
50 

3 525 
720 
570 
35 
80 

3 520 
745 
405 
75 
105 

3 985 
670 
305 
75 
105 

3 030 
685 
215 
105 
90 

Eurostat, last update 13/05/20 

Illegal  stay:  In  2019,  the  number  of  nationals  from  Bosnia  and  Herzegovina  found  to  be 
illegally  staying  in  the  Schengen+  area  increased  by  10%,  with  4,290  illegal  stays  in  2019 
compared  to  3,915  in  2018.  Nationals  of  Bosnia  and  Herzegovina  accounted  for  7%  of  the 
illegal  stayers  from  Western  Balkans  visa-free  countries  detected  last  year,  while  Germany 
(22%) and Slovenia (35%) continued to be the most affected countries also in 2019.  

Illegal stay by 
nationals of 
Bosnia and 
Herzegovina 

Schengen+ 
area 
Germany 
Slovenia 
Austria 
Croatia 
Hungary 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

2 345 

2 795 

2 920 

3 220 

3 950 

3 575 

3 640 

4 130 

3 915 

4 290 

650 
400 
180 

790 
555 
175 

1 095 
140 
245 

: 

: 

: 

60 

95 

110 

1 330 
115 
275 
195 
175 

1 640 
175 
255 
400 
250 

1 715 
175 
70 
390 
290 

1 440 
495 
180 
395 
280 

1 450 
900 
260 
340 
330 

1 285 
735 
290 
330 
310 

1 500 
955 
370 
295 
265 

Eurostat, last update 11/05/20 

Asylum applications: The number of asylum applications (including repeat applications) has 
continued  to  follow  a  stable  decreasing  trend  since  2014.  More  specifically,  1,895  asylum 
applications were submitted in 2019 against 2,280 in 2018 (17% decrease). In 2019, France 
received  the  highest  number  of  asylum  applications,  followed  by  Germany,  with  both 
Member  States  recording  a  decrease  compared  to  2018.  The  asylum  recognition  rate  in  the 
Schengen+ area decreased from 10.6% in 2018 to 7.2% in 2019. 

Yearly total 
number of 
asylum 
applications by 
nationals of 
Bosnia and 
Herzegovina 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

12 

 
 
 
 
 
Schengen+ 
area 
France 
Germany 
Netherlands 
Italy 
Sweden 

2 295 

2 965 

6 395 

7 320 

10 895 

9 100 

4 495 

2 790 

2 280 

1 895 

500 
355 
10 
815 
120 

250 
405 
30 
285 
970 

785 
2 370 
70 
275 
1 555 

925 
4 845 
85 
180 
520 

845 
8 475 
130 
170 
495 

400 
7 475 
125 
135 
540 

480 
3 105 
295 
130 
155 

780 
1 435 
70 
85 
160 

925 
845 
60 
215 
100 

870 
630 
95 
90 
85 

Eurostat, last update 12/03/20 

As regards first-time asylum applications lodged by nationals from Bosnia and Herzegovina 
in the Schengen+ area, figures for 2019 confirmed the decreasing trend observed since 2014, 
which  is  similar  to  that  observed  above  for  total  asylum  applications  (including  repeat 
applications). In 2019, 1,365 first-time asylum applications were lodged compared to 1,675 in 
2018.  France,  Germany,  the  Netherlands,  Italy  and  Sweden  were  the  EU  Member  States 
recording the highest number of first-time asylum applications in 2019.  

Yearly total 
number of first 
time asylum 
applications by 
nationals of 
Bosnia and 
Herzegovina 
Schengen+ 
area 
France 
Germany 
Netherlands 
Italy 
Sweden 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

2 040 

2 620 

5 695 

5 475 

7 945 

6 070 

3 170 

1 845 

1 675 

1 365 

485 
300 
5 
815 
120 

235 
305 
25 
285 
970 

765 
2 025 
70 
275 
1 555 

895 
3 325 
85 
175 
480 

820 
5 705 
125 
165 
460 

340 
4 635 
120 
135 
495 

410 
1 915 
295 
125 
155 

690 
705 
65 
70 
125 

830 
410 
50 
200 
80 

790 
285 
70 
65 
65 

Eurostat, last update 12/03/20 

The number of asylum application lodged by nationals of Bosnia and Herzegovina continued 
to decrease in 2020, with 390 applications in the first quarter of 2020, 26% less than in the 
same  period  of  2019.  France  remained  the  main  destination  of  asylum  seekers  from  Bosnia 
and Herzegovina; the number of applications lodged in the country decreased by 12%  year-
on-year. 

Asylum 
applications 
by nationals 
of Bosnia 
and 
Herzegovina 

Schengen+ 
area 

France 

Germany 

Italy 

Sweden 

Netherlands 

Jan 
2019 

Feb 
2019 

Mar 
2019 

Apr 
2019 

May 
2019 

Jun 
2019 

Jul 
2019 

Aug 
2019 

Sep 
2019 

Oct 
2019 

Nov 
2019 

Dec 
2019 

Jan 
2020 

Feb 
2020 

Mar 
2020 

235 

145 

150 

125 

140 

125 

160 

200 

125 

175 

170 

125 

155 

150 

70 

100 

25 

10 

20 

65 

60 

5 

15 

0 

75 

45 

5 

5 

10 

55 

35 

20 

0 

5 

50 

55 

10 

5 

5 

70 

30 

5 

10 

10 

55 

70 

0 

10 

10 

100 

55 

5 

5 

20 

85 

25 

0 

10 

0 

80 

70 

5 

10 

0 

95 

50 

10 

0 

5 

70 

35 

0 

5 

10 

55 

75 

10 

0 

0 

85 

40 

5 

10 

0 

85 

45 

30 

0 

5 

0 

Eurostat, last update 09/06/20 

13 

 
 
 
 
  
 
Readmission and return: As regards the implementation of the readmission agreement with 
the  EU,  the  level  of  cooperation  reported  by  EU  Member  States  was  good.  The  return  rate 
dropped from 54% in 2018  to 40% in 2019. The yearly number of return decisions issued to 
nationals of Bosnia and Herzegovina increased but the number of people effectively returned 
decreased in 2019 compared to 2018. Since EU Member States report good cooperation, this 
decrease may be due to the processing of large volumes of decisions or a backlog in previous 
years and possibly secondary movements.  

2017 

Returned 

Ordered 
to leave 

Return 
rate 

Ordered 
to leave 

2018 

Returned 

Return 
rate 

Ordered 
to leave 

2019 

Returned 

Return 
rate 

Schengen+ 
area 
Croatia 
Slovenia 
Germany 
France 
Austria 

3 795 

760 
465 
1 020 
310 
170 

2 685 

71% 

3 220 

1 725 

54% 

3 730 

1 495 

40% 

575 
35 
1 260 
130 
170 

76% 
8% 
124% 
42% 
100% 

705 
445 
615 
450 
190 

445 
35 
465 
205 
235 

63% 
8% 
76% 
46% 
124% 

735 
685 
670 
545 
285 

365 
50 
340 
160 
285 

50% 
7% 
51% 
29% 
100% 

Eurostat, last update 11/05/20 

Cooperation on migration and border management 

The legislation on foreigners is broadly in line with the acquis; it needs to be further aligned 
as  regards  access  to  rights,  notably  for  vulnerable  migrants.  A  strategy  and  action  plan  on 
migration and asylum for 2016-2020 are in place. Bosnia and Herzegovina should develop a 
realistic contingency plan to cope with a potential additional influx. 

The  number  of  persons  irregularly  entering  Bosnia  and  Herzegovina  has  increased 
significantly  since  2018.  In  2019  the  authorities  detected  29,302  migrants  on  the  border  or 
through  in-land  activities,  compared  to  23,977  in  2018.  Overall  the  top  three  declared 
countries of origin were Pakistan, Afghanistan and Iraq. As of mid-June 2020, approximately 
7,000  migrants  and  asylum  seekers  are  present  in  the  country.  Some  5,500  are  sheltered  in 
seven EU-funded temporary reception centres. Facilities remain insufficient to ensure shelter 
and protection to those in need, despite a progressive increase in accommodation capacities.  
The  competent  bodies  are  significantly  understaffed  and  underequipped.  The  coordination 
body  on  migration  has  not  been  able  to  allocate  suitable  accommodation  facilities  for 
reception centres across the country. 

The  response  to  increased  migration  remains  inadequate  and  shows  significant  institutional 
and  coordination  weaknesses.  Political  inaction  and  negative  rhetoric  undermine  the  timely 
provision  of  protection  and  assistance,  as  regards  access  to  the  asylum  procedure,  to 
healthcare, to accommodation and basic services in line with international standards.  

The authorities should  take over full  responsibility  for the management of reception centres 
and  identify  publicly  owned  facilities  for  appropriate  additional  accommodation  capacities 
across  the  whole  territory  of  Bosnia  and  Herzegovina;  entity,  cantonal  and  local  authorities 
should participate and cooperate in the process. Operational coordination mechanisms should 
be significantly strengthened. 

14 

 
 
 
 
 
 
  
 
 
 
The legal framework for border control, is is implemented smoothly. The country adopted an 
integrated border management (IBM) Strategy and Action Plan for 2019-2023 with the aim of 
further  aligning  with  the  EU  Acquis  and  best  practice.  Following  the  increased  influx  of 
refugees  and  migrants  in  2018  and  2019,  the  authorities  have  redeployed  available  border 
guards, but the response remains inadequate. Combined efforts in fighting human smuggling 
resulted in higher detection rates. 

Bosnia  and  Herzegovina  initialled  a  European  Border  and  Coast  Guard  (Frontex)  Status 
Agreement with the EU in January 2019. Its ratification is pending.  Following the entry into 
force of the new European Border and Coast Guard Regulation, the Commission is  working 
with  Bosnia  and  Herzegovina  in  view  of  the  ratification  and  entry  into  force  of  the  Status 
Agreement. 
The  country  is  a  signatory  to  a  number  of  agreements  with  neighbouring  countries.  The 
Border  Police  cooperates  with  Frontex  and  Interpol  at  a  satisfactory  level.  Bosnia  and 
Herzegovina participates in the Western Balkan risk analysis network (WB-RAN) under the 
aegis of Frontex. 

The  country  has  no  agreement  with  the  European  Asylum  Support  Office  (EASO).  
Cooperation currently takes place under an IPA-II regional project. A roadmap for this project 
for 2020-2022 is under discussion.  

As  a  consequence  of  the  COVID-19  crisis,  Bosnia  and  Herzegovina  declared  the  state  of 
natural  or  other  disasters  on  18  March,  restricting  domestic  and  international  movement  of 
persons.  The  Republika  Srpska  entity  declared  a  state  of  emergency  from  28  March  to  20 
May.  As  of  30  March  all  commercial  flights  were  cancelled  until  1  June,  when  the  flights 
resumed.  
As  part  of  the  EU’s  global  response  to  the  COVID-19  pandemic  Bosnia  and  Herzegovina 
country  will  benefit  from  EUR  80.2  million,  of  which  EUR  7  million  for  urgent  medical 
supplies and  EUR 73.2 million for socioeconomic recovery.  

Public order and security 

According  to  Europol,  nationals  of  Bosnia  and  Herzegovina  are  among  the  most  frequently 
reported nationalities for organised property crimes in the EU. Organised crime groups from 
the country are involved in home theft, violent burglaries and rip-deals as well as in human 
trafficking.  The  country  is  also  a  destination  country  for  vehicles  stolen  in  various  Member 
States.  Europol  indicates  that  cases  of  corruption  in  sport  have  recently  been  detected  in 
Bosnia and Herzegovina. 

The country has several strategies in place, notably on organised crime, trafficking in human 
beings  and  IBM.  However,  the  legal  framework  needs  to  be  harmonised  across  the  country 
and further aligned with the EU  acquis. There  are systemic shortcomings in  the operational 
cooperation  of  law  enforcement  agencies,  due  to  the  lack  of  harmonisation  of  criminal 
legislation in the country, exacerbated by weak institutional coordination, and a very limited 
exchange of intelligence.  Criminal organisations operating in the country take advantage of 
legal and administrative loopholes. The police is vulnerable to political interference. Financial 
investigations  and  asset  seizures  are  largely  ineffective.  A  proactive  approach  remains 
fundamental to countering criminal infiltration of the political, legal and economic systems. 

15 

 
 
 
 
 
 
  
The legal framework for the fight against drugs in Bosnia and Herzegovina needs to be partly 
aligned with the EU acquis notably on minimum rules on drug-related criminal offences and 
sanctions.  Bosnia  and  Herzegovina  does  not  have  a  National  Drugs  Observatory  and  a 
National Early Warning System on psychoactive substances. The country cooperates with the 
European Monitoring Centre for Drugs and Drugs Addiction (EMCDDA). 

Bosnia  and  Herzegovina’s  counter-terrorism  legislation  is  largely  aligned  with  the  EU 
acquis and relevant international law. In November 2019, Bosnia and Herzegovina signed a 
bilateral  implementing  arrangement  on  counter-terrorism  with  the  Commission.  This 
arrangement  is  a  follow-up  to  the  Joint  EU-Western  Balkans  Action  Plan  on  Counter-
Terrorism  signed  in  October  2018.  It  sets  out  concrete  steps  for  enhanced  cooperation  in 
countering terrorism and preventing violent extremism until the end of 2020. The capacities 
and effectiveness of the Counter Terrorism Task Force and the counter-terrorism department 
of  the  state-level  Prosecutor’s  Office  need  significant  strengthening.  A  contact  point  for 
cooperation with Eurojust on counter-terrorism cases needs to be appointed. 

Bosnia and Herzegovina remains a country of origin, transit and destination for trafficking in 
human beings for labour exploitation, sexual exploitation, begging and forced marriages. The 
legislation on the issue needs to be further aligned with the EU acquis, notably for sanctions.  
A  new  Strategy  and  Action  Plan  2020-2023  on  trafficking  in  human  beings  was  adopted  in 
January  2020.  Country-wide  coordination  operates  smoothly,  but  its  role  should  be 
strengthened.  Bosnia  and  Herzegovina  should  improve  its  technical  capacities  for  swift 
reaction to trends in trafficking in human beings on the basis of risk analysis and intelligence 
gathering.  Decisive  efforts  are  needed  to  ensure  the  effective  implementation  of  the  new 
strategy  and  improve  the  results  in  preventing  and  countering  trafficking  in  human  beings. 
Bosnia and Herzegovina lacks a national  referral mechanism for identified potential victims 
of trafficking.  

There is no overall policy for carrying out financial investigations on a systematic basis, and 
the  results  of  investigations  so  far  have  been  insignificant.  The  system  for  collection  and 
analysis of statistics on asset seizure and confiscation needs to be improved. The confiscation 
of  criminal  assets  needs  to  become  a  strategic  priority  in  the  fight  against  organised  crime, 
terrorism and high-level corruption. Freezing of assets needs to be used more systematically 
and the management of frozen assets needs to be strengthened. Financial investigations into a 
person’s  assets  should  continue  after  a  criminal  conviction  in  order  to  fully  execute  a 
previously  issued  confiscation  order.  A  rigorous  and  credible  system  of  checks  of  asset 
declarations of judicial office holders is needed.  

Bosnia  and  Herzegovina  has  no  comprehensive  strategy  on  the  fight  against  firearms 
trafficking. The legislation is not fully in line with the EU acquis and data collection should 
be improved. The country should establish a firearms focal point. 

No  progress  has  been  made  towards  the  establishment  of  the  National  Contact  Point 
foreseen  in  the  Operational  Agreement  in  place  since  March  2017  between  Bosnia  and 
Herzegovina and Europol. As a result, Bosnia and Herzegovina’s participation in Europol’s 
analysis projects has been put on hold and the use of Europol products and services has been 
very  limited.  The  absence  also  makes  it  impossible  for  the  Bosnia  and  Herzegovina 
authorities  to  post  a  Liaison  Officer  at  Europol’s  headquarters  in  The  Hague.  Bosnia  and 
16 

 
 
 
 
 
 
 
Herzegovina  must  fully  implement  the  agreement  with  Europol,  including  by  establishing  a 
national contact point. 

The country has overall established an institutional, legal and strategic framework to combat 
corruption. However, there are still significant gaps and corruption is widespread. The lack of 
harmonisation  of  the  criminal  codes  of  the  two  entities  seriously  hamper  anti-corruption 
efforts.  The  fragmentation  of  strategies  and  action  plans  across  the  different  levels  of 
government  makes  their  implementation  less  effective.  Enforcement  capacity  should  be 
strengthened  and  there  is  a  need  for  a  robust  criminal  justice  response  to  high-level 
corruption. 

II.1.3 MONTENEGRO 

Irregular migration, asylum applications, readmission 

Detections of illegal border crossing: According to Frontex data, the number of detections 
of illegal border crossings by nationals of Montenegro remain low in absolute terms, with no 
detections recorded in 2019 (compared to two in 2018; four in both 2017 and 2016, and 15 in 
2015). 

Detections of illegal border crossing  

2019 

2018 

2017 

2016 

2015 
Source: FRAN and JORA data (as of 06/02/20) 

0 

2 

4 

4 

15 

Refusal of entry at the external borders: Between 2018 and 2019, the number of refusals of 
entry for the nationals of Montenegro in the Schengen+ area decreased by 9% (from 515 in 
2018 to 470 in 2019). As in the previous years, Croatia and Hungary were the most affected 
countries also in 2019.  

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

Refusals of 
entry for 
nationals 
of Montenegro 
Schengen+ 
area 
Croatia 
Hungary 
Slovenia 
Germany 
Italy 

315 

300 

250 

: 

: 

: 

115 
110 
25 
20 

115 
85 
35 
15 

95 
75 
20 
15 

Eurostat, last update 13/05/20 

400 

45 
195 
60 
15 
10 

385 

90 
145 
60 
10 
10 

335 

65 
140 
40 
10 
0 

515 

170 
140 
40 
30 

545 

150 
175 
60 
10 
10 

: 

470 

160 
135 
55 
25 
20 

435 

90 
170 
70 
25 
25 

17 

 
 
 
 
 
 
 
 
 
 
Illegal  stay:  The  number  of  Montenegrin  nationals  found  to  be  illegally  staying  in  2019 
increased  by  10%  (885  in  2019  compared  to  805  in  2018).  Germany  remained  the  most 
affected Member State.  

Illegal stay by 
nationals of 
Montenegro 

Schengen+ 
area 
Germany 
Hungary 
France 
Slovenia 
Switzerland 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

375 

175 
20 
70 
30 
0 

390 

165 
25 
80 
35 
0 

500 

230 
45 
85 
5 
25 

610 

245 
40 
140 
5 
35 

810 

275 
105 
200 
5 
25 

770 

430 
75 
120 
5 
40 

565 

250 
85 
95 
40 
35 

810 

380 
175 
80 
50 
30 

805 

375 
175 
75 
40 
25 

885 

375 
185 
75 
65 
40 

Eurostat, last update 11/05/20 

Asylum applications: The number of asylum applications (including repeat applications) in 
the  Schengen+  area  continued  to  decrease  in  2019  and  was  the  lowest  in  the  last  ten  years. 
With  410  applications  lodged  in  2019  compared  to  640  in  2018,  the  year-on-year  decrease 
was 36%. The most affected Member State was  Germany, followed by France. The  asylum 
recognition rate in the Schengen+ area increased from 4.1% in 2018 to 4.9% in 2019. 

Yearly total 
number of  
asylum 
applications by 
nationals of 
Montenegro 

Schengen+ 
area 
Germany 
France 
Italy 
Belgium 
Netherlands 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

435 

95 
80 
155 
25 
0 

670 

125 
200 
20 
50 
0 

1 305 

395 
320 
35 
105 
0 

975 

380 
245 
30 
20 
10 

1 870 

4 115 

1 830 

1 270 
260 
10 
20 
5 

3 635 
160 
10 
15 
10 

1 625 
110 
15 
15 
25 

970 

730 
150 
10 
5 
5 

640 

370 
205 
10 
10 
5 

410 

250 
70 
20 
20 
20 

Eurostat, last update 12/03/20 

First-time  asylum  applications  lodged  by  Montenegrin  nationals  in  the Schengen+  area  also 
continue to decrease. In 2019, a decrease of 40% was recorded in comparison to the previous 
year. The overal numbers are relatively low, with  Germany and France remaining the most 
affected EU Member States in 2019.  

Yearly total 
number of first 
time asylum 
applications by 
nationals of 
Montenegro 

Schengen+ 
area 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

370 

555 

1 140 

790 

1 485 

3 635 

1 545 

520 

375 

225 

18 

 
 
 
 
Germany 
France 
Italy 
Belgium 
Netherlands 

60 
70 
155 
10 
0 

80 
195 
20 
45 
0 

290 
315 
35 
90 
0 

260 
245 
30 
5 
10 

935 
255 
10 
20 
5 

3 235 
145 
10 
10 
10 

1 380 
80 
15 
5 
25 

340 
115 
10 
5 
5 

150 
175 
5 
5 
5 

95 
50 
20 
20 
20 

Eurostat, last update 12/03/20 

The number of asylum applications lodged by Montenegrin nationals continued to decrease in 
2020, with  110 applications in  the first  quarter of 2020, 8% less than in  the same period of 
2019.  Germany  remained  the  main  destination  of  Montenegrin  asylum  seekers  and  the 
number of applications lodged in the country increased by 6% year-on-year. 

Asylum 
applications 
by nationals 
of 
Montenegro 

Schengen+ 
area 

Germany 

France 

Netherlands 

Belgium 

Italy 

Jan 
2019 

Feb 
2019 

Mar 
2019 

Apr 
2019 

May 
2019 

Jun 
2019 

Jul 
2019 

Aug 
2019 

Sep 
2019 

Oct 
2019 

Nov 
2019 

Dec 
2019 

Jan 
2020 

Feb 
2020 

Mar 
2020 

40 

35 

0 

0 

0 

0 

35 

25 

5 

0 

0 

0 

45 

20 

10 

5 

5 

5 

20 

15 

0 

5 

0 

0 

30 

10 

5 

5 

0 

10 

15 

15 

0 

0 

0 

0 

30 

20 

10 

0 

0 

0 

30 

25 

5 

0 

0 

0 

40 

25 

5 

5 

5 

0 

35 

25 

5 

0 

5 

0 

40 

25 

10 

0 

0 

0 

15 

10 

5 

0 

0 

0 

40 

35 

5 

0 

0 

0 

40 

30 

10 

0 

0 

0 

30 

20 

10 

0 

0 

0 

Eurostat, last update 09/06/20 

Readmission and return: As attested by EU Member States, Montenegro cooperates well on 
readmission  and  return.  The  return  rate  fell  to  60%  in  2019  compared  to  73%  recorded  in 
2018.  Since  EU  Member  States  report  good  cooperation,  this  decrease  may  be  due  to  the 
processing  of  large  volumes  of  decisions  or  a  backlog  in  previous  years  and  possibly 
secondary movements.  

2017 

Returned 

Ordered 
to leave 

Return 
rate 

Ordered 
to leave 

2018 

Returned 

Return 
rate 

Ordered 
to leave 

2019 

Returned 

Return 
rate 

Schengen+ 
area 
Germany 
France 
Austria 
Luxembourg 
Netherlands 

760 

410 
105 
25 
30 
20 

Eurostat, last update 11/05/20 

820 

655 
30 
25 
35 
5 

108% 

160% 
29% 
100% 
117% 
25% 

720 

265 
180 
25 
70 
20 

525 

325 
30 
20 
20 
15 

73% 

123% 
17% 
80% 
29% 
75% 

590 

180 
135 
60 
35 
35 

355 

135 
35 
60 
15 
10 

60% 

75% 
26% 
100% 
43% 
29% 

Cooperation on migration and border management 

19 

 
 
 
  
 
 
 
 
 
 
                                                 
 
Over the past years, Montenegro has consolidated and upgraded major pieces of legislation in 
the area of migration and asylum, including the Law on Foreigners, the Law on International 
and  Temporary  Protection  of  Foreigners,  and  the  Law  on  border  control.  A  list  of  safe 
countries of origin, which includes the Western Balkans partners and Turkey, was adopted in 
December 2019. 

Montenegro has adopted an Action Plan in case of a mass influx of migrants and refugees. A 
cross-ministerial  Coordination  Committee  and  an  Operational  Team  have  been  formed  to 
coordinate the activities of the state authorities in the implementation of the Action Plan. Four 
different  projects  to  increase  the  country’s  accommodation  capacity  for  asylum  seekers, 
which  currently  amounts  to  329  beds,  are  being  carried  out  in  parallel,  including  the 
establishment of a centre with a 120-bed capacity close to the Albanian border. While most 
apprehended migrants express their intention to request asylum, the number of those actually 
lodging asylum claims declined by 38% in 2019 and most of them left before the end of the 
procedure.  

The  Ministry  of  Foreign  Affairs  has  regular  meetings  with  representatives  of  the  EU 
Diplomatic and Consular Offices accredited to Montenegro to discuss statistics on the rights 
and obligations of the visa-free regime. The Ministry has developed an e-Consular application 
providing  the  necessary  information  for  Montenegrin  citizens  travelling  abroad.  Given  the 
decreasing  trends  and  a  low  number  of  irregular  movements  and  unfounded  asylum 
applications,  in  2019  there  was  no  nation-wide  communication  campaign  on  the  rights  and 
obligations related to the visa free travel. 

The European Border and Coast Guard (Frontex) Status Agreement was signed by the EU and 
Montenegro on 7 October 2019, ratified by both sides in the course of 2020 and entered into 
force  on  1  July  2020,  providing  for  deployments  of  joint  operations.  After  Albania, 
Montenegro  is  now  the second  country  in  the  region  where  such  an  Agreement  has  entered 
into force. A working arrangement with Frontex is also in place. 

Montenegro’s visa policy is not yet fully aligned with the EU’s, including with the EU lists of 
countries whose nationals require a visa and those who are exempt from this requirement. In 
the  framework  of  its  tourism  development  policy,  Montenegro  still  exempts  nationals  from 
Russia, Armenia, Kazakhstan, Azerbaijan, Belarus, Cuba, Ecuador, Kuwait, and Turkey from 
short-term visa requirements – either on a seasonal basis for tourism purposes or permanently. 
These countries are on the EU list of countries whose citizens require a visa for the EU and 
seasonal  visa  exemption  measures  are  not  in  line  with  the  EU  acquis.  No  impact  of  these 
exemptions on irregular migratory flows into the country has been observed.  

As a consequence of the COVID-19 crisis, Montenegro closed its borders on 15 March 2020, 
but  did  not  declare  a  state  of  emergency. As  of 16  March,  all commercial  flights  were 
cancelled until 9 June. During this period, Montenegrin authorities repatriated around 17,000 
citizens from  abroad  (and  primarily  from  the  EU)  through  the  activities  carried  out  by  the 
competent  authorities,  including  charter  flights.  The  COVID-19  epidemic  was  declared 
officially over in Montenegro on 2 June. The borders were consequently opened for countries 
with less than 25 active COVID-19 cases per 100,000 citizens. The EU has provided EUR 53 
million to Montenegro to fight COVID-19. 

Public order and security 

20 

 
 
 
 
According  to  the  national  Serious  and  Organised  Crime  Threat  Essessment  (SOCTA)  since 
2013  the  number  of  organised  criminal  groups  in  Montenegro  has  been  reduced  from  20  to 
11.  However,  Montenegrin  organised  crime  groups  operate  largely  outside  the  country, 
including in EU Member States. They are active in trafficking cannabis, heroin, cocaine and 
have  direct  links  to  crime  goups  in  South  America.  Drug  trafficking  is  the  main  and  most 
profitable criminal activity of Montenegrin organised crime groups, and triggers many other 
criminal  activities,  such  as  homicides,  gang-related  murders  and  trafficking  in  firearms. 
Montenegro is also perceived as a regional platform for cigarette smuggling and as an entry 
point to the EU market. 

Over the past  years, Montenegro has enhanced international cooperation in the fight against 
organised crime  groups, whose members live and operate outside of Montenegro. Out of 26 
members of Montenegrin crime groups arersted in 2019, six were arrested abroad, based on 
Montnegro’s  international  arrest  warrants.  Montenegro’s  criminal  scene  remains  dominated 
by gang related murders (up to 44 gang-related murders occurred since 2012, including ten in 
2019). 

The authorities seized 2.4 tons of drugs in 2019, of which 2.2 tons of marijuana. Seizures of 
cocaine and heroin have surged by respectively 250% and 1300 % compared with last year, 
reflecting  international  trends.  Montenegro  participated  in  four  multi-country  police 
operations  involving  Austria,  Slovenia,  Croatia,  Italy,  Germany,  France,  the  United  States, 
Australia,  Albania,  and  Serbia.  In  a  major  international  police  operation  conducted  in 
February  2020,  5.7  tons  of  cocaine  were  seized  and  seven  crew  members,  including  four 
Montenegrin  nationals,  were  arrested  on  a  ship  navigating  from  Venezuela  to  Greece.    The 
operation was a result of cooperation between the United Kingdom, Serbia, the Netherlands, 
amongst  other  partners,  and  was  based  on  the  intelligence  provided  by  the  Montenegrin 
police.  The  number  of  investigations  into  drug  trafficking  rose  to  155  in  2019  and  eleven 
investigations  were  conducted  with  international  cooperation,  a  175%  surge  compared  to 
2018. 

Within the EU Policy Cycle/EMPACT (European Multidisciplinary Platform against Criminal 
Threats)  in  2020,  Montenegro  is  strongly  involved  in  the  priority  on  “illicit  firearms 
trafficking”,  driven  by  Spain,  notably  by  co-leading  one  of  the  operational  actions. 
Montenegro is one of the first Western Balkan partners to co-lead an operational action in an 
EMPACT  priority.  Montenegro  is  also  participating  in  several  operational  actions  in  other 
EMPACT  priorities  addressing  drugs  trafficking,  child  sexual  exploitation,  facilitation  of 
illegal immigration and organised property crime.  

As regards cigarette smuggling, cooperation has improved with EU Member States’ customs 
and  the  European  Antifraud  Office  (OLAF).  After  a  Peer  Review  mission  of  the  European 
Commission’s  Technical  Assistance  and  Information  Exchange  Instrument  (TAIEX)  found 
that  the  work  of  the  police  on  tobacco  smuggling  was  not  proactive  enough,  an  inter-
governmental  operative  group  was  set  up  to  strengthen  the  activity  of  the  law  enforcement 
bodies in this area. Law enforcement agencies worked on three large-scale investigations into 
tobacco  smuggling  took  place,  however  there  were  no  court  convictions  in  2019.  Despite 
increasing  efforts  in  this  area,  the  number  of  cases  is  still  insufficient,  considering  the 
estimated scale of tobacco smuggling from, to, and across Montenegro. 

Good  cooperation  with  Europol  and  Interpol  has  been  observed  with  more  information 
exchanged  through  their  channels.  The  amount  of  information  exchanged  through  Europol 

21 

 
 
 
reached 4,488, a stable number compared to 2018. The number of communications (59,337) 
exchanged with foreign police services through Interpol rose by 40% compared with 2018. 

Corruption  is  prevalent  in  many  areas  and  remains  an  issue  of  concern.  The  capacity 
buuilding  of  the  Anti-Corruption  Agency  continued.  However,  challenges  as  regards  its 
independence,  credibility,  impartiality  and  accountability  remain.  An  initial  track-record  of 
investigations,  prosecution  and  final  convictions  in  high-level  corruption  cases  has  been 
established.  Regional  and  international  cooperation  also  in  this  area  is  of  great  importance. 
Nevertheless,  the  criminal  justice  system  response  against  high-level  corruption  remains 
limited.  A  majority  of  cases  of  high-level  corruption  continue  to  be  concluded  with  a  plea 
bargain. 

An  asset  recovery  office  was  established  in  early  2019  within  the  department  of  the  police 
responsible for international police cooperation. The tracing, freezing and recovery of assets 
remain  led  by  the  Prosecution.  Despite  some  progress,  the  track-record  in  the  freezing  and 
confiscation  of  assets  needs  to  be  strengthened17.  In  2019,  the  High  Court  in  Podgorica 
ordered the temporary confiscation of assets with a total value of almost EUR 3,5m in three 
cases. One further residential unit was permanently confiscated in February 2020.  

For the second year in a row, Montenegro amended in December 2019 its Law on prevention 
of money laundering and terrorism financing, in order to reflect the changes in the Financial 
Intelligence Unit’s (FIU) institutional setting. The amendments aimed at ensuring compliance 
with  FATF  recommendations,  in  particular  by  ensuring  the  independence  and  operational 
autonomy of the FIU, despite the latter being now administratively a department of the Police. 
The  law  will  need  to  be  amended  again,  to  address  remaining  shortcomings  and  to  align  it 
with  the  5th  EU  Anti-Money  Laundering  Directive.  In  May  2020,  Moneyval  formally 
removed Montenegro from  the fourth  round follow-up process,  considering that the country 
had taken sufficient steps to remedy deficiencies that had been identified in 2015. The Law on 
international restrictive measure has yet to be amended to comply with the EU acquis.  

The  initial  track  record  on  money  laundering  was  further  developed,  reflecting  a  stronger 
focus and increasing capacities of law-enforcement agencies in this area. There were two final 
convictions for money laundering in 2019, both achieved through plea agreements. Two cases 
are  pending  before  the  court,  including  the  prominent  Atlas  Bank  case.  10  preliminary 
investigations  and  seven  investigations  are  on-going,  regarding  117  entities,  including  one 
case of a value of EUR 25 million. The number of final convictions and asset confiscations in 
money-laundering  cases  remain  low.  Systemic  deficiencies  in  the  criminal  justice  system, 
including the way courts handle money-laundering offences, remain to be addressed. 

In  the  area  of  firearms,  the  Strategy  for  the  control  and  reduction  of  small  arms  and  light 
weapons and ammunition for 2019-2024 was adopted in December 2018. The Action Plan on 
illicit trafficking in firearms between the EU and the South East Europe region (2015-2019) 
continued to be implemented. A firearms focal point has been established and is operational. 
It consists of a team of police officers from different services, duly trained and equipped prior 
to formal appointment. The team is in charge of data collection, analysis and exchange within 
Europol projects and with the Southeast European Law Enforcement Centre. 

17   See 2019 Montenegro country report, p.20. SWD(2019) 217 final. 

22 

 
 
                                                 
On 19 November 2019, Montenegrin authorities signed a bilateral implementing arrangement 
with  the  Commission  as  a  follow-up  to  the  joint  EU-Western  Balkans  Action  Plan  on 
Counter-Terrorism  of  October  2018.  The  priority  actions  to  be  taken  by  the  Montenegrin 
authorities include ensuring that police, judiciary and prosecution services have access to the 
necessary  training,  expertise  and  peer-to-peer  advice;  improving  institutional  awareness  on 
the prevention and countering of violent extremism, training local practitioners to detect and 
to  address  violent  extremist  tendencies,  and  taking  a  number  of  measures  against  money 
laundering and terrorist financing. 

On  22  November  2018,  Montenegro  adopted  legislation  establishing  a  three-year  investor 
citizenship  scheme,  which  was  launched  in  2019.  In  December  2019,  Parliament  enacted 
amendments  to  the  law  on  Montenegrin  citizenship.  These  confirm  the  automatic  eligibility 
for  citizenship  of  the  family  members  of  successful  applicants  to  the  investors'  citizenship 
scheme.  So  far,  the  authorities  have  received  24  applications.  Five  applications  have  been 
rejected  after  due  diligence  procedure,  while  another  five  received  a  positive  decision.  No 
passports have yet been issued to these applicants or their family members due to the COVID-
19 outbreak and the respective travel ban. As highlighted in its Report on Investor Citizenship 
and  Residence  Schemes  in  the  European  Union  of  23  January  201918,  countries  enjoying  a 
visa-free  status  to  the  EU  must  carry  out  security  and  background  checks  on  applicants  for 
investor  citizenship  schemes  to  the  highest  possible  standards.  The  Commission  is  closely 
monitoring  whether  any  scheme  put  in  place  by  countries  with  visa-free  access  to  the  EU 
could be used by investors from visa-required countries to bypass the regular Schengen visa 
procedures, posing a migratory and security risk. As a candidate country, Montenegro should 
refrain  from  any  measure  that  could  jeopardise  the  attainment  of  the  EU's  objectives,  when 
using its prerogatives to award nationality. 

II.1.4 REPUBLIC OF NORTH MACEDONIA 

Irregular migration, asylum applications, readmission 

Detections of illegal border crossing: According to Frontex data, the number of detections 
of  illegal  border  crossings  by  nationals  of  the  Republic  of  North  Macedonia  confirmed  the 
same    decreasing  trend  observed  in  the  previous  report,  with  low  figures  in  absolute  terms 
recorded from 2016. In 2017, 27 people were detected, 14 in 2018 and 10 in 2019.   

Detections of illegal border crossing  

2019 

2018 

2017 

2016 

2015 
Source: FRAN and JORA data (as of 06/02/20) 

10 

14 

27 

19 

51 

18   Report from the Commission to the European Parliament, the Council, the European Economic and Social 
Committee and the Committee of the Regions on Investor Citizenship and Residence Schemes in the 
European Union, COM(2019) 12 final.  

23 

 
 
 
 
 
  
                                                 
Refusal of entry at the external borders: Between 2018 and 2019, the number of refusals of 
entry  decreased by 12%, with  2,815 refusals  in  2019 compared to  3,185 in  2018. Countries 
close to North Macedonia, such as Hungary, Croatia, Bulgaria, Slovenia and Greece were the 
most affected.  

Refusals of 
entry for 
nationals 
of North 
Macedonia 
Schengen+ 
area 
Hungary 
Croatia 
Bulgaria 
Slovenia 
Greece 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

4 165 

3 320 

2 325 

2 465 

2 560 

2 555 

2 495 

3 200 

3 185 

2 815 

515 
: 
445 
1 090 
1 415 

555 
: 
440 
835 
950 

495 
: 
340 
475 
565 

770 
165 
170 
520 
480 

915 
275 
40 
450 
510 

755 
285 
155 
450 
395 

785 
200 
155 
355 
380 

880 
355 
180 
430 
600 

730 
510 
275 
305 
560 

615 
370 
355 
300 
295 

Eurostat, last update 13/05/20 

Illegal  stay:  In  2019,  the  number  of  nationals  of  North  Macedonia  found  to  be  illegally 
staying  increased  by  16%,  with  7,000  illegal  stays  in  2019  compared  to  6,010  in  2018. 
Germany was the most affected EU Member State, followed by Hungary.   

Illegal stay by 
nationals of 
North 
Macedonia 

Schengen+ 
area 
Germany 
Hungary 
Slovenia 
Switzerland 
Austria 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

3 625 

3 815 

3 920 

3 835 

4 505 

5 260 

4 590 

6 555 

6 010 

7 000 

1 125 
160 
420 
430 
195 

1 255 
275 
685 
530 
175 

1 805 
535 
45 
430 
200 

1 970 
395 
35 
285 
215 

2 205 
505 
40 
330 
180 

3 530 
370 
40 
420 
95 

2 560 
365 
365 
480 
140 

3 205 
1 430 
660 
370 
200 

2 685 
1 090 
765 
415 
290 

3 455 
1 210 
855 
390 
345 

Eurostat, last update 11/05/20 

Asylum  applications:  The  number  of  asylum  applications  (including  repeat  applications) 
continued to decrease in 2019, with 4,035 applications lodged in 2019 compared to 4,785 in 
2018,  a  decrease  of  16%.  Germany  continued  to  be  the  most  affected  EU  Member  State 
receiving  the  highest  number  of  asylum  applications,  although  in  lower  numbers  (2,420  in 
2018; 2,250 in 2019), followed by France which recorded a 45% decrease (1,670 in 2018; 920 
in 2019). The asylum recognition rate in the Schengen+ area decreased from 2.3% in 2018 to 
1.4% in 2019. 

24 

 
 
 
 
 
Yearly total 
number of  
asylum 
applications by 
nationals of 
North 
Macedonia 
Schengen+ 
area 
Germany 
France 
Netherlands 
Belgium 
Sweden 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

8 090 

6 565 

10 780 

11 175 

10 435 

16 110 

9 100 

6 890 

4 785 

4 035 

3 545 
595 
390 
1 740 
900 

1 755 
745 
265 
1 320 
875 

6 890 
855 
60 
835 
615 

9 415 
345 
100 
425 
455 

8 905 
235 
120 
405 
425 

14 130 
340 
110 
335 
465 

7 010 
430 
435 
165 
185 

4 760 
1 115 
120 
250 
195 

2 420 
1 670 
105 
195 
85 

2 250 
920 
325 
190 
190 

Eurostat, last update 12/03/20 

As  regards  first-time  asylum  applications  lodged  by  nationals  of  North  Macedonia  in  the 
Schengen+  area,  there  is  a  a  decreasing  trend  since  2015.  In  2019,  2,695  first-time  asylum 
applications  were  lodged  compared  to  3,380  in  2018  (20%  decrease).  The  top  five  EU 
Member  States  recording  the  highest  number  of  first-time  asylum  applications  in  2019  are: 
Germany, France, the Netherlands, Sweden and Belgium. In 2019, both Germany and France 
recorded a decrease of 10% and 48%, respectively.  

Yearly total 
number of  first 
time asylum 
applications by 
nationals of 
North 
Macedonia 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

6 605 

Schengen+ 
area 
Germany 
France 
Netherlands 
Sweden 
Belgium 
Eurostat, last update 12/03/20 

2 465 
590 
390 
900 
1 635 

5 385 

7 760 

7 465 

6 810 

10 725 

6 710 

4 385 

3 380 

2 695 

1 130 
740 
265 
875 
1 085 

4 545 
845 
55 
615 
410 

6 210 
340 
95 
430 
165 

5 615 
225 
110 
395 
170 

9 085 
315 
110 
415 
200 

4 835 
375 
430 
170 
115 

2 465 
1 050 
110 
170 
185 

1 245 
1 605 
90 
60 
125 

1 115 
835 
295 
175 
135 

The  number  of  asylum  application  lodged  by  nationals  of  North  Macedonia  continued  to 
decrease in 2020, with 650 applications in the first quarter of 2020, 59% less than in the same 
period  of  2019.  Germany  remained  the  main  destination  of  asylum  seekers  from  North 
Macedonia,  although  the  number  of  applications  lodged  in  the  country  decreased  by  67% 
year-on-year. 

25 

 
 
 
 
 
 
  
Asylum 
applications 
by nationals 
of North 
Macedonia 

Schengen+ 
area 

Jan 
2019 

Feb 
2019 

Mar 
2019 

Apr 
2019 

May 
2019 

Jun 
2019 

Jul 
2019 

Aug 
2019 

Sep 
2019 

Oct 
2019 

Nov 
2019 

Dec 
2019 

Jan 
2020 

Feb 
2020 

Mar 
2020 

640 

630 

320 

290 

230 

200 

310 

185 

305 

350 

290 

270 

305 

220 

125 

Germany 

500 

France 

Netherlands 

Belgium 

Sweden 

80 

25 

5 

0 

440 

115 

35 

20 

0 

195 

130 

110 

90 

10 

10 

5 

90 

30 

25 

10 

55 

20 

10 

15 

90 

55 

30 

5 

10 

175 

65 

35 

20 

10 

70 

60 

15 

10 

15 

120 

155 

145 

120 

200 

120 

95 

40 

20 

20 

85 

40 

20 

30 

70 

15 

20 

35 

60 

20 

25 

35 

45 

20 

20 

15 

30 

20 

20 

25 

60 

35 

5 

5 

5 

Eurostat, last update 09/06/20 

Readmission  and  return:  Readmission  is  functioning  well,  with  the  country  swiftly 
honouring  readmission  requests  from  the  countries  in  the  Schengen+  area.  The  return  rate 
decreased  from  99%  in  2018  to  78%  in  2019  (3,005  persons  were  effectively  returned  and 
3,850 ordered to leave). Austria, Germany, Greece, Luxembourg, Malta, Romania and Spain 
have a return rate in 2019 equal to or surpassing 100%. Since EU Member States report good 
cooperation,  this  decrease  may  be  due  to  the  processing  of  large  volumes  of  decisions  or  a 
backlog in previous years and possibly secondary movements.  

2017 

Returned 

Ordered 
to leave 

Return 
rate 

Ordered 
to leave 

2018 

Returned 

Return 
rate 

Ordered 
to leave 

2019 

Returned 

Return 
rate 

Schengen+ 
area 
Germany 
France 
Austria 
Belgium 
Netherlands 

4 460 

2 290 
275 
205 
480 
170 

Eurostat, last update 11/05/20 

5 580 

125% 

3 500 

3 470 

99% 

3 850 

3 005 

78% 

4 500 
150 
255 
90 
85 

197% 
55% 
124% 
19% 
50% 

1 245 
660 
210 
280 
130 

2 285 
340 
240 
105 
90 

184% 
52% 
114% 
38% 
69% 

1 230 
890 
245 
240 
205 

1 690 
375 
290 
75 
95 

137% 
42% 
118% 
31% 
46% 

Cooperation on migration and border management 

The  national  authorities continue  implementing  the  Integrated  Border  Management  Strategy 
for 2015-2019 and its Action Plan. Although the National Coordination Centre for Integrated 
Border Management prepares regular reports on risk analysis, its institutional and operational 
capacity still needs to be strengthened.  Border guards, customs and other bodies still do not 
have mutual access to databases and there is no formalised and secure information exchange 
arrangement with the appropriate security services. 

The  national  authorities  continue  to  cooperate  with  the  European  Border  and  Coast  Guard 
Agency  (Frontex),  including  participating  as  observers  in  joint  operations.  Mixed  police 
patrols are being deployed on the southern border involving members of the border police of 
Austria,  Croatia,  the  Czech  Republic,  Hungary,  Poland,  Slovakia,  Slovenia  and  Serbia 
deployed on bilateral basis, to manage migration flows. 

26 

 
 
 
 
 
 
 
 
 
   
North Macedonia initialled a European Border and Coast Guard (Frontex) Status Agreement 
with the EU in July 2018. Despite the challenges caused by the migration situation for both 
the EU and North Macedonia, Frontex Status Agreement, which provides inter alia executive 
powers  to  Frontex  teams  being  deployed  on  the  territory  of  North  Macedonia,  has  not  yet 
been  signed.  Once  the  Agreement  is  signed  and  ratified  an  operational  plan  will  need  to  be 
adopted, after which border teams can be deployed in the country at its border with the EU.  

The Ministry of the Interior is upgrading the existing database on foreigners by developing a 
new  asylum  module  to  provide  a  case-management  tool  for  processing  asylum  claims. 
Progress was made in reducing the time it takes to process asylum applications and systemic 
access to asylum continued to be ensured. However, the quality of decision-making on asylum 
procedures should be improved, including at the appeal level. Difficulties persist in providing 
translation  during  interviews  with  asylum-seekers  and  free  legal  aid  is  not  accessible  under 
the law on free legal aid in practice due to a number of requirements which asylum seekers 
are not able to fulfil. Free legal aid is provided with the support of NGOs only. 

North Macedonia continues to organise information campaigns to inform its nationals on the 
rights  and  obligations  under  the  visa  free  regime.  Information  on  visa  free  travel  to  the 
European  Union  can  be  found  through  the  Ministry  of  Foreign  Affairs  and  the  Ministry  of 
Internal Affairs.  

In addition, the implementation of preventive actions in order to avoid the abuse of the visa 
free regime is incorporated into an annual action plan implemented by all regional centres for 
border affairs. 

 In December 2012, North Macedonia introduced a modification in the law which could allow 
the  acquisition  of  citizenship  for  special  economic  interest.  While  this  does  not  raise  any 
immediate concerns, the Commission will continue monitoring this area, taking into account 
the security and migratory risks that fully fledged investor citizenship schemes may pose. 

As a consequence of the COVID-19 crisis, North Macedonia closed its borders on 16 March 
and subsequently introduced a state of emergency for consecutive periods limited in time on 
18 March. The latter was lifted on 22 June. The land borders were opened on 26 June. As of 
18 March all commercial flights have been cancelled until further notice. During this period, 
North  Macedonia  authorities repatriated 3.032  citizens from  abroad (and  primarily  from  the 
EU) through chartered repatriation flights. 

Public order and security 

Criminals  from  North  Macedonia  are  active  in  the  trafficking  and  distribution  of  drugs, 
notably  heroin  and  marijuana.  The  country  remains  a  source  of  archaeological  objects, 
religious  items  and  cultural  goods  trafficked  to  the  EU.  Returning  foreign  terrorist  fighters 
also poses a risk.  

In  2018,  good  progress  was  made  in  improving  the  country’s  track-record  of  seizing  drugs 
and  dismantling  organised  crime  groups.  There  was  an  increase  in  the  detection  of  drug-
related  criminal  offences  and  in  the  number  of  perpetrators.  The  detection  of  crimes  and 
perpetrators related to drug trafficking increased by 43%, as well as the seizure of the largest 
amount of drugs in the last 10 years.  

27 

 
 
 
 
 
 
 
 
 
 
In  2018,  investigations  resulted  in  the  dismantling  of  eight  organised  criminal  groups 
involving  46  people  trafficking  drugs.  In  2019,  six  organised  criminal  groups  have  been 
suppressed. Cooperation with neighbouring countries is good, including ad-hoc cooperation. 
In 2018, one international drug shipment of liquid cocaine was intercepted. Five international 
criminal  investigations  were  also  conducted,  confirming  the  good  cooperation  with  third 
countries including under EMPACT. 

The  National  Coordination  Centre  for  Suppression  of  Organized  and  Serious  Crime, 
operational  since  October  2018,  has  improved  its  operational  capacity.  All  relevant 
institutions  assigned  their  representatives  and  are  connected  to  the  Centre.  All  participating 
authorities  have  access  to  their  respective  databases.  The  Centre  is  focused  on  inter 
institutional exchange of information, and not inter institutional cooperation as such. Working 
in multi-disciplinary teams should be encouraged to make full use of the centre capabilities.  

A  Police  Development  Strategy  and  a  2016-2020  Action  Plan  were  established  and  are 
being implemented. The country currently develops a threat assessment on organised crime at 
the  regional  level  within  the  Southeast  European  Police  Chiefs  Association  (SEPCA).  A 
national assessment of threats of serious and organised crime in line with Europol’s Serious 
Organised Crime Threats Assessment methodology needs to be developed and should inform 
decisions on operational priorities in addressing organised crime in the years ahead.   

The  National  Coordination  Centre  for  the  Fight  against  Organised  Crime  has  significantly 
improved its operational capacity. The exchange of data with/among relevant authorities has 
been improved. The centre has demonstrated its capacity to efficiently collect, exchange, and 
analyse information.  

North  Macedonia  has  further  consolidated  its  track-record  on  investigating,  prosecuting  and 
trying  high  level  corruption  cases.  The  Commission  for  Prevention  of  Corruption  has  taken 
important  steps  to  proactively  fight  against  corruption,  involving  high-level  officials  across 
the political spectrum. The Special Prosecutor’s Office has continued, however, controversy 
around  the  racket  case  –  suspicion  of  corruption  -  caused  concerns  especially  following  the 
indictment  of  the  chief  Special  Prosecutor.  After  expiry  of  the  mandate  of  the  special 
prosecutors, cases were transferred to the Public prosecutor’s office against Organised Crime 
and Corruption. However, corruption remains an issue of concern. In March 2019, the Public 
Prosecutor’s was designated as the national Asset Recovery Office (ARO). 

Following  the  implementation  of  the  National  Strategy  for  Combating  Trafficking  in 
Human  Beings  and  Illegal  Migration  (2017-2020),  a  dedicated  Task  Force  was  set  up, 
including representatives from the Ministry of the Interior and two prosecutors from the Basic 
Public Prosecutor's Office for Prosecuting Organised Crime and Corruption. This is a positive 
step towards a greater efficiency in fighting trafficking in human beings and irregal migration 
as it ensures real time communication between the relevant authorities.  

In 2018, the authorities established a National Unit for the Suppression of Migrant Smuggling 
and  Human  Trafficking  with  the  aim  of  building  national  capacities  and  increasing  the 
efficiency of the police and prosecution in combating organised forms of migrant smuggling 
and trafficking in human beings. The interception of migrant smuggling in 2019 increased by 
60.8% compared to 2018. 

28 

 
 
 
  
 
 
 
 
 
North Macedonia participated in operations of the Balkan Task Force that was established in 
2018  with  the  aim  to  fight  against  organised  crime  groups  involved  in  the  smuggling  of 
migrants  via  the  Joint  Operational  Office  and  with  the  mediation  of  Frontex,  Interpol  and 
Europol, i.e. the European Migrant Smuggling Centre (EMSC).  

Overall  progress  was  made  at  the  operational  level  by  improving  the  effectiveness  of  the 
National Coordination Centre for the Fight against Organised Crime and participating in joint 
operations with EU Member States and neighbouring countries. However, more needs to be 
done  on  threat  assessments  and  on  prioritising  the  fight  against  money  laundering  and 
financial  crimes.  Coordination  remains  crucial  for  all  stakeholders  involved  in  fighting 
organised crime.   

The  National  Strategy  for  Control  of  Small  Arms  and  Light  Weapons  (SALW)  and  Action 
Plan  2017-2021  (revised)  was  developed  in  2018  and  adopted  in  February  2019.  The 
establishment  of  the  firearms  focal  point  is  under  way,  but  it  has  not  yet  been  put  into 
operation  due  to  the  absence  of  an  integrated  database.  Trafficking  of  firearms  is  only 
criminalised  to  the  extent  that  it  is  included  in  the  definition  of  “unauthorized  manufacture, 
possession, mediation and trade in weapons or explosive materials”. 

A  national  coordinator  has  been  appointed  to  oversee  efforts  to  combat  terrorism.  The 
Office  of  the  National  Coordinator  and  the  National  Committee  have  improved  their 
capacities  through  various  basic  and  specialised  training  and  are  more  operational. 
Cooperation  has  increased  between  law  enforcement  agencies,  intelligence  services  and 
relevant key state institutions (education, health, and social services). 

The  2018-2022  National  Counter  Terrorism  Strategy  and  the  2018-2022  Strategy  for 
Countering  Violent  Extremism,  and  their  relevant  action  plans,  by  which  the  government 
moved from a purely security based approach to a more integrated and preventive approach, 
are  being  implemented.  Community  action  teams  are  local  mechanisms  for  prevention  and 
countering  of  violent  extremism  and  have  been  set  up  in  the most  sensitive  areas.  They  are 
involving various stakeholders at local level to support prevention and early identification of 
radicalisation in the communities. Training was organised for education personnel.  

North Macedonia was the first country in the Western Balkans, together with Albania, to have 
signed the bilateral implementing arrangement on counter-terrorism with the Commission on 
9 October 2019. This arrangement is a follow-up to the EU-Western Balkans Joint Counter-
Terrorism  Action  Plan  signed  in  October  2018.  The  priority  actions  to  be  taken  by  the 
authorities  of  North  Macedonia  in  2019  and  2020  include  strengthening  counter-terrorism 
structures and strategies, including with an improved threat assessment, stepping up efforts to 
prevent  and  counter  violent  extremism,  including  with  a  multi-agency  approach  at  the  local 
level, addressing the challenges posed by radicalisation in prisons, returning foreign terrorist 
fighters and their families, establishing a national threat assessment of money laundering risks 
and improving  the  link  between  financial  intelligence  and  prosecution.  The  first  report  was 
submitted in June 2020. 

29 

 
 
 
 
 
 
 
 
 
 
 
II.1.5 SERBIA 

Irregular migration, asylum applications, readmission 

Detections of illegal border crossing: according to Frontex data, the number of detections of 
illegal border crossings of Serbian nationals remained low in absolute terms, with 29 people 
detected in 2019 compared to 73 in 2018.  

Detections of illegal border crossing  

2019 

2018 

2017 

2016 

2015 
Source: FRAN and JORA data (as of 06/02/20) 

29 

73 

84 

107 

200 

Refusal of entry at the external borders: The number of Serbian nationals refused entry was 
8,300 in  2019,  compared to  9,035 in  2018, a decrease of 8%. Hungary is the most affected 
country, with a total of 4,235 cases reported in 2019, followed by Croatia with 1,330 cases. 
84% of the refusals of entry took place at the land borders and 16% at air borders.  

Refusals of 
entry for 
nationals 
of Serbia 
Schengen+ 
area 
Hungary 
Croatia 
Slovenia 
Romania 
Germany 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

6 500 

6 620 

5 590 

9 170 

9 520 

7 850 

7 910 

8 070 

9 035 

8 300 

2 920 
: 
1 575 
455 
245 

3 580 
: 
1 245 
450 
240 

3 325 
: 
1 050 
245 
170 

5 445 
1 235 
865 
715 
170 

6 530 
730 
700 
600 
145 

4 805 
740 
700 
575 
100 

4 710 
765 
605 
510 
110 

5 275 
30 
680 
350 
140 

5 030 
1 215 
595 
490 
210 

4 235 
1 330 
655 
625 
290 

Eurostat, last update 13/05/20 

Illegal  stay:  In  2019,  the  number  of  Serbian  nationals  found  to  be  illegally  staying  in  the 
Schengen+  area  increased  by  4%,  with  13,635  illegal  stays  in  2019  comperad  to  13,090  in 
2018. In 2018, the number of illegal stays had decreased by 11% compared to 2017. Germany 
and Hungary were generally the most affected countries, followed by Austria in 2019.  

Illegal stay by 
nationals of 
Serbia 

Schengen+ 
area 
Germany 
Hungary 
Austria 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

12 585 

9 850 

11 765 

11 820 

15 400 

13 760 

11 155 

14 650 

13 090 

13 635 

2 920 
1 045 
855 

3 375 
1 585 
940 

4 350 
2 425 
1 015 

4 980 
2 275 
1 090 
30 

7 295 
3 350 
815 

7 650 
2 580 
460 

4 710 
2 455 
660 

5 725 
4 570 
855 

4 500 
3 705 
1 280 

5 040 
3 715 
1 415 

 
 
 
 
 
 
 
 
 
Slovenia 
Switzerland 

355 
0 

610 
0 

115 
745 

90 
715 

110 
665 

110 
810 

440 
850 

675 
675 

720 
725 

895 
605 

Eurostat, last update 11/05/20 

Asylum applications: The number of asylum applications (including repeat applications) by 
Serbian nationals continued to decrease in 2019, with 6,075 applications submitted compared 
to  6,425  in  2018,  a  decrease  of  5%  (between  2017  and  2018,  the  number  fell  by  23%).  In 
2019, Germany was the Member State with the highest number of applications lodged, which 
rose from 2,555 in 2018 to 2,710 (6% increase), whilst France recorded a 24% decrease from 
2,640 in 2018 to 2,000 in 2019. The asylum recognition rate in the Schengen+ area decreased 
from 7.0% in 2018 to 4.8% in 2019. 

Yearly total 
number of 
asylum 
applications by 
nationals of 
Serbia 

Schengen+ 
area 
Germany 
France 
Netherlands 
Sweden 
Belgium 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

18 845 

15 630 

21 065 

22 725 

31 170 

30 325 

13 515 

8 325 

6 425 

6 075 

6 795 
800 
65 
6 255 
2 220 

6 990 
665 
105 
2 645 
1 995 

12 810 
840 
145 
2 670 
1 095 

18 000 
700 
265 
1 670 
685 

27 145 
605 
195 
1 510 
500 

26 945 
460 
445 
1 055 
375 

10 260 
655 
945 
460 
205 

4 915 
1 730 
210 
310 
230 

2 555 
2 640 
150 
220 
200 

2 710 
2 000 
360 
240 
220 

Eurostat, last update 12/03/20 

As regards first-time asylum applications lodged by Serbian nationals in the Schengen+ area, 
figures for 2019 confirmed the decreasing trend observed since 2014. In 2019, 4,060 first time 
asylum  applications  were  lodged  compared  to  4,570  in  2018  (11%  decrease).  In  2019,  first 
time  asylum  applications  decreased  in  France  (by  28%),  while  they  slightly  increased  in 
Germany (by 4%).   

Yearly total 
number of first 
time asylum 
applications by 
nationals of 
Serbia 

Schengen+ 
area 
Germany 
France 
Netherlands 
Sweden 
Belgium 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

15 605 

11 725 

15 330 

15 080 

20 305 

19 255 

9 065 

5 290 

4 570 

4 060 

4 980 
685 
55 
6 210 
1 890 

4 580 
570 
95 
2 645 
1 410 

8 475 
755 
135 
2 670 
440 

11 460 
665 
245 
1 430 
215 

17 170 
565 
190 
1 255 
175 

16 700 
400 
440 
750 
160 

6 400 
570 
940 
270 
110 

2 330 
1 630 
175 
220 
125 

1 100 
2 510 
125 
165 
140 

1 140 
1 810 
325 
185 
165 

Eurostat, last update 12/03/20 

The  number  of  asylum  applications  lodged  by  Serbian  nationals  continued  to  decrease  in 
2020, with 1,015 applications in the first quarter of 2020, 53% less than in the same period of 

31 

 
 
 
 
2019.  Germany  remained  the  main  destination  of  Serbian  asylum  seekers,  although  the 
number of applications lodged in the country decreased by 55% year-on-year. 

Asylum 
applications 
by nationals 
of Serbia 

Schengen+ 
area 

Germany 

France 

Netherlands 

Sweden 

Belgium 

Jan 
2019 

Feb 
2019 

Mar 
2019 

Apr 
2019 

May 
2019 

Jun 
2019 

Jul 
2019 

Aug 
2019 

Sep 
2019 

Oct 
2019 

Nov 
2019 

Dec 
2019 

Jan 
2020 

Feb 
2020 

Mar 
2020 

885 

740 

540 

510 

410 

370 

450 

395 

475 

515 

420 

330 

405 

400 

210 

570 

125 

50 

55 

5 

360 

215 

60 

20 

10 

250 

215 

20 

5 

20 

235 

170 

40 

10 

15 

175 

145 

20 

15 

20 

115 

140 

40 

15 

20 

140 

185 

30 

30 

20 

145 

175 

10 

5 

20 

185 

160 

40 

20 

15 

225 

185 

25 

25 

30 

185 

165 

10 

10 

20 

120 

120 

15 

30 

25 

230 

90 

15 

25 

20 

205 

100 

25 

15 

20 

100 

50 

15 

20 

15 

Eurostat, last update 09/06/20 

Readmission and return: Serbian nationals ordered to leave the EU are in general effectively 
returned from the EU Member States to Serbia. Overall, in the Schengen+ area the return rate 
in 2019 decreased to 60% compared to 77% in  2018. Since EU Member States report good 
cooperation,  this  decrease  may  be  due  to  the  processing  of  large  volumes  of  decisions  or  a 
backlog in previous years and possibly secondary movements.  

2017 

Returned 

Ordered 
to leave 

Return 
rate 

Ordered 
to leave 

2018 

Returned 

Return 
rate 

Ordered 
to leave 

2019 

Returned 

Return 
rate 

Schengen+ 
area 
Germany 
France 
Austria 
Netherlands 
Croatia 

8 720 

3 505 
545 
845 
295 
255 

Eurostat, last update 11/05/20 

8 115 

93% 

7 665 

5 870 

77% 

8 740 

5 250 

60% 

5 295 
155 
985 
165 
170 

151% 
28% 
117% 
56% 
67% 

1 980 
1 090 
1 100 
215 
270 

2 605 
450 
1 260 
120 
150 

132% 
41% 
115% 
56% 
56% 

2 310 
1 770 
1 320 
440 
375 

1 830 
485 
1 445 
215 
195 

79% 
27% 
109% 
49% 
52% 

Cooperation on migration and border management  

As  regards  border  management,  further  progress  was  made  in  implementing  the  revised 
Integrated  Border  Management  Strategy  and  its  Action  Plan  2017-2020.  The  government 
provided funding for additional 187 border police staff. An electronic information exchange 
platform  to  be  used  by  all  IBM  agencies  is  being  set  up.  The  Inter-agency  cooperation  for 
border  management  is  taking  place,  with  the  establishment  of  an  IBM  coordination 
mechanism.  In  preparation  of  the  Schengen  action  plan  relevant  assessments  and  gaps 
analysis  were  carried  out.  Serbia  still  needs  to  create  a  single  coordination  centre  for 
exchanging police information and start preparations for setting up a SIRENE (Supplementary 
Information  Request  at  the  National  Entries)  office.  International  border  cooperation  was 
further  strengthened  and  joint  patrols  are  operating  along  the  borders  with  Montenegro, 
Bulgaria,  North  Macedonia,  Hungary,  Bosnia  and  Herzegovina  and  Romania.  The  start  of 
joint patrols with Croatia is still pending.  

32 

 
 
  
 
 
 
 
 
Information campaigns directed at raising the level of awareness on rights and obligations of 
the visa-free regime for Serbian nationals are continuously being implemented.  

Serbia signed a European Border and Coast Guard (Frontex) Status Agreement with the EU 
on 19 November 2019. As the EU has finalised its ratification procedure, the Agreement will 
enter into force once Serbia ratifies it.  It  should swiftly become operational  by  allowing for 
the deployment of Frontex teams with executive powers along its border with the EU. Joint 
preparations for the operationalisation of this agreement are ongoing. A working arrangement 
with  Frontex  is  also  in  place.  A  Frontex  regional  liaison  officer  was  posted  to  Belgrade  in 
September  2017.  Serbia  started  implementation  of  the  new  law  on  border  control  and  its 
bylaws, in relation to planning, maintenance and construction of border crossing points.  

A  point  of  concern  indicated  in  the  First  and  Second  Suspension  Mechanism  report  was 
Serbia's  decision  to  grant  visa  free  regime  to  countries  posing  a  migratory  and  security 
risk  to  EU  Member  States,  including  Iran  (2017),  Suriname  (2018)  and  most  recently 
Armenia (2019).  

In  2019,  the  number  of  people  intercepted  at  the  Serbian  border  was  4,990,  mainly  from 
Afghanistan,  Syria,  Pakistan,  Iraq,  Iran  and  Bangladesh.  Serbia  continued  to  manage  the 
effects of the increased mixed migratory flows towards the EU. Amendments to the Law on 
Foreigners  and  the  Law  on  Employment  of  Foreigners  were  adopted  in  April  2019.  These 
amendments  foresee  the  creation  of  a  single  administrative  place  for  submitting  a 
consolidated request for the temporary residence and work permit for foreigners with a long-
term  visa.  The  provisions  entered  into  force  in  January  2020.  The  rights  of  migrants  in 
proceedings  before  state  authorities  as  well  as  their  rights  pending  repatriation  have  been 
defined, and the return mechanisms improved. 

The institutional set up for fighting smuggling and trafficking in human beings, established in 
2019  within  the  Criminal  Police  Directorate  is  led  by  the  Deputy  Prosecutor  for  Organised 
Crime and includes bodies such as the Security Intelligence Agency, which were previously 
not  included. As part of organisational  changes within the Border Police Directorate, a new 
department for fighting irregular migration within the Service for Foreigners was established. 
Suspects  from  Serbia  were  among  the  main  nationalities  of  migrant  smuggling  suspects 
reported along the Western Balkan route.  

Serbia’s asylum legal framework is largely aligned with the EU acquis. Serbia still needs to 
further adapt its legislation notably as regards effective ‘access to the procedure’. By the end 
of  March  2020,  there  were  8  652  persons  hosted  in  17  official  centres.  Following  the 
declaration  of  the  state  of  emergency  due  to  COVID-19,  migrants,  refugees  and  asylum 
seekers  were  prohibited  from  leaving  the  reception  facilities  in  order  to  avoid  uncontrolled 
movements within the country. The number of persons reached 9 000 in April 2020, and two 
new  temporary  facilities  had  to  be  opened  while  some  facilities  were  at  325%  of  their 
capacity.  The  Serbian  authorities  reacted  with  a  set  of  measures  to  prevent  the  spread  of 
COVID-19 in the reception facilities and used a proactive communication policy in order to 
contain and mitigate rising tensions due to prolonged confinement and overcrowded spaces.  

The  Asylum  Office  increased  its  staff  and  recruitments  are  close  to  completed.  Resources 
were  allocated  to  the  Commissariat  for  Refugees  and  Migration  in  the  2019  budget  to 
facilitate access to various rights for persons under international protection. The Commissariat 
continued  to  allocate  funds  to  civil  society  organisations  for  carrying  out  awareness-raising 

33 

 
 
 
 
 
 
activities in host communities and at local level, as well as for the reintegration of returnees 
under the readmission agreements. 

As  a  consequence  of  the  COVID-19  crisis,  Serbia closed  its  borders  on  15  March  and 
subsequently  introduced  a  state  of  emergency  on  the  same  day.  The  latter  was  lifted  on  6 
May. On 19 March all commercial flights were cancelled until 21 May. Until 22 May Serbian 
authorities  repatriated  5,637  citizens  from  abroad  (and  primarily  from  the  EU)  through 
chartered repatriation flights.  

Public order and security  

According  to  Europol,  nationals  of  Serbia  (along  with  those  of  Albania  and  Bosnia  and 
Herzegovina) are also among the most frequently reported nationalities for organised property 
crimes in the EU. Serbian nationals also play a prominent role in trafficking and distribution 
of cocaine in the EU. Frontex reports that Western Balkan organised crime groups are mainly 
composed  of  Serbians  (as  well  as  Montenegrins  and  Croatians)  who  are  involved  in  the 
infiltration and corruption at key European international ports, and use mostly containers and 
pleasure vessels to traffic the cocaine into the EU. 

In November 2019, Serbia adopted legislation on the ratification of agreements with Europol: 
on  the  deployment  of  a  Europol  liaison  officer  in  Serbia,  and  on  amendments  to  the 
operational and strategic cooperation with Europol. A Serbian Police Liaison Officer has been 
posted at Europol since March 2017. The deployment of a Europol Liaison Officer to Serbia 
is still pending. 

The  Working  Arrangement  between  the  Serbian  Office  for  Combatting  Drugs  and  the 
European  Monitoring  Centre  for  Drugs  and  Drug  Addiction  (EMCDDA)  is  expected  to  be 
signed in the foreseeable future.  The working arrangement between the Serbian Ministry of 
Interior and the European Agency for Law Enforcement Training (CEPOL) entered into force 
in  April  2018.  It  provides  for  a  solid  basis  for  mutual  support  in  training  activities  for  law 
enforcement officials and for the exchange of best practices in cooperation mechanisms, and 
should thus help enhancing the effectiveness of fighting cross-border crime in particular. 

The implementation of the Law on Organisation and Jurisdiction of Government Authorities 
in  Suppression  of  Organised  Crime,  Terrorism  and  Corruption  is  ongoing.  The  changes 
brought by this law produced some results in terms of convictions for corruption in the special 
departments for supression of corruption in the Higher Prosecutors’ offices and special court 
departments.  However,  Serbia  still  needs  to  show  a  convincing  track  record  of  confiscating 
assets in corruption cases. 

In  November  2019,  Serbia  signed  with  the  European  Commission  an  implementing 
arrangement  for  the  implementation  of  the  Joint  Action  Plan  on  Counter-Terrorism  for  the 
Western  Balkans  which  was  signed  in  October  2018  in  Tirana.  The  priority  actions  to  be 
taken by the authorities of Serbia in 2019 and 2020 include formalise the functions and duties 
of  the  new  National  Coordinator  for  Counter-Terrorism  and  for  Preventing  and  Countering 
Violent  Extremism  of  Serbia;  step-up  activities  in  the  field  of  prevention  of  all  forms  of 
radicalism  and  violent  extremism  and   fight  money  laundering  and  terrorist  financing,  in 
particular by further developing the track record of investigation, prosecution and convictions. 
Although Serbia  appears to  have progressed well in  the  implementation of the  Action Plan, 

34 

 
 
 
 
 
 
 
more  steps  need  to  be  undertaken  in  various  areas  and  forms  of  radicalisation  and  violent 
extremism. 

A  cooperation  agreement  between  Eurojust  and  Serbia  entered  into  force  in  December 
2019.  The agreement is a positive step towards more efficient cooperation in the fight against 
organised crime through  sharing of information including personal data between Serbia and 
Eurojust  and  enabling  the  appointment  of  a  Liaison  Prosecutor  for  Serbia  at  Eurojust,  who 
took  office  on  10  March  2020.  Meanwhile,  regular  cooperation  with  Eurojust  continued 
through contact points in the Ministry of Justice and the Republic Public Prosecutor’s Office.  

The  fight  against  firearms  trafficking  remains  insufficient.  Cases  of  diversion  of  exports  of 
small  arms  and  light  weapons  have  been  reported,  which  demonstrates  inadequate  export 
controls. In June 2019, Serbia adopted a Strategy for Small Arms and Light Weapons Control 
for  the  period  2019  –  2024  with  its  accompanying  Action  Plan,  which  are  now  being 
implemented. The strategy defines five strategic goals for improving the control of weapons. 
It  also  envisages  the  establishment  of  an  expert  advisory  body  (a  ‘Council’)  and  so-called 
Firearms  Focal  Points.  In  December  2019,  a  team  for  monitoring  and  exchanging  all 
operational data regarding weapons was formed. A national Coordinator for control of small 
arms and light weapons should be designated.  

The  2017-2022  Strategy  for  the  Prevention  and  Suppression  of  Human  Trafficking 
adopted in August 2017 is being implemented. An action plan for the period 2019-2020 was 
adopted  in  July  2019.  Standard  Operating  Procedures  for  the  Treatment  of  Victims  of 
Trafficking in Human Beings were adopted in January 2019 and are currently under revision 
following their first phase of implementation. Cross-sectoral cooperation, coordination and a 
clear mutual understanding of roles and responsibilities need to be further strengthened.  

The  Centre  for  Protection  of  victims  of  human  trafficking  is  functional  with  16  out  of  24 
envisaged staff. There is a need to further enhance its capacities. A shelter for female victims 
was  opened  in  February  2019.  Although  legally  possible,  compensation  to  victims  is  rarely 
granted.  There  is  no  scheme  or  fund  for  compensation.  A  significant  fall  in  the  numbers  of 
formally  identified  victims  was  observed  in  2019,  though  an  official  set  of  indicators  to 
identify  victims  is  still  lacking.  There  were  12  individuals  convicted  (at  first  instance),  for 
trafficking  in  human  beings  (with  one  of  them  convicted  of  having  committed  the  offence 
within the context of organised crime). 
Serbia  has  further  strengthened  its  participation  in  the  EU  Policy  Cycle  for  serious  and 
international organised crime / European Multidisciplinary Platform Against Criminal Threats 
(EMPACT) for the period 2018-2021.  In 2020, Serbia participates in  15  operational  actions 
within EMPACT (out of 249 in total). This includes actions in EMPACT priorities including 
drugs,  child  exploitation  and  firearms  trafficking,  irregular  migration,  organised  property 
crime.  Serbia  took  part  in  the  annual  planning  of  operational  actions.  It  committed  to 
participate  in  four  operational  actions  together  with  EU  Member  States  to  combat  migrant 
smuggling in 2020.  

35 

 
 
 
 
 
 
 
 
II.2 EASTERN PARTNERSHIP 

II.2.1 GEORGIA 

Irregular migration, asylum applications, readmission 

Detections  of  illegal  border  crossing:  According  to  Frontex  data,  328  illegal  border 
crossings  were  recorded  in  2019,  compared  to  189  detections  in  2018.   Cyprus  was  the  top 
reporting  country.  All  illegal  border  crossing  detections  were  reported  at  external  land 
borders. 

Detections of illegal border crossing 

2019 

2018 

2017 

2016 

2015 

328 

189 

85 

119 

239 

Source: FRAN and JORA data (as of 06/02/20) 

Refusal of entry at the external borders: In 2019, refusals of entry in the Schengen+ area 
further  increased  by  17%  compared  to  2018  (from  3,805  to  4,435).  Poland,  Germany  and 
France recorded the highest shares of refusals of entry issued. To be noted that the number of 
refusals issued by Austria in 2019 increased by 1500% (240) compared to 2018 (15). 

According to Frontex, the available data also shows a mixture between refusals of entry at the 
land  and  air  borders,  with  refusals  at  air  borders  accounting  for  78%,  those  at  land  borders 
21% and those at sea borders only 1%.  The refusals were largely issued on the basis of lack 
of  proper  documents  that  justified  the  purpose  and  conditions  of  stay  (43%),  the  traveller 
being a person for whom an alert had been issued in the Schengen Information System (SIS) 
or  the  national  register  for  the  purposes  of  refusing  entry  (23%)  and  the  lack  of  sufficient 
means of subsistence (17%).  

Refusals of 
entry for 
nationals 
of Georgia 
Schengen+ 
area 
Poland 
Germany 
France 
Italy 
Greece 

2 885 
25 
15 
15 
75 
Eurostat, last update 13/05/20 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

3 315 

2 820 

8 965 

8 160 

3 185 

1 330 

810 

2 655 

3 805 

4 435 

2 340 
20 
30 
20 
75 

8 245 
20 
20 
35 
95 

7 250 
20 
30 
60 
160 

1 345 
25 
5 
70 
210 

505 
25 
25 
30 
135 

200 
40 
105 
30 
130 

335 
130 
235 
225 
885 

: 

590 
440 
460 

630 

755 
545 
440 
380 
370 

Illegal  stay:  In  2019,  the  number  of  Georgian  nationals  found  to  be  illegally  staying  in  the 
Schengen+  area  increased  by  26%,  with  11,845  illegal  stays  in  2019  compared  to  9,400  in 
2018.  The  highest  number  of  Georgian  nationals  in  2019  was  registered  in  Germany,  as  in 

36 

 
 
 
 
 
 
 
 
 
2018; France saw an increase of 41% of illegal stays by Georgians in 2019 compared to 2018. 
The detection of illegal stayers was also significantly higher in Poland in 2019. 

Illegal stay by 
nationals of 
Georgia 

Schengen+ 
area 
Germany 
France 
Poland 
Greece 
Spain 

710 
400 
75 
1 340 
440 
Eurostat, last update 11/05/20 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

5 130 

4 380 

5 490 

5 165 

6 550 

5 400 

5 235 

5 850 

9 400 

11 845 

585 
285 
95 
850 
355 

1 085 
390 
210 
795 
290 

1 380 
400 
215 
590 
245 

1 580 
905 
210 
820 
390 

1 495 
830 
135 
1 055 
455 

1 810 
615 
150 
865 
495 

2 030 
910 
180 
800 
345 

3 625 
1 440 
690 
900 
490 

3 945 
2 030 
1 585 
1 115 
570 

According to Frontex, the majority of Georgian irregular migrants travelling by air arrive at 
medium  or  small-sized  airports  in  the  Schengen  area,  using  the  services  of  low  budget 
airlines,  having  departed  from  the  regional  airport  of  Kutaisi  in  Georgia.  Return  flights  to 
Georgia from these EU airports are intermittent, which means that those refused entry are in 
theory  subject  to  detention  periods  of  up  to  one  week.  However,  given  that  the  detention 
facilities at  these airports  or in their vicinity are limited, as well as a lack of border guards, 
and limited access to qualified interpreters, this means that the refusal of persons who may not 
qualify for entry is often difficult in practice.  

Asylum  applications:  The  number  of  asylum  applications  (including  repeated  applications) 
increased by 9% in 2019 with 21,570 applications lodged in 2019 compared to 19,730 in 2018 
(11,755 in 2017). In 2019, Georgia was the top country of all countries analysed in this report 
or  the  total  number  of  asylum  application  lodged.  France  is  the  most  affected  EU  Member 
State recording 8,280 asylum applications in 2019 compared to 7,000 in 2018 (18% increase). 
The asylum recognition rate in the Schengen+ area decreased from 4.7% in 2018 to 4.1% in 
2019.  

Yearly total 
number of 
asylum 
applications by 
nationals of 
Georgia 

Schengen+ 
area 
France 
Germany 
Spain 
Cyprus 
Greece 
Italy 
Sweden 
Switzerland 
Belgium 
Netherlands 

1 435 
750 
50 
40 
1 160 
80 
290 
640 
365 
610 
Eurostat, last update 12/03/20 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

7 465 

7 450 

11 620 

9 750 

9 000 

8 110 

8 700 

11 755 

19 730 

21 570 

1 740 
525 
10 
15 
1 120 
30 
280 
400 
400 
235 

2 680 
1 430 
10 
10 
895 
65 
750 
725 
505 
250 

2 695 
2 485 
10 
0 
535 
105 
620 
655 
370 
215 

37 

1 610 
3 180 
20 
10 
350 
90 
805 
465 
430 
335 

1 325 
3 195 
55 
15 
385 
135 
890 
405 
300 
265 

1 165 
3 770 
70 
20 
690 
195 
720 
465 
240 
595 

2 100 
3 460 
350 
85 
1 105 
540 
1 100 
670 
470 
505 

7 000 
4 160 
1 020 
395 
1 460 
1 165 
1 155 
875 
695 
375 

8 280 
3 875 
1 810 
1 620 
1 605 
975 
970 
600 
565 
380 

 
 
 
 
 
As  regards  the  first-time  asylum  applications  lodged  by  Georgian  nationals,  the  trend  is 
similar  to  the  number  of  total  asylum  applications.  In  2019,  19,605  first-time  asylum 
applications  were  lodged  by  Georgian  nationals,  which  represents  an  increase  of  6% 
compared  to  2018.  Out  of  the  total,  7,735  first-time  asylum  applications  were  lodged  in 
France that recorded an increase of around 300% compared to 2017 (1,895).  

Yearly total 
number of first 
time asylum 
applications by 
nationals of 
Georgia 

Schengen+ 
area 
France 
Germany 
Spain 
Cyprus 
Greece 
Italy 
Sweden 
Switzerland 
Belgium 
Netherlands 

1 355 
665 
45 
40 
n/a 
80 
290 
530 
310 
585 
Eurostat, last update 12/03/20 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

4 855 

6 310 

10 460 

8 510 

7 820 

6 855 

7 615 

10 555 

18 445 

19 605 

1 650 
470 
10 
15 
1 120 
30 
280 
280 
330 
190 

2 540 
1 300 
5 
5 
895 
65 
750 
615 
390 
225 

2 455 
2 335 
10 
0 
515 
105 
570 
565 
210 
185 

1 370 
2 875 
20 
5 
300 
90 
735 
400 
280 
320 

1 085 
2 780 
50 
15 
295 
130 
780 
365 
195 
255 

870 
3 450 
70 
20 
585 
195 
640 
395 
185 
580 

1 895 
3 080 
245 
80 
985 
540 
1 005 
615 
415 
485 

6 755 
3 765 
910 
385 
1 340 
1 155 
1 040 
805 
640 
350 

7 735 
3 330 
1 625 
1 490 
1 460 
970 
905 
530 
500 
325 

After  years  of  increase,  the  number  of  asylum  application  lodged  by  Georgian  nationals 
decreased  in  the  first  three  months  of  2020,  with  3,795  applications  in  the  first  quarter  of 
2020, 42% less than in the same period of 2019. The number of applications lodged in France 
decreased  by  61%  year-on-year  and,  as  a  result,  it  was  overtaken  by  Germany  in  the  first 
quarter of 2020 as the main destination of Georgian asylum seekers.  
A  number  of  EU  Member  States  reported  frequent  cases  of  Georgian  nationals  requesting 
asylum for medical reasons.  

Asylum 
applications 
by nationals 
of Georgia 

Schengen+ 
area 

France 

Germany 

Spain 

Greece 

Cyprus 

Jan 
2019 

Feb 
2019 

Mar 
2019 

Apr 
2019 

May 
2019 

Jun 
2019 

Jul 
2019 

Aug 
2019 

Sep 
2019 

Oct 
2019 

Nov 
2019 

Dec 
2019 

Jan 
2020 

Feb 
2020 

Mar 
2020 

2 375 

2 085 

2 125 

2 150 

1 980 

1 590 

1 910 

1 540 

1 315 

1 600 

1 475 

1 385 

1 590 

1 410 

795 

920 

555 

215 

95 

135 

855 

395 

200 

130 

115 

815 

1 105 

365 

245 

125 

185 

320 

160 

100 

155 

925 

295 

150 

140 

175 

685 

185 

130 

115 

150 

685 

300 

155 

175 

200 

535 

265 

165 

145 

130 

355 

270 

55 

145 

125 

490 

290 

160 

155 

105 

425 

320 

95 

485 

315 

90 

500 

470 

60 

155 

120 

125 

90 

55 

65 

290 

405 

110 

125 

135 

215 

255 

35 

40 

35 

Eurostat, last update 09/06/20 

Readmission  and  return:  Georgia’s  cooperation  on  readmission  and  return  is  functioning 
well  and  is  deemed  efficient  by  the  EU  Member  States.  The  vast  majority  of  readmission 
requests  filed  in  2019  was  approved  by  the  Georgian  authorities.  The  number  of  Georgian 

38 

 
 
 
 
 
 
 
nationals  ordered  to  leave  increased  from  9,675  in  2018  to  16,280  in  2019,  mirroring  the 
increase of unfounded asylum applications. At the same time, despite the general increase of 
return operations and number of persons effectively returned, the return rate decreased from 
65% in 2018 to 52% in  2019. However, the obstacles to return can also  be attributed to the 
administrative  procedures  on  the  part  of  some  of  those  Member  States  that  account  for  the 
majority of irregular migrants to be returned. 

2017 

Returned 

Ordered 
to leave 

Return 
rate 

Ordered 
to leave 

2018 

Returned 

Return 
rate 

Ordered 
to leave 

2019 

Returned 

Return 
rate 

Schengen+ 
area 
France 
Germany 
Poland 
Greece 
Sweden 

7 285 

1 280 
2 280 
120 
840 
745 

Eurostat, last update 11/05/20 

4 575 

330 
1 705 
90 
645 
330 

63% 

26% 
75% 
75% 
77% 
44% 

9 675 

2 015 
2 285 
625 
925 
900 

6 330 

65% 

16 280 

8 520 

52% 

580 
2 145 
445 
660 
490 

29% 
94% 
71% 
71% 
54% 

7 195 
1 900 
1 430 
1 260 
1 200 

1 515 
2 245 
1 140 
955 
705 

21% 
118% 
80% 
76% 
59% 

According  to  Frontex,  in  2019  Georgia  ranked  first  among  visa  free  Eastern  Partnership 
countries  for  returns  with  1,108  nationals  returned  in  the  course  of  29  return  operations  by 
charter flights coordinated by the Agency. For many years, Georgia has been the only country 
in the region allowing returns by all types of return operations by charter flights.  

With  EU  support,  Georgia  has  developed  an  Electronic  Readmission  Case  Management 
System  (RCMS)  currently  used  by  17  EU  Member  States  who  have  continually  expressed 
satisfaction with its use. EU Member States especially appreciate the timely manner in which 
Georgia handles the applications (more than 90% readmission applications are handled within 
the limits as stipulated by the EU-Georgia readmission agreement), the very high rate (98% in 
2018) of positive replies to readmission requests and the fact that since October 2018 they are 
able  to  print  electronic  emergency  travel  documents  directly  from  the  platform.  1961  travel 
documents  have  been  issued  in  this  way  so  far.  The  system  is  often  used  as  an  example  of 
good practice of technology in use for other third countries. 

Cooperation on migration and border management 

The  first  and  second  Visa  Suspension  Mechanism  reports  already  identified  the  ongoing 
increase  of  asylum  applications,  warranting  immediate  action.  Georgia  continued  to  pro-
actively  address  this  challenge.  As  a  result,  the  EU  Member  States  and  the  Georgian 
authorities worked together on a set  of operational  measures to  decrease irregular migration 
challenges.  This  led  to  a  number  of  concrete  operational  actions  to  decrease  the  irregular 
migration and crime-related challenges that are implemented by the Georgian authorities, the 
Commission and the Justice and Home Affairs Agencies. 

To tackle the misuse of the visa-free regime, the Georgian authorities amended the Criminal 
Code  in  April  2019,  to  introduce  criminal  responsibility  and  punishment  for  those 
citizens.  Consequently, 
facilitating/organising 
facilitating/organising the conditions for illegal stay of Georgian citizens to receive financial 

irregular  migration 

of  Georgian 

39 

 
 
  
 
 
 
 
 
 
 
 
or other material  benefit in  foreign countries or facilitating/organising the provision of false 
information  about  the  violation  of  rights  and  freedoms  of  Georgian  citizens  in  Georgia  in 
order to receive asylum in a foreign country, is a punishable action.   

As part of the legislative changes, the Ministry of Foreign Affairs tightened the procedures for 
issuing  temporary  travel  documents  by  reducing  their  period  of  validity  and  restricting  the 
conditions for issuing this document. 

The Ministry of Justice adopted in November 2019, legal amendments to the “Law of Georgia 
on  the  Procedure  for  Enforcing  Non-Custodial  Sentences  and  Probation”.  The  law  aims  to 
introduce  stricter  regulations  and  clearer  criteria  to  decide  whether  a  convict  may  leave  the 
country, to extend staying abroad term or terminate the permit.  

Further steps were taken to improve the cooperation with Interpol on prompt and systematic 
reporting on lost and stolen passports. The agreement signed with Interpol on 28 May 2019 
granted Georgia direct access to Interpol's database.  

Georgia  has  a  long  track  record  of  structured  cooperation  with  the  European  Border  and 
Coast  Guard  Agency  (Frontex).  The  European  Commission  approved  in  June  2020  an 
upgraded  Working  Arrangement  between  Frontex  and  the  competent  Georgian  authorities. 
The  new  arrangement  will  allow  for  enhanced  cooperation  in  areas  such  as  information 
exchange, training, joint risk analysis, joint operations and return. 

To mitigate the flow of irregular Georgian migrants arriving at EU airports, Frontex, together 
with the Georgian authorities and EU Member States, launched an ongoing Joint Activity in 
the  framework  of  Joint  Operation  Coordination  Points  2019  Air  and  Joint  Operation  Focal 
Points 2019 Air in the spring of 2019.  In this context, Frontex experts have been deployed to 
support  the  Georgian  Patrol  Police  at  Kutaisi  international  airport,  with  the  purpose  of 
advising  Georgian  Patrol  Police  officials  on  the  admissibility  of  departing  Georgian 
passengers to the Schengen area.  Addressing the risk of document and identity fraud within 
the  irregular  migration  flow towards  the  Schengen+  area,  the dedicated  awareness  sessions 
were organised for the Patrol Police officers operating at Kutaisi International Airport. Since 
the start of the Joint Activity at Kutaisi airport, over 7100 passengers not fulfilling Schengen 
entry conditions were denied boarding by Wizzair on its flights to the EU over the period of 
March 2019 – March 2020. 

In  parallel,  four  Georgian  Patrol  police  officers  were  deployed  monthly  to  the  selected  EU 
Member States’ airports to assist local border authorities as observers in second-line activities 
in  2019 and at the beginning  of 2020. The  aim was  to  provide specialist advice and to  gain 
and exchange relevant experience.  

Due to the COVID-19 pandemic, Frontex’s operation in Georgia has been suspended since 17 
March until further notice. The Georgian counterparts are ready to further cooperate with the 
Agency in the framework of the resumed Joint Activity. 

When  it  comes  to  return  operations  Georgia  was  one  of  the  countries  of  return  which 
continued to cooperate with EU Member States and Frontex by allowing return operations to 
take place during the COVID-19 pandemic. On 26 May 2020, 107 Georgian nationals were 
voluntarily  returned  from  Cyprus  to  Tbilisi  on  a  scheduled  flight  operated  by  Georgian 

40 

 
 
  
 
 
 
 
 
Airways  supported  by  Frontex.  Furthermore,  two  national  return  operations  and  one  joint 
return operation by charter flight took place.  

The  Georgian  Migration  Department  also  actively  cooperates  with  Frontex  in  the  field  of 
return operations. In 2019, 37 return operations by charter flights to Georgia were organised 
by Frontex, involving the return of 1415 Georgian nationals. Frontex also supported Member 
States  to  implement  return operations by scheduled flights.  More specifically 382 flights  by 
20 Member States with 646 returnees in total. 

Frontex  has  been  supporting  the  facilitation  of  cooperation  with  border  and  coast  guard 
training institutions, the creation of common educational standards and the modernisation of 
education and training systems in the field of border and coast guarding in the region through 
the  Partnership  Academies  Network.  The  Academy  of  the  Ministry  of  Internal  Affairs  in 
Tbilisi,  Georgia  has  joined  the  network  of  Frontex  Partnership  Academies.  Only  three  such 
associated training institutions operate in non-EU countries. 

In  2019  and  2020,  the  EU  experts  were  deployed  through  the  European  Commission’s 
Technical  Assistance  and  Information  Exchange  Instrument  (TAIEX)  to  advise  Georgian 
authorities on necessary legislative framework improvements to conduct pre-departure checks 
at borders. 

Georgia is in the process of elaborating a new Integrated Border Management (IBM) Strategy 
indicatively for 2020-2024 and a related Action Plan. 

Georgia  continued  to  implement  its  Migration  Strategy  and  Action  Plan  and  started 
discussions on the strategy and action plan beyond 2020. It finalised its migration profile for 
2019 and made further progress on its Unified Migration Analytical System, which is partly 
operational.  The  aim  of  setting  up  a  Unified  Migration  Analytical  System  was  to  create  a 
unified  migration  data  base  and  analytical  system,  which  is  necessary  for  the  proper 
management of migratory processes. The system is able to collect migration-related data kept 
in  databases  of  various  administrative  bodies,  and  conduct  corresponding  analysis  for 
improving and proper planning of migration management and policy. 

Georgia continues to conduct information campaigns on the rights and obligations under the 
visa-free  regime,  with  a  particular  focus  on  preventing  the  misuse  of  EU  Member  States’ 
asylum procedures. The third wave of such information campaigns started in March 2018 and 
specifically targets potential asylum seekers.  

In the framework of  bilateral  cooperation with  EU Member States,  France  and Germany 
deployed  migration  liaison  officers  to  Georgia  in  2019.  Strengthened  cooperation  with  EU 
Member  States  is  also  demonstrated  by  the  signature  of  an  administrative  arrangement 
between  Georgia  and  France,  whereby  three  Georgian  police  officers  (one  in  the  area  of 
migration  and  two  in  the  field  of  organised  crime)  were  deployed  to  France  in  September 
2019.  The  main  tasks  of  the  deployed  officers  are  to  assist  their  counterparts  and  prevent 
illegal activities of citizens of Georgia in France.  

Several EU Member States and Switzerland are facing a high number of asylum applications 
from  Georgian  nationals  who  see  this  as  a  possibility  to  get  treatment  for  their  serious 
illnesses for either the lack of treatment in  Georgia or their inability to  afford the otherwise 

41 

 
 
 
 
 
 
 
 
 
 
available treatment. The most affected EU Member States established direct channels with the 
competent authorities in order to receive information on the availability of medical treatments 
in Georgia.  

Georgia  closed  its  borders  on  18  March  2020  as  a  result  of  the  COVID-19  pandemic  and 
subsequently introduced a state of emergency on 21 March. The latter measure was lifted on 
22 May. As of 21 March, all commercial flights were cancelled; this measure was prolonged 
until  31  July.  During  this  period,  the  Georgian  Foreign  Ministry  repatriated  over  13000 
Georgian  citizens  from  abroad  (and  primarily  from  the  EU)  through  chartered  repatriation 
flights.   
As  part  of  the  EU’s  global  response  to  the  COVID-19  pandemic  Georgia  will  benefit  from 
more than EUR 183 million and from upcoming projects that will help overcome the socio-
economic impact of pandemic on community-level.  

Public order and security 

Organised  crime  groups  from  Georgia  continue  to  be  reported  as  highly  active  in  the 
Schengen+  area.  Georgian  organised  groups  have  changed  their  activities  in  several  EU 
Member  States  from  domestic  burglaries  to  organised  shoplifting.  Some  of  them  have  also 
moved  to  other  countries  for  their  operations.  This  is  probably  at  least  to  some  extent  the 
result  of  increased  efforts  undertaken  by  many  EU  Member  States  in  recent  years  to  tackle 
organised crime. Furthermore, since the entry into force of the visa-free regime, several EU 
Member States reported an increase of Georgian asylum seekers amongst criminals arrested. 

According  to  Europol,  Georgian  (together  with  Moldovan)  cybercriminals  were  involved  in 
the international GozNym criminal network dismantled in May 2019 by an international law 
enforcement  operation  supported  by  Europol.19  In  September  2019,  law  enforcement  and 
judicial  authorities  from  Australia,  Georgia  and  the  USA  dismantled  an  organised  criminal 
network involved in the production and distribution of child sexual exploitation material. 

Georgia is committed to continue the process of domestic criminal police reform. The primary 
goal  of  the  reform,  launched  at  the  beginning  of  2018,  was  to  increase  the  capacity  of 
investigation, criminal intelligence and crime prevention. The reform started in Tbilisi and is 
planned  to  be  implemented  in  other  parts  of  the  country.  As  Georgian  law  enforcement 
practice demonstrates, successful investigation of crimes  committed by  so-called thieves-in-
law, as well as racketeers, drug traffickers and other criminals, is achieved through efficient 
employment of criminal intelligence activities, including covert surveillance, test purchasing 
and controlled deliveries among others.  

19   The  criminal  network  used  GozNym  malware  in  an  attempt  to  steal  an  estimated  USD  100  million  from 
more than 41 000 victims, primarily businesses and their financial institutions. The leader of the network 
came from Tbilisi in Georgia and leased access to the malware from a Russian developer. He subsequently 
recruited  accomplices  with  specialised  technical  skills  and  services  on  underground,  Russian-speaking 
online  criminal  forums.  So-called  ‘crypters’  (including  one  in  Balti  in  Moldova)  were  used  to  crypt  the 
malware so antivirus software would not detect it. 

42 

 
 
 
 
 
 
 
 
                                                 
 
As  regards  the  prevention  of  organised  crime,  Georgia  continues  to  further  improve  crime 
prevention  tools,  including  the  expansion  of  community-oriented  and  intelligence-led 
policing.  

With the EU’s support for the “Fight against Organized Crime” project, Georgia carried out 
several  training  courses,  including  on  SIENA,  and  a  trainer  manual  on  community  policing 
was  delivered  in  2019.  Two  visits  to  Europol  were  organised  in  2019  for  the  Ministry  of 
Internal  Affairs  and  the  State  Security  Service  staff  respectively  in  order  to  enhance  their 
cooperation  and  the  information  flow.  In  terms  of  institution  building,  the  project  also 
analysed  the  processes  and  put  forward  a  number  of  recommendations  on  the  most  suitable 
model  to  fight  organised  crime;  specific  attention  was  paid  to  enhancing  the  capacities  of 
Ministry of Internal Affairs to fight cybercrime. 

A specially deployed team  of experts under the  EU-ACT (previously Heroin Route) project 
continued  supporting  the  Georgian  authorities,  notably  in  fighting  (organised)  drug  crimes 
through  expert  advice,  training  courses  or  supported  visits  to  EU  Member  States  or  the 
Commission  on  Narcotic  Drugs  (CND)  sessions;  also,  specific  e-seals  were  procured  and 
delivered in December 2019, and GPS trackers in June 2020.  

In 2020, the EU signed a regional project for the Eastern Partnership countries with UNICRI 
(on asset recovery from organised crime proceeds), with CEPOL and with Europol. The latter 
also  foresees  joint  investigations,  operations  and  task  forces  with  the  EU  and  EU  Member 
State agencies.  

Through  its  criminal  justice  project  the  EU  also  supported  several  activities  linked  to  the 
operationalisation  of  the  Eurojust  agreement  with  the  Ministry  of  Justice  and  Prosecutor's 
Office, as far as it is focused on cross-border judicial cooperation in fighting organised crime.  

Georgia continues the prevention and fight against organised crime within the framework of 
its National Strategy and Action Plan. On 26 November 2018, a Decree of the Government of 
Georgia was issued to update the composition and the statute of the Interagency Coordination 
Council  for  Combating  Organised  Crime.  The  interagency  working  group  developed  the 
Action  Plan  (2019-2020)  of  the  National  Strategy  for  Combating  Organised  Crime 
(2017-2020)  centred  around  three  components:  thieves-in-law,  drug  trafficking,  and 
cybercrime.  Through  its  projects,  the  EU  engaged  to  revitalise  the  activities  of  the  Council 
and the implementation of the strategy. 

A  new  prison  reform  project  starting  in  September  2020  shall  be  primarily  focused  on 
managing medium and high risk prisoners, including thieves-in-law. 

The  National  Anti-Drug  Action  Plan  for  2019-2020  was  approved  by  the  Anti-Drug 
Council  in  May  2019.  The  Action  Plan  is  based  on  four  pillars  and  aims  at  developing 
national  responses  to  preventing  crime,  providing  adequate  treatment  and  rehabilitation 
programmes for addicts and the reduction of demand, supply and harm. Georgia continues its 
close  cooperation  with  the  European  Monitoring  Centre  for  Drugs  and  Drug  Addiction 
(EMCDDA).  The  Ministry  of  Justice  is  designated  as  the  focal  point  for  the  EMCDDA 
European  information  network  on  drugs  and  drug  addiction  (Reitox)  and  is  actively 
participating  in  the  EU4MD  project  (EU  for  Monitoring  Drugs).  In  the  framework  of  the 
project, in March 2020 EMCDDA launched a study to describe and evaluate changes in drug 

43 

 
 
 
 
 
 
 
 
markets, the availability of drug related health services and drug-use behaviour among regular 
users  of  illicit  drugs,  in  Georgia  and  Ukraine,  following  the  introduction  of  measures  to 
contain the COVID-19 pandemic. 

The National Drug Monitoring Centre was recently established within the Ministry of Justice. 
The Centre will operate under the Anti-Drug Coordination Council. The Centre will have two 
divisions – Survey Division and Consulting Division. 

As  regards  law  enforcement  cooperation,  Georgia  continued  it  efforts  to  reinforce  bilateral 
cooperation in the field of combating crime and police cooperation. Georgia has advanced its 
cooperation with partner countries and expanded the network of police attachés (deployment 
of police attachés to 16 partner states20, including 11 EU Member States).  

The network of police attachés was reinforced and this contributes significantly to the fight 
against organised crime. With their support and close cooperation with the law enforcement 
bodies of the EU Member States, 12 joint operations were conducted between January 2018 
and June 2019 in France, Greece, Spain, the Czech Republic and Sweden. As a result of the 
operations,  178  citizens  of  Georgia  (being  members  of  various  Organised  Crime  Groups) 
were arrested, including eight so-called “thieves-in-law”. 

Cooperation  with  Europol  is  based  on  the  Agreement  on  Operational  and  Strategic 
Cooperation.  Since  1  September  2018,  Georgia  has  deployed  a  Liaison  Officer  to  Europol 
Headquarters.  The  negotiations  on  the  conclusion  of  a  bilateral  Agreement  between 
Georgia and Eurojust were finalised on 29 March 2019. The Agreement entered into force 
on 27 July 2019. 

Georgia continues to implement anti-corruption reforms, though some concerns of high-level 
corruption  persist.  To  strengthen  the  national  anti-corruption  policy  framework  Georgia 
adopted  an  Anti-Corruption  Strategy  and  Action  Plan  2019-2020  reflecting  the 
anticorruption priorities in different sectors.  

In  2018,  the  Anticorruption  Agency  of  the  State  Security  Service  of  Georgia  launched 
investigations into 71 criminal cases and 133 persons have been brought  to criminal justice. 
During  the  first  half  of  2019,  investigations  into  48  criminal  cases  were  launched  and  52 
individuals have been brought to criminal justice. 

II.2.2 REPUBLIC OF MOLDOVA21  

Irregular migration, asylum applications, readmission 

Detections of illegal border crossing: according to Frontex data, the number of detections of 
illegal border crossings has been decreasing since 2015. In 2019, there were 17 illegal border 
crossings. In comparison, 25 detections of illegal border crossings were recorded in 2018. 

20   Armenia, Austria, Azerbaijan, Belarus (currently vacant), Belgium, Czech Republic, France, Germany, 

Italy, Greece, Netherlands, Poland, Spain, Sweden, Turkey (currently vacant) and Ukraine. 

21   Hereinafter referred to as Moldova. 

44 

 
 
 
 
  
  
 
 
 
 
 
  
                                                 
2019 

2018 

2017 

2016 

2015 

Detections of illegal border crossing  

17 

25 

38 

25 

60 

Source: FRAN and JORA data (as of 06/02/20) 

Refusal of entry at the external borders: After years of increase, the number of Moldovan 
nationals being refused entry at the external Schengen borders decreased from 8,170 in 2018 
to  7,940 in  2019.  Like in previous  years, the main  countries issuing a refusal  of entry  were 
Romania, Hungary and Poland. Compared to 2018, the number of cases decreased in all three 
countries.  

Refusals of 
entry for 
nationals 
of Moldova 
Schengen+ 
area 
Romania 
Hungary 
Poland 
Italy 
France 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

2 050 

2 320 

1 540 

1 150 

1 845 

2 725 

4 660 

7 270 

8 170 

7 940 

1 445 
285 
85 
40 
15 

1 200 
790 
130 
40 
10 

875 
280 
110 
40 
15 

655 
160 
100 
30 
5 

640 
460 
115 
225 
30 

725 
605 
165 
510 
70 

1 410 
835 
740 
790 
185 

1 310 
1 180 
2 465 
700 
485 

3 145 
1 595 
1 860 

: 

350 

3 005 
1 515 
1 375 
620 
295 

Eurostat, last update 13/05/20 

Illegal  stay:  The  increasing  trend  of  Moldovan  nationals  found  to  be  illegally  staying 
observed in 2018 continued in 2019. In 2019, 16,540 Moldovans were found illegally staying 
in the Schengen+ area compared to 11,280 in 2018 (a 47% increase). Hungary and Germany 
were  the  most  affected  countries  also  in  2019,  with  Hungary  in  particular  registering  an 
increase of 161% in 2019 compared to 2018.  

Illegal stay by 
nationals of 
Moldova 

Schengen+ 
area 
Hungary 
Germany 
France 
Slovenia 
Poland 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

4 335 

3 535 

3 390 

2 505 

2 245 

4 055 

7 660 

8 785 

11 280 

16 540 

370 
275 
205 
25 
70 

385 
325 
260 
20 
60 

310 
265 
865 
0 
75 

305 
260 
435 
0 
50 

425 
205 
575 
5 
80 

2 040 
285 
435 
5 
160 

3 015 
2 050 
410 
60 
870 

2 735 
2 235 
605 
360 
1 280 

2 510 
3 490 
960 
645 
1 245 

6 540 
3 870 
1 090 
1 020 
1 000 

Eurostat, last update 11/05/20 

Asylum  applications:  At  the  start  of  the  visa-free  regime  for  Moldova,  there  was  a  sharp 
increase  in  asylum  applications  (including  repeated  applications)  by  Moldovan  nationals  in 
the  Schengen+  area:  from  475  (in  2014)  to  1,850  (in  2015)  and  3,675  in  2016.  After  a 

45 

 
 
 
 
 
significant  decrease  by  more  than  50%  in  2017  (1,610  applications),  the  number  of  asylum 
applications  increased  again  to  3,830  in  2018  and  5,685  in  2019.  These  numbers  can  be 
mainly attributed to the increase in Germany, where the number of asylum applications rose 
from  270  in  2014  to  2,835  in  2019.  The  asylum  recognition  rate  in  the  Schengen+  area 
decreased from 1.4% in 2018 to 0.8% in 2019.  

Yearly total 
number of 
asylum 
applications by 
nationals of 
Moldova 

Schengen+ 
area 
Germany 
France 
Netherlands 
Italy 
Switzerland 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

695 

45 
185 
10 
15 
25 

615 

25 
240 
5 
15 
40 

435 

35 
135 
10 
10 
20 

315 

70 
55 
5 
5 
15 

475 

270 
30 
5 
20 
10 

1 850 

3 675 

1 610 

3 830 

5 685 

1 565 
30 
10 
35 
20 

3 405 
35 
15 
35 
25 

1 060 
15 
340 
45 
15 

2 375 
315 
850 
70 
5 

2 835 
1 320 
1 220 
55 
55 

Eurostat, last update 12/03/20 

As regards first time asylum applications lodged by Moldovan nationals, in 2019 the picture is 
the same as  described above for total  asylum  applications (including repeated  applications). 
4,565 first time asylum applications were lodged in the Schengen+ area, compared to 3,180 in 
2018 (an increase of 44%).  

Yearly total 
number of first 
time asylum 
applications by 
nationals of 
Moldova 

Schengen+ 
area 
Germany 
France 
Netherlands 
Italy 
Switzerland 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

360 

40 
180 
10 
15 
20 

465 

20 
235 
0 
15 
25 

340 

30 
120 
10 
10 
20 

255 

70 
55 
5 
5 
15 

450 

255 
25 
5 
20 
10 

1 810 

3 590 

1 430 

3 180 

4 565 

1 560 
30 
10 
35 
20 

3 345 
35 
15 
35 
20 

890 
15 
340 
45 
15 

1 780 
310 
830 
70 
5 

1 770 
1 300 
1 205 
55 
55 

Eurostat, last update 12/03/20 

After  years  of  increase,  the  number  of  asylum  application  lodged  by  Moldovan  nationals 
decreased so far in 2020, with 1,345 applications in the first quarter of 2020, 7% less than in 
the  same  period  of  2019.  Germany  remained  the  main  destination  of  Moldovan  asylum 
seekers, in spite of the sharp year-on-year increase of applications lodged in France (+183%). 

46 

 
 
 
 
 
 
 
 
Asylum 
applications 
by nationals 
of Moldova 

Schengen+ 
area 

Jan 
2019 

Feb 
2019 

Mar 
2019 

Apr 
2019 

May 
2019 

Jun 
2019 

Jul 
2019 

Aug 
2019 

Sep 
2019 

Oct 
2019 

Nov 
2019 

Dec 
2019 

Jan 
2020 

Feb 
2020 

Mar 
2020 

665 

410 

370 

245 

255 

230 

420 

470 

480 

670 

900 

545 

670 

480 

195 

Germany 

510 

270 

120 

105 

100 

France 

Netherlands 

Switzerland 

Italy 

55 

80 

0 

5 

45 

70 

0 

5 

45 

180 

0 

5 

55 

70 

0 

5 

75 

60 

0 

5 

80 

95 

25 

5 

5 

125 

265 

15 

0 

10 

155 

220 

80 

0 

5 

220 

185 

65 

0 

5 

295 

150 

205 

0 

10 

430 

420 

50 

365 

25 

0 

80 

5 

20 

0 

505 

120 

0 

15 

10 

265 

170 

5 

20 

5 

65 

120 

0 

5 

0 

Eurostat, last update 09/06/20 

Readmission  and  return:  The  number  of  return  decisions  issued  to  Moldovan  nationals  in 
2019  increased  compared  to  2018,  as  a  consequence  of  the  increasing  number  of  asylum 
applications. There has been a decrease in the return rate from 86% in 2018 to 63% in 2019. 
However, since EU Member States report good cooperation on readmission of own and third 
country  nationals, 
to 
underperformance  or  changes  in  the  cooperation.  Germany  and  Poland  account  for  the 
majority  of  returnees  and  have  a  return  rate  of  about  90%  while  in  Czech  Republic,  the 
country with the highest number of return orders, the return rate is only 7%. Difficulties in the 
readmission of third-country national spouses of Moldovan citizens persist for Sweden, with 
Moldova conditioning their readmission by visa application, which goes against the spirit of 
the Readmission Agreement.  

the  return  rates  should  not  be  attributed 

this  decrease 

in 

2017 

Returned 

Ordered 
to leave 

Return 
rate 

Ordered 
to leave 

2018 

Returned 

Return 
rate 

Ordered 
to leave 

2019 

Returned 

Return 
rate 

4 605 

3 840 

83% 

5 435 

4 665 

86% 

7 525 

4 720 

63% 

10% 
138% 
120% 
98% 
90% 

590 
1 150 
745 
1 235 
275 

90 
1 130 
1 040 
1 125 
265 

15% 
98% 
140% 
91% 
96% 

1 385 
1 260 
1 125 
995 
675 

100 
1 145 
475 
885 
645 

7% 
91% 
42% 
89% 
96% 

Schengen+ 
area 
Czechia 
Germany 
France 
Poland 
Romania 

75 
1 140 
530 
1 235 
185 
Eurostat, last update 11/05/20 

740 
825 
440 
1 260 
205 

Moldova exchanges information on migratory flows and cross-border crime with Frontex in 
the framework of their cooperation plan 2018-2020, which also facilitates technical assistance 
to  the  Moldovan  authorities  and  allows  Moldovan  observers  to  be  included  in  Joint 
Operations.  

Cooperation on migration and border management  

Border  controls  have  been  reinforced  along  the  Moldovan-Ukrainian  border  with  joint 
patrolling  (partially  covering  the  Transnistrian  border  between  the  two  countries),  including 
1,088  joint  operations  in  2019.  As  of  5  June  2019,  the  joint  patrolling  at  the  Moldovan-
Romanian border is being carried out according to the bilateral Protocol on the establishment 
and activities of joint patrol teams at the common state border, signed in November 2018. 307 

47 

 
 
 
 
 
 
 
 
 
joint  operations  have  been  carried  out.  In  2019,  78  border  police  officers  participated  in  15 
capacity building courses on human rights and assistance to vulnerable migrants. 

Moldova has  continued to organise targeted information  campaigns to clarify the rights  and 
obligations of its citizens related to the visa-free regime. The revised edition of the 'Guide on 
free  movement  in  the  European  space'  (launched  in  2018)  continues  to  be  the  main 
information  tool  of  the  Ministry  of  Foreign  Affairs  and  European  Integration.  This  was 
complemented with a communication campaign on the occasion of the fifth anniversary of the 
visa-free regime with the EU on 26 April 2019.  

In order to strengthen cooperation to address the increase of unfounded asylum applications, 
the  Moldovan  authorities  have  undertaken  a  number  of  actions  to  dissuade  vulnerable 
communities  from  leaving  the  country  with  the  purpose  of  applying  for  asylum.  These 
included  meetings  with  community  mediators  at  local  and  regional  level  to  address  root 
causes  of  illegal  migration.  In  June  2019,  the  Agency  for  Interethnic  Relations  organised  a 
meeting  with  the  participation  of  32  community  mediators  representing  32  districts  of  the 
Republic of Moldova. This  event  aimed at  informing the audience  about the conditions  and 
obligations related to visa-free travel and possible opportunities for employment in Moldova. 

As  a  consequence  of  the  COVID-19  crisis,  Moldova  declared  the  state  of  emergency  and 
closed its borders on 17 March. Travel restrictions were in force until 30 June 2020, and were 
subsequently  extended  until  15  July  2020.  The  repatriation  of  Moldovan  citizens  was 
organised  since  March  2020  with  charter  flights,  which  also  allowed  in  their  return  the 
repatriation of  EU Member States’ citizens from Moldova to their EU countries. Efforts were 
made to repatriate or inform of the correct procedures to the diaspora, as well as seasonal and 
vulnerable  migrants  facing  loss  of  jobs  or  lack  of  medical  insurance.  Based  on  official 
governmental sources, the number of those who had returned in the beginning of April 2020 
amounted  to  200.000-250.000.  These  returns  may  represent  a  burden  for  the  social  system, 
aggravated by a drop in  revenues from remittances. The National  Bank of Moldova (NBM) 
statistics  indicate  that  in  March  2020  remittances  dropped  by  12%  compared  to  2019  (-7% 
compared to February 2020). As part of the EU’s global response to the COVID-19 pandemic  
the Republic of Moldova will specifically benefit from EUR 87 million of bilateral funding in 
grant support, utilising resources from existing projects and from upcoming projects that will 
help  overcome  the  socio-economic  impact  of  COVID-19  on  community-level  (inter  alia 
ssupplying medical devices, testing kits, and other equipment). 

Public order and security 

According to Europol, Moldovan organised crime groups continued to represent a substantial 
crime threat during the reporting period. Their involvement in excise fraud (mainly tobacco) 
increased  in  2019  and  organised  crime  groups  from  Moldova  continue  to  be  involved  in 
corruption  in  sports,  particularly  match-fixing,  including  cases  with  an  impact  on  the  EU. 
Moldova is an important source country for counterfeit alcoholic beverages smuggled to the 
EU  and  a  major  source  of  contraband  and  counterfeit  cigarettes,  as  well  as  skilled  tobacco 
technicians working in illicit cigarette factories operated by organised crime groups within the 
EU. Moldovan offenders are more and more active in physical ATM attacks. The Moldovan 
authorities took some steps to dismantle criminal schemes in 2019, including the alignment of 
legislation regarding Duty Free Shops operations, with EU standards. 

48 

 
 
 
 
 
 
On 7 March 2018, the Government established the National Commission for the Monitoring 
of Small Arms and Light Weapons. Moldova is currently developing a Small Arms and Light 
Weapons Strategy.  

Moldova is also a transit country for illegal drugs, especially heroin, trafficked to the EU from 
Afghanistan, Pakistan and Iran via the Southern Caucasus route. Large quantities of heroin are 
regularly shipped from Black Sea ports in Georgia to Moldova and other countries. After the 
heroin crosses the Black Sea, it is then further trafficked to the EU. 

Moldova remains a source for trafficking in human beings for sexual and labour exploitation. 
The  Moldovan  authorities  have  put  in  place  the  National  Strategy  for  Preventing  and 
Combating Trafficking in Human Beings for the period 2018-2023 and the Action Plan 
2018-2020.  

Regarding cybercrime, Moldovan organised crime groups are reported to be heavily involved 
in  financially  motivated  malware  and  ransomware  distribution.  On  the  other  hand,  their 
involvement  in  payment  card  fraud  has  decreased  in  2019.  Moldovan  (together  with 
Georgian)  cybercriminals  played  key  roles  in  the  international  GozNym  criminal  network 
dismantled in May 2019 by an international law enforcement operation supported by Europol. 
The  criminal  network  used  GozNym  malware  to  steal  from  more  than  41  000  victims, 
primarily  businesses  and  financial  institutions.  So-called  ‘crypters’  (including  one  in 
Moldova) were used to crypt the malware, so antivirus software would not detect it. 

In  June-November  2019  the  coalition  Government  of  former  Prime  Minister  Maia  Sandu 
carried  out  a  number  of  justice  reform  initiatives,  such  as  amending  the  law  on  the 
Prosecutor’s  Office  and  the  law  on  the  Superior  Council  of  the  Magistracy.  To  ensure 
coordination  of  all  anticorruption  efforts,  her  Government  approved  and  set  up  on  16 
September  2019  the  Coordination  Council  for  Anticorruption  Policies  and  Justice  Reform 
(and also created the Advisory Bureau on Anticorruption Policies and Justice Reform which 
was then closed due to lack of funding). It also approved the Activity Programme ‘Partnership 
for  the  de-politization  of  the  State’  and  the  Action  Plan  of  the  Government  for  2019-2020, 
which provided the framework for the investigation of corruption, including significant steps 
in  the  field  of  search  and  seizure  of  stolen  assets  from  the  banking  fraud  and  focused  the 
activity of the Anticorruption Prosecution Office on high-level cases. In November 2019 and 
following  a  vote  of  no-confidence  on  questions  concerning  the  recruitment  process  of  the 
Prosecutor  General,  a  new  Government  led  by  Prime  Minister  Iion  Chicu  was  appointed  in 
Moldova,  which  presented  a  programme  (until  autumn  2020)  including  the  fight  against 
criminality,  justice  reform  and  investigation  of  the  banking  fraud  as  areas  of  action.  On  11 
December 2019 this Government approved an Action Plan for 2020-2023. On 28 May 2020 
Moldova  officially  joined  the  Istanbul  Anti-Corruption  Action  Plan  of  the  Anti-Corruption 
Network  of  the  OECD.  The  National  Anticorruption  Centre  will  serve  as  a  national 
coordinator and a contact point. 

Under the justice reform initiative, the new Government proposed amendments to the law on 
the  Superior  Council  of  Magistracy  (SCM).22  The  amendments  were  adopted  and 
promulgated in December 2019. Meanwhile, an urgent opinion by the Venice Commission on 
the draft law was pending and expressed regret regarding the amendments that were perceived 
to have been rushed through  23 Under the amendments, four lay members were appointed to 

22 Law No. 193 of 20 December 2019 on amending the SCM Law. 
23 Venice Commission Opinion CDL-PI(2020)001-e.  

49 

 
 
                                                 
the  SCM  in  March  2020  despite  calls  to  suspend  the  selection  process.  Draft  constitutional 
amendments  for  the  reform  of  the  judiciary,  in  particular  the  SCM,  were  submitted  to  the 
Venice  Commission.  While  several  proposals  were  regarded  as  positive,  the  Venice 
Commission criticised the March 2020 appointments and called on the Government to address 
this issue in the constitutional reform process, which is underway.24 The draft Justice Reform 
Strategy  and  Action  Plan  2020-2023  were  submitted  to  the  Council  of  Europe  for 
consultation. The newly appointed General Prosecutor in December 2019 initiated an internal 
control  procedure  for  the  two  specialised  prosecutors’  offices  for  anti-corruption  and 
organised crime.  

The  Asset  Recovery  Strategy  related  to  the  2014  banking  fraud  was  published  on  13  June 
2018 and envisages activities for three years of the Anticorruption Prosecution Office and the 
National  Anticorruption  Center,  including  the  Criminal  Assets  Recovery  Agency  and 
covering  both  criminal  investigation  and  asset  recovery.  The  second  Kroll  report  that 
investigates  the  2014  banking  fraud  was  published  by  the  Parliament  in  July  2019.  While 
there has been no breakthrough in the investigation and no substantial recovery of assets, in 
early June 2019 the Parliament set up a new commission to investigate all circumstances. In 
August  2019, the commission  published a request  to  launch a criminal  investigation against 
some  former  high-level  officials.  On  17  October  2019,  the  Parliament  approved  a  decision 
based  on  the  investigative  report  of  the  commission,  requesting  urgent  actions  from  public 
institutions, including a report of the General Prosecutor’s Office.  

The  National  Integrity  Authority  continues  to  experience  delays  and  shortcomings  in  the 
selection  of  integrity  inspectors,  which  is  hampering  its  effectiveness.  The  Authority  has 
launched  several  calls  for  application  in  order  to  cover  the  remaining  posts.  Despite  these 
difficulties,  it  should  also  be  noted  that  the  GRECO  Compliance  Report  (4th  evaluation 
round  on  ‘Corruption  prevention  in  respect  of  members  of  Parliament,  judges  and 
prosecutors), published on 24 July 2019 recognised that the National Integrity Authority is 
developing positively, despite the limited administrative capacities.  

The National Integrity Authority is in charge of the online declaration of assets and personal 
interests  (automated  information  system  e-Integrity),  which  makes  declarations  publicly 
available after their submission. There has been an important backlog in the treatment of these 
e-declarations, which are available for 15 years, except for some clearly defined cases. Assets 
and conflict of interest declarations of all judges (approximately 400) were submitted for 2018 
and verified by the National Integrity Authority.  

The  Law  on  the  Prevention  of  Money  Laundering  and  Counter  Terrorism  Financing 
(AML/CTF) came into force after publication in the Official Gazette of 22 December 2017. 
Under  this  new  law,  the  new  Financial  Investigation  Unit  (FIU)  Office  will  continue  to 
conduct the same functions as before and, additionally, will have the right to apply sanctions 
for AML/CFT violations.  The practical implementation of this function by the FIU required 
adopting the new law on sanctions for AML/CFT violations, which was adopted on 21 May 
2020.  The  Guidelines  on  Parallel  Financial  Investigation  were  approved  by  the  General 
Prosecutor on 9 April 2019. These Guidelines are aimed at implementing the requirements of 
the  EU  Anti-Money  Laundering  Standards  and  improving  the  capacities  of  the  law 
enforcement  agencies  in  investigating  money  laundering,  terrorism  financing  and  other 
serious  crimes.  The  legislation  designed  to  minimise  the  risks  of  money  laundering  and 

24 Venice Commission Opinion CDL-AD(2020)001. 

50 

 
 
                                                 
establish  voluntary  declarations  and  a  fiscal  stimulation  program  was  approved  by  the 
Parliament on 15 August 2019.  

Following  criticism  from  the  EU  and  other  international  partners  on  the  package  on  fiscal 
reform  that  entered  into  force  on  17  August  2018,  Moldova  amended  the  law  on  voluntary 
declaration and fiscal stimulation25 on 30 November 2018, including a number of safeguards 
such  as  a  fee  increase  from  3%  to  6%  of  the  declared  amount  and  exclusion  of  certain 
categories  and  family  members,  in  particular  government  officials.  A  stronger  anti-money 
laundering regulation of the National Bank of Moldova entered into force on 1 February 2019. 
Moldova  extended  on  12  December  2018  the  period  for  voluntary  declaration  until  15 
February  2019  for  money  and  until  1  February  2019  for  real  estate,  vehicles,  securities  and 
shares in companies. On 6 September 2019 all fiscal check restrictions introduced by the Law 
on voluntary declaration and fiscal stimulation were terminated. 

In November 2018, Moldova launched an investor citizenship scheme, which was temporarily 
suspended by the Moldovan Government on 19 July 2019 for four months (further extended 
for  two  more  months  in  December  2019).  Since  the  launch  of  the  programme  and  until  the 
establishment  of  the  moratorium,  eight  persons  acquired  the  citizenship  of  Moldova  and  34 
applications  (introduced  before  the  establishment  of  the  first  moratorium)  continued  to  be 
processed. On 26 February 2020 the Government  adopted a new law that introduced a new 
moratorium until 1 September 2020. The law was voted on 28 February 2020 in two readings 
and  the  new  moratorium  entered  into  force  on  20  March  2020.  On  18  June  2020,  the 
Parliament  adopted  the  law  to  abolish  the  Citizenship  for  Investment  Programme  as  of  1 
September  2020  (end  of  the  existing  moratorium).  Until  the  programme  is  cancelled  only 
existing  applications  will  continue  to  be  processed.  The  Commission  is  closely  monitoring 
that robust security and background checks are in place for the applications received prior to 
the  entry  into  force  of  the  moratorium  and  which  wil  continue  to  be  processed  until  the 
cancellation of the programme on 1 September 2020. 

II.2.3 UKRAINE 

Irregular migration, asylum applications, readmission 

Detections of illegal border crossing: according to Frontex data, the number of detections of 
illegal  border  crossings  of  Ukrainian  nationals  continued  to  decrease  in  the  period  between 
2018 and 2019. In 2019, there were 93 illegal border crossings. In comparison, 113 detections 
of illegal border crossings were recorded in 2018. 

2019 

2018 

2017 

25 

Law no 180/2018. 

Detections of illegal border crossing 

93 

113 

169 

51 

 
 
 
 
 
 
 
                                                 
2016 

2015 

Source: FRAN and JORA data (as of 06/02/20) 

208 

159 

Refusal of entry at the external borders: Between 2018 and 2019, refusals of entry in the 
Schengen+ area for Ukrainian nationals increased by 25% (with 53,185 refusals in 2018 and 
66,390  in  2019).  The  most  affected  EU  Member  State  is  Poland,  which  continued  to 
experience the highest migratory pressure from Ukraine and issued 82% of the total refusals 
of  entry  issued  in  the  Schengen+  area,  followed  by  Hungary  and  Romania.  Among  the  top 
five countries, Lithuania saw an increase of 66% in 2019 compared to 2018. 

According to Frontex, 94% of the refusals took place at the external land borders, whereas the 
remainder  were  split  between  air  (6%)  and  sea  (<1%)  borders.  Refusals  were  issued  on 
various  grounds,  particularly  on  the  basis  of  lack  of  appropriate  documents  justifying  the 
purpose  and  conditions  of  stay  (53%),  insufficient  means  of  subsistence  in  relation  to  the 
period of stay (21%), having stayed in the Schengen+ area for more than the 90 day period 
allowed  (10%),  an  alert  having  been  issued  in  the  Schengen  Information  System  (SIS)  or 
national register (9%) and lack of valid visa or residence permit (6%).  

Refusals of 
entry for 
nationals 
of Ukraine 
Schengen+ 
area 
Poland 
Hungary 
Romania 
Slovakia 
Lithuania 

11 095 
4 780 
1 190 
790 
100 
Eurostat, last update 13/05/20 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

18 725 

16 115 

18 345 

16 775 

15 585 

23 795 

22 495 

33 105 

53 185 

66 390 

9 115 
4 560 
1 125 
550 
60 

12 555 
2 985 
1 320 
530 
55 

12 060 
2 190 
1 000 
395 
60 

11 185 
2 040 
855 
410 
70 

19 020 
1 825 
1 090 
440 
330 

18 775 
0 
1 490 
705 
345 

25 255 
2 980 
1 715 
925 
365 

42 500 
3 840 
1 550 
1 525 
610 

54 480 
3 910 
1 445 
1 150 
1 010 

Illegal  stay:  In  2019,  the  number  of  Ukrainian  nationals  found  to  be  illegally  staying 
increased by 11% (from 37,410 in 2018 to 41,705 in 2019), thus confirming the upward trend 
observed  since  2013.  The  most  affected  EU  Member  States  are  Poland,  Hungary  and 
Germany.  

Illegal stay by 
nationals of 
Ukraine 

Schengen+ 
area 
Poland 
Hungary 
Germany 
Czechia 
Slovakia 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

10 750 

12 240 

12 440 

12 265 

16 520 

23 510 

29 595 

33 485 

37 410 

41 705 

1 885 
1 940 
1 070 
955 
365 

3 995 
1 965 
1 095 
1 125 
370 

4 800 
1 680 
1 280 
1 065 
335 

5 210 
1 905 
1 265 
890 
355 

7 455 
1 695 
1 455 
1 020 
500 

11 885 
2 820 
2 550 
1 225 
785 

17 445 
3 620 
2 270 
1 550 
1 165 

19 815 
3 955 
2 405 
1 510 
1 740 

22 260 
4 580 
2 955 
1 470 
1 870 

22 070 
7 075 
4 690 
1 455 
1 385 

Eurostat, last update 11/05/20 

52 

 
 
 
 
 
 
Asylum applications: The total number of Ukrainian asylum seekers in the Schengen+ area 
slightly decreased with 9,505 asylum applications lodged in 2019 against 10,035 in 2018 (5% 
decrease). The most affected EU Member States were Spain (25% of all applications), Italy, 
Germany,  France,  Sweden  and  Poland.  The  asylum  recognition  rate  in  the  Schengen+  area 
decreased from 17.3% in 2018 to 10.2% in 2019. 

Yearly total 
number of 
asylum 
applications by 
nationals of 
Ukraine 

Schengen+ 
area 
Spain 
Italy 
Germany 
France 
Sweden 
Poland 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

805 

5 
20 
70 
90 
120 
45 

920 

10 
20 
55 
100 
190 
65 

1 090 

1 020 

14 090 

22 100 

12 460 

10 075 

10 035 

9 505 

20 
35 
135 
145 
130 
70 

15 
35 
150 
135 
170 
45 

895 
2 080 
2 705 
1 425 
1 320 
2 275 

3 345 
4 665 
4 660 
1 645 
1 415 
2 295 

2 570 
2 570 
2 490 
660 
615 
1 300 

2 260 
2 745 
1 325 
685 
495 
670 

2 005 
3 070 
1 380 
810 
540 
465 

2 375 
1 840 
1 485 
1 120 
870 
430 

Eurostat, last update 12/03/20 

As  regards  first-time  asylum  applications,  the  figures  show  a  decrease:  8,430  applications 
were  lodged  by  Ukrainian  nationals  in  2019  compared  to  8,850  in  2018.  In  2019,  Spain 
received the highest number of first-time asylum applications (2,240) that increased by 19% 
compared to 2018, overtaking Italy (1,775) where there was a 41% decrease.   

Yearly total 
number of first 
time asylum 
applications by 
nationals of 
Ukraine 

Schengen+ 
area 
Spain 
Italy 
Germany 
France 
Sweden 
Poland 

2010 

2011 

2012 

2013 

2014 

2015 

2016 

2017 

2018 

2019 

500 

5 
20 
60 
85 
120 
30 

715 

10 
20 
45 
90 
185 
40 

850 

20 
35 
125 
125 
130 
60 

785 

13 560 

20 860 

11 080 

8 845 

8 850 

8 430 

15 
35 
140 
120 
155 
35 

890 
2 075 
2 655 
1 395 
1 280 
2 150 

3 340 
4 665 
4 570 
1 625 
1 335 
1 575 

2 550 
2 555 
2 390 
525 
545 
595 

2 175 
2 720 
1 090 
530 
460 
300 

1 880 
3 015 
1 060 
735 
500 
225 

2 240 
1 775 
1 180 
1 055 
835 
215 

Eurostat, last update 12/03/20 

The  number  of  asylum  application  lodged  by  Ukrainian  nationals  continued  to  decrease  in 
2020  so  far,  with  1,570 applications  in  the  first  quarter  of  2020,  41%  less  than  in  the  same 
period of 2019. Spain remained the main destination of Ukrainian asylum seekers in the first 
quarter of 2020 although it was closely followed by France where the number of applications 
increased by 67% year-on-year.  

53 

 
 
 
 
 
 
Asylum 
applications 
by nationals 
of Ukraine 

Schengen+ 
area 

Spain 

Italy 

Germany 

France 

Sweden 

Jan 
2019 

Feb 
2019 

Mar 
2019 

Apr 
2019 

May 
2019 

Jun 
2019 

Jul 
2019 

Aug 
2019 

Sep 
2019 

Oct 
2019 

Nov 
2019 

Dec 
2019 

Jan 
2020 

Feb 
2020 

Mar 
2020 

875 

915 

860 

835 

865 

790 

825 

705 

715 

815 

695 

570 

520 

625 

425 

185 

200 

135 

85 

55 

300 

240 

110 

70 

65 

225 

215 

85 

60 

110 

220 

205 

90 

125 

60 

225 

180 

125 

95 

85 

210 

215 

95 

75 

60 

210 

135 

175 

95 

70 

155 

145 

70 

140 

145 

50 

95 

165 

85 

95 

175 

125 

170 

120 

80 

190 

105 

115 

75 

85 

140 

145 

135 

55 

80 

90 

60 

60 

80 

75 

55 

85 

15 

70 

55 

90 

140 

145 

65 

50 

Eurostat, last update 09/06/20 

Readmission and return: Cooperation with Ukraine on readmission remains very good and 
stable despite an increase in the return decisions issued in the Schengen+ area in the last years 
to Ukrainian nationals (37,095 in 2019 compared to 32,340 in 2018). The return rate increased 
to 85% in 2018 but fell to 73% in 2019. A large proportion is processed without a readmission 
application or under accelerated procedure. Cooperation concerning the readmission of third-
country nationals by the Ukrainian authorities is also deemed positive.  In 2019, similarly to 
2017  and  2018,  most  return  decisions  were  issued  by  Poland.  An  EU-funded  project 
“IMMIS”,  geared 
improvement  of  Ukraine’s  migration 
management  capacity  will  deliver  a  Readmission  Case  Management  System  which  should 
further streamline and improve the cooperation on readmission.  

towards  a  comprehensive 

2017 

Returned 

Ordered 
to leave 

Return 
rate 

Ordered 
to leave 

2018 

Returned 

Return 
rate 

Ordered 
to leave 

2019 

Returned 

Return 
rate 

Schengen+ 
area 
Poland 
Czechia 
Germany 
Slovakia 
France 

32 080 

25 355 

79% 

32 340 

27 420 

85% 

37 095 

27 200 

18 805 
3 905 
1 515 
1 730 
820 

17 735 
435 
1 460 
1 420 
250 

94% 
11% 
96% 
82% 
30% 

21 835 
1 425 
1 300 
1 800 
745 

20 440 
455 
910 
1 720 
205 

94% 
32% 
70% 
96% 
28% 

22 000 
5 405 
1 740 
1 355 
840 

20 310 
315 
985 
1 285 
290 

73% 

92% 
6% 
57% 
95% 
35% 

Eurostat, last update 11/05/20 

Cooperation on migration and border management 

Regarding  integrated  border  management  progress  has  been  made  after  establishment  of  an 
Inter-Agency Working Group in January 2019. A new comprehensive IBM strategy 2020-
2025 was adopted in July 2019 and an accompanying action plan was adopted in November 
2019. All  IBM stakeholders participated in the drafting process in a sign of improved inter-
agency cooperation that had previously been insufficient. The EU has been advocating for the 
necessity of criminalizing smuggling of all goods as a key element of IBM. The discussions 
with the Government are ongoing. In the context of Ukraine's efforts to enhance cooperation 
with  the EU in  the framework of the  Association Agreement, Ukraine has  also  developed  a 
number of proposals in the area of justice, freedom and security, including on shared border 
management with neighbouring EU Member States. 

54 

 
 
 
 
 
 
 
 
 
 
Cooperation  with  the  European  Border  and  Coast  Guard  Agency  (Frontex)  in  the 
framework  of  the  existing  working  arrangement  continues  to  be  excellent.  This  cooperation 
involves  information  exchange,  joint  risk  analysis,  participation  in  joint  operations  and 
trainings.  Frontex  has  been  supporting  the  facilitation  of  cooperation  with  border  and  coast 
guard  training  institutions,  the  creation  of  common  educational  standards  and  the 
modernisation of education and training systems in the field of border and coast guarding in 
the region through the Partnership Academies Network. The National Academy of the State 
Border  Guard  Service  in  Khmelnitsky  in  Ukraine  joined  the  network  of  Partnership 
Academies.  Only  three  such  associated  training  institutions  operate  in  non-EU  countries 
(including  Ukraine  and  Georgia).  In  addition,  in  2019,  Frontex  (together  with  other  EU 
actors) supported the relevant Ukrainian agencies to develop a new national IBM Strategy and 
Action Plan as mentioned above.  

The Commission issued a positive opinion on 8 April 2020 for the deployment by Frontex of 
a liaison officer in Kyiv, who should have a regional mandate covering the other countries of 
the Eastern Partnership.   

Ukraine  continued  with  information  campaigns  informing  Ukrainian  citizens  about  their 
rights  and  obligations  when  travelling  to  the  EU  visa  free.  From  December  2018  until 
February  2019,  the  State  Migration  Service  conducted  a  new  stage  of  the  information 
campaign "Safe_Migration", during which more than 500 information events were organised 
in  all regions  of Ukraine. Similar campaigns  are  regularly  conducted on the eve of national 
and international  holidays, when many Ukrainian citizens travel  abroad.  Information  on EU 
visa-free travel rules is also available on the state authorities’ websites. 

As  regards  document  security,  Ukraine  has  gradually  introduced  new,  biometrics-based  ID 
and  resident  permit  cards  that  correspond  to  general  document  security  standards. 
Investigations into a scandal on the sale of Ukrainian passports that led to the resignation of 
the  Deputy  Head  of  the  State  Migration  Service  have  progressed  and  an  EU-funded  project 
(“IMMIS”,  improving  Ukraine’s  migration  management  capacity)  has  done  a  business 
process analysis allowing for changes of the process to make sure a similar incident does not 
happen again.  

Ukraine  out  in  place  series  of  measures  in  response  to  the  outbreak  of  the  COVID-19 
pandemic, including a general ban on the entry of foreign citizens, with exceptions, and the 
suspension of all regular commercial international flights, train and bus traffic in and out of 
Ukraine  as  of  17  March  2020.  Member  States  sharing  a  border  with  Ukraine  (PL,  RO,  SK, 
and  HU)  also  introduced  a  series  of  restrictions  as  of  mid-March,  including  the  closure  of 
most border-crossing points. The Ukrainian authorities called on citizens abroad to return to 
Ukraine for the period of quarantine restrictions and organised several hundred special flights 
to  facilitate  this  repatriation.  The  authorities  also  implemented  a  broad  prohibition  on 
Ukrainian  citizens  leaving  the  country,  with  exceptions  including  for  example  those  with 
residence permits in EU Member States, upon request from the EU and individual diplomatic 
missions. 
 “Emergency  situation”  provisions  were  introduced  nationwide  as  of  25  March,  which 
included  reinforced  public  order  measures,  obligatory  medical  examination  of  persons  with 
COVID-19 symptoms and enforced hospitalisation or quarantine of these persons, as well as 
enhanced communication with citizens and sanitary measures including disinfection of public 

55 

 
 
 
 
 
 
facilities. These measures have been extended until 31 July 2020, allowing for the easing of 
restrictions region-by-region depending on development of the epidemiological situation.  

During this period, Ukraine repatriated several thousand citizens notably through hundreds of 
flights  sporadically  organised  for  the  purpose. The  government  ordered  the  resumption  of 
border  crossing  services  at  Ukraine’s  international  airports  as  of  15  June  2020  and  allowed 
Ukrainian  citizens  to  depart  again  without  prior  justification  as  of  this  date.   Ukraine  also 
allows entry as of 15 June 2020 to citizens from countries less affected by COVID-19, based 
on a list to be updated on a regular basis. Commercial flight services have resumed gradually 
as  of  this  date,  based  also  on  the  epidemiological  situations,  bilateral  agreements  with  and 
outstanding measures in force among third countries, including EU Member States.   

After  a  first  EUR  80  million  COVID-19  response  package  for  Ukraine  combining  bilateral 
and  regional  actions  funded  from  the  European  Neighbourhood  Instrument  (ENI)  for 
immediate  health  response  and  socioeconomic  relief,  the  EU  has  prepared  a  second  set  of 
measures.  In  order  to  ensure  continued  support  to  the  Ukrainian  reform  agenda  and  to  face 
challenges which predate the COVID-19 crisis, major actions under the planned programmes 
for  2020  at  an  advanced  stage  of  planning  are  being  reoriented  to  respond  to  the  mid-  and 
long-term  impact  of  the  pandemic  at  all  levels  (health  system/society/economy).  Together 
with technical assistance to the Ministry of Health and a budget support payment this brings 
the overall COVID-19 response for Ukraine under regional and bilateral ENI budgets to EUR 
190 million.  

Public order and security 

According to Europol, Ukrainian cybercriminals  continue to be involved in various types of 
cybercrime, including attacks on EU citizens. Several EU countries reported logistical attacks 
on ATM’s (Black Box) committed by Ukrainian criminals.  

Ukrainian organised crime groups are increasingly involved in motor vehicle crime in the EU. 
They are particularly active in the fencing of stolen passenger cars, trucks and vehicle parts. 
Ukraine  itself  is  emerging  as  a  hub  for  the  fencing  of  goods  stolen  in  the  EU.  In  addition, 
Ukraine  is  one  of  the  major  source  countries  of  contraband  and  counterfeit  cigarettes 
smuggled  into  the  EU,  as  well  as  of  skilled  technicians  working  in  illicit  cigarette  factories 
operated  by  organised  crime  groups  within  the  EU.  Over  the  last  years,  more  and  more 
organised crime groups are setting up and operating their own illegal cigarette factories. The 
EU is  advocating for the necessity to  criminalise smuggling of all  goods, including tobacco 
smuggling.  

Ukrainian organised crime groups continue to be involved in financially motivated malware, 
and  ransomware  distribution  as  well  in  facilitating  irregular  migrants  into  jobs,  usually  in 
construction or agriculture businesses. After arriving in the EU legally, they are registered for 
work purposes. In many cases, they are being employed under exploitative labour conditions.  

Russian  speaking  organised  crime  groups  are  also  involved  in    corruption  in  sports, 
particularly match-fixing, investment fraud schemes, but as well in drug trafficking. 

Ukrainians  are  among  the  most  reported  non-EU  victims  of  trafficking  in  human  beings.  In 
many  cases,  they  are  exploited  by  criminals  from  the  same  country.  To  combat  this 

56 

 
 
  
  
 
 
  
 
 
 
phenomenon, the Ukrainian authorities are organising awareness events in close cooperation 
with  international  organisations  (e.g.  OSCE).  Ukraine  is  also  reinforcing  international  law 
enforcement  cooperation  and  participation  in  joint  operations.  Ukraine  continues  to 
implement  the  State  Social  Program  Against  Human  Trafficking  for  the  period  up  to  2020. 
Ukraine  has  widened  its  inter-agency  responsibilities  and  legal  framework  to  combating 
trafficking in human beings.  

Ukrainian  nationals  are  increasingly  involved  in  the  purchasing  and  conversion  into  lethal 
Flobert  firearms  (small-calibre  firearms  with  low  energy  designed  for  “living-room 
shootings”)  and  gas/alarm  pistols.  The  weapons  originate  in  the  EU  and  are  believed  to  be 
distributed again  in  the  EU after they  are  converted into live-firing weapons.  Moreover, the 
conflict in Ukraine continues to pose a risk for the diversion of firearms from the region to 
the EU, as recognised by the 2018 EU Strategy on Small Arms and Light Weapons. The EU 
contributes to the funding of an OSCE-managed project to fight trafficking of small arms and 
light weapons (Council Decision CFSP 2019/2009 of 2 December 2019) over the next three 
years  with  a  view  to  supporting  the  State  Border  Guard  Service  (SBGS),  the  Ministry  of 
Internal  Affairs  (MiA),  the  National  Police  and  the  State  Customs  Service  with  a  view  to 
increasing their capacity to address arms trafficking. Besides, the European Multidisciplinary 
Platform Against Criminal Threats (EMPACT) – Firearms is developing activities, the aim of 
which are to study European best practices in control of firearms, determine common threats 
for  Ukraine  and  the  EU,  discuss  ways  of  improvement  of  interaction  and  information 
exchange,  and  improve  cooperation  with  the  EU  law  enforcement  authorities,  Interpol  and 
Europol.   

In order to implement the policy on the prevention of drug distribution, Ukraine approved the 
Plan  of  Measures  for  2019-2020  on  the  implementation  of  the  State  Drug  Policy 
Strategy.  The  process  of  signing  the  updated  Memorandum  of  Understanding  between 
Ukraine and the European Monitoring Centre for Drugs and Drug Addiction (EMCDDA) is 
progressing. Ukraine is participating in the EU-financed project “EU-Act: Against Drugs and 
Organized  Crime”  as  well  as  in  the  EU4MD  project  (EU  for  Monitoring  Drugs).  In  the 
framework of the project in March 2020 EMCDDA launched a study to describe and evaluate 
changes in drug markets, availability of drug related health services and drug-use behaviour 
among  regular  users  of  illicit  drugs,  in  Georgia  and  Ukraine,  following  introduction  of 
measures to contain the COVID-19 pandemic. 

The  Ukrainian  legislative  framework  in  the  area  of  combatting  organised  crime  should  be 
revised  and  improved.  The  national  authority  responsible  for  coordinating  activities  in  the 
area of combatting organised crime is not yet clearly defined and the  legal amendments that 
will define the system of agencies that will counteract  organised crime are not  yet  in  place. 
The Strategy for Combating Organised Crime (Ukrainian SOCTA) has been drafted but still 
needs  to  be  approved  and  a  National  Action  Plan  would  need  to  be  developed.  Both 
documents  will  steer  coordination  among  law  enforcement  agencies  in  responding  to 
organised crime, focus legislation and policy on this matter and help strengthen the agencies' 
capacities to implement Europol's SOCTA for Ukraine.  

The  European  Union  Agency  for  Law  Enforcement  Training  (CEPOL)  has  concluded  a 
Working Arrangement with Ukraine on 5 February 2020. The Agreement aims to strengthen 
cooperation  of  the  Agency  with  respective  law  enforcement  training  institutions  in  that 
country, provide both parties training opportunities and exchange of good practices.   

57 

 
 
 
 
 
Ukraine has also intensified its cooperation with Europol to fight against all types of crimes in 
the  framework  of  the  existing  strategic  and  operational  cooperation  agreement  that  includes 
the possibility to exchange personal data and crime related content. Law enforcement agencies 
of  Ukraine  take  an  active  part  in  different  projects  and  operations  conducted  by  Europol. 
Ukraine  also  involved  or  partnering  up  in  several  priorities  of  EU  Policy  Cycle/European 
multidisciplinary  platform  against  criminal  threats  (EMPACT),  and  is  involved  in  2020 
Operational Actions in the priorities such as “Excise Fraud’ and ‘Organised Property Crime’ 
Ukraine has also expressed interest in participating in EMPACT Trafficking in Human Beings 
activities,  but  as  well  Environmental  Crime,  Firearms  trafficking  and  Facilitation  of  Illegal 
Immigration. 

The  National  Police  continues  to  develop  Criminal  Analysis  in  its  activity.  Criminal 
Analysis  units  were  also  established  in  the  regions.  Monitoring  of  media  resources  is 
conducted  in  order  to  detect  criminogenic  factors,  to  search  for  persons  and  detect  criminal 
offenses with priority to build a Unified Analytical System for Criminal Analysis. 

Since becoming fully operational in November 2018, by February 2020, the State Bureau of 
Investigations  (SBI)  had  nearly  16.000  proceedings  under  investigation.  In  May  2019,  the 
areas  of  responsibility  of  the  SBI  were  further  enlarged.  Investigation  on  human  rights 
violations is one of the priority areas in SBI’s work. In order to properly investigate such type 
of  crimes,  the  SBI  provides  appropriate  training  for  investigators,  for  their  professional 
development.  The  EU  supports  the  SBI  in  its  capacity  building  in  the  area  of  Human 
Resources Management and IT development. In December 2019, the President dismissed the 
Director of the SBI  following a leakage of wiretapped conversations on alleged instructions 
from  the  Presidential  Office  on  specific  cases,  and  appointed  an  Acting  Director.  Despite 
strict timelines foreseen in the law, as of June 2020, a permanent Director of SBI remains to 
be appointed. The law on the SBI was amended to change the management structure, increase 
the staffing table and make the SBI a law enforcement agency. 

Following the adoption in June 2018 of a framework Law on National Security (LNS) that 
was welcomed by the international community, the EU advocated the adoption of new reform 
legislation on the Security Service of Ukraine (SSU). The re-focusing of activities of SSU 
on  core  areas  –  and  the  relinquishing  of  investigative  activities  –  is  one  of  the  goals  of  the 
Law  on  National  Security.  It  includes  provisions  on  parliamentary  oversight  over  law 
enforcement agencies and contains an exhaustive list of SSU competencies that are limited to 
counter-intelligence,  counter-terrorism  and  protection  of  state  secrets.  Full  implementation 
will require changes to the Law on SSU and on effective parliamentary oversight that are still 
pending. 

Reform of the National Police of Ukraine (NPU) continued in 2019. From September 2019, 
a restructuring of the Strategic Investigations Department (SID) was announced and by end of 
2019, the current SID should be replaced by an organisationally new SID. It will be staffed by 
officers  from  the  previous  Economic  Protection  Department,  Internal  Security  Department 
and the current SID. It cannot currently be assessed to what extent this restructuring creates a 
new  approach  in  the  fight  against  organised  crime.  The  straight  chain  of  command  of  SID 
units  from  regions  up  to  national  level  remains.  During  2018,  258  organised  groups  and 
criminal organisations were uncovered. In the first half of 2019, 32 indictments were sent to 
the  court  in  criminal  proceedings  against  the  participants  of  organised  groups  or  criminal 

58 

 
 
 
 
 
  
 
organisations.  Overall  capacities  of  the  specialised  police  departments  remain  limited  and  a 
more comprehensive approach to combatting organised crime is needed, including by a clear 
delineation of tasks among various law enforcement agencies that necessitates the adoption of 
respective  strategies  and  action  plans.  It  is  regrettable  that  Ukraine  has  so  far  not  agreed  to 
setting up a comprehensive, overarching strategy to restructure its law enforcement bodies.  

A witness protection unit was created with access to the online Europol platform for witness 
protection  to  allow  for  the  exchange  of  information  and  consultation  in  the  training  and 
institutional  development  of  the  department.  Capacities  and  internal  operational  instructions 
need to be further developed to make this unit fully operational. 

The EU has maintained support for rule of law reforms in Ukraine in an integrated approach 
through  the  EU  Advisory  Mission  for  Civilian  Security  Sector  Reform  (EUAM)  and  EU-
funded support programmes. 

Developments  in  recent  years  have  been  characterised  by  important  institutional  and 
legislative steps taken in the fight against corruption, even if resistance had to be overcome in 
some  cases.  Following  presidential  and  parliamentary  elections,  the  new  President  and 
Government  have  reaffirmed  Ukraine's  commitment  to  fight  corruption,  which  was  also 
reflected in the adoption of some initial laws. Nevertheless, an increased politicisation of the 
work of anti-corruption institutions should be avoided, in order to not endanger the credibility 
of the newly created anti-corruption structure. 

The  law  on  the  High  Anti-Corruption  Court  (HACC)  was  adopted  in  July  2018  and  the 
budget  for  the  function  of  the  Court  was  approved  in  September  2018.  The  judges  were 
selected  in  February  2019  following  a  transparent  procedure  with  the  involvement  of  the 
Public  Council  of  International  Experts.  39  judges  were  formally  appointed  in  April  2019.  
The  HACC  was  officially  launched  on  5  September  2019  and  started  considering  its  first 
high-level  cases.  The  HACC  started  working  in  temporary  premises  and  is  awaiting  the 
allocation of permanent  premises, which is essential for the independence and sustainability 
of operation of the Court. 

By September 2019, the National Agency for Corruption Prevention of (NACP) had more 
than  4  million  electronic  documents  (declarations,  corrected  declarations,  reports  on 
significant  changes  in  property  status)  submitted  and  publicly  available.  Since  September 
2018, the NACP is operating an automatic verification software which attributes a risk-rating 
to all asset declarations. With this system, more than 2.8 million electronic declarations have 
been ranked according to their corruption risks.  NACP has access to all relevant 16 registers. 
As  of  June  2019,  the  NACP  forwarded  322  substantiated  verification  decisions  to  law-
enforcement  authorities,  in  particular 69 decisions to  the  National  Anticorruption Bureau of 
Ukraine 74 decisions to Prosecutors Generals Office, three decisions to the Specialized Anti-
Corruption  Prosecutor  Office,  2  to  the  State  Bureau  Investigation,  and  174  to  the  National 
Police of Ukraine. 

In  October  2019,  a  Law  was  adopted  that  foresees  a  full  reboot  of  the  NACP,  in  particular 
changing its  management  structure from  a collegiate body to  a single head and foresees the 
participation  of  international  experts  in  the  selection  of  the  new  Head.  As  a  result  of  a   
transparent  selection  process  with  the  participation  of  international  experts,  a  new  Head  of 
NACP  was  appointed  in  January  2020.  The  new  law  on  whistle-blowers  protection  in 

59 

 
 
 
 
 
 
 
 
corruption cases came into force as of 1 January 2020. Due to the COVID-19 pandemic, the 
deadline for the submission of electronic asset declarations was postponed until end of May 
2020 and an initial verification of the declarations is underway. 

Concerning  the  repeal  of  the  legal  obligation  for  representatives  of  NGOs  to  submit  e-
declarations  of  assets,  in  June  2019,  the  Constitutional  Court  of  Ukraine  declared  that  the 
provisions of the Law on Corruption Prevention providing for verification of declarations of 
NGO  representatives  ("anticorruption  activists")  do  not  comply  with  the  Ukrainian 
Constitution. In October 2019, the same obligation for foreign members of supervisory boards 
of State Owned Enterprises was removed by the Rada.  

By 31 May 2020, the National Anticorruption Bureau of Ukraine (NABU) had opened 895 
pre-trial  investigations  and  269  investigations  were  sent  to  the  courts.  However,  the 
conviction  rate  in  these  cases  remains  very  low  at  33,  as  the  vast  majority  of  cases  were 
blocked in Ukraine’s ordinary courts.  

NABU’s  leadership  has  come  under  renewed  pressure  in  early  February  2020  when  a 
Parliamentary  petition  to  terminate  the  Head’s  office  was  supported  by  more  than  200 
deputies  although  none  of  the  grounds  for  dismissal  under  the  law  are  fulfilled.  Draft 
legislation to extend the list of grounds are pending in the Rada. 

Following  the  controversial  and  heavily  politicised  2018  appointment  of  auditors  for  the 
external  audit  of  NABU,  the  previous  appointments  have  been  cancelled  by  the  new 
leadership without new appointments made. A negative audit conclusion is a ground for the 
dismissal of the head of NABU. 
Despite  the  tensions  caused  by  these  allegations,  NABU  and  the  Specialised  Anti-
Corruption Prosecutor's Office (SAPO) continued to cooperate actively in 2019 and during 
last six months of 2019 more persons were exposed on corruption than during the whole of 
2018. 

According  to  the  results  of  pre-trial  investigations,  conducted  by  the  SAPO,  67  criminal 
proceedings were sent to the court during 2019, including six plea bargaining agreements. As 
of 31 May 2020, 12 criminal proceedings were sent to the court, including on plea bargaining 
agreement. 

In early June, the Office of the Prosecutor General  initiated the selection  of a new Head of 
SAPO, by nominating four members of the selection commission. Seven remaining members 
remain nominated by the Parliament with the selection to be finalised by September 2020.  

In February 2019, the Constitutional Court found unconstitutional the Criminal Code article 
on illicit enrichment, which resulted in the closure of 65 NABU cases into illicit enrichment 
and the weakening of the electronic asset declaration system. In June 2019, the Constitutional 
Court  declared  unconstitutional  NABU’s  right  to  challenge  corruption-related  commercial 
agreements  in  court,  noting  that  such  right  should  rest  with  the  prosecutors.  These 
developments  have  weakened  NABU's  ability  to  conduct  effective  investigations  into  high-
level corruption cases and have caused financial damage to the state. A law reinstating illicit 
enrichment  and  introducing  non-conviction  based  confiscation  was  adopted  in  November 
2019. 

60 

 
 
 
 
 
 
 
 
 
 
The National Agency of Ukraine for finding, tracing and management of assets derived 
from  corruption  and  other  crimes  (ARMA)  established  six  Interregional  Territorial 
Departments  in  2019  to  ensure  a  more  efficient  functioning  of  ARMA.  The  agency  has 
established  direct  access  to  the  necessary  national  registers  and  databases  to  carry  out  its 
mandate and has close cooperation with law enforcement authorities, all Ukrainian authorities 
that  could  be  potentially  involved  and  international  partners  (CARIN,  StAR,  Interpol  and 
Europol).  In  2019,  ARMA  received  1,685  asset  tracking  requests  from  Ukrainian  law 
enforcement and 19 requests from foreign authorities. Until May 2020, the agency received a 
further 989 and 15 requests respectively. All these request were addressed. The inclusion of 
ARMA  by  Europol  into  the  list  of  competent  authorities  in  2019  has  allowed  ARMA  to 
significantly  expand  the  format  of  cooperation  with  Europol,  facilitate  the  exchange  of 
operational  information  in  criminal  proceedings  and  participate  in  joint  investigations  of  a 
much  wider  range  of  crimes.  In  November  2019,  the  Head  of  ARMA  was  dismissed  and  a 
new Acting Head was appointed. Going forward, it will be important to ensure a transparent 
process for the selection of the permanent head of ARMA as well as the sustainability of the 
agency's development. 

III. ANNEX – STATISTICS 

III.1 IRREGULAR MIGRATION 

Detections of illegal border crossings 

Albania 

Bosnia and Herzegovina 

Georgia 

Moldova 

Montenegro 

Serbia 

North Macedonia 

Ukraine 

Total 

Source: FRAN and JORA data (as of 06/02/20)  

Schengen+ area 

2016 

2017 

2018  

2019 

5 475 

7 401 

4 593 

2 055 

89 

119 

25 

4 

107 

19 

208 

6 046 

85 

85 

38 

4 

84 

27 

169 

7 893 

26 

189 

25 

2 

73 

14 

113 

5 035 

23 

328 

17 

0 

29 

10 

93 

2 555 

Third country nationals refused 
entry at the external borders 

2018 

Schengen+ area 
2019 

Change 

Ukraine 
Albania 
Serbia 
Moldova 
Georgia 
Bosnia and Herzegovina 
North Macedonia 
Montenegro 
Total 

53 185 
21 515 
9 035 
8 170 
3 805 
5 320 
3 185 
515 
104 730 

61 

66 390 
19 670 
8 300 
7 940 
4 435 
4 270 
2 815 
470 
114 290 

25% 
-9% 
-8% 
-3% 
17% 
-20% 
-12% 
-9% 
9% 

 
 
 
 
 
Eurostat, last update 13/05/20 

Third country nationals found  
to be illegally staying 

2018 

Schengen+ area 
2019 

Change 

Ukraine 
Albania 
Moldova 
Serbia 
Georgia 
North Macedonia 
Bosnia and Herzegovina 
Montenegro 
Total 

Eurostat, last update 11/05/20 

III.2 ASYLUM 

Total number of asylum applications 

Georgia 
Albania 
Ukraine 
Serbia 
Moldova 
North Macedonia 
Bosnia and Herzegovina 
Montenegro 
Total 

Eurostat, last update 12/03/20 

Total number of first time asylum applications 

Georgia 
Albania 
Ukraine 
Serbia 
Moldova 
North Macedonia 
Bosnia and Herzegovina 
Montenegro 
Total 

Eurostat, last update 12/03/20 

37 410 
32 355 
11 280 
13 090 
9 400 
6 010 
3 915 
805 

41 705 
34 410 
16 540 
13 635 
11 845 
7 000 
4 290 
885 

114 265 

130 310 

11% 
6% 
47% 
4% 
26% 
16% 
10% 
10% 

14% 

Schengen+ area 

2018 

2019 

19 730 
19 615 
10 035 
6 425 
3 830 
4 785 
2 280 
640 
67 340 

21 570 
18 555 
9 505 
6 075 
5 685 
4 035 
1 895 
410 
67 730 

Schengen+ area 

2018 

2019 

18 445 
16 750 
8 850 
4 570 
3 180 
3 380 
1 675 
375 
57 225 

19 605 
15 825 
8 430 
4 060 
4 565 
2 695 
1 365 
225 
56 770 

Change 
9% 
-5% 
-5% 
-5% 
48% 
-16% 
-17% 
-36% 
1% 

Change 
6% 
-6% 
-5% 
-11% 
44% 
-20% 
-19% 
-40% 
-1% 

Total number 
of monthly 
asylum 
applications 

Jan 
2019 

Feb 
2019 

Mar 
2019 

Apr 
2019 

May 
2019 

Jun 
2019 

Jul 
2019 

Aug 
2019 

Sep 
2019 

Oct 
2019 

Nov 
2019 

Dec 
2019 

Jan 
2020 

Feb 
2020 

Mar 
2020 

62 

 
 
 
 
 
 
 
 
Georgia 

Albania 

Ukraine 

Serbia 

Moldova 

North 
Macedonia 

Bosnia and 
Herzegovina 

2 375 

2 085 

2 125 

2 150 

1 980 

1 590 

1 910 

1 540 

1 315 

1 600 

1 475 

1 385 

1 590 

1 410 

1 750 

1 635 

1 745 

1 610 

1 625 

1 435 

1 655 

1 300 

1 435 

1 755 

1 375 

1 195 

1 135 

1 135 

875 

885 

665 

915 

740 

410 

860 

540 

370 

835 

510 

245 

865 

410 

255 

790 

370 

230 

825 

450 

420 

705 

395 

470 

715 

475 

480 

815 

515 

670 

695 

420 

900 

570 

330 

545 

520 

405 

670 

625 

400 

480 

795 

625 

425 

210 

195 

640 

630 

320 

290 

230 

200 

310 

185 

305 

350 

290 

270 

305 

220 

125 

85 

30 

235 

145 

150 

125 

140 

125 

160 

200 

125 

175 

170 

125 

155 

150 

Montenegro 

40 

35 

45 

20 

30 

15 

30 

30 

40 

35 

40 

15 

40 

40 

Total 

7 465 

6 595 

6 155 

5 785 

5 535 

4 755 

5 760 

4 825 

4 890 

5 915 

5 365 

4 435 

4 820 

4 460 

2 490 

Eurostat, last update: 09/06/20 

First instance decisions 
on asylum applications 

Georgia 
Albania 
Ukraine 
Serbia 
North Macedonia 
Moldova 
Bosnia and 
Herzegovina 
Montenegro 
Total 

2018 
Total 
positive 
decisions 
665 
1 295 
1 620 
440 
100 
35 

220 

25 
4 400 

Total 
decisions 

14 285 
17 130 
9 345 
6 295 
4 335 
2 525 

2 070 

610 
56 595 

Schengen+ area 

Recognition 
rate 

Total 
decisions 

4.7% 
7.6% 
17.3% 
7.0% 
2.3% 
1.4% 

10.6% 

4.1% 
7.8% 

18 745 
18 625 
9 280 
5 315 
3 640 
3 535 

1 670 

405 
61 215 

2019 
Total 
positive 
decisions 
760 
1 040 
950 
255 
50 
30 

120 

20 
3 225 

Recognition 
rate 

4.1% 
5.6% 
10.2% 
4.8% 
1.4% 
0.8% 

7.2% 

4.9% 
5.3% 

Eurostat, last update: 05/03/2020

63 

 
 
 
Ordered 
to leave 
590 

2019 

Returned 

355 

3 850 

3 005 

30 815 
8 740 

15 370 
5 250 

3 730 

1 495 

7 525 
37 095 
16 280 
108 625 

4 720 
27 200 
8 520 
65 915 

Return 
rate 

73% 

99% 

66% 
77% 

54% 

86% 
85% 
65% 
75% 

Return 
rate 

60% 

78% 

50% 
60% 

40% 

63% 
73% 
52% 
61% 

III.3 RETURN AND READMISSION 

Ordered 
to leave 
760 

2017 

Returned 

820 

Return 
rate 
108% 

Ordered 
to leave 
720 

2018 

Returned 

525 

4 460 

27 720 
8 720 

Montenegro 
North 
Macedonia 
Albania 
Serbia 
Bosnia and 
Herzegovina 
Moldova 
Ukraine 
Georgia 
Total 
Eurostat, last update 11/05/20 

4 605 
32 080 
7 285 
89 425 

3 795 

5 580 

125% 

3 500 

3 470 

29 840 
8 115 

108% 
93% 

28 570 
7 665 

18 765 
5 870 

2 685 

71% 

3 220 

1 725 

3 840 
25 355 
4 575 
80 810 

83% 
79% 
63% 
90% 

5 435 
32 340 
9 675 
91 125 

4 665 
27 420 
6 330 
68 770 

64