COMMISSION STAFF WORKING DOCUMENT On the fulfilment by Kuwait and Qatar of the criteria listed in Article 1 of Regulation (EU) 2018/1806 Accompanying the Proposal for a Regulation of the European Parliament and of the Council amending Regulation (EU) 2018/1806 listing the third countries whose nationals must be in possession of visas when crossing the external borders and those whose nationals are exempt from that requirement (Kuwait, Qatar)
Date: 2022-04-27
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU visa policy, Kuwait, Qatar, Schengen Agreement, external border of the EU, foreign national

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 27.4.2022  SWD(2022) 129 final  COMMISSION STAFF WORKING DOCUMENT On the fulfilment by Kuwait and Qatar of the criteria listed in Article 1 of Regulation (EU) 2018/1806 Accompanying the Proposal for a Regulation of the European Parliament and of the Council amending Regulation (EU) 2018/1806 listing the third countries whose nationals must be in possession of visas when crossing the external borders and those whose nationals are exempt from that requirement   (Kuwait, Qatar) {COM(2022) 189 final}  
 
 
1.  INTRODUCTION 

The determination of the third countries whose nationals are subject to, or exempt from, the 
visa  requirement  should  be  made  on  the  basis  of  case-by-case  assessment  of  a  variety  of 
criteria1. These criteria are laid down in Article 1 of Regulation (EU) 2018/18062 and include 
irregular immigration, public policy and security, economic benefit, in particular in terms of 
tourism and foreign trade, and the Union’s external relations with the relevant third countries, 
including in particular, considerations of human rights and fundamental freedoms, as well as 
the implications of regional coherence and reciprocity.  

The composition of the lists of countries whose nationals are subject to, or exempt from, the 
visa requirement (Annex I and II of Regulation (EU) 2018/1806, respectively) should remain 
consistent  with  the  above  mentioned  criteria3.  In  case  the  criteria  are  no  longer  met,  the 
references to the third countries in question should be transferred from one Annex to the other. 

This report concludes that on the basis of the aforementioned assessment, nationals of Kuwait 
and Qatar should be exempted from the visa requirement.  

2. ASSESSMENT AGAINST THE CRITERIA OF THE VISA REGULATION 

2.1. IRREGULAR MIGRATION  

The  assessment  based  on  Eurostat  data4  and  visa  refusal  rates5  for  the  period  2017-2020, 
combined with the number of nationals that would be covered by the visa exemption6 and the 
GDP per capita of the countries concerned7, concludes that the risks of irregular migration for 
these  countries  are  low.  It  must  be  stressed  that  for  both  countries  the  visa  refusal  rate  of 
nationals is very low (below 1% in 2019 for both countries). 

2.1.1. Qatar 

No irregular border crossings by Qatari nationals have been reported in the EU since 2015. The 
absolute number of refusals of entry, detected irregular stays and refusals of visa for Qatar has 
been  low  and  steady  since  2019.  The  number  of  refusals  of  entry  for  nationals  of  Qatar 
decreased both in 2019 and in 2020, with only ten cases reported in 2020. The number of Qatari 
nationals found to be irregularly staying in the EU has been between 65 and 90 per year since 
2017, after peaking at 165 in 2016. In the last decade, the number of asylum applications lodged 
by citizens of Qatar has never exceeded five per year, with five applications reported in 2019 
and none in 2020. The number of persons ordered to leave in the period 2017-2020 was also 
very low. In 2020, there were ten return decisions and no effective returns.   

1 Recital 3 of Regulation (EU) 2018/1806 of the European Parliament and of the Council of 14 November 2018 
listing the third countries whose nationals must be in possession of visas when crossing the external borders and 
those whose nationals are exempt from that requirement (OJ L 303, 28.11.2018, p. 39). 
2 Article 1 of Regulation (EU) 2018/1806, cited above. 
3 Recital 4 of Regulation (EU) 2018/1806, cited above. 
4 https://ec.europa.eu/eurostat/web/main/data/database.  
5 Statistics on short stay visas issued by Member States are available on https://ec.europa.eu/home-
affairs/policies/schengen-borders-and-visa/visa-policy_en.  
6 Based on statistics on population and citizenship published by the Gulf Cooperation Council Statistical Center 
(https://dp.gccstat.org/en/DataAnalysis?wCaJrxGuESIT4xOnxY9QA), except for Qatar (see footnote 8). 
7 https://data.worldbank.org/indicator/NY.GDP.PCAP.CD. 

1 

 
 
                                                           
According to the GCC Statistical Centre, in 2019 Qatar had an estimated population of 3 200 
0008. According to a consultancy, Qatar had 333 000 Qatari nationals in 20199. In 2020, 
Qatar was classified by the World Bank as one of the ten richest countries in the world, with 
a GDP per capita of USD 50,124.4010.  

2.1.2. Kuwait 

After  an  exceptional  peak  of  irregular  border  crossings  by  persons  reported  to  Frontex  as 
Kuwaiti nationals in 2017 (485), the number has significantly decreased since then and stood 
at 22 in 2020. The absolute number of refusals of entry, detected irregular stays and refusals of 
visa for Kuwait has been low and steady since 2019.  

The number of refusals of entry by persons reported by Member States to Eurostat as Kuwaiti 
nationals has been fluctuating between 80 and 155 since 2017. The number of persons found 
to be irregularly staying in the EU has been volatile, with 650 in 2019 and 520 in 2020. In 
2020, 265 persons reported by Member States as Kuwaiti nationals lodged asylum applications 
in the EU, 42% less than in 2019 (455). In 2020, the recognition rate was 24%, the lowest level 
since  2011.  In  2020,  225  persons  were  ordered  to  return  and  ten  were  effectively  returned, 
corresponding to a 4% return rate, down from 10% in 2019. 

According to the Gulf Cooperation Council (GCC) Statistical Center11, in 2019 Kuwait had an 
estimated population of 4 464 521, of which 1 335 712 were Kuwaiti nationals. In 2020, the 
GDP per capita of Kuwait (USD 24,811.80) was classified by the World Bank as above upper 
middle income12.  

2.2. SECURITY 

Cooperation in the field of security has intensified in recent years, both bilaterally and through 
the GCC, which at the 30th Joint Cooperation Committee with the EU agreed in principle to the 
creation of a Joint Working Group on Counter Terrorism. Visa-free travellers will continue to 
be checked at the EU’s external borders whether they fulfil the entry requirements, including 
by  checking  the  Schengen  Information  System  and  Member  States'  national  databases.  In 
addition, visa-exempt travellers visiting the Schengen area will be subject to the EU Entry/Exit 
System  (EES)  as  of  second  half  of  2022  and  to  the  European  Travel  Information  and 
Authorisation System (ETIAS) as of May 2023. Cooperation is enshrined in administrative-
level  Cooperation  Arrangements  that  have  been  concluded  between  the  European  External 
Action Service (EEAS) and the respective Ministries of Foreign Affairs. Security and counter-
terrorism are some of the agreed priority areas for cooperation, and related issues are discussed 
in  annual  Senior  Officials  Meetings.    Cooperation  materialises  through  capacity-building 
activities as well as workshops focusing on exchange of good practices. 

2.2.1. Qatar 

Qatar has been issuing biometric passports since 2008. Bilateral cooperation with the EU in 
the field of security has intensified in recent years. Qatar carries out structural cooperation with 
the EU on counter-terrorism, the prevention and countering of violent extremism, countering 

8 https://dp.gccstat.org/en/DataAnalysis?wCaJrxGuESIT4xOnxY9QA 
9 http://priyadsouza.com/population-of-qatar-by-nationality-in-2017/ 
10 https://data.worldbank.org/indicator/NY.GDP.PCAP.CD 
11 https://dp.gccstat.org/en/DataAnalysis?wCaJrxGuESIT4xOnxY9QA 
12 https://data.worldbank.org/indicator/NY.GDP.PCAP.CD 

2 

 
 
                                                           
terrorism financing and anti-money laundering, countering cybersecurity, cybercrime and the 
risks  relating  to  malicious  use  of  chemical,  biological,  radiological  and  nuclear  defence 
(CBRN).  Additionally,  Qatar  has  expressed  a  strong  interest  in  pursuing  a  working 
arrangement with Europol. In December 2021, the Europol Management Board endorsed the 
inclusion  of  the  country  in  the  agency’s  list  of  priority  partners  to  conclude  working 
arrangements, which is periodically revised. In February 2022, Qatar informed Europol about 
its  intention  to  accept  the  agency’s  model  working  arrangement  without  amendments.  The 
working arrangement is therefore expected to be concluded soon, once the text is approved by 
the Europol Management Board. 

2.2.2. Kuwait 

Kuwait has been issuing biometric passports since 2017. As regards cooperation in the field of 
security, bilateral cooperation with the EU has intensified in recent years. Kuwait has structural 
cooperation  with  the  EU  on  counter-terrorism,  the  prevention  and  countering  of  violent 
laundering,  countering 
extremism,  countering 
cybersecurity,  cybercrime  and  the  risks  relating  to  malicious  use  of  chemical,  biological, 
radiological and nuclear defence (CBRN). Kuwait signed a Cooperation Arrangement with the 
EEAS in July 2016. Kuwait has also signalled a strong interest in further developing security 
cooperation with  the EU, notably  as regards strategic communication  relating to countering 
terrorist  extremism  and  radicalisation,  cybersecurity  and  judicial  cooperation.  Several 
workshops on the latter topics are envisaged in 2022.  

financing  and  anti-money 

terrorism 

2.3. ECONOMIC BENEFIT, IN PARTICULAR TRADE AND TOURISM 

Trade in energy products is a key element of EU relations with both countries.  

2.3.1. Qatar 

Qatar provides approximately half of Europe’s total Liquefied Natural Gas (LNG) imports and 
is the fifth largest supplier of natural gas representing 5% of all EU gas imports. In 2020, the 
EU was Qatar’s second trading partner (after China), covering more than 15% of the country’s 
overall trade. The EU was also Qatar’s first import partner, with a share of 23.8% of Qatar’s 
overall imports. The EU’s export of goods in 2020 amounted to EUR 6.9 billion, while the 
volume of import reached EUR 3.6 billion. The volume of trade in services in 201913 was EUR 
6.8  billion,  out  of  which  the  EU  export  represented  EUR  5.1  billion.  As  regards  Foreign 
Development Investment (FDI) stocks, in 2019 the overall value reached EUR 39.3 billion, out 
of which the Qatari investments in the EU represent EUR 31.9 billion, which makes the country 
a major investor in the EU. 

Qatar’s ‘Vision 2030’ strategic programme to diversify the economy could enhance economic 
cooperation  and  provide  new  opportunities  for  EU  exporters  and  investors.  The  country’s 
strategic position as a LNG exporter will also imply closer economic cooperation in the future. 
The EU signed  an aviation agreement with  Qatar on 18 October 2021, which could  further 
boost business contacts. 

13 Idem. 

3 

 
 
                                                           
In 2019, consulates of EU Member States in Qatar issued a total of 85 677 uniform visas and 
airport transit visas, a figure that went down to 13 504 in 2020 due to the COVID-19- related 
travel restrictions.14   

2.3.2. Kuwait 

In  2020,  the  EU  preserved  its  position  as  Kuwait’s  top  trading  partner,  covering  9%  of  its 
overall trade, followed by China (8.4%) and the UAE (4.7%). In 2020, the volume of overall 
trade  in  goods  was  EUR  5.7  billion,  out  of  which  the  EU  export  was  EUR  4.9  billion  and 
Kuwaiti export amounted to EUR 0.8 billion. As regards trade in services, the overall volume 
of trade in  201915 was EUR  2.4 billion, out  of which  the EU export amounted to  EUR 1.8 
billion. Concerning bilateral investment relations, the overall bilateral stock reached EUR 7.8 
billion in 201916, out of which the Kuwaiti investments in the EU amounted to EUR 4 billion, 
up from EUR 7.3 billion in 2018.  

The Government’s ‘Vision 2035’ strategic plan, aimed at diversifying the economy, provides 
new opportunities for enhanced economic cooperation between Kuwait and the EU in areas 
such as digitalisation, data protection, green transition and aviation. 

In 2019, consulates of EU Member States in Kuwait issued a total of 152 643 uniform visas 
and airport  transit visas, a figure that went  down to  16 628  in  2020 due to  the COVID-19- 
related travel restrictions17.  

Based  on  the  short-stay  visas  figures  for  2019  and  the  experience  of  other  third  countries 
experience18, the Commission estimates that the number of visitors from Kuwait could increase 
by 60%, from 150.000 to 240.000, with spending going from EUR 230 to 310 million. As for 
Qatar, the number of visitors could increase by 150%, from 85.000 to 212.500, with spending 
going from EUR 280 to 560 million.  This increase would trigger substantial economic benefits, 
in particular for the tourism industry. 

2.4. EXTERNAL RELATIONS 

The increasing intensity and depth of EU relations with the GCC countries in the last decade 
reflects  the  growing  importance  of  the  region  for  the  EU’s  economic  recovery  and  green 
transition, global governance, as well as regional security and stability. The EU has continued 
to expand its diplomatic presence in the region and, in addition to the EU-GCC Cooperation 
Agreement from 1989, has signed bilateral Cooperation Arrangements with all GCC partners.  

Both Kuwait and Qatar have proven to be key partners in handling recent crises, including the 
repatriation and vaccination efforts in the context of the COVID-19 pandemic, the evacuation 
of EU nationals, close collaborators and other persons at risk via Doha following the Taliban’s 
take-over of the government in Afghanistan, as well as the efforts to tackle recent hybrid threats 
against Europe. Both countries cosponsored and voted in favour of the 2 March UN resolution 
denouncing the Russian invasion of Ukraine and demanding that Moscow withdraw its military 

14 https://ec.europa.eu/home-affairs/policies/schengen-borders-and-visa/visa-policy_en. 
15 Study conducted by Tourism Economics, based on UNWTO and WTTC data. 
16 Idem. 
17 https://ec.europa.eu/home-affairs/policies/schengen-borders-and-visa/visa-policy_en. 
18 Calculated on the basis of UK statistics following the introduction by the UK of an electronic visa waiver in 
2014 for Kuwaiti and Qatari nationals. Figures have been extrapolated for the EU based on Schengen Visas 
issued to these two countries. Source: https://www.visitbritain.org/inbound-tourism-trends?country=3442 

4 

 
 
                                                           
presence Kuwait and Qatar have also proven to be key partners for the EU with regard to the 
support  provided  in  response  to  the  crisis  in  Syria,  notably  through  pledges  to  the  Brussels 
Syria conferences. Kuwait has also played a role in responding to the crisis in Afghanistan, 
working closely with the GCC, Organisation of Islamic Cooperation and Arab League.  

2.4.1. Qatar 

Qatar’s external policy is increasingly supportive of the EU interests. During the first wave of 
the COVID-19 pandemic, tens of thousands of EU citizens were repatriated by Qatar’s national 
airline at a heavy financial cost. The evacuation of EU nationals from Afghanistan continues 
to date and Qatar is securing airport operations together with Turkey. Qatari authorities also 
facilitated the relocation of Member States’ embassies from Kabul to Doha.  Qatar, which is 
the fifth supplier of natural gas to the EU, has expressed willingness to cooperate in overcoming 
possible  disruptions  in  energy  supply  to  the  EU,  and  has  a  strong  potential  for  strategic 
cooperation on energy, green recovery and climate change.  

Relations between Qatar and the EU have steadily  grown over recent  years. A Cooperation 
Arrangement  between  the  EEAS  and  the  Qatari  Minister  of  Foreign  Affairs  was  signed  in 
March 2018 and a Human Rights Dialogue was launched the same year, with three rounds held 
so far; the next one planned in 2022, and several high-level bilateral meetings. In October 2021, 
Qatar  became  the  first  Gulf  country  to  sign  a  Comprehensive  Air  Transport  Agreement 
(CATA) with the EU. As a result of the ever-growing bilateral engagement, during his visit to 
Doha  the  EU  High  Representative  for  Foreign  Affairs  and  Security  Policy  announced  the 
opening of a new EU Delegation to the State of Qatar in 2022, before the country hosts the 
FIFA World Cup. 

2.4.2. Kuwait 

Kuwaiti foreign policy has been traditionally supportive to EU interests. With its moderate and 
balanced  stance  in  the  region,  the  country’s  influence  has  been  positive  in  various  regional 
crises, including in its capacity as the Chair of the League of Arab States. Kuwait hosted the 
very first international event on the future of Syria in 2013 and has made regular contributions 
to the Syria Recovery Trust Fund (SRTF) since then, amounting to EUR 41.93 million in total. 
It was also a key actor in the adoption of UN Security Council resolution 2615 (2021) enabling 
the  provision  of  humanitarian  aid  to  Afghanistan.  Due  to  Kuwait’s  strong  commitment  to 
regional integration (GCC), it remains the EU’s key partner in promoting stronger partnership 
with the Gulf and with GCC in particular.  

EU-Kuwait relations have steadily intensified over recent years. A Cooperation Arrangement 
between  the  EEAS  and  the  Kuwaiti  Minster  of  Foreign  Affairs  was  signed  in  2016  and  an 
informal Human Rights Dialogue was launched in February 2020, with two rounds held so far 
and the next one planned in 2022. Kuwait is also increasingly seeking convergence with the 
EU on the green agenda, notably on hydrogen and solar energy. 

2.5. HUMAN RIGHTS AND FUNDAMENTAL FREEDOMS 

The level of protection of human rights and fundamental freedoms in Kuwait and Qatar remains 
a challenge in many areas, including as regards the rule of law and the independence of the 
justice system, freedom of association and peaceful assembly; freedom of expression; torture, 
ill-treatment, and detention conditions; the total  abolition of the death penalty; the rights  of 
women  and  gender-based  violence;  labour  rights  and  the  treatment  of  migrant  workers,  the 

5 

 
 
persecution of political dissidents; the situation of stateless persons in Kuwait and the targeting, 
punishment or criminalisation of LGBTIQ persons. 

Despite these challenges, Kuwait and Qatar have undergone important societal transformation 
in the last decade, notably on aspects related to labour issues, freedom of religion or belief and 
interfaith dialogue. Further progress remains to be accomplished in a number of areas.  

Both Kuwait and Qatar engage with the EU on human rights through dedicated Human Rights 
Dialogues, including discussion on issues of concern such as the death penalty, the enjoyment 
of civil and political rights (to a lesser extent Qatar), women’s rights, LGBTIQ rights, labour 
rights, and the difficulties in obtaining identification documents for stateless persons (Kuwait). 
The  EU  also  exchanges  information  with  the  countries  concerned  on  individual  cases  of 
concern. 

The perspective of visa exemption and its preservation over time has the potential to strengthen 
the  commitment  of  both  countries  to  reforms  in  the  area  of  human  rights  and  fundamental 
freedoms and can bring additional sustained improvements notably by strengthening people-
to-people contacts between the EU and the two countries. The maintenance of a visa exemption 
regime  will  require  a  concrete  commitment  for  reforms  in  the  area  of  human  rights  and 
fundamental  freedoms,  reflected  in  the  necessary  safeguards  included  in  the  visa  waiver 
agreements. 

2.5.1. Qatar 

Qatar has significantly accelerated its reform efforts in the recent years. Substantial reforms, 
incentivised  by  the  incoming  2022  FIFA  World  Cup,  include  the  dismantling  of  the 
sponsorship  system for foreign workers, which grants excessive powers to the employer over 
the  employee.  Reforms  in  the  area  of  labour  rights  have  included  the  introduction  of  the 
region’s first minimum wage for all workers, including foreign workers (which represent 88% 
of the country’s population). In 2018, the International Labour Organisation (ILO) opened an 
office  in  Doha  aiming  at  contributing  to  align  Qatar’s  labour  regulations  to  international 
standards.  

In October 2021, Qatar held the first elections for two thirds of the Shura Council, an advisory 
body  meant  to  acquire  legislative  prerogatives  following  the  elections,  although  no  women 
were elected. The Qatari National Human Rights Committee has established regular interaction 
with EU institutions. Qatar invited the EU Special Representative for Human Rights to visit 
the country. The visit, which took place in February 2020, focused on labour reforms and other 
issues of concern, notably restrictions to freedom of expression. However, Qatar’s penal code 
continues to criminalise several aspects of freedom of expression and the male guardianship 
system is still applied de facto in a number of areas.  

2.5.2. Kuwait 

The  Parliament’s  close  scrutiny  over  the  government  makes  Kuwait’s  checks  and  balance 
system the most vibrant in the Gulf region. The Emir recently launched a national dialogue and 
issued  an  amnesty  to  several  political  dissidents  in  exile.  While  freedom  of  expression 
continues to be curtailed, Kuwait has a relatively open media compared to other countries in 
the region.  In the context of continued instances of discrimination of women in Kuwait, in 
September  2021,  the  Minister  of  Commerce  and  Industry  issued  a  decision  banning 
discrimination and sexual harassment in the workplace in the private sector. In implementation 

6 

 
 
of the annual EU-Kuwait Human Rights Dialogue, a high-level event on Women Economic 
Empowerment was organised in November 2021, where 15 Kuwaiti private companies signed 
the ‘Women Empowerment Principles’, raising the total number of signatories in Kuwait to 46. 

2.6 

VISA RECIPROCITY  

There is currently no prior visa requirement for nationals of EU Member States applying the 
Visa Regulation to enter Qatar, for stays of up to 90 days within any 180-day period. Kuwait 
currently requires  EU citizens to hold an online visa (eVisa) for a stay up to 90 days. Both 
countries will be expected to grant full reciprocal visa-free access to EU citizens (for stays of 
up to 90 days within any 180-day period) in the context of the negotiations of the visa waiver 
agreement, which will be a condition for the visa exemption to apply.  

2.7 

REGIONAL COHERENCE  

Following the visa exemption granted to nationals of the United Arab Emirates in 2014, a visa 
exemption for nationals of Kuwait and Qatar would be a step towards regional coherence in 
the Gulf region. 

3. 

CONCLUSIONS 

The present assessment demonstrates low irregular migration risk and moderate security risks 
stemming from the region, as well as the important economic interest for the EU, in terms of 
trade, energy cooperation and tourism. Taking also into account the  increasing intensity and 
depth of EU relations with Kuwait and Qatar in the last decade, including in the context of the 
COVID-19  pandemic  and  the  management  of  the  crisis  in  Afghanistan,  the  assessment 
concludes that nationals of the countries concerned should be granted visa-free access to the 
EU, as is already the case for the United Arab Emirates.  

While  serious  challenges  do  remain  in  the  area  of  fundamental  rights,  important  societal 
transformations have taken place in the last decade and regular engagement on these matters 
takes place in bilateral human rights dialogues between Kuwait and Qatar, respectively, and the 
EU.   

The visa waiver agreements that would follow the adoption of the proposal for visa exemption 
will contain the necessary safeguards to suspend or terminate the agreements if the criteria for 
visa exemption are no longer met or progress is stalled, including in the area of human rights 
and fundamental freedoms. The Commission will closely monitor progress in all the assessed 
areas.  

On the basis of the overall assessment of Kuwait and Qatar contained in this Staff Working 
Document,  the  Commission  is  submitting  a  proposal  to  the  European  Parliament  and  the 
Council to transfer Kuwait and Qatar from Annex I to Annex II of Regulation (EU) 2018/1806. 

7