COMMISSION STAFF WORKING DOCUMENT The EU framework on return counselling and the Reintegration Assistance Tool Accompanying the document COMMUNICATION OF 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  SWD(2021) 121 final  COMMISSION STAFF WORKING DOCUMENT The EU framework on return counselling and the Reintegration Assistance Tool Accompanying the document COMMUNICATION OF THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL The EU strategy on voluntary return and reintegration {COM(2021) 120 final}  
 
 
This  staff  working  document  presents  the  EU  Framework  on  return  counselling  and  the 
Reintegration  Assistance  Tool,  as  referred  to  in  the  EU  strategy  on  voluntary  return  and 
reintegration.  

Section I outlines good practice in setting up, developing and maintaining return counselling 
structures,  largely  based  on  a  series  of  expert  workshops  organised  under  the  European 
Migration Network.  

Section  II  describes  the  Commission-owned  Reintegration  Assistance  Tool  (RIAT)  that 
enables the secure flow of information between return counsellors and reintegration service 
providers  and  is  instrumental  in  implementing  the  EU  strategy  on  voluntary  return  and 
reintegration. 

1 

 
 
 
 
Section I  

EU FRAMEWORK ON RETURN COUNSELLING 

The EU Framework on return counselling is a deliverable under the EU strategy on voluntary 
return and reintegration. 

The  EU  Framework  on  return  counselling  provides  guidance  mainly  to  national  authorities 
responsible  for  setting  up,  managing  and  developing  return  counselling  structures  in  the 
Member States. In particular, it is designed to guide national policymakers and management, 
but  can  equally  be  useful  to  EU  agencies,  non-state  bodies  as  well  as  other  stakeholders 
involved in providing return counselling services. 

The Framework first outlines the EU policy context for return counselling, and identifies the 
multiple aspects and challenges of counselling that should be covered when developing return 
counselling  programmes  or  more  permanent  structures.  It  also  describes  practices  that  the 
Commission services and experts regard as good practice that may be useful to Member State 
policymakers  and  other  bodies  involved  in  counselling.  This  is  based  on  an  assessment  of 
available evidence on the effectiveness of counselling services and complementary activities.  

The  Framework  can  also  be  used  as  a  reference  for  creating  or  running  return  counselling 
programmes  by  Member  State  authorities  responsible  for  national  programmes  under  the 
Asylum, Migration and Integration Fund or by the entities that apply for funding  to provide 
these  services.  The  Framework  will  in  future  be  translated  into  more  operational  training 
tools and guidelines on the practical implementation of return counselling by both state and 
non-state bodies. This  includes work carried out  by the European Return  and Reintegration 
Network in cooperation with the International Centre for Migration Policy Development and 
the  European  Border  and  Coast  Guard  Agency  (Frontex)  and  it  includes  the  future  return 
curriculum. 

The EU Framework is based to a large extent on information collected in the context of the 
European Migration Network (Return Expert Group). 

1. Policy framework 

Voluntary  return  is  a  more  cost-effective  process,  is  less  problematic  when  it  comes  to 
readmission  and  is  also  preferred  by  third  countries.  Moreover,  it  enables  a  more  dignified 
return,  and  when  coupled  with  appropriate  support  for  the  returnees,  may  contribute  to  the 
development  of  the  countries  of  origin.  Migrants,  including  asylum  seekers,  need  to  be 
informed  of  the  option  of  assisted  voluntary  return  at  an  early  stage  and  throughout  the 
immigration  procedures.  Including  information  on  assisted  voluntary  return  in  the  asylum 
process was identified as a clear mid-term action in the EU Action Plans on return1 that call 
on  Member  States,  with  the  support  of  the  Commission,  to  take  a  coherent  approach  to 
general practices to incentivise return.  

Directive 2008/115/EC (the Return Directive) is the main piece of legislation governing the 
return  of  irregular  migrants.  It  does  not  impose  an  obligation  on  Member  States  to  set  up 

1 COM(2015) 453 final, COM(2017) 200 final. 

2 

 
 
                                                           
assisted  voluntary  return  programmes  or  to  provide  return  counselling  to  illegally  staying 
third-country  nationals.  The  Return  Directive  does,  however,  underscore  that  in  order  to 
promote voluntary return, Member States should provide for enhanced return assistance and 
counselling  and  make  best  use  of  the  funding  available.  The  Commission  has  also 
recommended2 that Member States take action to improve their processes for disseminating 
information on voluntary return and assisted voluntary return programmes to illegally staying 
third-country  nationals,  in  cooperation  with  national  education,  social  and  health  services, 
non-governmental organisations and other bodies. Following the Commission’s proposal for 
a  recast  of  the  Return  Directive3,  Member  States  would  have  an  obligation  to  establish 
programmes for supporting the return of third-country nationals  with  logistical,  financial or 
other material or in-kind assistance. 

The willingness to return voluntarily depends on multiple factors, including the prospect and 
consequences of staying illegally in the Member States, the availability of legal remedies, the 
likelihood  of  forced  return,  the  (family)  situation  in  the  country  of  origin  and  the  support 
available  in  the  country  of  return.  Providing  migrants  with  up-to-date  and  accurate 
information is therefore key to encourage informed decision-making on return, to prepare all 
returnees  for  departure  and  to  identify  suitable  support  for  reintegration  in  the  country  of 
return. 

2. Definition and purpose 

Return  counselling  is  a  key  component  of  the  return  process  and  a  crucial  aspect  to  assist 
third-country nationals in obtaining correct information about their legal options to remain in 
Europe, as well as on their opportunities to return and reintegrate in their country of origin. In 
addition to providing up-to-date and reliable information, the purpose of return counselling is 
to  support  migrants  in  accessing  assistance  and  in  planning  their  return  and  reintegration. 
Return  counselling  should  not  be  considered  a  stand-alone  activity  as  it  is  a  part  of  the 
broader approach to migration management that respects the dignity of migrants. 

Although the aim of return counselling is to help migrants take an informed decision about 
return, it also supports implementation of migration policies by encouraging voluntary return 
and ensuring compliance with return procedures. The return counsellor is the coordinator for 
the  entire  return  process.  For  these  purposes,  counselling  should  provide  up-to-date  and 
reliable  information  in  a  language  the  migrant  can  understand  and  tailored  to  the  different 
stages of migration and to individual circumstances, including vulnerable persons4. 

A  shared  understanding  of  what  counselling  comprises  should  factor  in  the  following 
important aspects: 

• 

Target group 

Return  counselling  is  an  approach  through  which  migrants  engage  in  a  discussion  with  a 
return counsellor about  returning to  their  country of origin,  and if and  when they make the 

2 C(2017) 1600 final. 
3 COM(2018) 634 final. 
4 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. 

3 

 
 
                                                           
decision to return, they receive help to arrange their return. Therefore, counselling should be 
available  regardless  of  a  person’s  migration  status  (illegally  staying  migrant,  asylum 
applicant  etc.)  and  irrespective  of  whether  they  requested  counselling.  The  timing  and  the 
content of counselling should always be adapted to the target group. 

• 

External context/settings 

Counselling should be provided at all stages of the migration process and be made available 
to all migrants expressing the desire to return to their home country, and where appropriate 
and  without  distracting  applicants  from  exercising  their  right  to  seek  asylum,  to  migrants 
whose application for international protection is pending. Return counselling is mostly made 
available  to  migrants  who  have  been  issued  with  a  return  decision  stating  the  obligation  to 
leave  the  country  or  who  are  subject  to  return  procedures,  but  also  to  illegally  staying 
migrants  not  known  to  the  authorities.  As  such,  return  counselling  is  fully  integrated  into 
assisted  voluntary  return  programmes,  but  it  should  also  be  made  available  during  forced 
return procedures (e.g. in detention facilities). 

• 

Timeframe 

To  be  effective,  the  timing  of  counselling  services  merits  close  consideration.  This  entails 
adapting the content and method to the stage of the process the migrant is in and tailoring it to 
the target group (i.e. providing return counselling to an irregular migrant subject to a return 
decision  will  not  have  the  same  time  constraints  as  the  service  provided  to  an  asylum 
applicant).  Although  a  return  decision  is  a  decisive  moment  from  a  point  of  EU  law  and 
administration,  for  a  migrant,  the  option  of  return  may  not  be  strictly  linked  to  it.  Return 
decisions generally leave limited time to discuss and reflect on return and to take a decision 
on voluntary return. This sense of urgency can be managed by taking a proactive and early 
approach to counselling. 

• 

Providers 

Counselling can be provided by national authorities and by non-governmental implementing 
partners  (international  organisations  and  NGOs).  At  present  and  in  most  Member  States, 
national authorities work with other partners to provide return counselling services. 

• 

Outreach  

Member States are faced with rising numbers of irregular migrants who have stayed illegally 
in the country for an extended period of time, and with in-transit irregular migrants. These are 
migrants  who  are  stranded,  due  to  either  the  authorities  being  unable  to  return  them,  or 
because they aim to transit on and therefore do not apply for international protection as they 
wait to journey onward. Reaching out to these migrants to start a conversation and referring 
them to the right organisations is a vital part of return procedures as migrants can only opt for 
voluntary return if they are aware that they have this option and know how to access it. 

3. Stakeholders  

3.1 Identifying stakeholders and their roles 

4 

 
 
Return counselling is provided at all stages of the migration procedure and should be made 
widely  available  to  all  third-country  nationals.  National  institutions,  non-governmental  and 
international organisations providing return counselling services usually target migrants from 
the time their illegal stay is detected throughout their migration process until their potential 
return. It is even advisable to start (return) counselling during asylum procedures, providing 
information  on  a  potential  negative  decision  and  ensuing  return  to  the  country  of  origin. 
Return  counselling  takes  places  in  a  dynamic  environment  and  involves  multiple 
stakeholders.  The  roles  of  these  stakeholders  vary,  too,  depending  on  the  set-up  of  return 
counselling  structures  and  institutional  competences.  Each  may  have  a  counselling  or 
referral/information role; some have both.  

Counselling entails a more personal and proactive discussion with the person concerned with 
the  aim  of  providing  reliable  information  and  ensuring  compliance  with  immigration 
procedures.  A  referral  role  involves  directing  the  migrant  to  the  right  counselling  services, 
whereas an information role is carried out by people who raise awareness, do outreach work 
and provide basic information on the return procedure.  

The  table  below  gives  examples  of  different  roles  in  stakeholder  cooperation  in  the  return 
counselling framework. 

Organisations 

Role 

Police / escorts / custodial services 

Information & referral (counselling) 

Medical and welfare organisations/authorities 

Information, counselling & referral 

Member State embassies in third countries 

Referral 

Immigration authorities 

Information, counselling & referral 

Local administration/municipalities 

Information, counselling & referral 

NGOs and IOs 

Information, counselling & referral 

Legal representatives/legal aid authorities 

Referral 

Appeal bodies/courts 

Referral 

Diaspora 

Information & referral 

The stakeholders should be identified early on when setting up return counselling structures, 
taking  into  account  the  different  counselling  phases,  migration  stages  and  location  where 
counselling takes place. Each stakeholder brings added value to counselling. The authorities 
steer the approach and are ultimately responsible for the provision of counselling services and 
for  achieving  the  set  objectives.  They  are  also  in  charge  of  overall  coordination  of 
counselling  services  in  the  Member  State.  In  some  cases,  the  authorities  (either  central  or 
municipal), are the ones that provide the actual return counselling and outreach services.  In 
others, it may be the non-governmental sector or international organisations as part of a range 
of  projects  funded  by  the  authorities.  Legal  counsellors,  who  may  or  may  not  have  been 
involved  in  return  counselling,  provide  essential  services  to  migrants,  but  it  is  for  return 

5 

 
 
 
counsellors to refer to legal counsellors if the migrant wishes to discuss legal issues related to 
their  case.  Similarly,  legal  counsellors  should  be  able  and  willing  to  refer  their  clients  to 
return counsellors.  

Migrants  themselves and the general  diaspora can act  as intermediaries to  build trust in the 
system and make contact with ‘hard-to-reach’ migrants. Effective channels of referral should 
also be created and fostered so that other authorities and entities that meet irregular migrants 
can refer them to the competent counsellors for more information. The media, which are not 
considered  active  stakeholders,  can  nonetheless  help  shape  perceptions  and  build  trust. 
Therefore, the media can be a way to reach wider audiences and combat the social stigma that 
can be associated with return in the communities receiving returnees. 

3.2 Stakeholder cooperation 

It is considered good practice to set up a counselling service in which the strategic objectives 
of partnerships and stakeholder engagement are clear. This promotes ownership and service 
continuity  and  ensures  that  all  stakeholders  are  aware  of  what  is  expected  from  them. 
Effective  process  management  entails  providing  a  clear  definition  of  the  roles  and 
responsibilities  of  each  group  of  stakeholder.  It  involves  engaging  and  aligning  action  by 
different stakeholders, providing common quality standards and – at least to a certain extent – 
providing common content for delivering return counselling services. It may also be useful to 
specify the key moments during which specific information on return should be provided or 
meetings organised. In turn, smooth operational cooperation depends on the type of delivery: 
whether  cases  are  managed  by  central  authorities  or  by  a  range  of  specialist  stakeholders, 
each with niche competence. Streamlining operations with a set of mutually agreed processes 
and  providing  ways  to  give  feedback  on  the  success  of  the  processes  and  stakeholder 
cooperation more generally are necessary to promote good operational cooperation.  

The  importance  of  stakeholder  cooperation  should  also  be  stressed  when  handling  cases 
involving vulnerable  cases. One stakeholder working alone might  not  be fully aware of the 
latest  developments  in  the  overall  situation  of  the  individual  and  could  overlook  certain 
vulnerabilities. For example, local partners in the country of origin of the returnee can often 
assess issues related to the local context and culture that are not necessarily accessible to pre-
departure  counsellors.  When  managing  vulnerable  cases,  a  lack  of  cooperation  and 
information-sharing  between  the  different  organisations  involved  can  put  the  individual  at 
risk  of  even  greater  vulnerability.  It  is  therefore  vital  to  put  in  place  effective  channels  of 
communication and information-sharing between counselling providers at different stages of 
the  return  process,  compliant  with  the  data  protection  acquis5.  Safeguards  and  risk 
assessments, where necessary, should also be in place for particularly vulnerable groups.  

It  is  crucial  that  policymakers  put  in  place  coherent  management  systems  to  ensure  high 
effectiveness  in  the  use  of  their  stakeholders.  National  policymakers  responsible  for  setting 
up and managing counselling structures should take into account the specific circumstances 
in  their respective  countries. Specific considerations could  relate to  e.g. technical  expertise, 
eligibility  and  competences  –  which  organisations  may  or  should  act,  which  may  not  or 

5 The data protection reform package, comprising the General Data Protection Regulation, the Data Protection 
Law Enforcement Directive and the Data Protection Regulation for EU institutions and bodies. 

6 

 
 
                                                           
should not. Challenges often arise in these forms of cooperation regarding the setting up and 
monitoring  of  quality  standards.  With  several  organisations  involved,  it  is  useful  to  have  a 
core set of guiding principles on how to provide counselling services and how to refer people. 
When cooperation is organised on a more rigid basis, such as legislation or binding contracts, 
cooperation and the establishment and follow-up of quality standards and formal procedures 
may  potentially  be  managed  better.  Other  ways  to  achieve  the  same  objective  with  more 
flexibility  could  include  standard  operating  procedures,  frequent  meetings  and  agreed 
minutes,  informal  and  personal  contacts  and  data  collection  surveys  on  day-to-day 
cooperation between the stakeholders and process management. 

Return counselling is ultimately a shared responsibility, not only the task of a limited group 
of  counsellors.  It  is  therefore  key  that  Member  States  provide  physical  and  easy  access  to 
return  counselling  taking  into  account  issues  of  location,  distance  and  timing,  whether 
through referral or directly.  

Virtual  counselling  should  also  be  considered  and  promoted,  especially  where  there  are 
restrictions in place e.g. due to a crisis situation. Frontex will also have an increasing role in 
organising  return  counselling  by  deploying  return  specialists  as  members  of  the  standing 
corps.  

Member  States  are  encouraged  to  put  in  place  strategies  to  embed  outreach,  return 
counselling  and  referral  activities  into  the  broader  reception  and  social  care  systems  they 
provide  to  asylum  applicants,  and  into  the  generic  (social/medical)  services  with  which 
irregular  migrants  staying  outside  reception  structures  interact.  Such  strategies  should  be 
clear on the multiple roles, responsibilities and tasks involved. 

Identified good practices 

-  Competent  national  authorities  should  take  a  leading  role  in  planning  and 
coordinating return counselling services, even if the counselling is provided by other 
implementing partners. 

-  Member  States  are  encouraged  to  identify  the  various  stakeholders  involved  and 
define  their  respective  roles  early  on  when  setting  up  return  counselling  structures. 
Defining  key  moments  that  trigger  certain  activities  can  be  a  useful  way  to  identify 
the  action  and  organisation  required.  This  strategy  should  be  integrated  into  all 
services  with  which  migrants  have  contacts,  including  national  and  multinational 
networks in local city administrations.  

-  Member  States  are  encouraged  to  draw  up  a  core  set  of  guiding  principles  for  all 
stakeholders  involved  in  counselling  and  referrals  to  other  services  to  ensure  a 
minimum level of quality and consistency.  

4. Methodology and content of counselling 

4.1 Counselling during the various stages of the migration process 

Return counselling takes place at different stages, with the main stages summarised below: 

 

transit in third country; 

7 

 
 
 
  opening  and  progressing  through  all  stages  of  the  asylum  procedure,  including  in 

detention; 

  detecting an irregular stay/the return decision is issued; 
  departure; 
  arrival in country of return and post-arrival stage. 

The timing of these stages is not fixed; it varies depending on the individual situation of the 
migrant and the legislation in the Member State. In some cases, a negative asylum decision is 
automatically  followed  up  by  issuance  of  a  return  decision.  However,  the  most  important 
time  at  which  return  counselling  should  be  available  and  become  more  intense  is  from  the 
issuing of a return decision until departure. Counselling should already start at the previous 
stages  of  the  migration  path,  when  it  should  also  be  offered  to  asylum  applicants  or  other 
migrants whose applications are pending. Regardless of the stage at which counselling began, 
it  is  usually  intensified  prior  to  departure.  This  phase  usually  includes  identifying  and 
assessing  specific,  immediate  and  post-arrival  or  reintegration-related  needs,  applying 
safeguards where relevant, providing up-to-date information about the assistance available, in 
coordination  with  stakeholders  in  the  countries  of  return  also  with  a  view  to  managing 
expectations and preparing the reintegration, administrative assistance and organising travel. 

When  counselling  is  not  adapted  to  the  specific  migration  trajectory  of  the  individual,  it 
focuses mainly on informing migrants of the procedure they are in and how they can receive 
assistance in planning their return. It should nonetheless be adapted to their individual needs 
and  circumstances,  including  taking  into  account  any  vulnerabilities.  When  the  counselling 
service is adapted to the specific migration stage of the individual, the content of counselling 
changes to reflect and discuss the options available for the individual specific to that stage. 

The settings where counselling takes place also depend on the stage in the migration process. 
Return counselling can take place from detection up until detention and from transit country 
while travelling to Europe to the third country post-arrival. 

The  elements  that  should  be  included  in  counselling  throughout  all  stages  of  the  migration 
process should cover the choices a migrant has, the consequences of those choices, including 
the risks, a vulnerability assessment and managing the expectations of potential returnees. 

4.2 Counselling stages and content 

There are generally four stages of return counselling: 

information and outreach; 

 
  decision-making; 
  pre-departure preparation; 
  post-arrival support. 

The  aim  of  the  information  and  outreach  stage  is  to  provide  the  migrant  with  general 
information about the options to stay or to be assisted in returning voluntarily to their home 
country.  Once  the  migrant  has  been  contacted  and/or  otherwise  referred  to  a  return 
counsellor, the counsellor should listen to the migrant to understand the situation they are in 

8 

 
 
 
 
(motivational  interviewing  techniques  are  generally  used)  and  to  identify,  understand  and 
take  into  account  their  social  profile.  The  discussion  covers  the  migrant’s  rights  and  legal 
situation,  as  well  as  the  difference  between  forced  and  voluntary  return.  The  counsellor 
provides  the  migrant  with  contacts  for  the  organisations  responsible  for  implementing 
assisted  voluntary  return  and  reintegration  programmes.  The  counsellor  also  explains  the 
conditions  of  eligibility  and  the  assistance  and  benefits  available  under  assisted  voluntary 
return  and  reintegration  programmes.  Counselling  during  this  stage  also  focuses  on 
identifying and responding appropriately to any vulnerabilities, as well as assessing whether 
the  migrant  is  able  to  make  an  informed  decision.  At  this  stage,  the  counsellor  usually 
provides general information, not specific to the individual. This can be considered the first 
stage of counselling (after successful outreach or referral); the first time the counsellor makes 
contact with the migrant. In general, counsellors should take a proactive approach to migrants 
who  could  be  interested  in  assisted  return,  but  in  some  cases,  the  migrants  approach  the 
counsellors themselves to ask for information. There is no single way to reach out to potential 
returnees  and  provide  them  information.  Creative  approaches  should  be  encouraged  at  this 
stage,  in  terms  of  the  format  for  the  first  counselling  meetings,  cooperation  between 
stakeholders (e.g. municipalities and counselling services) and ensuring easy referral.  

During the migrant’s decision-making process on return, the counsellor still makes available 
information on the legal options to stay, although for migrants who have been issued a return 
decision,  counsellors  explain  the  obligation  to  return  and  the  consequences  of  failing  to 
comply. During this phase, the counsellor provides more specific information about the return 
procedure and the support available. 

In  the  pre-departure  preparation  phase,  return  plans  are  laid  out  by  identifying  available 
assistance, including an escort for migrants with medical needs and for minors, opportunities 
to follow training and education that ideally meet the needs of the returnee, onward transport 
to the place of  return and short-term accommodation upon arrival. During this stage, return 
counsellors use checklists and country-of-origin information to get a systematic overview of 
the  basic  information  needed  to  organise  the  return.  Providing  this  information  to  the 
counsellors  and  keeping  the  information  up-to-date  is  a  major  challenge,  where  effective 
knowledge  management  is  key  (see  Section  7).  At  this  stage,  the  counselling  becomes 
specifically  tailored  to  the  individual’s  situation.  Member  States  should  ensure  that 
counsellors  are  at  this  stage  able  to  collect  information  about  the  returnee  needed  by  the 
possible reintegration implementing partner and that counsellors can inform the migrant prior 
to their departure about the possible reintegration assistance and how to access it upon arrival 
in the country of return. Lastly, the process must cover the need to inform and support minor 
children and enable them to participate in their migration process.  

Post-arrival counselling consists of informing the returnee about the reintegration assistance 
available  in  the  country  of  return,  and  assessing  the  reintegration  plan  drawn  up  prior  to 
departure,  adapting  it  based  on  a  new  assessment  of  returnee’s  situation  and  of  the  local 
context.  It  also  covers  information  on  further  counselling  opportunities,  medical  assistance 
and accommodation support. Returnees are often assisted (both technically and financially) in 
setting up an income-generating activity. Where applicable, the counsellor makes a follow-up 
of  the  vulnerability  assessment.  In  general,  during  the  first  week  following  the  migrant’s 
return to the country of origin, an assessment interview is organised by the local counselling 

9 

 
 
provider to identify the needs of the returnee and assess whether they are different to those 
identified by the return counsellor in the host country. 

Migration stage 

Counselling stage 

Transit in third country 

Information and outreach 

Beginning of the asylum procedure 

Detection of irregular stay/ return decision is 
issued 

Outreach / decision-making 

Migrant’s decision to return 

Pre-departure preparation 

Post-arrival 

Post-arrival support, implementation 

Timing is key to all migration stages. Up until the decision is made, counselling is a process 
that takes time and should not be  rushed. Counselling under time pressure may be counter-
productive and result in loss of trust, greater resistance to return and absconding. The need to 
give ample time for counselling may however conflict with legal procedures and timelines, as 
the  national  legislation  may  give  a  returnee  only  limited  time  for  voluntary  departure. 
Balancing  these  dynamics  is  one  of  the  fundamental  challenges  in  providing  return 
counselling.  It  should be stressed that engaging,  reaching out  and starting counselling at  an 
early  stage  can  help  solve  this  dilemma.  Once  the  individual  decides  to  return,  the  process 
should speed up and aid preparations for return. 

4.3 Counselling approaches 

There are three main approaches to return counselling: 

  migrant-centred approach; 
  compliance approach;  
  mixed approach. 

The  migrant-centred  approach  focuses  on  supporting  the  individual  to  make  an  informed 
decision. It provides support adapted to the migrant’s situation, their specific needs, country 
of  origin  and  journey  as  well  as  their  own  capabilities.  The  approach  covers  not  only  the 
individual’s future, but aims to provide tailored support that takes into account the migrant’s 
psychological  wellbeing  by  looking  at  the  previous  migration  stages  and  seeking  to 
understand what pushed the migrant to leave their country of origin in the first place and why 
they decided to return or was issued a return decision. The discussion should remain focused 
on  return,  but  understanding  the  context  of  the  migrant’s  situation  is  essential  to  providing 
tailored support. 

The compliance approach by contrast focuses on convincing the migrant to return and/or to 
comply with a return decision or other immigration procedures. This approach can take place 
in  a more coercive setting after a negative decision on stay.  It  may  also  be carried out  in  a 
similar setting as the migrant-centred approach, depending on the competences and mandates 
of the organisations involved. 

10 

 
 
 
 
The mixed approach  combines the two approaches to  achieve  a balance between providing 
the  support  and  information  that  best  suits  the  migrants’  needs  and  experiences,  while 
implementing  national  return  policies.  This  implies  informing  the  individual  of  the  various 
options available while emphasising the benefits of return. 

The  approach  can  also  shift  from  a  migrant-centred  approach  to  a  compliance  approach, 
based on the migration stage of the individual. This happens when after the initial counselling 
stages it becomes evident that the migrant has little to no option to legally stay or when initial 
proposals  for voluntary return have failed. For an approach to  be effective, the method and 
content should be adapted to the migrants’ specific circumstances and to the migration stage. 
It should take into consideration external circumstances, including the situation in the country 
of origin, health considerations and family situation. 

4.4 Forms of counselling 

There are three main forms of counselling: 

 
individual counselling; 
 
family counselling; 
  group counselling. 

Individual  counselling  is  the  most  commonly  used  form,  as  it  is  the  most  effective  way  of 
reaching a thorough understanding of the migrant’s situation. However, when a whole family 
is  involved in  the return procedure, providing family  counselling  – involving minors, too  – 
may  be  appropriate  as  the  return  decision  is  often  addressed  to  the  whole  family.  A  group 
approach  is  not  necessarily  suitable  for  all  cases,  e.g.  due  to  domestic  violence.  Ideally, 
family  counselling  should  be  combined  with  individual  counselling  to  ensure  that  the 
family’s return plans will contribute to the wellbeing of each member of the family. Group 
counselling can also be used if several individuals find themselves in a similar situation and 
come from the same country or from regions facing the same issues. However, it should only 
be used  at  the initial  stages when the counsellor  provides  general  information about  return. 
Individual counselling should always be the preferred form to make specific plans for return. 

4.5 Counselling for vulnerable groups 

In  relation  to  return  counselling,  the  concept  of  vulnerability  is  based  on  the  definition  of 
vulnerable person provided for in Article 3(9) of the Return Directive. 

There are two main approaches to identifying vulnerabilities in return counselling: 

• 

• 

category approach; 

individual approach. 

The first uses a categorisation method to indicate vulnerabilities based on a person belonging 
to  a  specific  group.  This  implies  defining  a  limited  number  of  categories  (such  as 
unaccompanied minors, seriously ill persons) and providing assistance that is targeted to that 
specific group. In practical terms, this means that if a person is considered to belong to one 
(or more) of these categories, they  will be automatically considered vulnerable  and as such 
will have access to specific assistance during the return counselling process. 

11 

 
 
The main limitation to this approach is that some individuals do not fit in any set category but 
may nevertheless be in a position of vulnerability. To overcome this limitation, the individual 
approach  underscores  the  importance  of  assessing  vulnerabilities  by  considering  individual 
circumstances rather than solely belonging to a group. However, this approach contrasts with 
the structure of return counselling programmes that have set support packages by categories 
of migrants and limited flexibility to adapt to individual cases.  

To  overcome  the  shortcomings  of  both  approaches,  a  combination  of  the  category  and  the 
individual  approach  may  be  used  to  provide  return  counselling  services.  This  means  using 
categories when assessing vulnerabilities to have tailored counselling packages, and giving a 
certain  degree  of  flexibility  in  the  definition  of  vulnerable  groups  to  also  cover  individuals 
who might not fall under a strict category definition.  

Counsellors  should  be  trained  not  only  in  identifying  vulnerable  individuals,  but  also  in 
interacting  properly  with  them  and  in  providing  the  right  information  to  meet  their  needs. 
This  entails  knowing  which  service  to  contact  for  guidance  on  how  to  handle  a  specific 
situation, and to which services individuals with specific needs should be referred. In addition 
to  receiving  this  information  through  in-person  training  courses,  counsellors  should  have 
access  to  information  (via  online  platforms  and  internal  guidance  notes)  on  how  to  handle 
vulnerable cases. In some cases, for example individuals with specific medical needs, public 
handbooks may be available. 

4.6 Ensuring consistency 

Member  States  should  make  sufficient  resources  available  to  ensure  the  consistency  and 
quality  of  return  counselling.  Negative  feedback  from  returnees  has  a  direct  effect  on  the 
level  of  trust  potential  returnees  have  in  institutions,  also  in  public  services  beyond  those 
offering  return  counselling.  This  can  attract  notable  coverage  on  social  media.  Similarly, 
contradicting  advice  from  several  counsellors  or  organisations  involved  in  counselling  and 
the  migration  procedures  more  generally  can  have  a  negative  impact  on  a  migrant’s 
willingness to return voluntarily. 

At  border  areas  where  large  groups  of  migrants  interact  and  frequently  travel  between  two 
Member  States,  Member  States  are  encouraged  to  develop  and  implement  multinational 
strategies for reaching out to migrants and providing similar information. 

To  help  provide  consistent  information  given  to  migrants  using  counselling,  internal 
communication  channels,  online  platforms,  guidelines,  interviews,  procedural  checklists, 
handbooks and information packages for return counsellors can be useful. Another important 
way to ensure consistent quality – and perhaps even more importantly – consistent content, is 
to train counsellors and issue a code of conduct followed by all return counsellors in a given 
Member  State.  A  common  EU-wide  approach  could  aid  consistency  within  and  throughout 
Member States. 

4.7 Credibility of counselling 

One  factor  that  is  crucial  to  the  success  of  return  counselling  is  the  credibility  of  the 
counsellor  and  their  independence  from  external  conditions.  Member  States  should  ensure 
that counsellors can provide return counselling services in a clear legal context. This requires 

12 

 
 
that decisions on applications for international protection or other form of legal stay are taken 
by  the  competent  authorities  within  a  reasonable  time  frame  and  having  a  sufficiently 
harmonised asylum and reception system across Member States to avoid the situation where 
migrants shop around for the best asylum or reception system. 

The credibility of counselling also entails developing tailored structures and tools to support 
counselling and the eventual return. Member States should therefore ensure that there are no 
further  administrative  or  other  obstacles  that  could  prevent  migrants  who  have  decided  to 
return from departing within a reasonable time frame. Counsellors should be sufficiently well 
informed about the reintegration assistance available to the returnees and how they can access 
this support. 

Identified good practices 

-  Counselling at all stages of migration should be adapted to the migration stage and to 
the migrant’s individual circumstances, addressing their choices, the consequences of 
those choices and managing their expectations. 

-  Member  States  are  encouraged  to  ensure  that  there  is  a  clear  legal  framework  for 

counsellors to operate in, which supports counselling and return effectively. 

-  The  Commission,  together  with  EU  agencies,  Member  States  and  key  stakeholders, 
will consider adopting a code of conduct on minimum standards for consistent return 
counselling services. 

5. Skills 

5.1 Training for counsellors 

Return  counsellors  come  from  a  range  of  professional  and  academic  backgrounds.  The 
training provided to return counsellors should be adapted to their needs and available both at 
beginner/basic level and at more advanced levels. They should be available both face-to-face 
and  via  online/e-learning  platforms.  Creating  a  ‘buddy  system’  pairing  up  newcomers  and 
senior staff is also an efficient on-the-job training method. 

The content of the training courses often covers three main areas: 

  Generic skills: 

  Developing and creating the skills  needed to  provide return counselling (soft 
skills  needed 
interpersonal  and 
intercultural communication skills, child and gender sensitivity, language etc.) 

to  broach  culturally  sensitive 

topics, 

One of the counsellors’ fundamental responsibilities is to help migrants understand that there 
is no shame or failure in returning. The counsellor’s approach should focus on respecting the 
dignity of the returnee throughout the whole process. These skills are essential, and many are 
generic  to  other  professions  providing  individual  support,  e.g.  traditional  social  work.  In 
addition  to  having  or  acquiring  certain  fundamental  skills,  return  counsellors  often  have  to 
follow  a  code  of  conduct  or  internal  guidelines  to  ensure  similar  quality  standards  across 
return  counselling  providers.  Trainings  should  take  into  account  the  specific  needs  of 
vulnerable groups. 

13 

 
 
 
 
  Specific knowledge: 

  content of return counselling; 
  knowledge of up-to-date and reliable information on the country of return; 
  legal framework (asylum procedures, return procedure, data protection etc.); 
  handling  vulnerable  cases  (identifying  vulnerabilities,  knowing  who  to  reach 
out to for guidance on how to handle specific situations; referring cases with 
specific needs to the right services). 

This aspect of return counselling must be continually adapted to the migrant’s context, which 
means  that  counsellors  need  to  keep  their  knowledge  up-to-date.  Training  courses  usually 
take place upon recruitment, and refresher courses should be available for counsellors at least 
on a  yearly basis. To follow-up between training courses and refresher courses, counsellors 
should have easy access to online platforms containing updated information. Similarly, return 
counsellors  could  receive information  through internal  communication methods and receive 
regular country information factsheets. Direct contact between return counsellors and contact 
points in the country of return and country field visits can also be useful. 

  Methodology: 

  interviewing techniques; 
  procedural checklists, questionnaires; 
  vulnerability assessment tools. 

In addition to requiring specific methodological tools to provide counselling, counsellors are 
also  often  in  charge  of  collecting  the  data  needed  to  monitor  and  evaluate  the  impact  or 
success  of  return  counselling.  Training  courses  should  therefore  include  a  section  on 
methodology  and  data  collection  techniques  for  the  staff  involved.  Trainings  should  raise 
general  awareness  about  EU  data  protection  rules  and  its  requirements,  offer  a  better 
understanding of their relevance for return procedures, and provide best practices with regard 
to these rules in the context of return procedures. 

Return  counselling  should  be  provided  by  counsellors  with  extensive  and  up-to-date 
knowledge  of  the  asylum  and  return  procedures,  rules  and  practices,  the  situation  and 
available support in the country of return, knowledge about people in crisis, and good social 
and communication skills. At a minimum, counsellors need to have basic knowledge in those 
areas  and  know  how  to  find  more  detailed  information  quickly.  Poor  delivery  of  return 
counselling or insufficient access to information by the counsellor may affect the migrant’s 
trust  in  the  information  they  provide,  e.g.  information  on  assisted  voluntary  return  and 
reintegration programmes, lack of other accommodation available in the Member States, and 
may be less willing to ultimately accept return. The performance and ultimately the success 
of  counselling  is  a  shared  responsibility  between  the  counsellor,  employing  their  skills  and 
methods  in  providing  a  counselling  service,  and  the  government,  responsible  for  creating  a 
structure conducive to counselling and providing the necessary support. 

5.2 Personal support provided to counsellors 

The  role  of  counsellors  involves  both  migration  management  and  personal  contacts  with 
individual  migrants.  In  additional  to  professional  support,  return  counsellors  may  need  to 
receive  personal  support,  as  the  type  of  work  they  are  involved  in  can  be  emotionally 

14 

 
 
draining, akin to traditional social work. Monitoring counsellors’ personal wellbeing should 
take place in different ways, for example by: 

  bringing in a ‘duty of care’ system between a supervisor and their employee; 
  creating a supportive working environment able to act as a safety-net for counsellors; 
  offering group support sessions to counsellors; 
  providing access to physical and mental health professionals where necessary; 
  making support tools such as helplines and human resources procedures available. 

To  achieve  a  balanced  professional  life  and  to  prevent  the  psychologically  destabilising 
effects  that  working  solely  on  return  counselling  may  have,  the  technique  of  giving 
counsellors tasks and responsibilities that are not related to counselling can prove useful. This 
can be achieved by involving them in the more technical monitoring and evaluation of return 
programmes. Thanks to frequent contact with returnees, counsellors may be well positioned 
to provide useful insights into how to improve return counselling or other migration-related 
processes. 

Identified good practices 

-  Counsellors  should  have  access  to  frequent  and  multiple  levels  of  easily  accessible 

professional training and to sufficient personal support. 

-  Member  States  and  Frontex  are  encouraged  to  set  up  and  keep  up-to-date  training 
programmes that cover, in addition to generic skills, more detailed aspects such as the 
content of counselling, country-of-origin information, legal framework (including on 
migration  procedures  and  data  protection)  and  how  to  identify  and  handle  cases 
involving vulnerable people. 

6. Counselling in third countries 

Counselling in third countries may be provided at the post-arrival migration stage. It typically 
takes place after returnees are referred to EU- or Member State-funded schemes in countries 
of  origin  and  to  national  and  local  return  and  reintegration  organisations.  Post-arrival 
counselling  is  strongly  connected  to  the  pre-departure  phase  as  effective  information 
provision  and  pre-departure  counselling  enable  counsellors  to  provide  more  tailored 
assistance  to  the  specific  situation  of  each  returnee.  The  earlier  a  conversation  on 
reintegration with a returning migrant begins, the more concrete their plans for reintegration 
in the country of origin may be. Although discussing plans for reintegration while still in the 
host country is a useful first step towards a successful reintegration, it is important to keep in 
mind that the situation of the migrant might change during the return process. Therefore, it is 
often  necessary  to  make  a  new  assessment  of  the  needs  of  the  returnee  upon  arrival  in  the 
country of return, typically in the form of an assessment interview. 

Counselling  in  countries  of  origin  is  usually  organised  in  two  stages.  The  first  consists  of 
providing immediate support to the returnee upon arrival, and the second to provide broader 
reintegration assistance. Immediate support can be provided at a welcome or referral desk at 
the  airport  (or  other  arrival  point)  where  the  returnee  receives  useful  practical  information 
and  some  counselling.  Returnees  that  cannot  rely  on  friends  or  family  for  immediate 

15 

 
 
accommodation and basic needs upon arrival can receive emergency economic support, such 
as pocket money and onward transportation. 

Further  post-arrival  reintegration  is  a  medium  to  long-term  process  that  should  cover  three 
main aspects of a returnee’s needs: 

  economic; 
  social, cultural and identity; 
  psychological. 

The  returnee  typically  receives  assistance  in  the  economic  dimension  of  reintegration  by 
receiving  in-kind  and  technical  support  to  set  up  an  income-generating  activity.  In  most 
cases, the returnee discusses a preliminary plan to set up an income-generating activity with 
the return counsellor while still in the host country. Upon arrival in the country of return, the 
plan is analysed with reintegration service providers to assess its feasibility. In most cases, a 
series  of  adjustments  are  needed  for  the  project  to  be  feasible  and  have  a  good  chance  of 
success.  Once  this  stage  is  completed,  a  business  plan  is  drawn  up  with  the  support  of 
reintegration  organisations.  It  is  also  up  to  these  organisations  to  support  the  returnee  in 
making all the purchases needed to set up the activity. Once the income-generating activity is 
set  up, close contact  with the returnee is  usually maintained for the next  six months to  one 
year.  Building  a  successful  business  should  help  the  returnee’s  integration  and  financial 
security and thus lessen the chances of successive irregular remigration. Ideally, it is also in 
line with the broader economic development goals for the country of return as the returnee’s 
business  activity  –  typically  building  on  the  skills  acquired  abroad  or  as  a  result  of  return 
counselling  services  and  individual  reintegration  assistance  –  can  contribute  to  these  goals 
too. 

Social,  cultural,  identity  and  psychological  reintegration  can  be  particularly  difficult  for 
returnees  who  have  spent  a  significant  amount  of  time  away  from  their  home  country.  It 
affects  the individual’s feeling of belonging  to  the local  community  and to  their desire  and 
capacity to reintegrate into social networks in their home country. It is also directly related to 
how returnees are perceived by their family and by society in general. There is often stigma 
associated with return, which makes psychological support necessary for some individuals. In 
addition  to  providing  psychological  support,  counselling  can  also  support  the  returnee’s 
social reintegration by providing information about social and cultural events and activities. 

Post-arrival counselling  in  the country of return  can be of added value to all returns.  It  can 
help the reintegration process and be a channel for further tailoring the assistance to the needs 
of  the  returnee.  Post-arrival  counselling  can  be  useful  for  referring  the  returnee  to  social 
services, support structures and other projects related to reintegration in the country of return 
and  to  gain  valuable  information  on  the  success  of  each  assisted  voluntary  return  and 
reintegration project. 

Identified good practices 

-  Member  States  are  encouraged  to  consider  setting  up  post-arrival  counselling 
structures,  especially  in  third  countries  where  returnees  have  access  to  reintegration 
support. 

16 

 
 
-  The links between pre-departure and post-arrival counselling should be strengthened 
by exchanging data, in line with data protection legislation, between organisations and 
by  collecting  information  on  the  assisted  voluntary  return  and  reintegration 
programme during the counselling. 

7. Information and knowledge management 

Several organisations are involved in outreach, return counselling and in referring migrants. It 
should  be  stressed  that  the  content  and  quality  of  information  provided  to  migrants  is 
important  in  building  trust,  managing  expectations,  ensuring  the  consistency  of  counselling 
and  ultimately  the  likelihood  of  migrants  choosing  voluntary  return.  Counsellors  and  other 
stakeholders  have  a  range  of  different  products  to  draw  on,  such  as  print  material  (flyers), 
guidelines,  handbooks,  questionnaires,  interview  templates,  country  of  origin  factsheets, 
detailed information  packs on reintegration service providers,  eligibility  criteria and several 
checklists.  The  material  used  should  therefore  be  harmonised  and  coordinated  by  one  or 
several organisations and made available to others. 

Those  involved  in  return  counselling,  either  in  referring  migrants  or  providing  the  return 
counselling  service,  should  have  access  to  consistent  material  that  is  regularly  updated  and 
that  contains  content  that  has  been  coordinated.  It  is  therefore  useful  for  Member  States  to 
create  new  or  use  existing  platforms  to  share  general  data,  including  templates,  country  of 
origin  information  and  factsheets  always  in  line  with  data  protection  legislation  when 
personal data is involved. 

In the context of the European Migration Network, the Commission has created a web-based 
tool,  the  Reintegration  Assistance  Tool  (RIAT),  which  is  available  to  Member  State 
authorities and to return and reintegration assistance service providers. RIAT enables national 
authorities  and  return  counsellors  to  refer  individual  cases  to  service  providers  in  third 
countries.  Member  States  are  encouraged  to  use  the  Reintegration  Assistance  Tool  for  all 
assisted voluntary return and reintegration cases and to make it available to those involved in 
return  counselling  for  the  purpose  of  sharing  general  information  on  available  assisted 
voluntary  return  and  reintegration  support  and  to  ensure  the  information  provided  is 
consistent. 

Ideally, return counselling for one migrant should be provided by the same person throughout 
the  process.  There  are,  however,  situations  where  this  is  not  possible,  for  example  due  to 
staffing changes, relocation of a migrant to another centre and especially where post-arrival 
counselling  is  offered  in  the  country  of  return.  As  post-arrival  counselling  is  connected  to 
pre-departure  counselling  and  information  provided  to  the  returnee  before  departure,  it  is 
necessary to ensure continuity of counselling and an efficient flow of information from one 
counsellor to the next. This type of information includes personal data and possibly sensitive 
personal data, in particular when it comes to migrants with vulnerabilities. The General Data 
Protection  Regulation  (EU)  No  2016/679  applies  to  the  processing  of  personal  data  for 
migration-related  purposes  in  the  Member  States.  As  data  controllers,  Member  State 
authorities  need  to  ensure  compliance  with  their  obligations  under  the  General  Data 
Protection Regulation, including for instance, on lawfulness of processing, on processing of 
special categories of personal data, on the rights of the data subject, on the obligations of the 
controller and processor and on transfers of personal data to third countries or international 

17 

 
 
organisations. Member States should therefore make sure that they meet the conditions laid 
down in the Regulation on processing personal data, especially on transferring personal data 
to organisations in third countries or to international organisations responsible for providing 
return counselling services. Virtual counselling can be particularly useful to follow up on the 
case after return. Member States are encouraged to develop, with support from the competent 
supervisory  authorities,  practical  guidelines  on  processing  personal  data  for  return 
counselling  purposes  and  to  include  such  guidelines  and  issues  of  data  protection  in  the 
training programmes for counsellors. 

Identified good practices 

-  Member  States  are  encouraged  to  use  the  Reintegration  Assistance  Tool  to  share 
information between all stakeholders involved in return counselling to ensure access 
to  up-to-date,  relevant  and  consistent  information  and  to  use  the  tool  to  refer  to  its 
Assisted Voluntary Return and Reintegration cases.  

-  Member  State  authorities  should  seek  advice  from  the  competent  data  protection 
supervisory  authorities  on  the  processing  of  personal  data  for  return  counselling 
purposes. 

-  The Commission will organise workshops for experts under the European Migration 
Network to increase awareness, exchange good practice and solutions to issues of data 
protection when providing return counselling services. 

8. Monitoring and evaluation 

8.1 Monitoring outcomes 

Monitoring the effectiveness of return counselling is a complex task that is directly linked to 
the counselling approach adopted (see Section 4.3 above) and to the perceived purpose. 

If the approach is predominantly migrant-centred, it is likely to measure the success of return 
counselling  by  focusing  on  the  extent  to  which  counselling  effectively  helped  the  migrant 
make  an  informed  decision  and  plan  their  return.  This  mainly  requires  qualitative  data 
collection methods. 

If  the  approach  is  more  compliance-based,  it  is  likely  to  measure  the  success  of  return 
counselling  on  the  number  of  migrants  who  return  to  their  home  country  after  receiving 
return counselling and possibly assistance. Collecting this type of data usually entails using 
quantitative  data  collection  methods,  although  establishing  proper  causality  requires  a 
qualitative element on the migrant’s motivation for return. 

8.2 Evaluating processes 

Irrespective  of  the  approach  taken,  two  distinct  dimensions  should  be  taken  into  account 
when evaluating the provision of return counselling services: 

 

 

the quality of the information provided; 

the quality of the support provided 

18 

 
 
Ensuring the quality of the information provided entails not only that all information sources 
and databases to which counsellors have access are constantly updated and reliable, but also 
that the channels through which the information is transferred to migrants are appropriate. To 
evaluate  the  quality  of  the  information  provided,  feedback  is  not  only  necessary  from 
returnees,  but  also  from  the  migrants  that  received  information  on  the  return  process  but 
finally decided not to leave. Data to evaluate the quality of the information provided can be 
collected using both quantitative and qualitative methods, for example: 

o  Qualitative: 

  questionnaires  handed  out  to  migrants  by  counsellors  to  assess  whether  the 

information provided to them met their needs; 

  anonymous feedback boxes in locations providing information on return. 

o  Quantitative: 

  Number of online consultations via websites providing information on return. 

Ensuring  the  quality  of  the  support  provided  is,  however,  a  greater  challenge,  due  to  the 
intangible  nature  of  return  support  compared  with  information  on  return.  Due  to  this, 
monitoring and evaluating return support tends to be more effective when it combines both 
quantitative and qualitative methods. Even if establishing a direct causal relationship between 
return counselling and actual departure can be very difficult due to the number of variables 
that  come  into  play  in  shaping  decision-making  processes,  some  indications  are  useful  to 
evaluate  the  quality  and  efficiency  of  the  support  provided.  The  following  are  examples  of 
methods that can be used to collect data on the support provided: 

o  Qualitative: 

  semi-structured  interviews  to  measure  migrants’  degree  of  satisfaction  with  the 

support received and their willingness to cooperate in the return process; 

  anonymous questionnaires gathering migrants’ feedback on the different stages of 
return  counselling  (can  incorporate  survey  feedback  after  each  counselling 
session); 

  field  visits  to  countries  of  return  (this  method  is  useful  when  reintegration  is 

considered part of return counselling). 

o  Quantitative: 

  Number of returns achieved as a result of the counselling. Voluntary return is 
considered effective if the migrant engaged in all steps of the procedure until 
arrival  in  the  country  of  return.  The  figures  on  return  of  the  target  group 
should be compared to the figures in a control group to reduce the influence of 
external variables. 

The quality of return counselling can be more readily evaluated than effectiveness in terms of 
desired outcomes. The evaluation focuses on the internal side of how the process of outreach, 
referral  and  counselling  works,  while  monitoring  examines  the  effectiveness  of  the  desired 
outputs: how many returned as a result of receiving counselling. Although these observations 

19 

 
 
do not provide universal criteria or indicators for evaluating return counselling programmes 
or  monitoring  the  effectiveness  of  return  counselling,  Member  States  are  encouraged  to 
consider  putting  in  place  mechanisms  to  ensure  that  the  quality  is  consistent  and  to  gauge 
whether return counselling activities contribute to the intended objectives and purposes. 

The Reintegration Assistance Tool (RIAT) currently enables a limited degree of post-arrival 
monitoring  based  on  a  standardised  questionnaire,  which  the  reintegration  service  provider 
fills  in  following  a  face-to-face  (or  online)  interview  with  the  returnee.  The  questionnaire 
asks about the quality and usefulness of the support provided as well as about the wellbeing 
of the migrant. This questionnaire can be extended in the future.  

Identified good practices 

-  The  Commission  services,  together  with  relevant  EU  agencies,  Member  States  and 
stakeholders,  will  make  available  a  common  method  and  approach  to  monitor  the 
effectiveness of return counselling in a way that produces comparable data. By using 
the  short  questionnaires  at  each  step  in  the  return  and  reintegration  process,  the 
Reintegration Assistance Tool can contribute to the monitoring process.  

-  Member  States  are  encouraged  to  develop  tools  to  evaluate  referral  and  counselling 

processes. 

9. Funding 

9.1 Cost 

The  organisations  involved  in  return  counselling  may  have  access  to  multiple  funding 
sources.  Funding  may  be  available  from  national  development  aid  budgets,  other  funds 
managed by different ministries and municipalities or charities and through EU funding. 

It is generally difficult to assess the costs of return counselling carried out in Member States. 
Counselling  is  very  often  provided  as  a  part  of  a  project  on  assisted  voluntary  return  and 
reintegration  without  necessarily  a  breakdown  of  the  budget  for  counselling  services. 
Moreover,  it  is  clear  that  individual  cases  differ  in  complexity,  with  some  requiring  more 
attention, more time and more support than others. Costing return counselling services should 
include  return  counselling  staff  costs  (including  support  staff/back  offices),  the  cost  of 
materials and office space. As the bulk of funding goes on staffing costs, counselling projects 
and programmes are, from a financial and administrative perspective, not complex to monitor 
and manage. It is nevertheless beneficial to follow-up on cost per capita (resources used per 
counselled  returnee)  and  the  overall  operation  cost  of  the  entire  programme.  The  data 
collected may help later analyses on future funding needs and evaluation of the programme. 

Ensuring  a  stable  stream  of  funding  is  key  to  developing  robust  practices.  If  short-term 
project-funded measures do not receive further funding, there is a risk that the lessons learned 
will  not  be  put  into  practice  later  on.  A  more  urgent  risk  is  that  returnees  who  begin 
counselling towards the end of the project funding period may ‘fall through the cracks’ and 
be left without further support if counselling is no longer available.  

A lack of continuity of  programmes also  undermines the capacity to  reach out  to  migrants. 
This  short  timeframe  may  also  reduce  returnees’  trust  in  the  support  available  and  create 

20 

 
 
further uncertainty as to what kind of assistance is available to them. Moving from short-term 
(one-year) projects  to  longer-term  programmes  (up to  four  years) can significantly improve 
the  scope  to  focus  on  structural  aspects  of  return  counselling,  including  process  continuity, 
quality standards, meaningful evaluation and the monitoring of counselling services. 

A permanent structure, even a very basic one, would have a positive impact on programme 
continuity  and  results.  Member  States  are  also  encouraged  to  ensure  that  programmes 
including  return  counselling  are  run  over  longer  timeframes  and  that  further  funding  is 
accessible to continue counselling services that have proven to be valuable.  

9.2 Asylum, Migration and Integration Fund  

The Asylum, Migration and Integration Fund (AMIF) promotes the efficient management of 
migration  flows  and  helps  implement,  strengthen  and  develop  a  common  EU  approach  to 
asylum  and  immigration.  The  AMIF  Regulation  (EU)  No  516/2014  and  its  successor  lays 
down the objectives of financial support and the type of eligible measures.  

The Asylum, Migration and Integration Fund was set up for the 2021-2027 period with a total 
budget  of EUR 9.8 billion for seven  years.  One  of the specific objectives of this fund is  to 
support fair and effective strategies that contribute to combating illegal immigration, with an 
emphasis  on  the  sustainability  of  return  and  the  effectiveness  of  the  return  process.  The 
largest share (approximately 88%) of funding is  channelled through shared management, in 
which EU Member States run their multiannual national programmes. These programmes are 
prepared,  implemented,  monitored  and  evaluated  by  the  Member  State  authorities,  in 
partnership  with  stakeholders.  By  comparison, 
the  Member  States  had  allocated 
approximately EUR 1 billion to fund return measures over the previous seven-year period. 

The  new  Asylum,  Migration  and  Integration  Fund  Regulation  brings  in  improvements  in 
terms of flexibility, a higher rate of co-financing and more available funding. The new legal 
framework  makes  reference  to  setting  up  administrative  structures,  systems,  tools  and  staff 
training,  including  training  for  local  authorities  and  other  stakeholders.  It  also  includes 
assistance  and  support  services  specific  to  the  status  and  the  needs  of  persons  concerned, 
schemes  that  aim  to  raise  awareness  of  asylum,  integration,  legal  migration  and  return 
policies among stakeholders and the general public. 

Pre-departure  counselling,  post-arrival  counselling  and  reintegration-related  counselling 
services  and  outreach  work  are  also  eligible  for  funding.  The  Commission  services 
underscores the need to  put in place a more integrated and coordinated approach on return. 
Swift  and  suitable  multi-disciplinary  responses  must  be  made  available  to  illegally  staying 
and  irregular  migrants  from  all  authorities  involved  in  the  procedures.  These  include  law 
judicial  authorities,  detention  authorities, 
enforcement  and 
guardianship systems, medical, education and social services. 

immigration  authorities, 

The  Commission  services  encourage  the  Member  States  to  include  in  their  national 
programmes objectives related to counselling, i.e. to set up, develop and maintain counselling 
structures in order to draw on EU funding to provide these services. Funding should be made 
available  to  the  organisations  providing  return  counselling  in  the  Member  States,  whether 

21 

 
 
 
they  be  national,  municipal  or  local  authorities,  non-governmental  organisations  or 
international  organisations.  The  Member  States  can  use  this  EU  Framework  on  return 
counselling  as  a  reference  when  setting  up  and  programming  services  and  by  the 
the  national 
organisations  responsible  for  developing  counselling  structures  within 
administrations and civil society. 

Identified good practices 

-  Member States are encouraged to make stable funding available for return counselling 
by  setting  up  permanent,  even  very  basic,  counselling  structures  rooted  in  existing 
implementing  return 
services  and 
counselling activities, while securing future funding for successful initiatives. 

longer-term  programmes  for 

to  prioritise 

-  The  Commission  services  encourage  the  Member  States  to  include  in  their  national 
programmes  objectives  related  to  setting  up,  maintaining  and  developing  return 
counselling structures and to allocate sufficient funds to provide these services. 

10. Conclusion 

The  EU  Framework  on  return  counselling  outlines  a  number  of  elements  for  the  Member 
States  to  consider  when  setting  up,  maintaining  and  developing  sustainable  structures  to 
provide return counselling services and it presents and promotes several good practices. 

Return counselling is not a stand-alone service, but an integral part of the broader approach to 
migration  management.  Multiple  organisations  are  involved  in  the  process  of  return 
counselling,  although  Member  States  remain  responsible  for  the  overall  creation  of  the 
structures,  for  coordination  and  ultimately  for  delivery,  even  if  the  service  is  provided  by 
implementing  partners.  As  effective  counselling  requires  having  a  well-established  network 
and referral systems, stakeholder cooperation is of key importance. The content and quality 
of  counselling  should  be  coherent  with  and  adapted  to  the  different  migratory  stages.  To 
achieve this, the counsellors should receive proper training, support and suitable tools. 

The Commission services, for its part and, with the support of EU agencies and organisations 
involved in return counselling, have put in place common support solutions identified in this 
Framework to facilitate stakeholder cooperation, to improve knowledge management and to 
develop  common  monitoring  methods.  Moreover,  the  Commission  and  Member  State 
authorities should make use of this Framework in the context of decision-making on the use 
of EU funding for return counselling and return services more broadly. 

22 

 
 
 
 
Section II  

REINTEGRATION ASSISTANCE TOOL (RIAT) 

The development of digital tools to improve migration procedures is an important aspect in 
implementing  the  new  Pact  on  Migration  and  Asylum.  The  Commission  services  have 
committed6  to  fostering  and  steering  the  development  of  an  integrated  system  of  return 
management,  notably  to  develop  assistance  instruments  to  support  the  reintegration  of 
returnees  in  their  countries  of  origin.  A  European  approach  to  reintegration  assistance 
requires setting up a joint and unified information management system. 

This part of the staff working document describes the Reintegration Assistance Tool, a core 
tool to implement the EU strategy on voluntary return and reintegration.  

The  European  Migration  Network  has  played  a  vital  role  in  recent  years  in  developing 
digital  tools  to  support  work  on  migration.  Several  tools  are  hosted  on  the  European 
Migration  Network  Information  Exchange  System,  a  secure  and  restricted  electronic 
platform  that  provides information  exchange  functionalities  and  tools  in  the  field  of 
migration. The Reintegration Assistance Tool is one of the digital tools on this platform. 

Developed and owned by the Commission, the Reintegration Assistance Tool facilitates the 
management  of  information  flows  on  individual  cases  of  return  and  reintegration  between 
return  counsellors  and  reintegration  service  providers  in  a  secure  digital  environment.  The 
tool simplifies and standardises information exchange on the return and reintegration process 
to  the  benefit  of  returnees,  reintegration  service  providers  in  third  countries,  Member  State 
authorities and other stakeholders.  It  also  provides  a comprehensive overview of individual 
cases  via  a  single  communication  platform  and  facilitates  administrative  and  financial 
validation by the Member States.  

Scope of the Reintegration Assistance Tool 

In order to achieve EU-wide coverage and improve the quality of monitoring and evaluation 
of return and reintegration programmes, the Commission services encourage Member States 
to use the tool for all returns from the European Union. For this purpose, as outlined in the 
strategy, the EU will make funding and necessary support available.  

The  tool  supports  reintegration  services  after  both  voluntary  and  forced  return  and  can  be 
used to manage the provision and follow-up of assistance, whether in-cash, in-kind or limited 
to referral (i.e. referring the migrant to medical support).  

The  tool  is  available  to  all  Member  States,  to  their  authorities  and  to  contracted  service 
providers, in  line with  needs and local  specificities. The Commission  services are  currently 
developing further applications to  ensure the Reintegration Assistance Tool is interoperable 
with  Member  States’  national  systems  and  connections  to  Frontex  systems,  such  as  the 
Frontex Application on Return.   

6 COM(2015) 453 and COM(2017) 200. 

23 

 
 
                                                           
Description of the Reintegration Assistance Tool 

The  Reintegration  Assistance  Tool  breaks  down  the  case  management  process  into  three 
steps:  

1)  First, a return counsellor in a Member State creates an individual case / file in the tool 
and requests a service provider to take on the reintegration case. In principle, return 
counsellors are able to choose from multiple service providers and/or projects in the 
third  country.  The  return  counsellor  at  this  point  also  enters  relevant  information  in 
the system, i.e. reintegration needs and flight information (which in the future will be 
connected to the Frontex Application for Return);  

2)  Second is  the post-arrival  step, after the  reintegration plan has  been agreed between 
the service provider and returnee and is entered in the tool. The plan is then validated 
by  a  coordinator  in  the  Member  State  and  the  service  provider  and  returnee  start 
implementing  the  reintegration  plan  (i.e.  by  providing  vocational  training  and/or 
support for schooling of minors in families);  

3)  Third  and  last,  after  the  reintegration  plan  has  been  implemented,  is  administrative 
and  financial  validation.  In  this  step,  the  service  provider  sends  all  necessary 
information  (i.e.  proof  of  payment)  that  Member  States  require  for  their  financial 
administration,  also  to  meet  the  eligibility  criteria  under  the  Asylum,  Migration  and 
Integration Fund (AMIF). Over time, this can also help ease the administrative burden 
by standardising the process where possible.  

Data management 

The  Reintegration  Assistance  Tool  is  not  a  database  that  stores  personal  data  that  is  later 
searchable.  It  is  a  sophisticated  information  exchange  tool  that  enables  the  secure 
transmission of encrypted personal data of individuals and uses anonymised data to provide 
statistics  and  information  in  a  dashboard.  Every  individual  case  file  created  is  assigned  a 
unique  code.  The  Member  State  owns  the  data  on  the  cases  it  creates  and  acts  as  data 
controllers of this data. Service providers own the data that they record on the cases in which 
they provided assistance. All personal data on a case is deleted within three months of closing 
the case.  

Governance structure 

The  European  Migration  Network  finances  the  development  and  maintenance  of  the 
Information  Exchange  System  on  which  the  Reintegration  Assistance  Tool  runs.  The 
therefore  responsible  for  overall 
European  Migration  Network  Steering  Board 
development,  planning  and  resource  allocation  for  the  tools  on  the  European  Migration 
Network Information Exchange System.  

is 

In this role, the Steering Board will receive updates on developments planned and discussed 
in  the  expert  groups  of  the  European  Migration  Network.  For  the  Reintegration  Assistance 
Tool  in  particular,  permanent  feedback  and  input  from  end  users  (return  counsellors  and 
reintegration  counsellors)  is  required.  To  facilitate  this  feedback  and  co-development,  the 
Commission services organise quarterly meetings to discuss developments related to the tool.  

24