Policy document developing a multiannual strategic policy for European integrated border management in accordance with Article 8(4) of Regulation (EU) 2019/1896
Date: 2022-05-24
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU migration policy, EU policy, European cooperation, Frontex, Schengen Agreement, border control, external border of the EU, illegal migration, operation of the Institutions, return migration

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 24.5.2022  COM(2022) 303 final  Policy document developing a multiannual strategic policy for European integrated border management in accordance with Article 8(4) of Regulation (EU) 2019/1896  
 
 
1.  INTRODUCTION 

The  Schengen  Strategy  of  2 June 2021  identified  two  important  prerequisites  for  a  fully 
functioning and resilient Schengen area. These were an integrated approach to external border 
management  and  a  successful  implementation  of  the  new  mandate  of  the  European  Border 
and Coast Guard Agency, commonly referred to as Frontex. In particular, it stressed the need 
‘to  provide  both  the  strategic  framework  and  the  operational  components  needed  to  better 
connect  our  policies  and  therefore  eliminate  loopholes  between  border  protection,  security, 
return, migration, while always ensuring the protection of fundamental rights’.  

To achieve this objective, the European Union and its Member States need to work together, 
especially  in  the  framework  of  the  European  Border  and  Coast  Guard  (EBCG),  towards 
achieving  a  fully  effective  European  integrated  border  management  (EIBM),  bringing 
together all  relevant  players  at  both  European  and national  levels.  In this context, European 
integrated border management should be also fully integrated into the Schengen cycle. 

As  announced  in  the  Schengen  Strategy,  the  implementation  of  European  integrated  border 
management will be guided by the multiannual strategic policy cycle (EIBM policy cycle), 
to  be  prepared  in  accordance  with  Article  8  of  Regulation  (EU)  2019/18961  (the  EBCG 
Regulation). The Multiannual Strategic Policy cycle will guide how the European Border and 
Coast Guard should effectively operate as a structure over the next five years and implement 
the  European  integrated  border  management.  At  operational  level,  this  cycle  should  give  a 
common  framework,  steering  the  daily  work  of  more  than  120 000  European  Border  and 
Coast Guard officers from national authorities and Frontex. 

In accordance with Article 8(4) of the EBCG Regulation, with the present policy document, 
the Commission is starting a consultation of the European Parliament and of the Council on 
the development of the multiannual strategic policy. The consultation will focus in particular 
on Chapter 5 of this policy document, which sets out policy priorities and strategic guidelines 
for a period of five years in relation to the 15 EIBM components set out in Article 3 of the 
EBCG Regulation. 

In addition, it will seek the views of the institutions on how to set out an integrated, unified 
and continuous process for providing strategic guidelines to all the relevant EBCG and other 
European and national actors to ensure a coherent EIBM implementation. This to ensure that 
newly upcoming challenges are appropriately taken into account and priorities can be adapted 
to changing needs. Also  this governance mechanism should become part of the  multiannual 
strategic policy cycle. 

1 Regulation (EU) 2019/1896 of the European Parliament and of the Council of 13 November 2019 on 
the  European  Border  and  Coast  Guard  and  repealing  Regulations  (EU)  No  1052/2013  and  (EU) 
2016/1624. 

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The  outcome  of  this  consultation  process  should  lead  to  a  Commission  Communication 
establishing  the  Multiannual  Strategic  Policy  for  European 
integrated  border 
management  that,  by  the  end  of  2022,  will  establish  a  political  steering  for  the  European 
integrated  border  management  covering  a  period  of  five  years.  The  cycle  will  be  further 
implemented  through  the  technical  and  operational  strategy  to  be  adopted  by  the  Frontex 
Management Board and through national strategies of Member States. 

2.  OUTLINE OF THE MULTIANNUAL STRATEGIC POLICY CYCLE FOR EUROPEAN 

INTEGRATED BORDER MANAGEMENT 

In accordance with the Treaty on the Functioning of the European  Union (Article 77(1)(c)), 
the European Union is to develop a policy with a view to ensuring ‘the gradual introduction 
of  an  integrated  management  system  for  external  borders’.  The  components,  principles  and 
main stakeholders for European integrated border management were established for the very 
first  time  in  2016  in  the  EBCG  Regulation  and  further  developed  in  its  2019  amendment2, 
which  also  sets  out  the  EIBM  policy  cycle  as  the  strategic  governance  framework  for  the 
effective  implementation  of  EIBM.  The  EIBM  policy  cycle  has  as  a  strategic  objective  to 
determine  how  the  European  Border  and  Coast  Guard  should  address  the  challenges  in  the 
area of border management and return in a coherent, integrated and systematic manner. 

The structure of the multiannual strategic policy cycle 

The  structure  for  the  five-year  multiannual  strategic  policy  cycle  for  EIBM  is  composed  of 
four main stages: 

1.  political direction by the EU institutions; 
2.  technical and operational strategy for EIBM by the Frontex Management Board; 
3.  national EIBM strategies by Member States;  
4.  evaluation by the Commission with a view to relaunching the cycle. 

2  Regulation (EU) 2019/1896 of the European Parliament and of the Council of 13 November 2019 on 
the  European  Border  and  Coast  Guard  and  repealing  Regulations  (EU)  No  1052/2013  and  (EU) 
2016/1624, OJ L 295, 14.11.2019. 

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Figure 1: The multiannual strategic policy cycle for EIBM 

a) Political direction 

The  Commission  has  developed  the  present  policy  document  based  on  the  strategic  risk 
analysis for  EIBM  submitted  by  Frontex  to  the  Commission,  the  European  Parliament  and 
the  Council  in  July  2020,  which  identify  the  EIBM  challenges  for  the  next  10  years.  The 
Commission  also  took  into  account  the  recommendations  stemming  from  the  thematic 
Schengen  evaluation,  carried  out  in  the  period  2019-2020,  of  Member  States’  national 
strategies for integrated border management.  

The  development  of  a  European  integrated  border  management  strategy  is  a 
responsibility of the Union institutions. Consequently, it is essential that there is effective 
cooperation  between  the  Commission,  the  European  Parliament  and  the  Council  in 
establishing  a  political  framework  to  direct  European  integrated  border  management.  This 
framework  should  be  adopted  in  the  form  of  a  Communication  setting  out  the  multiannual 
strategic policy for EIBM.  

b) The Frontex technical and operational strategy on EIBM 

In accordance with Article 8(5) of the EBCG Regulation, Frontex is tasked with establishing a 
technical  and  operational  strategy  for  European  integrated  border  management,  by 
decision  of  its  Management  Board  and  based  on  a  proposal  from  the  Frontex  executive 
director.  That  strategy  is  to  be  prepared  in  close  cooperation  with  Member  States  and  the 
Commission.  The  strategy  must  be  in  line  with  Article  3  of  the  EBCG  Regulation  and  the 
Agency must take into account, where justified, the specific situation of the Member States, in 
particular  their  geographical  location.  It  should  build  on  the  Commission’s  Communication 

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on  a  multiannual  strategic  policy  on  EIBM,  but  also  take  into  account  the  relevant 
requirements of existing Schengen legislation in force. 

Requirements for the technical and operational strategy on EIBM 

  The Frontex Management Board and its dedicated working group on EIBM to guide 

and oversee the development of the strategy and the implementation process; 

  Structured around the 15 components of Article 3 of the EBCG Regulation; 
 
  A  unified  strategy  for  the  EBCG,  addressing  both  Frontex  and  the  national  border 

In line with the political direction provided by EU institutions; 

management authorities of Member States; 

  Covering  actions  not  only  at  EU  level,  but  also  at  national  level,  including  actions 
aimed at harmonising practices, the standardisation of technical means and operational 
interoperability; 

  Five-year  coverage,  ideally  taking  into  account  the  programming  cycle  of  the 

multiannual financial framework; 

  Accompanied  by  an  action  plan  setting  out  key  measures,  timeframe,  milestones, 

resources needed and monitoring arrangements.  

c) National strategies for integrated border management 

Member  States  retain  primary  responsibility  for  the  management  of  their  external 
borders  in  their  interest  and  in  the  interest  of  all  Member  States.  Given  this,  effective 
implementation  of  European 
that  strategies 
established at EU level be translated to the national level. For that reason, Article 8(6) of the 
EBCG  Regulation  requires  that  Member  States  establish  their  national  strategies  for 
integrated border management.  

integrated  border  management  requires 

 Requirements for national IBM strategies  

  One IBM strategy for each Member State; 
  Establish  a  national  centralised  governance  structure  for  EIBM,  coordinating  all  the 
relevant  authorities  involved  in  border  management  and  return,  and  taking  into 
account  the  implication  of  other  EU  policies  implemented  at  Member  State  external 
borders by the competent national authorities within their respective mandates, such as 
customs and sanitary control authorities; 

  Developed in line with the political strategy decided by EU institutions, the technical 

and operational strategy of the Agency and the Schengen requirements; 

  Based  on  the  15  components  of  Article  3  of  the  EBCG  Regulation;  however,  also 

covering areas of national competence if considered appropriate; 

  Setting out national border management arrangements and participation in relevant EU 

mechanisms coordinated by Frontex and other relevant EU actors; 

  Establishing  clearly  the  current  and  planned  allocation  of  human  and  financial 

resources, and the main stages for the development of necessary infrastructure; 

  Establishing a review and monitoring mechanism; 
  Multiannual  coverage,  ideally  complying  with  the  programming  cycle  of  the 

multiannual financial framework; 

  Accompanied  by  an  action  plan  outlining  key  measures,  timeframe,  milestones, 

resources needed and monitoring arrangements. 

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d) Evaluation of the IBM cycle 

Four  years  after  the  adoption  of  the  Communication  setting  out  the  multiannual  strategic 
policy for European integrated border management, the Commission will carry out a thorough 
evaluation of the policy’s implementation by all stakeholders at EU and national levels, with a 
view to preparing the next multiannual strategic policy cycle. 

The European Border and Coast Guard architecture 

The  EBCG  Regulation  creates  a  comprehensive  architecture  for  the  European  Border  and 
Coast  Guard,  bringing  together  Frontex  and  approximately  50  to  60  Member  State 
authorities  competent  for  border  management  (including  coast  guards  when  performing 
border surveillance tasks) and return. The Regulation also tasks the EBCG with ensuring the 
effective  implementation  of  EIBM  in  the  spirit  of  shared  responsibility.  Realising  the  full 
potential of the European Border and Coast Guard would lead to a real and necessary change 
on the ground. To that end, the EU and Member States should collectively make use of this 
new  architecture  and  strengthen  the  EBCG  governance  structures,  while  enhancing  its  new 
operational capabilities through better and faster coordination at EU level. 

The  governance  structure  of  the  European  Border  and  Coast  Guard  must  guarantee  that  the 
activities of Frontex and national border and coast guard authorities are fully aligned with the 
EU’s political objectives in border and migration management, and that they follow the policy 
line related to internal security. 

Member  States  retain  primary  responsibility  and  competence  for  management  of  their 
borders.  Thanks  to  its  new  mandate,  Frontex  is  now  playing  a  central  role  within  the 
European  Border and Coast  Guard by  reinforcing, assessing and coordinating the actions of 
Member States and by establishing European capabilities. 

From  its  inception,  the  EBCG  has  provided  a  framework  for  information  exchange  and 
operational  cooperation  not  only  between  Frontex  and  Member  States  but  also  between  the 
various Member State authorities acting as national components. Since 2019, these tools have 
now  been  complemented  by  the  possibility  to  support  Member  States  more  effectively 
through the Agency’s own operational force, the EBCG standing corps. The standing corps is 
deployed under the command and control of the hosting Member State. On the technological 
side, the EBCG Regulation brought  further reinforcements for the proper functioning of the 
EBCG, i.e. the full integration of the European Border Surveillance System (EUROSUR), to 
ensure  situational  awareness  and  effective  information  exchange  and  integrated  planning, 
covering  operational,  contingency  and  capability  development,  all  of  which  is  centrally 
coordinated  and  supported  by  Frontex.  The  Agency  is  also  initiating,  coordinating  and 
supporting many other processes (e.g. standardisation for technical equipment and exchange 
of information), with the objective to further reinforce the European Border and Coast Guard 
and facilitate the daily work of border guards in the EU. 

5 

 
 
 
 
 
 
 
Figure 2: The European Border and Coast Guard 

The  Commission  also  has  an  operational  role  as  regards  some  aspects  of  EIBM 
implementation,  in  particular  when  it  comes  to  EU  funding,  the  Schengen  evaluation 
mechanism  and  the  coordination  of  inter-agency  cooperation  in  the  hotspots.  The  EBCG 
Regulation  also  stresses  the  importance  of  other  European  stakeholders,  in  particular  EU 
decentralised  agencies  (eu-LISA,  Europol,  the  EU  Agency  for  Asylum  (EUAA),  and  the 
European  Union  Agency  for  Fundamental  Rights  (FRA).  The  close  cooperation  of  these 
stakeholders with Frontex and Member States’ competent authorities is essential to ensure a 
successful implementation of EIBM. At national level, a wide array of authorities (customs, 
law  enforcement,  public  health  authorities)  cooperate  with  national  components  of  the 
European  Border  and  Coast  Guard  to  ensure  an  effective  implementation  of  EIBM  in  their 
respective areas of competence. 

3.  STRATEGIC  CHALLENGES  FOR  EUROPEAN 

INTEGRATED  BORDER 

MANAGEMENT 

In line with Article 8 of the EBCG Regulation, the starting point for the strategic cycle is the 
identification of the challenges in the area of border management and return  that are to be 
addressed in a coherent, integrated and systematic manner. In this context, Frontex, in close 
consultation  with  Member  States,  developed  a  very  first  strategic  risk  analysis  for 
European integrated border management, which covers a period of 10 years3. 
The key challenges identified in the 2020 Strategic Risk Analysis are: 

3 
https://frontex.europa.eu/assets/Publications/Risk_Analysis/Risk_Analysis/Strategic_Risk_Analysis_2
020.pdf. 

6 

 
 
 
 
 
 
 
                                                           
For the external borders: 

a)  an increase in pressure through cross-border crime4, terrorism and threats of a hybrid 

nature; 

b)  the  need  to  address  the  increase  in  passenger  and  cargo  flows  by  improving  data 

collection, risk management and interoperability; 

c)  digitalisation  of  IBM,  by  rolling  out  the  Entry/Exit  System,  the  European  Travel 
Information  and  Authorisation  System,  the  renewed  Schengen  Information  System, 
and the renewed Visa Information System;  

d)  challenges regarding maritime, land and air transport, including: 

i. 

ii. 

iii. 

terrorist  attacks  against 

sophisticated  cyber  and 
passengers, vessels, dangerous cargo and critical maritime infrastructure; 
increased international  migration, secondary (intra-EU) migratory movements 
and cross-border smuggling activities, and 
the  impact  of  low-cost  flight  intensity  on  the  ability  of  some  EU  airports  to 
cope with related IBM issues; 

international/domestic 

e)  an intensification of illicit smuggling flows affecting the internal and external security 

of the EU; 

f)  cybercriminals will continuously demonstrate their flexibility and resilience, but they 
will  also  rely  on  existing  modi  operandi  targeting  known  vulnerabilities  and  new 
victims. They will try to benefit from the massive shift of previously offline activities 
to the online environment, as experienced with the COVID-19 pandemic; 

g)  to  facilitate  legal  crossing,  including  for  the  benefit  of  tourism  and  trade,  border 
control authorities have to make best use of non-intrusive identification technologies 
(e.g.  fingerprints,  facial  recognition),  while  fully  respecting  fundamental  rights  in 
particular on the protection of personal data in this respect. Access to such information 
will  need  to  be  through  handheld  equipment  to  enable  necessary  database 
consultations and security checks;  

h)  on terrorism and hybrid threats, various challenges are related to the timely sharing of 
information to improve the checks and rapid response, and the EBCG can contribute 
through  the  border  guards’  access  to  the  Schengen  Information  System  (SIS),  to  the 
Entry/Exit System (EES), the European Travel Information and Authorisation System 
(ETIAS),  and  the  interoperability  between  EU  information  systems  including  the 
European search portal; 

For migration and return: 

a)  to  avoid  a  situation  where  individual  Member  States  or  border  sections  are 
overwhelmed  by  considerable  pressure,  a  well-coordinated  response  is  needed  with 
adequate measures in the pre-frontier area and, if needed, corresponding increases in 
the operational capacities at the affected border sections; 

4 The Frontex Strategic Risk Analysis has also identified cybercrime as one of the future challenges 
for EIBM. However, the policy cycle on organised crime is considered more relevant to address this 
issue at the European level. 

7 

 
 
 
                                                           
b)  security  measures  at  the  external  border  and  within  the  Schengen  area  need  to  be 

balanced with the need to ensure unimpeded passenger flows; 

c)  the  importance  of  EBCG  return  activities  is  increasing,  with  Frontex  potentially 
becoming the operational arm of the EU return system, facilitating a large majority of 
returns; 

d)  EBCG return activities are to be strengthened through digitalisation, namely by using 
the Frontex Application for Return and national return management IT systems, based 
on the model for return case management systems developed by the Agency. 

Pandemics:  

e)  Identified in the 2020 Frontex analysis as a key challenge for EIBM, as their potential 
to transform from a latent threat to a manifest one can unfold quickly, as demonstrated 
by the COVID-19 pandemic; 

f)  frontline  border  guards  interact  with  travellers  and  handle  luggage  and  cargo,  which 
could  lead  to  exposure  to  toxins,  pathogens  and  more.  To  mitigate  this,  a  safe 
environment  for  border  guards  has  to  be  ensured,  and  the  health  risk  in  border 
management activities needs to be taken into account by the authorities. 

These  challenges  identified  in  the  2020  Risk  Analysis  of  Frontex  have  been  confirmed  and 
complemented  by  events  that  have  taken  place  ever  since.  In  particular,  the  situation  at  the 
EU-Belarus border in 2021 demonstrated how instrumentalisation of migration can create a 
hybrid threat to EU borders, which may be increasingly affected by hybrid operations aimed 
to  advance  the  foreign  and  security  policy  agendas  of  certain  third  countries  in  the  EU’s 
neighbourhood  and  beyond.  Threats  of  a  hybrid  nature  entail  the  need  to  engage  in 
cooperation  and  information  exchange  (inter-agency,  with  Member  States  and  with  EU 
institutions and bodies) in order to identify early on hybrid threats in several domains – and 
their strategic intent. 

Equally, the Russian invasion of Ukraine, as a result of which over 5.9 million people had 
fled to the EU by now, has illustrated the challenges for EIBM. A significant escalation of the 
military  aggression  by  Russian  forces  could  prompt  additional  large-scale  movements  of 
people  out  of  Ukraine.  In  this  perspective,  Frontex  provides  support  to  the  Member  States 
concerned and to affected third countries. It is also preparing for new deployments to ensure a 
sufficient capacity to carry out border checks in line with the Union law requirements on all 
people crossing the Ukraine-EU borders. 

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4.  THE  PRINCIPLES  UNDERPINNING  THE  EUROPEAN  INTEGRATED  BORDER 

MANAGEMENT 

The multiannual  strategic policy  needs to  be  guided by  the main principles and concepts  of 
European integrated border management which stem directly from the EBCG Regulation and 
have as an objective to allow the European Border and Coast Guard to operate effectively and 
in full compliance with the legal framework.  

Shared responsibility, duty to cooperate in good faith and obligation to exchange information 

According  to  the  EBCG  Regulation,  implementing  EIBM  is  a  shared  responsibility  of 
Member  State  authorities  responsible  for  border  management  and  return,  and  of  Frontex, 
together forming the European Board and Coast Guard. This is the cornerstone of the EBCG 
architecture and an operational translation of the shared competence of the EU and Member 
States  for  the  implementation  of  integrated  management  of  the  EU’s  external  borders,  as 
provided for in the Treaty. The shared responsibility is complemented by the underlying duty 
of all EBCG actors  (Frontex and national  authorities) to  cooperate in  good faith  and by the 
overarching obligation to exchange information within the EBCG community. 

Constant readiness to respond to emerging threats 

EIBM implementation should give the necessary tools to respond to and manage all possible 
emerging  threats  at  the  external  borders.  There  must  be  a  constant  readiness  at  EU  and 
national levels to manage any mass influx of irregular migrants crossing the external borders 
illegally.  To  that  end,  comprehensive,  tested  and  constantly  updated  contingency  plans, 
including  the  use  of  EU  and  national  capacities  and  instruments,  e.g.  rapid  border 
interventions, migration management support teams, return intervention teams, and full use of 
the hotspot approach should be part of this integrated approach. Contingency plans should 
facilitate the effective practical execution of measures in any situation requiring urgent action 
at the external borders and, if need be, in conducting interventions to support returns. 

Frontex needs to perform annual rapid reaction exercises that will enable regular testing of 
relevant procedures and mechanisms to ensure full readiness for the rapid reaction capacity to 
support Member States in an upcoming crisis. 

Greater coordination and integrated planning 

The  successful  functioning  of  a  European  Border  and  Coast  Guard  is  based  on  a  well-
established  coordination,  communication  and  planning  system  between  the  European 
(Frontex)  and  national  components  (national  authorities  responsible  for  or  involved  in 
integrated  border  management).  A  key  aim  is  to  develop  a  flexible  and  integrated  use  of 
information,  combined  capabilities,  and  interoperable  systems  and  tools  at  EU  and  national 
level.  A  key  requirement  to  make  this  new  European  structure  function  is  clear  national 
coordination,  communication,  and  planning  systems  to  guarantee  functional  cooperation 
with  the  Agency  and  between  national  authorities  involved  in  IBM.  There  should  be  one 
leading national authority at national level in charge of coordinating integrated border 

9 

 
 
 
management  and  a  single  national  contact  point  for  all  matters  pertaining  to  the 
activities  of  the  Agency.  A  national  IBM  concept  will  contribute  to  ensuring  efficient 
coordination  between  the  leading  national  authority  and  all  national  authorities  with 
responsibilities  in  border  management.  In  order  to  ensure  constant  readiness  at  EU  and 
national levels, EIBM requires integrated planning between Member States and the Agency. 
This  is  necessary  for  preparing  responses  to  challenges  at  external  borders,  for  contingency 
planning  and  for  coordinating  long-term  development  of  capabilities,  in  terms  of  both 
recruitment and training, and acquisition and development of equipment. Therefore, capability 
development  at  national  and  Agency  levels  needs  to  be  continuous  in  nature,  taking  into 
consideration  short,  medium  and  long-term  planning,  and  be  in  line  with  contingency 
planning. 

Comprehensive situational awareness 

Comprehensive  and  near-to-real-time  awareness  of  prevailing  and  foreseeable  situations, 
covering almost all functions of IBM and all tiers of the four-tier access control model5, is a 
cornerstone  for  the  correct  and  timely  response  to  different  situations.  A  comprehensive 
European  situational  picture  should  be  maintained,  by  the  Agency  at  EU  level  and  by 
Member  States  at  national  level,  to  guarantee  effective  and  fast  reaction  by  the  European 
Border  and  Coast  Guard  to  emerging  threats.  This  should  also  contribute  to  improving  the 
timeliness  and  effectiveness  of  operational  activities  by  other  national  authorities  and  EU 
agencies carrying out their respective tasks at borders and within the Schengen area. As the 
main base for the IBM situational picture, EUROSUR should be effectively implemented and 
further developed. This is particularly important because new EUROSUR features have been 
introduced by the EBCG Regulation that should result in improving the EBCG’s situational 
awareness  and  reaction  capabilities  and  improving  operational  cooperation  among  Member 
States and Frontex. 

EIBM technical standards 

To  ensure  the  effectiveness  of  actions  taken  by  Member  States  and  Frontex  at  the  external 
borders, technical standards for information exchange and for the required equipment should 
be  developed  jointly  by  Frontex,  Member  States  and  the  Commission,  as  provided  for  in 
Articles  16  and  64  respectively  of  the  EBCG  Regulation.  Once  in  place,  the  EBCG  has  an 
obligation  to  acquire  and  use  the  equipment  and  to  provide  required  information  in 
accordance with the technical standards. 

Technical  standards  for  information  exchange  are  necessary  so  that  information  and  data 
provided by Member States and Frontex can be easily compared and analysed. This is crucial 
to  improve  situational  awareness,  notably  to  complement  the  EUROSUR  situational  picture 
and increase the ability to react to the situations at the external borders. 

5 Recital (11) of the EBCG Regulation stipulates that European integrated border management, based 

on the four-tier access control model, comprises measures in third countries, such as under the 
common visa policy, measures with neighbouring third countries, border control measures at the 
external borders, risk analysis and measures within the Schengen area and return. 

10 

 
 
                                                           
Similar principles apply to the technical standards for the technical equipment pool composed 
of  equipment  owned  by  Member  States  or  Frontex  on  the  one  hand,  and  to  equipment  co-
owned  by  Member  States  and  Frontex  for  its  operational  activities  on  the  other  hand. 
Therefore,  it  is  necessary  to  ensure  interoperability  and  compatibility  of  equipment  in  the 
technical equipment pool so that it can work in the same operational environment with other 
equipment  in  the  performance  of  their  tasks,  in  line  with  specific  requirements  and  across 
different operational scenarios. Replacing one piece of equipment with another should happen 
quickly and smoothly, in order not to hamper the outcome of the operational activities. 

These standards will equally contribute to facilitating a European technological and industrial 
base for IBM, which may reduce unwanted non-European dependencies. 

Common border guards culture and high level of professionalism 

European  integrated  border  management  is  a  concept  that  requires  a  high  degree  of 
specialisation  and  professionalism.  Through  its  various  activities,  including  training,  the 
European Border and Coast Guard should foster mutual understanding and a common culture 
for border guards based on the European values enshrined in the Treaties.  

Generally,  people  performing  European  border  guard  and  return  duties  should  be  specially 
trained professionals  in  the field  of border control,  with  high ethical  values and adhering to 
the  strictest  integrity.  They  should  belong  to  competent  border  control  or  law  enforcement 
authorities  that  have  a  strong  code  of  conduct.  No  exception  is  allowed  in  respect  of  duties 
that require any use of personal data, consultation of confidential registers or in case of acts 
requiring the use of executive powers, in accordance with the EU or national law. Competent 
authorities should be fully in charge of all border control actions in all circumstances. It is not 
possible to outsource responsibility for border control tasks - border control is by nature a law 
enforcement task. In line with national legislation, military capabilities and assets can be used 
when called upon to assist competent border guard authorities, provided that all the necessary 
preconditions mentioned above are met. 

Functional integrity 

As  stipulated  in  the  EBCG  Regulation,  national  border  management  authorities  in  Member 
States are to retain primary responsibility for managing their sections of the external borders. 
The same principle should apply to implementing the EU return policy. European IBM is an 
instrument where some responsibilities exist at national level, while those of the Agency are 
limited compared to those of the national authorities. These areas subject to national policies 
concern,  for  example,  measures  within  the  Schengen  area  (e.g.  police  controls,  migration 
management,  and  reintroduction  of  border  controls  at  internal  borders)  and  combating 
organised cross-border crime at external borders. Therefore, these topics and functions should 
be covered in more detail and in a unified manner by the national IBM strategies. 

11 

 
 
 
 
5.  POLICY PRIORITIES AND STRATEGIC GUIDELINES FOR THE COMPONENTS OF 

EUROPEAN INTEGRATED BORDER MANAGEMENT 

The  EBCG  Regulation  lists  15  components  for  establishing  European  integrated  border 
management.  Of  these,  12  thematic  components  encompass  border  control,  search  and 
rescue  in  situations  that  may  arise  during  maritime  border  surveillance  operations,  risk 
analysis,  inter-agency  cooperation  at  national  and  EU  level,  cooperation  between  Member 
States  and  with  the  Agency,  cooperation  with  third  countries,  returns  and  other  measures 
within the Schengen area, a Schengen quality control mechanism and solidarity mechanisms, 
in  particular  EU  funding  instruments.  In  addition,  three  overarching  components  are 
identified:  fundamental  rights;  research  and  innovation;  and  education  and  training.  Among 
these,  the  protection  of  fundamental  rights  is  of  a  particular  importance,  to  ensure  that 
effective  border  control  and  return  policy  are  in  line  with  EU  and  Member  States’ 
international obligations and values. 

Article 8(2) of the EBCG Regulation specifies that the objective of the multiannual strategic 
policy  for  EIBM  is  to ‘set  out  the  policy  priorities  and  provide  strategic  guidelines  for  a 
period of five years in relation to the components [of the EIBM] set out in Article 3 [of the 
EBCG Regulation].’ In this context, the Commission is herewith proposing, for consideration 
by  the  European  Parliament  and  the  Council,  the  following  guidance  for  developing  the 
multiannual  strategic  policy  in  relation  to  the  15  components  of  the  European  integrated 
border management. 

Component 1: “Border control, including measures to facilitate legitimate border crossings 
and,  where  appropriate:  measures  related  to  the  prevention  and  detection  of  cross-border 
crime at the external borders, in particular migrant smuggling, trafficking in human beings, 
and  terrorism;  and  mechanisms  and  procedures  for  the  identification  of  vulnerable  persons 
and  unaccompanied  minors,  and  for  the  identification  of  persons  who  are  in  need  of 
international protection or wish to apply for such protection, the provision of information to 
such persons, and the referral of such persons6.” 

Policy priorities 

Border  control  driven  by  risk  analysis  (border  checks  at  border  crossing  points  and  border 
surveillance in between border crossing points) is at the core of European IBM. Frontex and 
the  Member  States’  border  management  authorities,  together  forming  the  European  Border 
and Coast Guard, should have the legal, institutional, administrative and operational capacity 
and  the  necessary  resources  to  conduct  effective  and  efficient  border  control  in  all 
circumstances. To strengthen the internal security of the EU and its citizens, border control 
prevents  unauthorised  crossing  of  external  borders  by  irregular  migrants.  It  also  facilitates 
legitimate  border  crossings  of  people  and  cross-border  traffic.  At  the  same  time,  border 
control contributes to the prevention and combating of various forms of cross-border crime. 
Border  control  should  be  carried  out  in  a  manner  that  respects  the  rights  of  all  people, 
regardless  whether  they  seek  protection  or  not.  Individuals  who  seek  protection  must  be 
granted access to the procedures, while those who do not, must also be protected against non-

6 Article 3(1)(a) of the EBCG Regulation. 

12 

 
 
 
 
 
 
 
                                                           
refoulement.  Border  control  also  encompasses  measures  in  the  border  area  with  regard  to 
people  who  have  crossed  external  borders  outside  the  border  crossing  points  (ie  screening 
measures under national law or screening phase under EU rules once adopted). 

Strategic guidelines 
1.  Member States should have the legal, structural, administrative and technical capacity to 
conduct  border  checks  in  line  with  the  Schengen  Borders  Code7  and  to  facilitate 
legitimate border crossings of people and vehicles. The number of border crossing points 
at the external borders should reflect the needs pertaining to relations with third countries 
to ensure that border control is not a barrier to trade, social and cultural interexchange or 
cross-border  cooperation.  However,  it  should  also  take  into  account  available  capacities 
(resources  and  infrastructure)  and  trends  in  challenges  (such  as  instrumentalisation  of 
migrants). 

2.  Member States should guarantee secure and free-flowing border crossings  of passengers 

and vehicles at border crossing points. 

3.  The  advance  collection  of  information  for  the  border  check  function  (pre-arrival 
information as a core element of the border check function) should be further developed 
by effective use of the Advance Passenger Information (API) system and Passenger Name 
Record (PNR) data. 

4.  The  border  check  procedure  should  be  improved  and  optimised  by  comprehensive 
implementation  of  the  new  and  renewed  EU  large-scale  IT  systems  (EES,  ETIAS,  VIS, 
Eurodac and SIS), and their interoperability. This will increase the amount and quality of 
information  available  for  border  check  purposes.  Furthermore,  with  a  possible  future 
digitalisation of travel documents, border crossing can be improved even further. 

5.  Reliable  and  comprehensive  situational  awareness  of  the  border  situation  should  be 
maintained at  all levels  to  guarantee  a high capability to  take necessary  measures at  EU 
and  national  levels.  A  comprehensive  near-to-real-time  European  situational  picture 
should be maintained, shared and further developed at EU and national levels, in line with 
the legislative framework and the operational needs. 

6.  Continuous  (24/7)  situational  awareness  should  be  the  base  for  an  appropriate  reaction 
capability to properly respond to all border incidents, to unpredictable changes at external 
borders and to large-scale illegal immigration situations; this capability should be ensured 
in  all  circumstances  at  EU  and  national  level.  National  and  EU  capacity  should  be 
developed  to  quickly  strengthen  border  control,  where  there  is  a  need,  at  any  border 
crossing  point  and  section  of  the  external  borders.  Reaction  capability  and  contingency 
plans  should  be  regularly  tested  and  further  developed,  in  particular  if  there  is 
instrumentalisation of migrants. 

7.  An  integrated  border  surveillance  system  driven  by  risk  analysis  should  have  a  stable 
capacity (organisational, administrative and technical) and continuous readiness. This is to 
prevent and detect unauthorised border crossings, to apprehend individuals and intercept 
transportation  means  such  as  vessels  that  have  crossed  the  border  illegally,  to  counter 

7 Regulation (EU) 2016/399 of the European Parliament and of the Council of 9 March 2016 on a 
Union Code on the rules governing the movement of persons across borders (Schengen Borders 
Code). 

13 

 
 
 
                                                           
cross-border crime, such as smuggling, trafficking in human beings and terrorism, and to 
respond to threats of a hybrid nature. 

8.  Surveillance  activities  at  each  external  border  section  should  correspond  to  the  impact 
level allocated to it, using integrated surveillance systems, mobile equipment and mobile 
patrols  (units)  and  the  results  of  risk  analysis.  Impact  levels  should  be  identified  in  a 
harmonised manner throughout the EU. 

9.  The  external  border  should  be  constantly  monitored  (24/7).  Surveillance  activities  at 
borders and in pre-frontier areas should be conducted, making use of various tools, with 
the aim of establishing an early-warning mechanism, sharing actionable information and 
improving reaction capability. 

10. National  integrated  surveillance  systems  should  be  supported  by  common  and 
interoperable  European  surveillance  capabilities.  Border  surveillance  (including  in 
pre-frontier  areas)  should  be  organised  in  line  with  the  EBCG  Regulation  and  the 
Schengen Borders Code. Where more than one service is involved in border surveillance 
at  national  level,  the  Member  States  concerned  should  identify  the  competent  national 
authority in charge of the general oversight and the necessary commanding, cooperation 
and coordination mechanisms, and ensure that the responsibilities of the different bodies 
and agencies are regulated by legislation or cooperation agreements. National surveillance 
capabilities  owned  by  different  authorities  should  be  operating  in  line  with  the  EBCG 
Regulation and the updated EUROSUR Handbook. 

11. At  EU  and  national  levels,  data  collected  by  different  authorities  if  necessary  for 
authorities  of  other  Member  States  should  be  shared  through  the  corresponding  national 
coordination centre. 

12. The  sea  border  surveillance  system  must  be  able  to  detect,  identify  and,  if  necessary, 
trace and intercept all vessels coming into territorial waters and contribute to ensuring the 
protection  and  saving  of  lives  at  sea  in  all  weather  conditions.  Member  States  should 
make  best  use  of  surveillance  capabilities  offered  by  the  Agency  to  boost  and  upgrade 
national capacities and overall situational awareness. 

13. The  land  border  surveillance  system  must  be  able  to  reveal  all  unauthorised  border 
crossings and intercept persons crossing the border illegally in high-risk areas under any 
circumstances.  Land  border  surveillance  systems  could  include  drones  and  motion 
sensors, and mobile units. The use of such technical means, in particular any technologies 
capable  of  collecting  personal  data,  needs  to  be  based  on,  and  exercised  in  accordance 
with,  clearly  defined  provisions  of  EU  and  national  law  including  on  the  protection  of 
personal data. 

14. Border surveillance should be complemented by the screening of those who have crossed 
the  external  border  without  having  been  subject  to  border  checks.  Screening  has  as  an 
objective  to  identify  persons,  carry  out  security  and  health  checks  and  refer  screened 
persons to the appropriate procedures. 

15. The capacity to combat cross-border crime and terrorism at external borders should be 
strengthened  at  EU  and  national  level.  Through  this,  the  competent  border  control 
authorities, in cooperation with other relevant law enforcement authorities, can contribute 
to  detecting  and  preventing  cross-border  crime  at  external  borders,  in  particular  to 

14 

 
 
detecting  foreign  terrorist  fighters  or  perpetrators  of  cross-border  crime,  such  as 
smugglers. 

16. Border guards should be also prepared to identify and provide first assistance to victims of 
crime, in particular victims of human trafficking, and refer them to appropriate services. 
17. Border  guards  should  have  sufficient  capacity,  mechanisms  and  procedures  in  place  for 
the  identification  of  vulnerable  persons  and  unaccompanied  minors,  and  for  the 
identification of persons who are in need of international protection or wish to apply for 
such  protection,  so  that  these  persons  can  be  referred  to  the  relevant  procedures  and 
authorities.  

Component  2:  “Search  and  rescue  operations  for  persons  in  distress  at  sea  launched  and 
carried  out  in  accordance  with  Regulation  (EU)  No  656/2014  and  with  international  law, 
taking place in situations which may arise during border surveillance operations at sea8.” 

Policy priorities 
The protection and saving of lives at external borders is a key priority in European IBM. The 
capacity and operational readiness to conduct search and rescue operations, and cooperation 
among all those involved, should be an important and integral part of sea border surveillance 
operations at external sea borders. 

Strategic guidelines 
1.  Cooperation  among  Member  State  search  and  rescue  authorities,  and  with  other 
authorities  possibly  involved  in  search  and  rescue  operations,  should  be  increased,  also 
through  the  European  Contact  Group  on  Search  and  Rescue.  This  is  with  a  view  to 
reducing  fatalities  at  sea,  maintaining  safety  of  navigation  and  ensuring  effective 
migration  management,  in  compliance  with  relevant  legal  obligations  and  in  accordance 
with Commission Recommendation (EU) 2020/13659. 

2.  The search and rescue responsibility of Member States should be fully taken into account 
in  all  phases  of  operational  planning  and  implementation  of  sea  border  surveillance 
operations  by  the  Agency  and  Member  States.  Standardised  arrangements  and  standard 
operating procedures with Member State search and rescue authorities (Maritime Rescue 
Coordination  Centre),  the  National  Coordination  Centre  (NCC)  and  the  International 
Coordination Centre should be established and regularly tested. All patrols and technical 
assets  participating  in  maritime  border  surveillance,  including  joint  operations  or  rapid 
border  interventions  at  sea  coordinated  by  Frontex,  should  be  properly  trained  and 
properly equipped for possible search and rescue interventions, including the capacity to 
act as on-scene coordinators if necessary. 

3.  Capacity  to  support  search  and  rescue  interventions  should  be  further  enhanced  by 
providing  the  necessary  training  for  personnel  participating  in  sea  border  surveillance 
operations  at  EU  and  national  levels.  The  Agency  should  provide  increased  operational 

8 Article 3(1)(b) of the EBCG Regulation. 
9  Commission  Recommendation  (EU)  2020/1365  on  cooperation  among  Member  States  concerning 
operations carried out by vessels owned or operated by private entities for the purpose of search and 
rescue activities. 

15 

 
 
 
 
 
                                                           
and technical support in line with EU competence, and deploy maritime assets to Member 
States, to improve their capabilities and thus contribute to saving lives at sea. 

4.  The  capacity  of  EUROSUR  to  support  search  and  rescue  operations  and  the  saving  of 
lives at sea in situations that may arise during border surveillance operations at sea should 
be  fully  implemented  and  applied  in  accordance  with  the  EBCG  Regulation  and  with 
Commission Implementing Regulation (EU) 2021/58110. 

Component 3: “Analysis of the risks for internal security and analysis of the threats that may 
affect the functioning or security of the external borders11.” 

Policy priorities 
European  integrated  border  management  should  be  driven  by  risk  analysis.  Reliable, 
comprehensive and integrated risk analyses should be available at EU and national levels to 
be  used  for  political,  strategic  and  operational  planning  and  decision-making.  Risk  analysis 
should  provide  analytical  findings  and  recommendations  for  concrete  concepts  and  actions 
(legal,  technical,  operational)  to  mitigate  in  good  time  current  and  potential  risks  and 
vulnerabilities covering the whole scope of IBM at EU and national levels. 

Strategic guidelines 

1.  The  European  common  integrated  risk  analysis  model,  as  adopted  by  the  Frontex 
Management Board12, must be regularly updated and applied at EU and national levels. 
2.  To  support  EU  concerted  actions  to  improve  the  management  of  external  borders  and 
maintain  internal  security,  Member  States  should  set  up  the  required  national  capacity 
(organisational,  administrative  and  technical)  to  conduct  unified  risk  analyses  and 
vulnerability assessments. The risk analysis products and procedures provided by Frontex 
should be integrated in the national process to compile risk analysis for integrated border 
management, covering all tiers of the four-tier access control model. 

3.  Specialised risk analysis structures, empowered to collect and compile relevant data from 
all national  institutions involved in  integrated border management, should be set  up  and 
operated by a sufficient number of specialised and trained staff. 

4.  Cooperation  between  relevant  EU  and  national  bodies,  especially  between  Frontex, 
Europol, eu-LISA, the EU Agency for Asylum, customs authorities and the Commission 
(including  OLAF  where  appropriate),  should  be  further  strengthened  in  the  field  of  risk 
analysis.  This  is  to  guarantee  a  more  comprehensive  analysis  related  to  risks  for  the 
integrity of the external borders, and for internal security, including the proper functioning 
of the Schengen area. Closer cooperation between Europol and Frontex should be put in 
place when preparing updates of the European Union Serious and Organised Crime Threat 
Assessment. 

5.  In  a more strategic context,  the biannual  strategic risk analysis is  an essential tool that 

10 Commission Implementing Regulation (EU) 2021/581 of 9 April 2021 on the situational pictures of 

the      European Border Surveillance System (EUROSUR). 

11 Article 3(1)(c) of the EBCG Regulation. 
12  Frontex  Management  Board  Decision  50/2021  of  21  September  2021  adopting  the  Common 

Integrated Risk Analysis Model. 

16 

 
 
 
 
 
 
                                                           
should  allow  the  Agency  to  develop  a  long-term  understanding  of  migratory  flows 
towards and within the EU in  terms  of migratory trends, volume and routes.  It  will also 
help  to  identify challenges at  the external  borders and within the Schengen area, and on 
returns, and therefore support political decision-making and the development of long-term 
capabilities.  The  identified  challenges  should  also  focus  on  low-probability,  but  high- 
impact  phenomena,  such  as  pandemics  and  the  resulting  health  threats.  The  latest 
available analysis should be reflected in  the implementation  of the multiannual  strategic 
policy cycle for European integrated border management. 

6.  While  risk  assessments  should  always  be  conducted  before  and  during  joint  operational 
activities  coordinated  by  Frontex,  the  Agency  should  further  develop  its  capacity  for 
issuing  ad  hoc  risk  analysis  products,  covering  emerging  threats  and  supporting  crisis 
management processes. 

7.  The  Agency  should  further  strengthen  its  forecasting  capability  by  using  the  widest 

possible sources of necessary reliable and relevant information. 

8.  A formal mechanism for exchanging information and intelligence with third countries, in 
particular  potential  countries  of  origin  and  relevant  countries  of  transit,  should  be 
established  in  accordance  with  the  EBCG  Regulation  and  in  full  respect  of  the 
requirements  of  the  EU  data  protection  legislation.  It  should  be  maintained  and  further 
developed  by  Member  States  and  Frontex  to  improve  risk  analysis  and  more  targeted 
operational actions. 

Component 4 “Information exchange and cooperation between Member States in the areas 
covered  by  this  Regulation,  as  well  as  information  exchange  and  cooperation  between 
Member  States  and  the  European  Border  and  Coast  Guard  Agency,  including  the  support 
coordinated by the European Border and Coast Guard Agency13.” 

Policy priorities 
European and national capabilities should be established, used and developed in a coordinated 
and  integrated  way  to  guarantee  the  effective  and  unified  implementation  of  all  aspects  of 
European IBM in all circumstances and on all tiers of the four-tier access control model. The 
European Border and Coast Guard, composed of the Agency and Member State border guard 
and  return  authorities,  should  have  constant  and  tested  readiness  to  respond  to  all  possible 
incidents  at  the external border and to  new phenomena that affect  the functioning of border 
control  and  return.  There  should  be  a  rapid  reaction  capacity  and  necessary  capabilities  to 
effectively conduct various types of joint operations at all parts of the external borders. 

Strategic guidelines 

1.  Member  States  should  establish  an  effective  national  coordination  mechanism  and 
working  processes  for  all  functions  and  activities  of  the  European  Border  and  Coast 
Guard. Member States should have a responsible single national contact point (24/7) for 
all  matters  pertaining  to  the  activities  of  the  Agency.  The  national  contact  point  should 
represent all national authorities involved in border management and return. 

13 Article 3(1)(d) of the EBCG Regulation. 

17 

 
 
 
 
 
 
                                                           
2.  Situational  awareness,  reaction  capability  and  the  role  of  the  national  coordination 
centre  (NCC)  should  be  further  strengthened  and  integrated  in  line  with  the  EBCG 
Regulation  and  Commission  Implementing  Regulation  (EU)  2021/581.  Each  Member 
State must have a fully functioning NCC in place. 

3.  The information collected by surveillance tools, fused together and further distributed by 
the NCCs, should be used both to bolster real-time reaction capability (e.g. interceptions) 
and for risk analysis purposes. 

4.  Member  States  should  allocate  the  necessary  human  and  financial  resources  and  have 
continuous  operational  readiness to  fulfil their obligations to  provide the mandatory and 
voluntary contributions  to  the  collective European capabilities coordinated by  Frontex, 
in  particular  the  European  Border  and  Coast  Guard  standing  corps  and  the  technical 
equipment pool. 

5.  Member States and the Agency should ensure a gradual  growth of the standing corps to 

reach its full capacity of 10 000 officers by 2027. 

6.  To ensure the Agency’s greater efficiency, the Frontex Management Board should adopt 
and  regularly  review  the  operational  concept  for  the  standing  corps.  This  is  to  better 
direct the implementation of the Agency’s operational and technical tasks, in particular for 
the  launch  of  rapid  border  interventions  in  specific  crises,  including  cases  of 
instrumentalisation.  This  is  to  ensure  that  deployments  of  the  standing  corps  and 
equipment occur in good time whenever any such crisis occurs. 

7.  Frontex should further improve the integration of vulnerability assessment results in the 
preparedness, contingency planning and needs assessment. This will ensure that Member 
States  have  the  capacity  not  only  to  secure  their  external  borders  but  also  to  contribute 
their  share  to  the  standing  corps,  including  contributions  for  rapid  interventions  and  the 
technical  equipment  pool.  In  this  process,  the  Agency  also  builds  on  the  synergies 
between the Schengen evaluation mechanism and vulnerability assessment. 

8.  Each national IBM strategy should put in place the centralised mechanism to ensure an 
efficient  coordination  between  the  national  authority  in  charge  of  general  oversight  of 
integrated border management and all national  authorities with  responsibilities in border 
management and their counterparts in other Member States. 

9.  Bilateral  and  multilateral  operational  cooperation  between  Member  States  should  be 
further developed where such cooperation is compatible with the tasks of the Agency. The 
support  of  the  Agency  and  European  common  capabilities  and  instruments  (e.g. 
EUROSUR) should be fully used. 

10. Exchange of information is one of the key components of operational cooperation among 
Member States and between Member States and Frontex. It must be carried out in a secure 
manner  via  the  dedicated  communication  network,  in  particular  when  this  exchange 
covers  classified  information  up  to  CONFIDENTIEL  UE/EU  CONFIDENTIAL  level. 
Member States and Frontex must ensure personal data protection and information security 
at all times in accordance with EU data protection legislation and the security rules set by 
the Agency. 

11. The Agency must ensure constant monitoring and situational awareness and share that 
information with NCCS using EUROSUR, in particular to provide real-time reporting on 
the  border  area  and  the  corresponding  pre-frontier  area  related  to  the  crisis  situation. 

18 

 
 
When handling EUROSUR data and information, Member States and Frontex must ensure 
that security controls, processes and plans are in place, ensuring an appropriate degree of 
protection. 

18. Member  States  should  have  a  tested  hosting  capacity  to  receive  support  through  the 

deployment of the European Border and Coast Guard standing corps if needed. 

19. The  multiannual  strategy  for  the  development  and  acquisition  of  the  Agency’s 
technical  capabilities  and  the  associated  implementation  plan  must  serve  as  a  flexible 
tool to provide long-term solutions for equipping the standing corps with technical assets, 
including  a  possibility  of  activating  alternative  options  for  the  most  critical  needs  (i.e. 
aerial surveillance). 

20. Member  States  and  the  Agency  should  have  effective  planning,  coordination  and 
implementation  capacity  to  organise  operations,  driven  by  risk  analysis,  at  the  external 
borders  and/or  in  third  countries,  in  accordance  with  the  conditions  laid  down  in  the 
EBCG  Regulation.  The  intelligence-based  planning  process  should  be  coordinated  and 
synchronised  between  the  Agency  and  Member  States,  ensuring  an  effective  use  of 
resources. 

21. The  Agency  should  further  develop  the  concept  of  joint  operations,  ensuring  sufficient 
flexibility  and  the  capacity  to  apply  different  models,  depending  on  the  specific 
operational scenario. 

22. The  concept  of  focal  points  should  be  further  developed  by  focusing  on  ensuring  an 
effective  operational  response,  especially  in  hotspot  areas  at  the  external  borders  and 
border crossing points, including a capacity-building element. 

23. The  Agency’s  developed  technical  standards  for  equipment  and  for  information 
exchange, including for interconnection of systems and networks, should be applied by all 
the  EBCG  community  in  a  unified  way.  The  EBCG  should  work  together  on  a 
standardisation  process  to  ensure  interoperability  and  compatibility  of  the  equipment 
used with the relevant information and communication systems, and EUROSUR. 

Component  5:  “Inter-agency  cooperation  among  the  national  authorities  in  each  Member 
State which are responsible for border control or for other tasks carried out at the border, as 
well  as  between  authorities  responsible  for  return  in  each  Member  State,  including  the 
regular  exchange  of  information  through  existing  information  exchange  tools,  including, 
where  appropriate,  cooperation  with  national  bodies  in  charge  of  protecting  fundamental 
rights14.” 

Policy priorities 
European 
integrated  border  management  should  be  cooperation-driven.  Inter-agency 
cooperation should be well-established at national level to guarantee a comprehensive, cross-
sectoral,  joined-up  and  cost-effective  implementation  of  IBM,  including  among  national 
bodies in  charge of protecting fundamental rights. Division  of work, cooperation structures, 
shared  use  of  capabilities,  communication  channels  and  synchronised  working  procedures 
should be well-defined and consolidated. 

Strategic guidelines 

14 Article 3(1)(e) of the EBCG Regulation. 

19 

 
 
 
 
 
                                                           
1.  Inter-agency cooperation at EU and national levels among the constituent elements of the 
European Border and Coast Guard and other national authorities carrying out other tasks 
at  the  border  should  be  based  on  a  clear  legal  basis,  including  national  legislation.  This 
legal basis should reflect the division of powers and specificities of the respective Member 
State  public  administration  and  institutional  settings,  and  put  into  effect  by  cooperation 
agreements  and  concrete  actions.  Key  areas  of  cooperation  are  effective  exchange  of 
information, joint risk analysis, joint operations and shared use of European and national 
capabilities in line with given powers. 

2.  The  full  potential  of  existing  and  future  information  exchange  tools,  especially 
EUROSUR,  should  be  in  operational  use  at  EU  and  national  levels.  In  this  context, 
effective cooperation and coordination should be ensured within and among the national 
authorities  participating  in  the  activities  of  the  EBCG  and  in  Frontex  itself.  Such 
cooperation and coordination should be provided for in the framework of EUROSUR, in 
particular in each NCC. 

3.  Customs  control  is  not  part  of  the  Schengen  acquis  and  not  all  Schengen  states  are 
members  of  the  Customs  Union.  Therefore,  customs  control  is  not  directly  part  of  the 
EIBM  concept.  However,  customs  and  other  authorities  working  at  the  external  borders 
are  involved  in  the  EIBM  implementation  through  the  inter-agency  cooperation 
component.  Cooperation  between  border  guards  and  customs  as  strategic  partners 
should  be  further  developed  at  all  levels  to  deliver  a  better  integration  of  the  control  of 
persons and goods, to guarantee fluid and secure border crossings. In concrete terms, this 
means that there should be a clearly established legal framework for cooperation between 
border  guards  and  customs  authorities  involving  a  well-defined  division  of  work, 
functional  cooperation  structures  and  an  interoperable  technical  environment,  ensuring 
close  and  practical  cooperation  at  all  levels.  The  Recommendations  for  the  cooperation 
between  Customs  Administration  and  Border  Guards15,  prepared  by  the  Commission, 
should  be  used  as  a  basis  when  developing  this  cooperation  further.  Additionally,  with 
regard to the above-mentioned cooperation, the Wise Persons Group on Challenges faced 
by  Customs  concluded  that  an  option  could  be  to  involve  customs  in  a  more  integrated 
manner16. 

4.  Law  enforcement  and  military  cooperation  related  to  supporting  border  management 
and combating cross-border crime should be further developed at national level. This will 
guarantee  better  coordination,  and  effective  and  cost-efficient  use  of  information, 
capabilities and systems. This is necessary when preventing cross-border crime, terrorism 
and illegal immigration and when contributing to saving migrants’ lives. This cooperation 
should  have  a  clear  legal  basis,  agreements  and  standard  operating  procedures.  The 
responsible  law  enforcement  authorities  should  always  be  in  charge  of  border  control 
functions. 

15 Ares (2018)6193959 – 3.12.2018. 
16  Minutes of the 4th meeting (16 and 17 December 2021) of the Wise Persons Group on Challenges 

faced by Customs, https://ec.europa.eu/taxation_customs/system/files/2022-
01/Minutes%20of%20fourth%20meeting.pdf. 

20 

 
 
 
                                                           
Component  6:  “Cooperation  among  the  relevant  Union  institutions,  bodies,  offices  and 
agencies in the areas covered by the EBCG Regulation, including through regular exchange 
of information17.” 

Policy priorities 
European integrated border management should be cooperation-driven. Inter-agency 
cooperation of the European Border and Coast Guard with other European stakeholders 
should be well-established to guarantee a comprehensive, cross-sectoral, joined-up and cost-
effective implementation of EIBM. 

Strategic guidelines 

1.  Inter-agency  cooperation  at  EU  level  should  be  operationalised  by  cooperation 
agreements,  notably  working  arrangements  concluded  by  Frontex  with  the  relevant  EU 
institutions, bodies, offices and agencies referred to in Article 68 of the EBCG Regulation. 
Key  areas  of  cooperation  are  related  to  an  effective  exchange  of  information,  joint  risk 
analysis,  joint  operations  and  shared  use  of  European  capabilities  in  line  with  given 
powers.  The  concept  of  multipurpose  operations,  based  on  risk  analysis,  at  EU  level 
should be further developed, while fully respecting core tasks and responsibilities of EU-
level actors involved in such operations. 

2.  The  full  potential  of  existing  and  future  information  exchange  tools,  especially 
EUROSUR, should be in operational use at EU level. The collection of information by the 
EUROSUR  fusion  services  should  be  further  developed  by  means  of  applying  working 
arrangements  concluded  between  Frontex  and  the  respective  EU  institutions,  bodies, 
offices  and  agencies,  in  order  to  provide  Member  States  and  Frontex  with  value-added 
information services related to EIBM. 

3.  European cooperation on coast guard functions should be further developed to increase 
maritime situational awareness and reaction capability, and to support coherent and cost-
efficient action at EU and national levels. A practical handbook on European cooperation 
on  coast  guard  functions  should  be  widely  applied  to  promote  a  harmonised 
implementation of this cooperation at EU and national levels18. 

4.  Interoperability between relevant EU-wide information systems (EES, ETIAS, SIS,VIS), 
should  be  further  implemented  and,  if  needed,  further  developed  to  guarantee  a  more 
effective use of various instruments.  

5.  The  hotspot  concept  including  standard  operating  procedures  should  be  applied  when 
relevant. All relevant agencies (Frontex, the EU Agency for Asylum, Europol and FRA) 
should  have  constant  readiness  to  support  hotspots  in  line  with  the  adopted  concept. 
Member  States  should  have  legal  and  operational  readiness  to  host  or  to  support 
European hotspots. 

6.  Coordination  and  cooperation  between  Europol  and  Frontex  and  competent  national 
authorities,  in  the  framework  of  the  EU  policy  cycle  on  combating  organised  crime, 
should be enhanced in all phases of the process. The main focus of active participation by 

17 Article 3(1)(f) of the EBCG Regulation. 
18  Commission  Recommendation  establishing  a  ‘Practical  Handbook’  on  European  cooperation  on 

coast guard functions, C(2021) 5310 final. 

21 

 
 
 
 
 
                                                           
Frontex  and  national  border  guard  authorities  should  be  in  those  strategic  priority  areas 
that are directly linked to external borders and connected to border control tasks. 

7.  Frontex  should  also  engage  in  cooperation  with  the  Commission  (including  OLAF),  in 
particular to advise on the development of border management actions in third countries 
and,  where  relevant,  with  Member  States  and  the  European  External  Action  Service  in 
activities relating to the customs area, including risk management and combating fraud, 
where those activities complement each other. 

Component  7:  “Cooperation  with  third  countries  in  the  areas  covered  by  the  EBCG 
Regulation,  focusing  in  particular  on  neighbouring  third  countries  and  on  those  third 
countries  which  have  been  identified  through  risk  analysis  as  being  countries  of  origin  or 
transit for illegal immigration19.” 

Policy priorities 
Member  States  and  the  Agency  are  to  cooperate  with  third  countries  for  the  purpose  of 
European  integrated  border  management  and  migration  policy.  The  practical  cooperation  in 
the  field  of  EIBM  with  third  countries  at  EU  and  national  levels  should  be  in  line  with  the 
common  foreign  and  security  policy  and  in  full  compliance  with  EU  law,  including 
fundamental  rights  and  the  principle  of  non-refoulement,  to  prevent  illegal  immigration, 
enhance effective returns, prevent cross-border crime, and facilitate legitimate travel. 

Cooperation  with  third  countries  in  advancing  EIBM  serves  in  particular  the  purpose  of 
building third countries’ operational and cooperation capacities in the areas of border control, 
risk  analysis,  and  return  and  readmission.  In  this  perspective,  the  promotion  of  European 
values  and  standards  in  third  countries  is  key.  Priority  should  be  given  to  EU  candidate 
countries,  EU  neighbourhood  countries,  and  countries  of  origin  and  transit  for  irregular 
immigration. 

Strategic guidelines 
1.  Cooperation with third countries in the field of EIBM should be based on agreements in 
line  with  Union  legislation,  including  on  the  protection  of  personal  data.  These 
agreements  (including  status  agreements  and  working  arrangements)  should  identify 
responsible  organisations,  cooperation  structures  and  the  scope  of  cooperation,  and 
establish rules on the allocation of responsibilities. 

2.  Operational  cooperation  between  Member  States  and  third  countries  is  encouraged 
wherever such cooperation is compatible with the tasks of Frontex. Member States are to 
refrain  from  any  activity  that  could  jeopardise  the  functioning  of  the  Agency  or  the 
attainment of its objectives. 

3.  Information  exchange,  in  particular  on  EUROSUR,  between  Member  States  and  third 
countries should be provided in the framework of bilateral or multilateral agreements. For 
this  purpose,  Member  States  should  follow  the  Commission  Recommendation  on  the 
model  provisions  for  the  exchange  of  information  in  the  framework  of  EUROSUR  in 
accordance with Article 76(2) of the EBCG Regulation20. 

19 Article 3(1)(g) of the EBCG Regulation. 
20 C(2022) 300 final. 

22 

 
 
 
 
 
 
                                                           
4.  Frontex  should  draw  up  an  EU-level  overview  on  existing  operational  cooperation  with 
third  countries  in  the  field  of  border  management  and  return.  This  should  be  based  on 
information obtained from Member States, the Commission and other European bodies. 
5.  When establishing specific situational pictures with third parties to EUROSUR, Member 
States  and  Frontex  should  comply  with  and  promote  the  technical  and  operational 
standards for information exchange developed by Frontex. 

6.  Operational  activities  in  third  countries  coordinated  by  Frontex  should  be  planned  and 
implemented  in  accordance  with  status  agreements  between  the  EU  and  the  relevant 
third  country  and/or  in  line  with  working  arrangements  concluded  by  Frontex  and 
competent  third-country  authorities  (where  available).  Both  status  agreements  and 
working  arrangements  should  be  based  on  the  respective  models  adopted  by  the 
Commission21. 

7.  Cooperation  with  third  countries  must  comply  with  EU  law,  including  norms  and 
standards  that  form  part  of  EU  legislation  in  force,  even  when  cooperation  with  third 
countries takes place on the territory of those countries. Exchanges of personal data with 
third countries must comply with the requirements of EU data protection legislation. 

8.  Multilateral and regional cooperation with third countries should be strengthened. The 
national  coordination  centres of Member States  should be used  as contact  points for the 
exchange of information with neighbouring countries and other relevant countries. 

9.  Where networks of liaison officers (LOs) have an identifiable potential for contributing 
to different  IBM-related functions at EU and national levels, they should be coordinated 
effectively  and  receive  good  support  in  order  to  maximise  operational  capabilities  and 
effectiveness. Cooperation and reporting channels and forms should be clear at all levels. 
There should be a constant  and flexible capacity to  deploy liaison  officers with  relevant 
skills  or  expert  teams  to  different  places  if  there  are  operational  needs.  Frontex  should 
have a complete situational picture of different types of European liaison officers (Frontex 
LOs,  European  Migration  LOs,  European  Return  LOs,  LOs  of  other  agencies)  and 
national  Immigration  LOs  based  on  information  provided  by  Member  States  and  other 
relevant  European  bodies.  Collected  information  should  enrich  risk  analysis  and 
situational  awareness  at  EU  and  national  level  including  the  pre-frontier  intelligence 
picture.  Frontex  Liaison  Officers should also exchange  all relevant  information with  the 
EU  Delegation  in  their  country  of  deployment,  in  the  framework  of  the  overall 
coordination of EU policy in that country. 

10. IBM-related  capacity-building  working  visits  to  third  countries,  including  direct 
funding,  technical  advice,  training  or  support  with  technical  equipment,  should  be  well 
coordinated and monitored by the EU. Frontex should continue implementing EU-funded 
capacity-building projects and programmes related to IBM in EU candidate countries 
and other priority third countries, in particular for the purpose of building third countries’ 
capacities in the areas of border control, risk analysis, and return and readmission. Frontex 
should also  closely  cooperate with  other Commission  implementing partners in  advising 
throughout  the implementation  of border management actions in  the neighbourhood and 
other  priority  third  countries.  Projects  led  by  Member  States  should  be  implemented  in 

21 COM(2021) 829 final and COM(2021) 830 final. 

23 

 
 
                                                           
close cooperation with Frontex; the Agency’s expertise should be used to its full potential 
in all phases of the projects. The Agency should also develop a comprehensive overview 
of ongoing and planned IBM-related capacity-building projects and working visits in third 
countries. 

11. Cooperation between civilian Common Security and Defence Policy missions having a 
border  management  component  and  Frontex  shouldbe  further  developed  to  ensure 
situational awareness and to support risk analysis and the promotion of EIBM standards. 
Component  8:  “Technical  and  operational  measures  within  the  Schengen  area  which  are 
related to border control and designed to address irregular migration and to counter cross-
border crime better22.” 

Policy priorities 
Operational continuity and interoperability between external border control and technical and 
operational  measures  within  the  Schengen  area  should  be  well  established  to  guarantee 
effective  countering  of  unauthorised  secondary  movements,  irregular  migration  and  cross-
border crime related to external borders. 

National  capacity  (readiness)  is  put  in  place  to  intensify  irregular  migration-related  police 
checks  inside  the  territory,  including  in  inland  border  areas,  supported  by  other  alternative 
measures  that  Member  States  have  at  their  disposal,  therefore  limiting  the  need  for 
reintroducing internal border controls. 

Strategic guidelines 
1.  At both EU and national level, there should be a comprehensive situational picture and 
risk analysis on irregular arrivals and secondary movements of third-country nationals 
within the EU, as a basis for targeted and proportional measures to be taken. A European 
situational picture should be prepared by Frontex with the full support of Member States 
and in cooperation with other relevant EU agencies. EUROSUR should be used as a main 
platform  for  this  function,  together  with  other  effective  and  unified  data  collection 
systems.  Member States should ensure that the events  related to  unauthorised secondary 
movements are reported by national authorities to the NCC. 

2.  Enhanced cooperation and coordination should be further developed, including joint risk 
analysis, operational practices and fluent exchange of information between border guards 
and other authorities working at the external border. These include the NCCs, authorities 
working within the Schengen area and police and customs cooperation centres (PCCCs) 
and other relevant centres. Different EU-wide information systems should be in effective 
use for all responsible authorities. 

3.  Operational  cooperation  between  joint  operations  coordinated  by  Frontex  and  relevant 

PCCCs should be further developed and consolidated. 

4.  There should be a sufficient capacity at national level to intensify police checks related to 
illegal immigration across the entire territory and to carry out police checks and migration 
control on main transport roads, including border areas based on risk analysis. 

22 Article 3(1)(h) of the EBCG Regulation. 

24 

 
 
 
 
 
 
                                                           
Component  9:  “Return  of  third-country  nationals  who  are  the  subject  of  return  decisions 
issued by a Member State23.” 

Policy priorities 
Third-country  nationals  who  are  the  subject  of  a  return  decision  issued  by  a  Member  State 
should  be  effectively  returned,  in  full  respect  of  fundamental  rights.  There  should  be  a 
capacity (administrative, technical and operational) to implement  return processes, including 
voluntary returns, at EU and national levels effectively and in a unified manner, as an integral 
part of the chain of migration management and the functioning of European IBM. 
Effectively  implemented  returns  of  third-country  nationals  who  are  the  subject  of  a  return 
decision should ensure that all those who do not have the right to remain in the EU actually do 
leave the EU. EIBM should also ensure that the return procedure is carried out in a humane, 
dignified and sustainable manner, in full compliance with the fundamental rights of returnees 
and in line with international and EU law, by properly trained experts. 

Strategic guidelines 
1.  The  capacity  and  role  of  Frontex  to  support  Member  States  in  all  phases  of  the  return 
process  should  be  further  strengthened,  by  making  full  use  of  all  available  Union  and 
national instruments. 

2.  The  capacity  of  Member  States  to  carry  out  unilaterally  or  jointly  the  return  of  illegally 
staying  third-country  nationals  should  be  increased  by  developing  an  integrated  and 
coordinated national return system, which is based on the return case management system 
model developed by the Agency and compatible with the European return policy. Member 
States  should  fully  ensure  their  capacity  to  contribute  to  European  return  operations 
coordinated or organised by Frontex. 

3.  The  Integrated Return  Management  Application (IRMA) should be further developed to 
improve  situational  awareness  on  return,  collection  of  data  on  return  operations  and 
readmission.  This  will  facilitate  the  planning,  exchange  of  relevant  operational 
information,  organisation  and  implementation  of  return,  readmission  and  reintegration 
activities by Member States. It will also allow Frontex to assume a fully proactive role in 
including  pre-return  assistance  and 
planning  and  organising  return  operations, 
reintegration. 

4.  A  comprehensive  situational  picture,  including  Member  State  capacities  and  needs  on 
return,  should  be  prepared  by  Frontex,  based  on  information  gathered  from  Member 
States, different types of Immigration LOs (European and national) and third countries. 
5.  The European Border and Coats Guard, in particular Frontex, should implement the 2021 

EU strategy on voluntary return and reintegration24. 

23 Article 3(1)(i) of the EBCG Regulation. 
24 COM(2021) 120 final, 27.4.2021. 

25 

 
 
 
 
 
 
 
 
 
                                                           
Component  10:  “Use  of  state-of-the-art  technology  including  large-scale  information 
systems”25. 

Policy priorities 
European  IBM,  especially  border  checks  and  border  surveillance,  should  be  supported  by 
advanced,  mobile  and  interoperable  European  technical  systems  and  solutions, 
applicable  to  large-scale  EU  IT  systems.  This  is  to  guarantee  more  efficient  and  reliable 
border control. The European Border and Coast Guard should have the capacity to make best 
use of state-of-the-art technologies, including mechanisms to secure the data. 

Strategic guidelines 
1.  The  quality  of  information  used  for  border  checks  in  existing  systems  should  be 
increased by taking practical measures to ensure data accuracy, by taking the opportunity 
of their periodic evaluation, including by implementing state-of-the-art technology.  

2.  The  interoperability  of  existing  and  new  large-scale  IT  systems  (EES,  VIS,  ETIAS, 
renewed SIS)  should be ensured, especially the  full and comprehensive implementation 
of the recently renewed systems.  

3.  Developing, maintaining and operating the central components of large-scale information 
systems  is  the  main  objective  of  eu-LISA,  the  European  Union  Agency  for  the 
Operational Management of Large-Scale IT Systems in the Area of Freedom, Security and 
Justice. 

4.  The potential of the  new smart technical solutions (e.g. automated border check/ABC-
gates) and the interoperability of different border and security-related information systems 
should  be  maximised  to  improve  the  security  of  citizens,  facilitate  border  checks  and 
crossings of external borders, and combat cross-border crime and terrorism. 

5.  The  full  potential  of  modern  technology  should  be  used  to  heighten  European 
surveillance  and  reaction  capabilities  at  the  external  borders.  The  use  of  European 
surveillance  capacities  (e.g.  satellite  services)  should  be  further  developed  to  create  a 
comprehensive situational picture. 
6.  The  surveillance  capacity  of 

technical 
surveillance  systems  (stationary  and  mobile)  used  at  sea  and  land  borders  should  be 
further developed. This should include technical solutions and working processes used in 
different operational centres (NCC, Rescue Coordination Centres and Local Coordination 
Centres) and mobile units. 

interoperable  and  adaptable 

integrated, 

7.  In its contribution to a European critical technology autonomy26, the European Border 
and Coast Guard is to ensure that its capability development planning takes into account 
the objective of reducing dependencies in critical technologies from third countries. 

8.  The use of state-of-the-art technology must comply with the requirements of the EU data 

protection framework. 

25 Article 3(1)(j) of the EBCG Regulation.  
26 Statement of the Members of the European Council of 25-26 February 2021. 

26 

 
 
 
 
 
 
                                                           
Component  11:  “A  quality  control  mechanism,  in  particular  the  Schengen  evaluation 
mechanism,  the  vulnerability  assessment  and  possible  national  mechanisms,  to  ensure  the 
implementation of Union legislation in the area of border management”27. 
Policy priorities 

A comprehensive European quality control system should be in place to guarantee constant 
awareness  of  the  implementation  and  quality  of  European  integrated  border  management  at 
the  strategic  and  operational  levels.  Results  of  the  quality  control  should  be  used  as  a  basis 
when further developing European and national IBM systems and functions. 

Strategic guidelines 
  A  European  quality  control  mechanism,  consisting  of  the  Schengen  evaluation 
mechanism and the vulnerability assessments carried out by Frontex, should be fully 
operationalised. 

  Based  on  the  regular  exchange  of  information,  synergies  between  the  vulnerability 
assessment and the Schengen evaluation mechanism should be maximised with a view 
to establishing an improved picture of the functioning of the Schengen area. This should 
avoid,  to  the  extent  possible,  a  duplication  of  efforts  on  the  part  of  Member  States,  and 
ensure  better-coordinated  use  of  the  relevant  EU  financial  instruments  supporting  the 
management of external borders. 

  Results  of  the  quality  control  mechanism  should  be  used  when  developing  the  national 
border  management  system  and  when  prioritising  the  use  of  relevant  EU  funding 
instruments  (e.g.  national  programmes  and  thematic  facilities  under  the  Border 
Management and Visa Instrument (BMVI) of the Integrated Border Management Fund), 
especially when assessing other funding proposals by the Commission. 

  Member  States  should  establish  a  national  quality  control  mechanism  (national 
‘Schengen evaluation’), covering all parts and functions of the national IBM system and 
including all authorities involved in integrated border management. 

  Member  States  should  actively  participate  in  the  Schengen  evaluation  visits  coordinated 
by  the  Commission  and  provide  timely  and  quality  contributions  to  the  Frontex-led 
vulnerability assessments. 

Component 12: “Solidarity mechanisms, in particular Union funding instruments”28. 

Policy priorities 

The effective implementation of the European IBM strategy should be supported by specific 
EU  funds,  especially  the  BMVI  and  the  Asylum,  Migration  and  Integration  Fund  (AMIF). 
EU funds should support European integrated border management actions at EU and national 
levels,  falling  under  EU  jurisdiction  and  defined  by  EU  law,  with  a  view  to  delivering 
maximum  EU  added  value.  Components  of  European  integrated  border  management 
regulated by national law should, in principle, be covered by national resources. 

27 Article 3(1)(k) of the EBCG Regulation. 
28 Article 3(1)(l) of the EBCG Regulation. 

27 

 
 
 
 
 
 
 
 
 
                                                           
Frontex  activities  are  supported  by  the  Agency’s  dedicated  budget  from  the  EU  overall 
budget.  The  Agency  can  also  benefit  from  EU  funding  for  technical  assistance  projects  in 
third  countries,  in  accordance  with  the  provisions  of  relevant  instruments  supporting  the 
implementation of EU external migration policy. 

Strategic guidelines 
  The use of EU funding instruments (e.g. national programmes under the BMVI) should be 
aligned with national  IBM strategies, action plans and capability planning. There should 
be  clear  and  well-detailed  national  priorities  (e.g.  EUROSUR,  capability  development), 
based on EU priorities. 

  Results of the Schengen evaluation mechanism and the vulnerability assessment should be 

taken into account to prioritise the use of EU funds at national level. 

  Close cooperation between the Commission and Frontex should ensure synergies between 
Frontex activities and actions funded by other EU funding instruments and avoid double 
financing. 

  Dedicated EU funding under Internal Security Fund (Borders) and BMVI specific actions 
should support Member States in acquiring required equipment in view of putting it at the 
disposal of Frontex in accordance with Article 64(14) of the EBCG Regulation. This will 
consolidate the Agency’s capacity to support those Member States in need of assistance. 

Component 13: “Fundamental rights29”. 

Policy priorities 

Full respect of fundamental rights is at the heart of European IBM. The European Border 
and  Coast  Guard  must  guarantee  the  protection  of  fundamental  rights  in  the 
performance of its tasks, in accordance with its mandate, when implementing European IBM. 
The actions of EU and national actors within the European Border and Coast Guard should be 
carried  out  in  full  compliance  with  relevant  EU  law,  including  the  Charter  of  Fundamental 
Rights of the European Union and relevant international law. The latter includes the Geneva 
Convention Relating to the Status of Refugees of 28 July 1951 and its Protocol of 1967, and 
the  Convention  on  the  Rights  of  the  Child.  Obligations  related  to  access  to  international 
protection, in particular the principle of non-refoulement, must also be fully respected. In its 
proposal for a regulation on screening of third-country nationals30, the Commission proposed 
that each Member State should establish an independent monitoring mechanism to ensure that 
fundamental rights are observed in relation to the screening at external borders and that any 
allegations  of  a  breach  of  fundamental  rights  are  properly  investigated.  This  monitoring 
mechanism  would  be  part  of  the  governance  and  monitoring  of  the  migratory  situation 
provided for in the proposed for a new regulation on asylum and migration management31. 
Strategic guidelines 

29 Article 3(2) of the EBCG Regulation. 
30 COM(2020) 612, 23.9.2020. 
31 COM(2020) 610, 23.9.2020. 

28 

 
 
 
 
 
 
 
                                                           
  The  Fundamental  Rights  Strategy  and  the  accompanying  Action  Plan  adopted  by  the 
Frontex Management  Board should be strictly observed in all activities of the European 
Border and Coast Guard at EU and national levels. 

  Member  States  should  act  in  full  compliance  with  fundamental  rights  during  the  whole 
operational cycle of all border management and return activities when implementing their 
national IBM strategies. 

  Member  States  should  develop  and  sustain  operationally  a  national  fundamental  rights 

monitoring mechanism in relation to border management and returns. 

  Fundamental rights should be an essential part of the training syllabus at the European and 
national  levels  for  all  persons  participating  in  border  control  or  return  activities.  These 
training  measures  should  have  a  specific  focus  on  the  protection  of  vulnerable  persons, 
including minors.  

  During the evaluations carried out under the revised Schengen Monitoring and Evaluation 
Mechanism  particular  attention  should  be  paid  to  verifying  the  respect  for  fundamental 
rights in the application of the Schengen acquis.  

Component 14: “Education and training32”. 

Policy priorities 

Availability of a sufficient number of competent and specifically trained staff in all fields 
of  the  European  integrated  border  management  should  be  ensured  at  the  European  and 
national  levels,  through  close  cooperation  among  training  academies  in  Member  States  and 
Frontex. 

Education  and  training  should  be  based  on  harmonised  and  quality  common  training 
standards  for  the  standing  corps,  taking  into  account  operational  needs,  tasks  and  legal 
competence and with  an emphasis  on a clear understanding of  the values enshrined in the 
Treaties. It should promote the highest standards and best practices in the implementation of 
Union border and return law, with a special emphasis on the protection of vulnerable persons, 
including  children,  and  on  the  respect  of  fundamental  rights,  and  should  forge  a  common 
culture based on the respect of fundamental rights. 

 Strategic guidelines 

  Common core curricula and necessary training tools for border management and return, 
including on the protection of children and other persons in vulnerable situations, should 
be  further  developed  and  be  based  on  a  common  overall  reference  framework  of 
qualifications  developed for the sector (sectoral  qualifications  framework for border and 
coast guarding). These products should take into account the European Border and Coast 
Guard  capability  roadmap,  approved  annually  by  the  Management  Board.  It  should  also 
offer  additional  training  courses  and  seminars  related  to  integrated  border  management 
tasks, both for the standing corps and for officers of the competent national authorities. 

32 Article 3(2) of the EBCG Regulation. 

29 

 
 
 
 
 
  
 
 
                                                           
  A specific training tool for the European Border and Coast Guard should continue to 
be  developed  and  enriched  by  Frontex,  in  close  cooperation  with  Member  States,  the 
Commission,  relevant  EU  agencies  and  other  stakeholders,  taking  into  account  relevant 
research outcomes and best practices. 

  Specialised  training  measures  relevant  to  the  tasks  and  powers  of  the  members  of  the 
standing  corps,  for  forced-return  monitors  and  fundamental  rights  monitors  should  be 
further developed to  address  operational  needs.  Exercises should be regularly  conducted 
with  those  border  guards  and  other  members  of  the  teams,  in  accordance  with  the 
specialised training schedule. 

  An equal level of border guard and return-related training should be provided at EU and 
national  levels  to  all  members  of  the  standing  corps  to  be  deployed  for  operational 
activities, regardless of their category. This is to ensure that all European border and coast 
guards are professionals, and properly trained according to their specialisation. 

  An internal quality control mechanism, in line with European standards and guidelines 
for  education  and  training,  should  be  implemented  by  Frontex  to  ensure  high-level 
training, expertise and professionalism of statutory staff who participate in the Agency’s 
operational activities. The state of implementation of this mechanism should be reported 
in the annual evaluation report and annexed to the annual activity report. 

  Acquiring  knowledge  or  specific  expertise  from  experience  and  good  practices  abroad 
during  missions  and  return-related  operations  in  another  Member  State  should  be 
encouraged.  In  particular,  this  should  be  provided  through  an  exchange  programme  to 
border guards participating in return interventions by Frontex. 

  The  establishment  of  a  training  centre  within  Frontex  should  be  further  considered, 
taking  duly  into  account  and  building  on  greater  cooperation  and  synergies  with  the 
national training institutes of the Member States. The aim is to coordinate and streamline 
the  development,  delivery  and  certification  of  border  and  coast  guard  education  and 
training,  based  on  European  standards  for  quality  assurance,  and  to  further  facilitate  the 
inclusion of a common European culture in the training provided. 

Component 15: “Research and innovation33”. 

Policy priorities 

Integrated  border  management  should  be  supported  by  state-of-the-art  technology  and 
forward-looking research on relevant sciences supporting the profession of border guarding. 
For this purpose, a timely and well-coordinated investment in research and innovation should 
be ensured at EU and national level.  

Strategic guidelines 
  Border  control  operations  should  use  research  and  innovation  to  become  more 
interoperable and cost-effective. Innovative solutions should be promoted through cross-
border  cooperation  for  economies  of  scale.  Cooperation  between  Frontex  and  Member 
State  border  authorities'  research  and  innovation  units  should  be  further  developed  in 

33 Article 3(2) of the EBCG Regulation. 

30 

 
 
 
 
 
 
                                                           
priority  areas.  Border  control  authorities  should  also  be  familiar  with  the  latest 
technology  developments  anticipating  trends,  challenges  and  threats,  given  that  also 
smuggling networks and terrorists use state-of-the-art technology. 

  Frontex  should  actively  participate  in  the  monitoring  of  research  and  innovation 
activities  conducted  by  Member  States,  the  EU  and  by  industry  in  the  areas  covered  by 
IBM, as well as by other relevant actors, including third countries and other organisations. 
  Frontex  should  assist  Member  States  and  the  Commission  in  drawing  up  and 
implementing  the  relevant  Union  framework  programmes  for  research  and  innovation 
activities related to IBM. 

  The  use  of  research  and  innovation  must  comply  with  the  requirements  of  the  EU  data 

protection legislation. 

6.  GOVERNANCE OF THE MULTIANNUAL STRATEGIC POLICY CYCLE 

The main goal of the EIBM policy cycle is to ensure that, in the next five years, EU political 
priorities  are  properly  translated  into  operational  objectives  and  activities  for  the  European 
Border and Coast Guard.  

While  long-term  planning  is  necessary,  the  very  dynamic  political  and  sensitive  operational 
environment  for  EIBM  requires  a  permanent  monitoring  of  developments  and  a  flexible 
adaptation to changing needs. The multiannual strategic policy on EIBM should therefore also 
establish an appropriate mechanism to ensure an effective governance framework that would 
accompany the cycle’s successful implementation. 

This mechanism should be integrated into the Schengen cycle, launched by the annual State of 
Schengen  Report.  The  State  of  Schengen  report  is  adopted  together  with  the  present  policy 
document. The Schengen cycle will enable monitoring the implementation of the EIBM cycle 
in various formations: 

-  The annual meeting of the Schengen Forum will allow the European Parliament, the 
Council  and  the  Commission  to  review  EIBM  implementation  and  to  provide 
complementary political direction for the European Border and Coast Guard. 

-  The  Schengen  Councils,  organised  on  a  quarterly  basis,  should  review  and  deliver 
conclusions on the Schengen governance, and provide the political impetus on the key 
strategic  issues  in  relation  to  the  implementation  of  EIBM.  They  provide  for  the 
opportunity to discuss at the political level matters related to the European Border and 
Coast  Guard, 
issue  strategic 
recommendations and monitor their implementation. 

including  Frontex,  and,  where  appropriate, 

to 

-  Additional  strategic  steering  will  be  also  provided  by  a  high  level  meeting  of  the 

Management Board of the Agency. 

The yearly meetings of interparliamentary cooperation set out in Article 112 of the EBCG 
Regulation could provide an opportunity to ensure that the scrutiny functions of the European 

31 

 
 
 
 
 
 
 
 
Parliament  over  the  Agency  and  of  the  national  parliaments  over  their  respective  national 
authorities in the implementation of European Integrated Border Management are effectively 
exercised. The meetings could be coordinated with the preparation of the annual meeting of 
the Schengen Forum. 

7.  CONCLUSIONS 

The  Commission  has  prepared  the  present  policy  document  with  a  view  to  achieving  a 
common  understanding  between  the  European  Parliament,  the  Council  and  the  Commission 
on how the EBCG should implement EIBM in the next five years. 

Therefore,  the  Commission  invites  the  European  Parliament  and  the  Council  to  discuss  this 
policy  document,  which  sets  out  a  multiannual  strategic  policy  for  EIBM,  and  to 
communicate to the Commission their respective views. 

At the same time, given the importance of establishing appropriate mechanisms to ensure an 
effective  governance  framework  accompanying  the  implementation  of  the  cycle,  the 
Commission  seeks  the  views  of  both  institutions  on  its  ideas  for  a  targeted  direction  to  be 
provided on a more regular basis, to complement the five-year policy priorities and strategic 
guidelines. 

Based  on  the  political  input  from  both  institutions  on  the  above-mentioned  aspects,  the 
Commission  will  adopt  a  communication  setting  out  the  multiannual  strategic  policy  for 
EIBM and its governance. 

The timeframe of the EIBM cycle 

Actions to implement the multiannual strategic policy cycle 

Indicative timetable 

The  Commission  tables  a  policy  document  setting  out  the  multiannual 
strategic policy for European integrated border management 
The European Parliament and the Council discuss the policy document 
setting out the multiannual strategic policy for European integrated border 
management 
The  Commission  adopts  a  Communication  establishing  the  multiannual 
strategic policy for European integrated border management 
The  European  Border  and  Coast  Guard  Agency  adopts  the  technical 
and operational strategy for European integrated border management  
Member States align their national IBM strategies 

The Commission evaluates the multiannual strategic policy for European 
integrated border management 
The  Commission  tables  a  second  policy  document  developing  the  next 
multiannual strategic policy for European integrated border management 

Q2 2022 

Q3 2022 

Q4 2022 

Q2  2023  (6  months  after  the 
Commission’s Communication) 
Q4  2023  (12  months  after  the 
Commission’s Communication) 
Q4  2026  (48  months  after  the 
Commission’s Communication) 
End 2027 

32