COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL The EU strategy on voluntary return and reintegration
Date: 2021-04-27
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU migration policy, EU strategy, Frontex, external border of the EU, foreign national, illegal migration, migrant, repatriation grant, return migration

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 27.4.2021  COM(2021) 120 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL The EU strategy on voluntary return and reintegration {SWD(2021) 121 final}  
 
 
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

The EU strategy on voluntary return and reintegration 

Introduction 

The New Pact on Migration and Asylum presents a comprehensive and integrated approach 
that brings together all related policy strands to build an effective, long-term and sustainable 
migration and asylum system. The aim is to structure the EU’s capacity to offer protection to 
people in need, to integrate those living and working in the EU, and to provide effective and 
humane  processes  to  return  people  who  are  not  entitled  to  stay.  A  common  EU  system  for 
returns is an essential component of a comprehensive and integrated migration management 
system. Voluntary and forced returns1 are both key elements of an effective return policy. 

The success of any return policy is often measured by the number of those that actually return 
to their country of origin. Currently, those figures remain low within the EU, with only about 
one third of people ordered to leave the EU effectively returning.2 To be effective, a common 
EU system for returns must consist of stronger structures inside the EU through a reinforced 
legal and operational framework for swift and fair return procedures that respect fundamental 
rights  in  compliance  with  the  Charter  of  Fundamental  Rights  of  the  EU,  and  strengthened 
governance at EU and national level, as proposed in the New Pact on Migration and Asylum. 
This needs to be combined with more effective cooperation with partner countries on return, 
readmission  and  reintegration  as  outlined  in  the  Commission’s  recent  Communication  on 
“Enhancing  cooperation  on  return  and  readmission  as  part  of  a  fair,  effective  and 
comprehensive  EU  migration  policy”3.  To  measure  the  real  success  of  a  return  policy,  it  is 
nevertheless  important  to  not  only  consider  the  return  rates  but  also  the  situation  of  the 
individuals  concerned,  enabling  their  return  in  a  dignified  manner  and  taking  into  account 
their reintegration prospects once they return to their country of origin.  

Combined with the new legal framework put forward in the New Pact, voluntary return is a 
crucial  element  of  the  common  EU  system  for  returns.  Alongside  effective  reintegration 
measures,  voluntary  return  aims  to  ensure  the  humane,  effective  and  sustainable  return  of 
irregular  migrants.  Voluntary  return,  which  is  usually  considered  more  cost-effective  than 
forced  return,  gives  returnees  real  opportunities  and  takes  into  account  their  needs, 
expectations and prospects once returned. In the framework of a comprehensive partnership, 
countries  of  return  would  also  be  more  inclined  to  participate  and  take  ownership  of  the 
process when the returns are voluntary. These elements build trust in the system, making it 
more credible and effective.  

1 Voluntary return refers to the assisted or independent  return of an individual to a third country based on the 
free will of the returnee; forced return refers to the enforcement of an obligation to return, notably the physical 
transportation of the returnee to a third country. 
2 Out of 491 195 illegally staying third country nationals ordered to return in 2019, 142 320 effectively returned 
to a third country. 
3 COM (2021) 56 final.  

1 

 
 
                                                           
An  effective  and  ambitious  policy  on  reintegration  as  a  key  component  of  a  common  EU 
system  for  returns  can  help  overcome  the  socio-economic  and  psychosocial  difficulties 
migrants  face  when  returning  to  their  community  and  make  their  return  more  sustainable. 
Reintegration  needs  to  be  designed  with  the  involvement  of  national  and  local  authorities, 
host local communities and civil society to help give tangible future prospects for the returnee 
and  their  local  community.  An  ambitious  reintegration  policy  should  both  facilitate  and 
benefit from the development of mutually beneficial and comprehensive partnerships with the 
partner countries that are at the heart of the external dimension of the New Pact. Sustainable 
reintegration should also contribute to broader development strategies in partner countries to 
generate development benefits and to address some of the root causes of irregular migration. 

This  Strategy  promotes  voluntary  return  and  reintegration  as  an  integral  part  of  a 
common EU system for returns. Over the years, the Commission has supported voluntary 
return and reintegration through various national schemes and EU-funded projects. However, 
this  is  the  first  time  that  the  Commission  presents  a  strategy  on  voluntary  return  and 
reintegration, which sets out new approaches to the design, promotion and implementation of 
voluntary  return  and  reintegration.  The  aim  of  this  strategy  is  to  develop  a  more  uniform 
and coordinated approach among Member States to unlock the full potential of voluntary 
return  and  reintegration.  It  puts  forward  an  approach  that  fosters  coherent  action,  forges 
closer  links  with  development  initiatives  and  national  strategies  in  partner  countries, 
reinforces  their  capacity  and  fosters  their  ownership  over  the  return,  readmission  and 
reintegration of their nationals. The aim is to boost the effectiveness and sustainability  of 
the  common  EU  system  for  returns  for  the  mutual  benefit  of  the  returnees,  the  EU  and  the 
third countries. 

This  strategy  supports  the  successful  implementation  of  key  components  of  the  New  Pact 
on Migration and Asylum, notably the clear rules and procedures for return at the border, 
return sponsorship and the new governance structures, by facilitating swift voluntary returns 
of rejected asylum seekers at the external borders and by setting up a common framework for 
voluntary  return  and  reintegration  that  can  facilitate  the  implementation  of  solidarity 
measures.  

1.  Building on achievements 

This  new  strategy  builds  on  initiatives  launched  in  previous  years  and  on  the  experience 
gained in implementing national and joint voluntary return and reintegration programmes as 
well as EU-funded initiatives in partner countries. Several initiatives are ongoing and are the 
basis for the development of the coherent framework put forward by this strategy.  

The  European  Return  and  Reintegration  Network  is  an  EU-funded  network  of  several 
Member  States  and  Schengen  Associated  countries4  that  facilitates  cooperation  between 
migration  authorities.  The  Network  has  become  a  key  stakeholder  in  the  assisted  voluntary 
return  and  reintegration  process.  It  provides  assistance  to  returnees  by  joint  contracting  of 
reintegration service providers in the countries of return and by exploring and implementing 
innovative solutions  in  cooperation with  its members and with  third countries. Since it was 

4  Austria,  Belgium,  Denmark,  Finland,  France,  Germany,  Greece,  Luxembourg,  Malta,  the  Netherlands, 
Norway, Spain, Sweden, Switzerland. 

2 

 
 
                                                           
set up in mid-2018, the Network (together with its predecessor, the European Reintegration 
Network), has supported the participating Member States to achieve the successful return and 
reintegration of nearly 25 000 migrants.  

voluntary 

the  Agency’s 

Operational  framework  for  reintegration 
and development 

On  the  basis  of  its  reinforced  mandate,  the  European  Border  and  Coast  Guard  Agency 
(Frontex)  is  developing  its  capacity  to 
return 
support 
and 
the  Agency 
reintegration.  In  2020, 
started supporting Member States in the 
area  of  voluntary  returns.  Around  18% 
return  operations 
of 
organised 
in  2020  were  voluntary 
returns,  and  this  share  is  increasing.  In 
mid-2022,  Frontex  will  take  over  the 
activities of the European Return and 
Reintegration  Network.  This  will 
ensure that the benefits  of the Network 
are  extended  equally  to  all  Member 
States  and  that  Frontex  can  fulfil  its 
mandate in the area of returns in a fully 
effective  manner,  providing  seamless 
support in organising tailored return and 
reintegration  assistance  to  returnees,  notably  through  providers  of  reintegration  services  in 
third  countries.  The  first  Frontex  pilot  for  individual  joint  reintegration  support  to 
returnees  from  the  EU  will  start  in  May  2021,  which  paves  the  way  for  the  full 
operationalisation of the Agency’s mandate on assisted voluntary return and reintegration. 

Since  2015,  development  budgets  have  been 
used  to  step  up  efforts  to  reintegrate  returning 
migrants  from  Europe  and  transit  countries. 
The  European  Return  and  Reintegration 
Network  brought 
the  national 
authorities  and 
the  Commission  under  an 
innovative initiative to explore options to work 
together more closely and align objectives. The 
Network  created  an  operational  framework 
advising  how  to  develop  practical,  on-the-
ground  ways  to  work  together.  It  is  currently 
testing  the  framework  with  several  Member 
States in Nigeria and Bangladesh.  

together 

To improve the quality of return counselling, the Commission has developed in the context of 
the  European  Migration  Network  an  EU  framework  on  return  counselling  that  provides 
guidance to Member State organisations in setting up, managing and developing counselling 
structures in Member States. This framework is a reference for creating or running national 
return  counselling  programmes  and  addresses  the  challenges  of  counselling  by  promoting 
good practice and giving recommendations. Moreover, together with the International Centre 
for  Migration  Policy  Development  (ICMPD)  and  Frontex,  the  European  Return  and 
Reintegration  Network  is  developing  a  common  curriculum  for  return  counsellors, 
focusing on the skills and competences that counsellors need. Involving Frontex in designing 
this  curriculum  ensures  complementarity  with  the  Agency’s  work  to  train  experts  in  return 
policy as members of the standing corps. 

The EU and its Member States have identified, at strategic and operational level, the need to 
work  together  and  develop  joint  tools  to  support  assisted  voluntary  return  and  sustainable 
reintegration.  Some  of  the  main  tools  supporting  the  implementation  of  the  strategy  in 
practice are already at an advanced stage of development.  

The  Reintegration  Assistance  Tool  (RIAT)  facilitates  information  exchange  and  referral 
among  return  counsellors  and  providers  of  reintegration  services  in  a  secure  digital 
environment  and  enables  users  to  monitor  assisted  voluntary  return  and  reintegration 
programmes.  The  Commission  has  also  set  up  a  Return  and  Reintegration  Assistance 

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Inventory (RRAI) that compiles information on the type of assistance (i.e. level and type of 
cash or in-kind  assistance), potential beneficiaries, organisations  involved and the stages of 
the procedure at which support is offered. These tools will enable better coordination at EU 
and national level, including in the context of return sponsorship, and improve the allocation 
of funding and promote the sharing of best practices5. 

The  EU-International  Organization  for  Migration  (IOM)  Joint  Initiative  for  Migrant 
Protection  and  Reintegration,  financed  by  the  EU  Trust  Fund  for  Africa,  was  launched  in 
December 2016. Among other activities, the Joint Initiative has supported assisted voluntary 
return and sustainable reintegration in the Sahel and Lake Chad Region, Horn of Africa and 
North  Africa, and has contributed to  strengthening migration  governance structures in  third 
countries.  From  April  2017  until  October  2020, it  has  provided  93 110 migrants  with  post-
arrival  reception  assistance  and  75 182  with  reintegration  assistance,  supporting  34 646 
humanitarian returns from Libya to countries of origin. The Joint Initiative delivered well on 
returns. On the reintegration side challenges identified include the ownership and capacity of 
national authorities, the coordination with other actors carrying out similar operations and the 
quality of monitoring6. Future joint reintegration support efforts should be embedded in the 
comprehensive  approach  and  aligned  with  the  geographical  priorities  identified  in  this 
context.  

2.  Challenges to address 

Despite  the  achievements  made  in  recent  years,  there  is  still  potential  to  maximise  the 
benefits of voluntary return and reintegration. The share of voluntary returns is currently 27% 
of all departures from the EU. A number of shortcomings hamper the full effectiveness and 
expansion of the EU’s action on voluntary return and reintegration support in the EU, as well 
as the sustainability of reintegration in third countries. 

Fragmentation  of  approaches.  Voluntary  return  and  reintegration  support  in  the  EU  is 
fragmented,  with  different  approaches  taken  by  the  Member  States,  lacking  the  coherence 
needed  for  the  policy  to  be  effective.  This  is  due  to  the  lack  of  a  joint  framework  and  to 
Member States engaging in differing levels of cooperation with any given third country. 

As  a  result,  although  all  Member  States  have  national  assisted  voluntary  return  and 
reintegration programmes, they differ markedly. In particular, there are divergences in their 
scope  (e.g.  with  some  covering  only  rejected  asylum  seekers),  in  the  procedures  and  in  the 
level  of  assistance  provided  to  returnees.  This  undermines  the  trust  of  returnees  and  of 
third  countries  in  the  system  and  their  willingness  to  engage.  Different  levels  or  types  of 
support create tension when returnees compare their situations during joint return operations 
or  when  back  home,  and  complicate  the  provision  of  complementary  reintegration  services 
for  origin  countries  and  for  providers  of  reintegration  services.  This  lack  of  a  consistent 
approach  in  turn  complicates  the  implementation  of  and  overall  cooperation  under  EU 
readmission  agreements  and  arrangements.  It  can  also  undermine  the  efforts  of  partner 

5  More  information  on  the  EU  framework  on  return  counselling  and  the  Reintegration  Assistance  Tool  is 
provided in the Commission staff working document accompanying this Communication. 
6 See for example the “Learning Lessons from the EUTF” report: 
https://ec.europa.eu/trustfundforafrica/sites/euetfa/files/exec_summary_llii__0.pdf and 
https://ec.europa.eu/trustfundforafrica/sites/euetfa/files/learning_lessons_from_the_eutf_5.pdf. 

4 

 
 
                                                           
countries to develop a coherent approach to the reintegration of returning migrants and create 
false expectations for partner countries about what the EU can offer. Fragmentation may also 
encourage  and  lead  to  unauthorised  movements  of  irregular  migrants  seeking  to  choose 
the national package that better fits their individual interests. 

relevant, 

and,  where 

Cost of return 

package.  For 

To  promote  voluntary  returns  to  their  full  potential,  some  aspects  of  the  current  legal 
framework will also need to be improved. It is 
clear  that  the  sooner  an  irregular  migrant 
returns, the higher the likelihood that the return 
is accepted by the migrant if it is carried out in 
the  context  of  a  fair  and  effective  procedure 
and the person receives accurate and complete 
information.  However,  absconding  during  the 
voluntary 
a 
remains 
further  hampers 
significant 
returns.  Fast  and  fair  common  procedures 
and  rules  on  asylum  and  return,  together 
with  better  support  for  voluntary  return  – 
including  for  migrants  subject  to  the  return 
border procedure and subject to administrative 
detention  if  appropriate  –  can  increase  the 
uptake  of  voluntary  returns  at  early  stages  of 
the return process. 

Voluntary return is generally considered 
more  cost-effective  than  forced  return. 
Estimating  the  costs  of  voluntary  return 
should  include  the  in-cash  and  in-kind 
assistance  provided  to  the  returnee,  the 
flight 
the 
forced 
reintegration 
returns,  the  cost  includes  the  cost  of 
housing  the  returnee  in  the  pre-removal 
detention  facility,  and  the  involvement 
of 
special 
arrangements  before,  during  and  after 
return.  The  European  Parliamentary 
Research  Service  has  estimated  that 
forced 
return  costs  EUR 3 414  per 
individual, compared with EUR 560 per 
voluntary  return.  The  average  indicative 
cost  of  returns  from  transit  countries  is 
estimated  at  around  EUR  2 500  per 
person.  

Insufficient  data  collection.  The  statistical 
information  currently  available  does  not 
provide  a  complete  picture  on  the  use  of 
voluntary return and reintegration in the EU, as 
Member States have no obligation to report on 
the  breakdown  between  voluntary  and  forced 

departure 
issue,  which 

escorts 

period 

other 

and 

return and on the type of assistance provided to returnees. 

Lack  of  a  coherent  framework  for  return  counselling  and  a  mechanism  to  refer 
returnees  to  return  and  reintegration  programmes  (referrals).  Effective  return 
counselling  is  essential  to  strengthen  the  links  between  the  pre-departure  and  post-arrival 
phases and to make a success of reintegration. At present, there is no framework in place on 
counselling or the minimum qualifications and  training requirements to provide the service. 
Several  mechanisms  are  currently  used  to  refer  returnees  to  return  and  reintegration 
programmes,  leading  to  fragmentation,  loss  of  information  and  mismatch  between  the 
migrants’  skills,  needs  and  ambitions  and  the  support  offered.  To  provide  a  high  quality 
service, return counsellors need specific training and access to up-to-date information on 
the assistance available to returnees and existing opportunities in the countries of return. 

Insufficient  coordination  among  stakeholders.  A  range  of  stakeholders  and  actors  are 
active  in  the  area  of  voluntary  return  and  reintegration,  namely  EU  national  and  local 
authorities, international and civil society organisations, third country authorities at national 
and  local  level.  These  include  border  and  migration  authorities,  social  work  and  healthcare 
providers,  housing  and  education  authorities,  legal  aid  and  non-profit  organisations  in 
multiple  countries  and  at  different  levels.  The  lack  of  effective  coordination  between  these 

5 

 
 
 
 
 
organisations  leads  to  duplications  and  inefficiencies.  For  instance,  a  Member  State  might 
support the onward travel of a returnee from the airport of arrival to the town of origin as well 
as  short-term  accommodation  there,  when  another  EU  project  already  funds  that  same 
accommodation,  along  with  medical  care.  Insufficient  synergies  with  national  development 
strategies in partner countries may affect the effectiveness and sustainability of reintegration 
programmes.  For  example,  the  training  provided  to  returnees  needs  to  take  into  account 
possible  synergies  with  on-going  development  projects  and  be  aligned  with  national 
strategies to boost certain sectors. To avoid overlaps or gaps, projects need to be coordinated 
among  Member  States  and  reintegration  should  be  mainstreamed  into  programming 
activities. 

Lack  of  sustainability,  including  due  to  a  lack  of  ownership  and  capacity  of  origin 
countries. Partner countries generally see reintegration as a positive element of cooperation 
on  readmission.  However,  because  of  insufficient  capacity,  few  third  countries  are  able  to 
manage the reintegration process and ensure sufficient coordination with national migration 
and  development  strategies.  For  example,  a  partner  country  willing  to  be  involved  in 
providing reintegration services to its returning nationals might lack the governance structure, 
the staff with the skills needed (including managing donor support and monitoring) and the 
capacity to provide public services tailored to the specific economic, social and psychosocial 
needs of returnees. Moreover, local providers of reintegration assistance may lack capacity. 
As  a  consequence,  reintegration  processes  may  lack  in  sustainability  and  be  heavily 
dependent on donors and operational partners, and risk also being fragmented due to a lack of 
coherence between donor-funded schemes.   

Insufficient funding. Voluntary return and reintegration have become major priorities for the 
EU and its Member States. However, funding allocations mobilised for increasing voluntary 
returns have not always been able to match all needs and expectations. 

The  COVID-19  pandemic  is  an  additional  challenge,  as  it  frustrates  the  EU’s  ability  to 
return irregular migrants, limits the capacity of third countries to readmit and reintegrate their 
nationals,  and  can  reduce  the  willingness  of  migrants  to  return  due  to  the  socioeconomic 
impact of the pandemic in the countries of origin.  

3.  A strategic approach to voluntary return and reintegration 

This strategy acknowledges the value of voluntary return and aims to increase the number 
and  share  of  voluntary  returns  from  Europe  and  from  transit  countries,  to  improve  the 
quality of the support and the participation of returnees, and to reinforce the coherence and 
governance of EU action. 

The  strategy  sets  out  a  new,  more  coordinated  and  integrated  approach  to  the  design, 
promotion and implementation of assisted voluntary return and reintegration schemes and of 
actions in third countries to build better links with other development initiatives, to build the 
capacity and ownership of third countries to reintegrate their own nationals, and to make the 
schemes  sustainable.  This  strategy  follows  and  promotes  the  overall  objectives  of  the  New 
Pact  on Migration and Asylum, including the governance structures and the mechanism for 
cooperation in return and readmission set out in the proposal for a Regulation on Asylum and 
Migration  Management.  Moreover,  the  implementation  of  this  strategy  would  help  render 
more  effective  the  return  border  procedure  proposed  in  the  New  Pact,  promoting  swift 

6 

 
 
voluntary  returns  from  the  EU’s  external  borders,  thereby  reducing  the  duration  of  stay  of 
people  in  the  border  procedure,  and  overall  maximising  its  efficiency.  An  efficient  return 
border  procedure  will  also  facilitate  and  encourage  voluntary  returns  since  people  will  be 
available and more willing to cooperate with the authorities. It better equips the EU to react 
to situations of migratory pressure by facilitating sponsorship for voluntary returns, as set 
out in the proposal for a Regulation for Asylum and Migration Management, with a common 
framework that reduces fragmentation and steps up cooperation between Member States.  

In response to these challenges, the strategy sets  out a wide range of measures under  seven 
pillars,  grouping  together  the  internal,  external  and  operational  aspects  of  voluntary  return 
and reintegration and covering: 

1.  A more effective legal and operational framework;  
2.  Effective coordination between all stakeholders; 
3.  Supporting  voluntary  return  and  reintegration  of  migrants  from  and  between  third 

countries;  

4.  Effective return counselling and referral;  
5.  Ensuring quality of support;  
6.  Fostering  sustainability  of  reintegration  support  and  ownership  of  partner  countries; 

and 

7.  Funding for voluntary return and reintegration.  

The  success  of  the  strategy  relies  on  a  smooth  and  constructive  collaboration  between 
relevant  stakeholders  including  the  European  Parliament,  Member  States,  the  European 
Commission, the High Representative of the Union for Foreign Affairs and Security Policy, 
Frontex,  partner  countries  and  a  large  constellation  of  providers  of  voluntary  return  and 
reintegration  services  (e.g.  international  and  civil  society  organisations,  national  and  local 
authorities) active in this area.  

3.1 A more effective legal and operational framework  

While the core elements of this strategy can be implemented on the basis of the current legal 
framework,  its  reinforcement  is  necessary  to  fully  support  a  strategic  and  coherent 
approach  to  voluntary  return  and  reintegration.  The  Return  Directive7  prioritises  voluntary 
over forced return, but  it does not  provide  a framework for setting up and running assisted 
voluntary  return  programmes  or  for  supporting  the  reintegration  of  irregular  migrants. 
International law also lacks rules or obligations for providing such support.8 

The  new  legal  framework  proposed  under  the  New  Pact  would  address  these  shortcomings 
and  put  in  place  a  more  consolidated  governance  based  on  the  Regulation  on  Asylum  and 
Migration Management9. The proposal for a recast Return Directive10 sets  a joint basis to 

7  Directive  2008/115/EC  of  the  European  Parliament  and  of  the  Council  of  16 December  2008  on  common 
standards  and  procedures  in  Member  States  for  returning  illegally  staying  third-country  nationals,  OJ  L  348, 
24.12.2008, p. 98. 
8  Some  political  declarations,  however,  stress  the  importance  of  voluntary  return  and  reintegration  -  see  for 
example  UN  Agenda  2030,  Sustainable  Development  Goals,  target  10.7;  Global  Compact  on  Migration, 
objective 21. 
9 COM(2020) 610 final. 
10 COM(2018) 634 final. 

7 

 
 
                                                           
achieve coherence between national programmes on voluntary return and – where necessary 
–  reintegration,  and  provide  better  rules  for  improving  migrants’  cooperation  and  reducing 
absconding.  Furthermore,  together  with  the  amended  proposal  for  an  Asylum  Procedures 
Regulation11,  it  aims  to  reduce  the  length  of  return  procedures  and  make  the  return 
procedures overall more streamlined and effective, while ensuring the respect of the rights of 
returnees,  notably  the  fundamental  right  to  an  effective  remedy,  at  all  stages  of  the  return 
process.  This  in  turn  will  be  beneficial  for  the  implementation  of  voluntary  returns.  The 
ambition and objectives set out in this strategy should be reflected in the ongoing negotiations 
with  the  European  Parliament  and  the  Council  on  the  New  Pact,  particularly  regarding 
support  for  vulnerable  persons12  and  counselling.  Regarding  the  Return  Directive,  the 
Commission will support reaching a compromise between the co-legislators to ensure that the 
legal framework fully supports a strategic use for voluntary returns. 

The EU legal framework must also ensure the integrity of the EU system and prevent abuses. 
The proposal for a revised Eurodac Regulation13 will improve Member States’ capacity to 
monitor  the  granting  of  return  and  reintegration  assistance,  and  reduce  the  risk  of 
unauthorised  secondary  movements  encouraged  by  differing  national  programmes  by 
introducing  new  data  fields  to  monitor  this  information.  The  Commission  will  monitor  the 
effective  and  thorough  implementation  of  return  rules,  notably  through  the  Schengen 
evaluation mechanism, taking also account of the actions and priorities of this strategy. 

Data  collection  will  improve  with  the  amended  Regulation  on  Migration  Statistics14,  as 
Member States will start providing data on the type of return and assistance received, notably 
on  voluntary  return  and  reintegration.  Furthermore,  with  the  entry  into  force  of  the  EU 
Entry-Exit  System15  and  the  operationalisation  of  the  Schengen  information  System  for 
return16,  additional  information  on  the  granting  of  a  voluntary  departure  period  and  the 
voluntary return of irregular migrants from the EU will be available. The amended Eurodac 
proposal17  will  complement  the  picture  by  registering  information  on  whether  voluntary 
return  and  reintegration  assistance  has  been  granted  to  irregular  migrants.  Finally,  the 
Migration  Situational  Awareness  and  Analysis  (MISAA)  reports  will  also  reinforce  the 
operational  and  situational  knowledge  on  return  in  the  Union.  These  developments  will 
provide a more  reliable  and complete overview  of the  availability, use and effectiveness of 

11 COM(2020) 611 final. 
12  According  to  Article  3(9)  of  Directive  2008/115/EC,  “‘Vulnerable  persons’  means  minors,  unaccompanied 
minors, disabled people, elderly people, pregnant women, single parents with minor children and persons who 
have been subjected to torture, rape or other serious forms of psychological, physical or sexual violence”. 
13 COM(2020) 614 final. 
14  Regulation  (EU)  2020/851  of  the  European  Parliament  and  of  the  Council  of  18  June  2020  amending 
Regulation  (EC)  No  862/2007  on  Community  statistics  on  migration  and  international  protection  (Text  with 
EEA relevance), OJ L 198, 22.6.2020, p. 1. 
15 Regulation (EU) 2017/2226 of the European Parliament and of the Council of 30 November 2017 establishing 
an Entry/Exit System (EES) to register entry and exit data  and refusal of entry data of third-country nationals 
crossing the external borders of the Member States and determining the conditions for access to the EES for law 
enforcement purposes, and amending the Convention implementing the Schengen Agreement and Regulations 
(EC) No 767/2008 and (EU) No 1077/2011, OJ L 327, 9.12.2017, p. 20. 
16 Regulation (EU) 2018/1860 of the European Parliament and of the Council of 28 November 2018 on the use 
of  the  Schengen  Information  System  for  the  return  of  illegally  staying  third-country  nationals,  OJ  L  312, 
7.12.2018, p. 1. 
17 COM(2020) 614 final. 

8 

 
 
                                                           
voluntary return and reintegration assistance in the EU. Collecting all this data in a systematic 
and  coherent  way  will  enhance  the  credibility  of  voluntary  returns  and  therefore  create  an 
incentive for Member States to rely more on voluntary returns.  

The role of Frontex as the operational arm of the common EU system of returns is key to 
improving  the  overall  effectiveness  of  the  system  and  to  support  –  with  new  tools  –  the 
practical  use  of  a  consolidated  EU  framework  on  voluntary  return  and  reintegration.  The 
Agency should support an increasing number of voluntary return operations and reinforce its 
capacity  to  provide  operational  assistance  to  Member  States  in  all  phases  of  the  voluntary 
return and reintegration process, including on pre-return counselling (e.g. outreach campaigns 
to migrants), post-arrival support and monitoring the effectiveness of reintegration assistance.  

At  the  same  time,  Member  States’  authorities  should  make  more  use  of  all  the  operational 
support that Frontex offers. In addition to taking over the activities of the European Return 
and Reintegration Network, Frontex is developing  joint reintegration services, which give 
Member  States  the  flexibility  needed  to  identify  support  for  individual  cases,  ensure 
consistency in the content and quality of services, and facilitate ‘government-to-government’ 
cooperation on return and reintegration. The rollout of the standing corps, with return experts 
providing specialised support, will further strengthen the role of the Agency in this area and 
in implementing this strategy. Setting up a dedicated division within Frontex, led by a Deputy 
Executive Director, will equip the Agency to fulfil its expanded mandate in the area of return.  

The  independent  Fundamental  Rights  Officer,  supported  by  monitors  working  for  his/her 
office, assists Frontex in the implementation of its fundamental rights strategy and promotes 
the Agency’s respect of such rights in all its activities, including return.  

The  Return  Coordinator  and  the  High  Level  Network  for  Return,  comprising 
representatives  from  Member  States,  will  provide  further  technical  support  in  bringing 
together the different strands of the EU return policy including in the field of voluntary return 
and reintegration, where the Return Coordinator could promote a more coherent approach to 
reintegration assistance in relation to specific partner countries. The Return Coordinator will 
cooperate closely with all relevant actors to ensure that actions work together coherently and 
that the available support is used to the fullest extent possible. The work of the Coordinator 
and the High Level Network will form an integral part of the governance framework set by 
the proposal for a Regulation on Asylum and Migration Management.  

The way forward 

-  The  Commission  will  work  with  the  European  Parliament  and  the  Council  to 
advance  and  conclude  negotiations  on  the  various  elements  of  the  New  Pact,  in 
particular  the  Regulation  on  Asylum  and  Migration  Management,  the  recast  Return 
Directive, the Asylum Procedures Regulation and the Eurodac Regulation proposals, 
to further reinforce the return legal framework and support the implementation of this 
strategy. 

-  Member States should make full use of the operational assistance that  Frontex can 

offer in relation to voluntary return and initial reintegration.  

-  Frontex should increase the number of return operations – including voluntary returns 

– it carries out. 

9 

 
 
 
-  Frontex should appoint as a matter of priority the Deputy Executive Director to lead 

the dedicated Return structure of the Agency.  

-  Frontex should take over the activities carried out under the European Return and 

Reintegration Network by mid-2022. 

3.2 Effective coordination between all stakeholders 

There  is  a  need  to  step  up  coordination  of  existing  structures  and  to  link  reintegration 
programmes to wider national strategies and development programmes of partner countries, 
reducing the risk of duplication and improving the use of resources.  

A wide range of actors and stakeholders are involved in voluntary return and reintegration 
processes.  The  returnees  themselves  are  the  most  important  people  in  the  process,  together 
with,  at  the  receiving  end,  the  countries  and  local  communities  of  origin.  In  the  EU,  in 
addition  to  national  and  local  authorities  (immigration  authorities,  police,  regions, 
municipalities), diaspora, local communities and civil society organisations can help promote 
voluntary  return  and  reintegration  and  contribute  to  reducing  the  negative  perception  of 
return  through  engagement  with  communities  of  origin.  Similarly,  outside  the  EU,  a  wide 
range of international and civil society organisations, as well as national authorities and other 
actors  in  countries  of  origin  are  involved  in  providing  support  to  returnees.  The  EU 
delegations and the representations of Member States in third countries should ensure a joint 
and  coordinated  EU  approach  in  terms  of  programming,  implementation  and  monitoring  of 
reintegration projects. 

Building  on  the  experience  in  partner  countries  on  linking  reintegration  with  development, 
the Commission, in close cooperation with the High Representative will ensure coordination 
among  all  parties  involved  in  the  return  and  reintegration  process,  including  national  and 
local authorities and development actors. These mechanisms should facilitate referral of the 
returnees  to  relevant  development  programmes  available  in  partner  countries  able  to 
contribute  to  sustainable  reintegration,  such  as  employment  creation,  education,  skills 
development or social inclusion. 

The EU delegations, supported by European Migration Liaison Officers, should contribute to 
maintaining continuous engagement with their countries’ stakeholders, including with a view 
to  building  understanding  of  the  local  context  and  priorities,  identifying  needs  for  capacity 
building and coordinating financial and operational support. At the same time, where possible 
and  needed,  they  will  facilitate  the  exchange  of  information  and  the  coordination  of  action 
among Member States taking a ‘Team Europe’ approach. 

The  Return  Coordinator,  together  with  the  High  Level  Network,  will  also  support  the 
coordination  of  national  authorities  on  voluntary  return  and  reintegration  strategies  and 
programmes,  to  promote  the  consistency  between  national  actions  and  this  strategy,  and  to 
promote the exchange of best practices among Member States. 

10 

 
 
 
 
 
The way forward 

-  Building  on  the  experience  in  partner  countries  on  linking  reintegration  with 
development,  the  Commission,  in  close  cooperation  with  the  High  Representative, 
will ensure coordination in relevant partner countries among all parties involved in the 
return and reintegration process.  

-  The  Return  Coordinator  and  the  High  Level  Network  for  Return  will  support 
efforts  to  ensure coherence  and consistency  of Member States’ actions on voluntary 
return and reintegration. 

3.3 Supporting voluntary return and reintegration of migrants from and between 
third countries 

The EU has a long tradition of supporting voluntary return and reintegration of migrants from 
third countries to third countries. This form of assistance can provide an immediate personal 
relief to the individuals involved, supporting them when confronted with situations of danger 
and distress, and contributes to the development of the communities and countries to which 
they  return  and reintegrate, while at  the same time be of interest  to  partner countries. Such 
support  will  continue  in  parallel  with  the  support  for  voluntary  returns  from  the  Member 
States  and  will  benefit  from  the  increased  sustainability  of  reintegration  and  ownership  of 
national authorities in third countries.  

African Union – EU – UN Task Force 

humanitarian 

complemented 

The  African  Union  -  European  Union  - 
United  Nations  Task  Force,  established 
in November 2017, led to the launch of a 
evacuation 
major 
operation, 
with 
reintegration assistance in the country of 
origin.  It  has  led  to  over  54  000  
voluntary  humanitarian 
returns  of 
migrants  from  Libya  to  their  home 
countries facilitated by IOM and African 
Union Member States.  

Joint 

Among all projects funded by the EU, the EU-
International  Organization  for  Migration 
for  Migrant 
Initiative 
(IOM) 
Protection  and  Reintegration 
is  of  key 
importance  because  it  has  ensured  protection, 
voluntary return and reintegration assistance to 
over  100  000  migrants  in  Libya,  Niger  and 
other  African  countries,  helping  them  go 
back  to  and  reintegrate  into  their  countries  of 
origin  in  Western,  Central  and  Eastern  Africa 
in a sustainable and durable manner. The Joint 
Initiative  has  also  supported,  to  a  limited 
extent,  the  reintegration  of  migrants  returning 
from  the  EU,  when  other  EU  or  Member 

States’ funds were not available for that purpose.  

In  addition  to  the  Joint  Initiative,  the  EU,  through  the  Reintegration  and  Development 
Assistance  in  Afghanistan  (RADA)  and  the  Bangladesh  Sustainable  Reintegration  and 
Improved  Migration  Governance  (Prottasha)  projects,  also  implemented  by  the  IOM,  has 
provided  assistance  for  voluntary  return  and  reintegration  to  Afghan  and  Bangladeshi 
returnees  going  back  to  their  origin  country  from  other  third  countries  of  transit  and 
destination,  including  from  Iran  and  Pakistan.  These  projects  also  largely  supported  the 
sustainable  reintegration  of  Afghan  and  Bangladeshi  migrants  returning  home  from  the  EU 
territory. 

Partner countries that are also countries of destination and transit of irregular migration share 

11 

 
 
 
similar  concerns  and  interests  when  it  comes  to  returning  irregular  migrants  and  ensuring 
their sustainable reintegration in countries of origin. Partnerships at regional and multilateral 
level, as well as with international organisations, will be further explored, including building 
on  the  experience  of  the  African  Union  –  EU  –  United  Nations  Taskforce  on  migration  in 
Libya  established  in  November  2017.  This  innovative  trilateral  approach,  bringing  together 
all  relevant  stakeholders,  has  effectively  supported  voluntary  returns  from  Libya,  with  an 
unprecedented  political  engagement  and  support  by  the  African  Union  that  has  addressed 
operational  and  political  bottlenecks,  such  as  providing  consular  assistance  in  particularly 
challenging circumstances. 

The way forward 

-  The EU will provide support for voluntary return and reintegration of migrants from 
third  countries  of  transit  and  destination  to  countries  of  origin,  including  through 
further exploration of possible partnerships at regional and multilateral level. 

3.4 Effective return counselling and referral 

through 

information 

together  with 

Return counselling in a nutshell 

It is important to provide migrants, at the earliest possible stage, with timely, up-to-date and 
reliable 
in-
person  or  online  counselling.  The 
the 
Commission, 
European  Migration  Network,  will 
periodically  review  and  update  the 
return 
EU 
counselling  to  share  up-to-date  best 
practices  on  setting  up  and  running 
national  structures  to  provide  return 
counselling.  

framework 

on 

it  should  build 

A  successful  voluntary  return  process  starts  with 
tailored  outreach  and  dialogue  between  a  counsellor 
and  the  migrant,  during  which  the  migrant  receives 
timely,  up-to-date  and  relevant  information  on  their 
status and the offer to receive voluntary return support. 
This dialogue should take place at the earliest possible 
stage  of  the  migration  process,  including  during 
asylum  procedures  if  appropriate,  for  instance  for 
people  coming  from  low-recognition-rate  countries. 
The  process  should  help  the  migrant  plan  a  safe  and 
trust  and 
dignified  return  and 
cooperation  between  the  migrant  and  the  counsellor. 
The  dialogue  must  take  into  account  the  migrant’s 
individual  needs  and  vulnerabilities  and  address  their 
concerns.  Regarding  minors  in  particular,  counselling 
needs  to  be  provided  in  a  child-friendly  language  and 
should  take  into  account  the  specific  situation  of  the 
minor, ensuring the respect of the best interests of the 
child.  Counselling  entails  close  cooperation  and 
exchange  of  information  between  a  wide  range  of 
authorities  at  State,  municipal  and  local  level,  as  well 
as  other  stakeholders,  including  asylum  authorities. 
The use of online counselling has increased during the 
current  pandemic  and  will  continue  to  be  useful  in 
providing  remote  counselling.  Online  counselling 
allows  reintegration  service  providers  to  participate  in 
the  counselling  sessions  and  can  facilitate  follow-up 
talks.  
12 

objective, 

In  addition,  the  Commission  will 
work  with  Frontex  to  develop,  as  a 
longer-term 
a 
comprehensive  return  curriculum  for 
practitioners  that  comprises  teaching 
components  on  all  aspects  of  return 
policy  and  practice.  The 
return 
curriculum  will  include,  but  not  be 
limited  to,  dedicated  modules  on 
voluntary  return  and  reintegration, 
and  it  will  incorporate  existing  tools 
such  as  the  EU  framework  on  return 
counselling 
common 
curriculum  for  return  counsellors. 
Where suitable, relevant stakeholders 
in  countries  of  origin  could  also 
provide 
input.  Frontex  will 
support  Member  States  by  deploying 

their 

and 

the 

 
 
 
 
return experts trained in return counselling as part of the standing corps. 

To  facilitate  access  to  and  the  sharing  of  information  on  the  opportunities  available  and  to 
facilitate  referrals  between  return  counsellors  and  service  providers,  better  use  should  be 
made  of  the  existing  information  tools,  notably  the  Return  and  Reintegration  Assistance 
Inventory and the Reintegration Assistance Tool. Work on these knowledge management 
tools  is  needed  to  streamline  the  use  of  the  Reintegration  Assistance  Tool  in  return 
counselling and referral, and to facilitate regular updates and analyse the information on the 
Return and Reintegration Assistance Inventory. This will help with programme monitoring, 
maximise their use and improve their quality.  

The way forward 

-  Member  States  should  engage  in  early,  active  and  effective  outreach  to  irregular 
migrants,  while  taking  due  account  of  vulnerabilities,  and  develop  effective  return 
counselling  structures  (both  for  in-person  and  online  counselling)  following  the  EU 
framework for return counselling.  

-  The  European  Return  and  Reintegration  Network  should  finalise  the  common 

curriculum for return counsellors by mid-2022. 

-  Frontex should step up its training on return counselling, notably for standing corps 

return experts, following the adoption of the common curriculum.  

-  Member States should regularly and frequently update the Return and Reintegration 
Assistance Inventory and streamline the use of the  Reintegration Assistance Tool 
in  return  counselling  and  referral  processes;  the  Commission  will  provide  regular 
training on how to do so.  

-  The  Commission,  with  the  support  of  Frontex,  should  further  develop  EU-level 
information tools such as the Return and Reintegration Assistance Inventory and the 
Reintegration  Assistance  Tool,  including  by  promoting  their  interoperability  with 
national  return  case  management  systems,  and  ensure  appropriate  governance 
structures for them.  

3.5 Ensuring quality of support 

Assistance  to  voluntary  return  covers  a  wide  range  of  pre-return  activities  that  include 
counselling,  medical  and  psychological  support,  as  well  as  financial,  legal  and  logistical 
assistance for travel. This is often provided in combination with post-arrival and reintegration 
assistance  to  help  the  returnee  find  or  create  new  opportunities  in  the  country  of  return, 
including with the involvement of local communities immediately upon arrival and over the 
longer term.  

13 

 
 
 
One-stop-shop  reintegration  services 
under national leadership  

objective 

In Tunisia, the EU Trust Fund for Africa 
funds  socio-economic  reintegration  and 
helps  set  up  a  Tunisian-led  reintegration 
mechanism.  The 
to 
strengthen  the  capacities  of  the  Tunisian 
authorities  to  carry  out  reintegration  at 
central  and  local  level  and  to  reinforce 
coordination  among  EU  Member  States 
the  national 
to 
encouraging 
reintegration mechanism.  

referral 

is 

supports 

cooperation  with 

In  Armenia,  the  European  Return  ad 
a 
Reintegration  Network 
Referral  Centre  for  Reintegration,  set  up 
in 
national 
authorities, that provides counselling and 
referral 
local  and 
international  project,  and  monitors  the 
implementation of the reintegration plan. 

to  services  and 

the 

should  be 

tailor-made, 
This  assistance 
provided  upon  arrival  and  take  into  account 
individual abilities and specific needs, notably 
of vulnerable groups. For children, the specific 
conditions in the country of return need to be 
considered on a case-by-case basis, taking into 
account  the  individual  circumstances  and  the 
that 
family  situation.  This  would  ensure 
migrants receive the assistance they need upon 
arrival and make their return sustainable. The 
needs  of  unaccompanied  minors  and 
children 
in  migration  are  key  political 
priorities  for  the  EU  asylum  and  migration 
quality 
management 
support to children in the context of voluntary 
returns  and  reintegration,  and  taking  account 
of  the  best  interests  of  the  child  as  a  primary 
consideration,  is  crucial  for  allowing  them  to 
build a future in the country of origin.  

system.  Providing 

referral  mechanism 

the 
These  projects  show  how,  with 
necessary  institutional  support,  countries 
of  origin  can  set  up  a  one-stop-shop  for 
all  phases  of  reintegration  through  a 
national 
to 
reintegration service providers. 

High quality support improves the chances of 
sustainable  reintegration.  However,  there  is  a 
lack  of  common  quality  standards  for 
designing  the  content  and  form  of  voluntary 
return  and  reintegration  assistance  and  for 
assessing 
the  capacity  of  providers  of 
reintegration  services,  which  the  EU  and  its 
Member  States  rely  on,  to  offer  this  support 
successfully in third countries. This has led to wide discrepancies in the quality, content and 
consistency  of  support,  depending  on  the  returning  Member  State,  the  third  country 
concerned  and  the  provider  of  reintegration  assistance.  Moreover,  different  donors,  public 
authorities,  providers  of  reintegration  assistance  and  local  partners  often  apply  different 
criteria for assessing the success of schemes, which makes it difficult to compare information 
on reintegration assistance and reduces its value for policy-making.  

The  lack  of  common  standards,  combined  with  the  fragmentation  of  national  programmes, 
can have negative consequences for the level of acceptance of return, by both the irregular 
migrants  and third countries. This affects in particular the joint work carried out by several 
Member States with Frontex support or in the context of return sponsorship.  

In response to these shortcomings, it is key that the work of providers of voluntary return and 
reintegration  assistance  meets  high  standards.  The  Commission  will  develop  a  quality 
framework  for  reintegration  service  providers,  identifying  common  standards,  which 
could  be  supported  by  EU  funding.  These  standards  will  cover  organisational  and  project 
management  requirements  and  conditions  for  material  support.  The  quality  framework  will 
also  lay  down  key  performance  indicators,  including  on  timeliness,  compliance  with  the 
standards and level of service, which will improve the collection of more comparable data on 
reintegration assistance. The framework will take due account of the specific needs faced by 

14 

 
 
 
vulnerable  groups,  such  as  unaccompanied  minors,  families,  people  with  disabilities  or 
victims  of  trafficking  in  human  beings.  The  framework  will  also  stress  the  importance  of 
fostering  the  ownership  of  partner  countries  and  the  development  of  local  reintegration 
service providers that, having better knowledge of the local situation, may be better placed to 
work  within  the  local  context  and  be  more  cost  effective.  The  involvement  of  partner 
countries’ actors could also support the development of the quality framework.  

The  quality  framework  will  increase  the  credibility  of  the  voluntary  return  and 
reintegration  schemes  of  the  EU  and  its  Member  States,  support  capacity  building  of 
reintegration  service  providers,  increase  and  harmonise  the  quality  and  content  of 
individual  assistance  and  facilitate  programme  monitoring  and  evaluation.  Aligning  the 
national approaches more closely and providing joint procedures and rules on the modalities 
and type of assistance, the quality framework can also support the implementation of return 
sponsorship  and  increase  acceptance  by  third  countries  of  joint  return  activities  of  the 
Member States. 

The way forward 

-  The  Commission  will  make  available  a  quality  framework  for  reintegration 
service  providers  based  on  common  quality  standards,  in  cooperation  with  the 
Member States, Frontex and the European Return and Reintegration Network by mid-
2022, and it will promote its use. 

-  Frontex will apply the quality framework in managing the joint reintegration services 

provided to returnees who are referred to the Agency by national authorities. 

3.6  Fostering  sustainability  of  reintegration  support  and  ownership  of  partner 
countries  

Cooperation  on  voluntary  return  and  sustainable  reintegration  are  key  aspects  of  the 
comprehensive  and  mutually  beneficial  migration  partnerships  that  the  EU  will  strengthen 
under  the  New  Pact  with  countries  of  origin  and  transit.  Countries  of  origin  are  the  best 
placed  to  create  economic  and  social  prospects  for  their  nationals,  including  returning 
migrants. However, a variety of reasons can negatively affect their sense of ownership of the 
reintegration  process.  Some  of  these  reasons  are  related  to  shortcomings  with  respect  to 
capacity, public services as well as political, legislative and operational frameworks. Referral 
to  public  services  involved  in  the  reintegration  process,  such  as  providers  of  healthcare, 
training or education services and employment agencies, might be underdeveloped due to a 
lack  of  coordination  and  to  the  insufficient  quality  of  the  service  provided.  Insufficient 
synergies  between  the  work  of  international  actors  and  the  frameworks  and  initiatives 
developed  by  countries  of  origin,  including  parallel  structures,  can  also  have  a  negative 
impact. 

15 

 
 
 
for 

the 

the 

over 

social 

capacity 

economic, 

ownership 

sustainability 

the  donors  and 

Sustainable reintegration 

Sustainability  is  a  multi-faceted  concept  that 
encompasses the needs and vulnerabilities of the 
individual, 
and 
psychosocial  reintegration  in  the  community, 
cost-effectiveness 
the 
contribution to local development. In addition to 
supporting  individual  returnees,  the  concept  of 
sustainable reintegration has the broader  goal  of 
receiving 
up 
building 
communities, 
local 
stakeholders.  The  aim  is  to  encourage  partner 
countries  to  take  ownership  of  the  process  to 
reintegrate  and  ultimately  return  and  readmit 
their  own  nationals  as  part  of  the  broader 
objectives  for  the  country’s  development  and 
migration management.  

The  EU  will  support  and  promote  a 
gradual  increase  in  countries  of 
origin’s 
the 
reintegration  process  in  national  and 
local initiatives in partner countries by 
addressing  some  of  these  issues,  to 
and 
ensure 
to 
contextualisation,  as  well  as 
increase 
effectiveness.  Where 
relevant,  EU  action  should  also  target 
civil  society  and  the  private  sector  to 
mobilise 
their  strengths.  The  EU 
should  support  the  development  of  a 
to 
‘whole-of-government  approach’ 
reintegration, with better planning and 
increased  synergies  with  national  and 
local  development 
strategies  and 
increased  responsiveness  of  public 
the  specific  needs  of 
services 
returnees, while respecting social cohesion needs. Frontex should also provide its support to 
contribute  to  strengthening  the  capacity  of  partner  countries  on  voluntary  return  and 
reintegration, in accordance with its mandate. This will include deploying liaison officers in 
third  countries  to  assist  in  the  organisation  of  readmission  and  reintegration,  building  local 
capacity and fostering ownership. 

the  private  sector  and 

of 

to 

To maximise the impact of reintegration assistance, as part of our international partnerships 
that are a key component of the New Pact, the EU will help strengthen government bodies 
and  migration  governance  structures  in  third  countries  and  avoid  setting  up  parallel 
systems  driven  by  either  the  donor  or  the  providers  of  reintegration  services.  Such  support 
should  strengthen  the  capacity  of  national  and  local  authorities  and  of  the  reintegration 
service providers within the administration, for example by providing training and supporting 
the development and implementation of policy and operational frameworks, thus improving 
sustainability  and  reducing  the  dependency  on  external  providers  and  donor  funding. 
Countries of origin will be encouraged and supported to take on increased responsibilities in 
the welcoming and orientation of returnees, for example setting up one-stop-shop desks that 
will  facilitate  access  to  public  services  and  coordinate  referrals  to  reintegration  and  other 
development projects, with appropriate involvement of the private sector. The involvement of 
local communities should increase, including by opening up community-based reintegration 
schemes to locals.  

This  will  also  increase  coherence  with  development  programmes  in  partner  countries 
supported by the EU or other donors. At strategic level, the partnership dialogue with partner 
countries will help factor in the strategic priorities in designing and delivering reintegration 
programmes  while,  at  operational  level,  better  coordination  and  information  management 
facilitated  by  the  referral  and  information  sharing  tools  outlined  in  the  strategy  will  help 
maximise  the  use  of  resources  and  improve  the  quality  of  referrals  across  all  programmes. 

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Due  consideration  should  be  given  to  the  local  situation  and  dynamics  to  ensure  the 
effectiveness of reintegration support.  

The way forward 

-  The  Commission  will  integrate  and  streamline  as  much  as  possible  return  and 
reintegration  into  development  programming  activities  at  national  and  local  level  in 
partner  countries;  referrals  to  development  programmes  (such  as  technical  and 
vocational educational training and job creation actions) should be increased. In this 
respect,  Commission  services,  the  European  External  Action  Service  and  EU 
Delegations will cooperate closely with Member States and local service providers of 
reintegration services.  

-  The Commission, in close cooperation with the High Representative, will support the 
development and implementation of the legal, policy and operational frameworks for 
reintegration in partner countries. 

-  To foster ownership of reintegration by partner countries, the  Commission, together 
with all stakeholders, will work in partnership with authorities and local communities 
of those countries in planning and implementing reintegration programmes. 

-  The  Commission,  where  relevant  with  the  support  of  Frontex,  will  support  the 
strengthening of third countries’ capacity to provide voluntary return and reintegration 
services.  

3.7 Funding for voluntary return and reintegration 

Under the multi-annual financial framework 2014-2020, the EU has been a major actor in 
supporting  voluntary  return  and  reintegration,  complementing  and  supporting  the  EU 
Member  States’  national  efforts.  An  estimated  75%  of  the  costs  of  operating  assisted 
voluntary return programmes were borne by EU funding and the rest by national budgets.   

In the new financial cycle 2021-2027, the EU will strengthen its role, taking into account the 
priorities set out in this strategy and supporting its implementation within the relevant funds, 
while  ensuring  coordination  all  along  the  process.  With  the  Asylum,  Migration  and 
Integration  Fund  (AMIF)  for  2021-2027,  the  Commission  will  support  Member  States’ 
actions promoting the increase in voluntary returns from the EU and will provide funding for 
assisted  voluntary  return  schemes  as  well  as  their  initial  reintegration  in  their  countries. 
Moreover, it will ensure financial support for the maintenance and development of the EU-
level  information  tools,  such  as  the  Reintegration  Assistance  Tool  and  the  Return  and 
Reintegration Assistance Inventory, and for capacity building in Member States. Frontex will 
provide  complementary  support  in  this  area  by  means  of  the  pre-return  and  post-return 
activities it carries out. Activities funded under the Asylum Migration and Integration Fund 
and  those  carried  out  by  Frontex  will  principally  focus  on  early  stages  of  reintegration 
support and specific support to individual returnees. 

The Neighbourhood, Development and International Cooperation Instrument (NDICI) - 
Global Europe and the Instrument for Pre-Accession Assistance (IPA) III will contribute 
to implementing this strategy, including by assisting migrants and their families in countries 
of transit or destination outside the EU to voluntarily return and reintegrate back home. Out 

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of  the  total  budget  of  EUR  79.5  billion,  indicatively  10%  of  the  financial  envelope  of  the 
Neighbourhood, Development and International Cooperation Instrument - Global Europe will 
be  dedicated  particularly  to  actions  supporting  management  and  governance  of  migration, 
forced displacement as  well as addressing the root causes of irregular  migration and forced 
displacement  when  they  directly  target  specific  challenges  related  to  migration  and  forced 
displacement.  Working  in  complementarity  with  the  Asylum,  Migration  and  Integration 
Fund, and based on an approach tailored to the national and regional specificities, these funds 
will also contribute to the reintegration of migrants and their families returning from the EU, 
in particular through the development of structures and capacities of partner countries and the 
implementation  of  support  programmes  benefitting  both  returnees  and  the  receiving 
communities.  

In  addition,  NDICI  -  Global  Europe  and  IPA  III  will  support  the  national  authorities  and 
actors  of  the  countries  of  origin  to  increase  their  ownership  of  return  and  reintegration 
activities taking place in their territory, including by strengthening their capacity to refer the 
returnees  towards  effective  reintegration  schemes  and  by  helping  them  to  develop  an 
adequate  legal  and  policy  framework,  as  well  as  the  relevant  information  tools  and 
coordination structures.  

These  two  funding  instruments  will  also  support  relevant  third  countries  of  transit  or 
destination  to  strengthen  their  capacity  to  provide  protection  and  assistance  for  voluntary 
return  from  their  territory,  taking  the  needs  of  the  migrants  into  account,  including 
vulnerability,  fundamental  rights  considerations  and  the  need  to  provide  international 
protection.   

The  Commission  will  take  into  account  the  priorities  of  this  strategy  in  programming  its 
different  initiatives  on  voluntary  return  and  reintegration  related  to  individual  partner 
countries and regions. The specific partner countries and regions that could benefit from the 
different  forms  of  support  foreseen  under  the  strategy  will  be  identified  as  part  of  the 
programming exercise.  

In  addition,  the  Commission  will  fund  research  on  voluntary  return  and  reintegration,  to 
support  the  implementation  of  the  Strategy  and  strengthen  the  evidence  base.  Expectations 
about and perceptions of return and reintegration should be further explored, together with an 
in-depth assessment of the effectiveness and sustainability of reintegration.  

The way forward 

-  The  Commission  will  take  account  of  the  objectives  of  this  strategy  in  Member 
States’  multi-annual  programmes  under  the  Asylum,  Migration  and  Integration 
Fund  as  well  as  in  the  programming  of  the  Neighbourhood,  Development  and 
International  Cooperation  Instrument  -  Global  Europe  and  the  Instrument  for  Pre-
Accession Assistance III. 

-  Member States should continue supporting the voluntary return and reintegration of 

migrants returning from their territory through their national budgets as well. 

-  The  Commission  will  support  research  in  the  field  of  voluntary  return  and 

reintegration. 

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Next steps 

Promoting voluntary return and reintegration is a key strategic objective as set out in the New 
Pact on Migration and Asylum.  

The Commission, where relevant, together with the High Representative, the Member States, 
Frontex,  EU  delegations,  partner  countries  and  the  wide  range  of  stakeholders  and 
international  organisations  involved  in  migration  policy,  will  work  jointly  to  implement  all 
aspects  of  this  strategy  to  ensure  that  EU  and  national  schemes  are  well  designed  and 
coordinated  to  promote  and  support  effective  and  humane  voluntary  return  and  sustainable 
reintegration programmes.  

Working  closely  with  partner  countries  will  be  key  to  implementing  several  aspects  of  the 
strategy. The New Pact on Migration and Asylum signalled a change of paradigm in the EU’s 
engagement with international partners on migration. To this effect, the Commission in close 
cooperation  with  the  High  Representative  will  engage  with  priority  countries  on  return  and 
reintegration  as  part  of  comprehensive,  balanced,  tailor-made  and  mutually  beneficial 
migration partnerships, broadening and building on the trust already built.  

An  improved  legal  framework  will  further  facilitate  an  effective  implementation  of  this 
strategy. The Commission will work with the European Parliament and the Council to make 
progress  on  advancing  and  concluding  negotiations  on  the  New  Pact,  including  the  recast 
Return  Directive.  The  expanded  mandate  of  Frontex,  the  rollout  of  the  standing  corps  and 
increasing  its  capacity  to  support  voluntary  return  and  reintegration  must  be  maximised  to 
achieve the objectives of this strategy. 

Lastly,  the  Commission  will  monitor  the  implementation  of  the  strategy,  notably  in  the 
context  of  the  European  Migration  Network  and  in  regular  discussions  with  the  European 
Parliament and with Member States in the Council. 

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