COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on the Report on Migration and Asylum
Date: 2023-01-12
Institutions: European Commission, Secretariat-General
Subjects: EU migration policy, Russia, Ukraine, aid to refugees, border control, external border of the EU, forced migration, human rights, right of asylum, trafficking in human beings

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 12.1.2023  COM(2022) 740 final/2  CORRIGENDUM  This document corrects document COM(2022) 740 final of 06.10.2022.  Concerns all language versions.  Correction of small errors on pages 7, 19 and 22; correction of footnotes 45, 71 and 81.  The text shall read as follows: COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS on the Report on Migration and Asylum                  
 
 
1.  INTRODUCTION 

Over the past year, the EU has been faced with a series of events with major repercussions for 
migration,  asylum  and  border  management.  Russia’s  unprovoked  war  of  aggression  against 
Ukraine caused the largest forced displacement of people in Europe since the Second World 
War,  and  the  recent  escalation  of  the  war  is  expected  to  bring  an  increase  in  arrivals  of 
Russian citizens to the Union’s external borders. The continued pressure on the routes across 
the  Mediterranean  and  the  Western  Balkans  added  to  the  challenge  of  increased  migratory 
flows.  The  instrumentalisation  of  migrants  for  political  purposes  by  the  Belarusian  regime 
raised unprecedented legal and operational challenges. In parallel,  Member States faced the 
need to scale up border and visa management as the travel restrictions caused by COVID-19 
were lifted and tourism and business restarted. 

The  EU  has  shown  itself  able  to  react  quickly,  with  concrete  solidarity  and  effective 
coordination.  The  unprecedented  activation  of  the  Temporary  Protection  Directive  and  the 
welcome given by so many individual Europeans to people fleeing Ukraine has been a vivid 
demonstration of European values. Practical, direct action on the ground showed how the EU 
helps both people in need of protection and Member States under pressure.  

The reaction to the impact of the war has epitomised the EU’s growing capacity for collective 
response. The Migration Preparedness and Crisis Blueprint Network provided a new way to 
strengthen  communication  and  mutual  awareness  as  the  foundation  for  a  coherent  EU 
response. The Solidarity Platform has provided a hub for coordinating the reception of those 
fleeing  Ukraine.  The  new  EU  Agency  for  Asylum,  Frontex  and  Europol  stepped  up  their 
assistance to support Member States facing the new challenges.  

The Union’s reactivity and agility is helping us to navigate the challenges. Nevertheless, the 
year since the last migration report1 has confirmed that structural reforms to the EU’s asylum 
and migration system are needed, to equip the EU to address both crisis situations and longer-
term  trends.  Work  during  the  French  Presidency  has  created  a  positive  dynamic  that  made 
possible substantial progress both on the internal and the external dimensions of the Pact on 
Migration and Asylum2. A new Solidarity Declaration served as a basis for Member States to 
relaunch cooperation with Commission support. Our partnership with key countries of origin 
and  transit  deepened  on  all  aspects  of  migration  and  forced  displacement.  Diplomatic 
outreach brought results, both in broader cooperation on migration and in key cases such as 
the instrumentalisation of migrants by the Belarusian regime.  

The reality of labour shortages across many sectors and in all Member States is  pointing to 
the  need  to  attract  a  dynamic  workforce,  as  well  as  to  create  safe  pathways  to  reduce  the 
incentives  for  irregular  migration.  The  new  set  of  Skills  and  Talent  proposals  reflects  the 
Pact’s comprehensive partnership approach at international level.  

The Commission welcomes the joint roadmap agreed between the European Parliament and 
the rotating Presidencies of the Council, which confirm a commitment to make all efforts to 
adopt the legislative proposals related to asylum and migration management  outlined in the 
Pact before the end of the 2019-2024 legislature. 

This  report  takes  stock  of  the  progress  achieved  and  the  key  developments  in  the  area  of 
migration and asylum over the past year. It identifies the key challenges ahead and recalls the 
steps needed for a more robust and fair migration and asylum policy. 

1  Communication on the Report on Migration and Asylum (COM(2021)590 final, 29 September 2021). 
2  Communication on a New Pact on Migration and Asylum (COM(2020) 609 final, 23 September 2020). 

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2.  THE EU RESPONSE TO RUSSIA’S INVASION OF UKRAINE  

Europe has offered an unprecedented welcome to millions of people fleeing the Russian war 
of  aggression  against  Ukraine.  The  Commission  swiftly  responded  to  the  scale  of  the 
challenge3,  harnessing  every  tool  available  at  EU  level  to  support  Member  States,  and 
drawing  on  the  extraordinary  generosity  of  individual  Europeans.  This  work  to  bring  help 
inside the EU is taken forward in  close connection with  work to help  address  humanitarian 
needs and start reconstruction inside Ukraine itself (see Section 7 below).   

The  centrepiece  of  the  EU’s  welcome  was  the  first-ever  activation  of  the  Temporary 
Protection  Directive4  on  4  March  20225,  which  offered  those  fleeing  the  war  a  clear  legal 
status and unprecedented protection across the EU, with rights to accommodation, education, 
and healthcare, as well as access to work.  More than 4 million registrations for temporary 
protection or adequate protection under Member States’ national law have been recorded. 

The Commission, EU Agencies and Member States have worked together to give life to these 
rights. The Commission swiftly issued Operational Guidelines on checks at the EU’s borders 
with Ukraine6 clarifying the flexibility offered by the Schengen Borders Code to manage the 
situation. Further guidelines on temporary protection7 have been regularly updated8, to help 
to ensure beneficiaries enjoy consistent rights across Member States.  

Since 24 February 2022, the Blueprint Network – one of the elements of the Pact already up 
and running – has ensured that all actors have the situational awareness for an effective and 
coordinated  EU  response,  coordinating  closely  with  other  fora,  notably  the  EU  Integrated 
Political Crisis Response and the Solidarity Platform.   

The Solidarity Platform 

The  Commission  established  the  Solidarity  Platform  to  accompany  the  activation  of  the 
Temporary  Protection  Directive.  It  has  become  the  hub  of  the  coordinated  European 
response.  Chaired  by  the  Commission,  it  brings  together  Member  States,  Schengen 
Associated  Countries,  the  European  External  Action  Service,  the  EU  Asylum  Agency, 
Frontex  and  Europol,  the  International  Organisation  for  Migration  and  the  UN  refugee 
agency  UNHCR,  also  involving  Ukraine  and  Moldova.  It  also  provides  a  channel  for 
discussion  with  international  partners,  notably  the  United  States,  Canada  and  the  United 
Kingdom. The Solidarity Platform monitors emerging needs in the EU and coordinates the 
operational response. It has mapped reception capacity in Member States, helped to ensure 
displaced people know their options, and supported their safety through  the EU Common 
Anti-Trafficking  Plan  developed  under  the  lead  of  the  EU  Anti-Trafficking  Coordinator. 

3  Communication “European solidarity with refugees and those fleeing war in Ukraine” (COM(2022) 107, 8 
March 2022); and Communication “Welcoming those fleeing war in Ukraine: Readying Europe to meet the 
needs” (COM(2022) 131, 23 March 2022). 

4  Council Directive 2001/55/EC of 20 July 2001 on minimum standards for giving temporary protection in the 
event  of  a  mass  influx  of  displaced  persons  and  on  measures  promoting  a  balance  of  efforts  between 
Member States in receiving such persons and bearing the consequences thereof. 

5  The  Council  Implementing  Decision  (EU)  2022/382  of  4  March  2022  established  the  existence  of  a  mass 
influx of displaced persons from Ukraine within the meaning of Article 5 of Directive 2001/55/EC, and had 
the effect of introducing temporary protection. 26 Member States have transposed the Temporary Protection 
Directive into national law. Due to its opt-out, Denmark is not bound by the Temporary Protection Directive, 
and has adopted a bill on temporary residence permits for displaced persons from Ukraine (the Special Act). 
6  Communication  Providing  operational  guidelines  for  external  border  management  to  facilitate  border 

crossings at the EU-Ukraine borders (C(2022) 1404 final, 2 March 2022). 

7  Communication  on  Operational  guidelines  for  the  implementation  of  Council  implementing  Decision 

2022/382 (C/2022/1806, 21 March 2022).  

8  Frequently asked questions received on the interpretation of the Temporary Protection Directive and Council 

Implementing Decision 2022/382 

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The  Platform  has  driven  efforts  to  provide  education,  employment  and  sustainable 
accommodation, help with onward movement out of Moldova, and support those choosing 
to  return  to  Ukraine.  The  constant  focus  has  been  protection  of  the  most  vulnerable,  in 
particular children.  

Implementation of the 10-point plan 
The EU response has been framed by a 10-point plan set out by the Commission in March9. 
A  key  part  of  that  plan,  the  temporary  protection  registration  platform,  allows  Member 
States to exchange information in real time on the registrations for temporary protection and 
adequate protection under national law, while preventing possible abuse. 24 Member States10 
are already using the Platform and the intention is to broaden it to include Denmark and the 
Schengen associated countries.  
A map of transport and information hubs11 facilitates onward movement, with the aim to 
ensure the transport needed to reach reception capacity in Member States. 

A  key  priority  has  been  enhancing  reception  systems,  ensuring  inclusion  in  local 
communities, and finding safe and suitable accommodation. The EU Agency for Asylum 
presented  practical  recommendations  on  emergency  placement  in  private  accommodation12. 
The Safe Homes initiative13 supported the many organisations making possible the hosting of 
Ukrainians by private homeowners, such as with guidance showcasing how to make private 
accommodation suitable and safe.  

Preparedness for future developments now includes a common European contingency and 
response plan. Work on the national contingency plans is under way, with particular  focus 
on preparations for the winter.  

About half those arriving from Ukraine are children, whether accompanied, or on their own. 
Targeted  guidance14  for  protecting  children at  every stage of their journey  to  a safe home 
was  complemented  by  specific  attention  to  the  transfer  of  unaccompanied  children  from 
Moldova and to adequate care for children previously residing in Ukrainian institutions.  
The  EU  Common  Anti-Trafficking  Plan15  seeks  to  minimise  the  risk  that  people  on  the 
move  or  seeking  jobs,  in  particular  women  and  children,  are  targeted  by  organised  crime. 
Actions at EU level, as well as recommendations to Member States, cover awareness-raising, 
prevention,  strengthened  law  enforcement  and  judicial  cooperation,  identification  and 
protection  of  victims,  and  cooperation  with  non-EU  countries,  in  particular  Ukraine  and 
Moldova.  The  number  of  confirmed  cases  of  trafficking  is  currently  low,  but  the  risks  are 
clear.  All  cases  and  investigations  should  continue  to  be  reported  to  Europol.  The 
Commission will also propose revised legislation on combatting trafficking in human beings 
and protecting victims before the end of the year.  

EU missions on the ground, including the EU Advisory Mission (EUAM) Ukraine, assist the 
Ukrainian  authorities  in  border  management.  The  EU  expanded  the  mandate  of  the  EU 

9  The 10-Point Plan: For stronger European coordination on welcoming people fleeing the war from Ukraine 

(europa.eu) 

10  At the time of drafting, Slovenia and Sweden are not yet part of the Platform. 
11  Information  for  people  fleeing  the  war  in  Ukraine  -  Information  about  national  authorities  and  free  travel 

options 

12  Private accommodation for displaced persons from Ukraine (europa.eu)  
13  Safe Homes initiative (europa.eu)  
14  Unaccompanied and Separated Children fleeing from war in Ukraine – FAQs on Registration, Reception and 

Care 

15  A new Anti-Trafficking Plan to protect people fleeing the war in Ukraine (europa.eu) 

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Border  Assistance  Mission  (EUBAM)  to  Moldova  and  Ukraine  to  allow  its  staff  to  also 
support the Moldovan Border Police. 

Moldova  needs  EU  solidarity,  and  has  received  dedicated  help.  Member  States  have  made 
around  20 000  pledges  to  welcome  people  sheltering  in  Moldova,  although  so  far,  many 
Ukrainians  prefer  to  remain  close  to  their  home  country.  Thanks  to  the  rapidly  concluded 
status agreement with Moldova16, Frontex is now supporting border management. A new EU 
Support  Hub  for  Internal  Security  and  Border  Management17  is  also  helping  Moldova 
meet  security  challenges  including  firearms  trafficking,  drugs  trafficking  and  trafficking  in 
human beings.  

The  Commission  is  working  with  its  international  partners  to  offer  safe  destinations  to 
those fleeing the war. Third country nationals have been helped to return home safely, and so 
far,  close  to  250 000  persons  have  been  welcomed  in  the  United  States,  Canada  and  the 
United Kingdom18. The Commission and the European External Action Service have worked 
closely with Member States and international partners to support the repatriation of Ukrainian 
citizens who were stranded abroad following the Russian invasion of Ukraine.  

The  10-point  plan  also  reflected  the  internal  security  implications.  The  fourth  Security 
Union  progress  report19  outlines  the  activities  of  Europol,  and  the  coordination  of  full 
implementation  of  EU  sanctions  against  Russia  by  national  authorities  through  the  “Freeze 
and Seize” Task Force.  

Guaranteeing rights under the Temporary Protection Directive 

The  EU  has  also  put  in  place  a  series  of  targeted  sectoral  initiatives  to  give  force  to  the 
different rights accorded under the Temporary Protection Directive. 

Work on education for those fleeing Ukraine has included a particular focus on preparing for 
the  2022-2023  academic  year20.  All  children  should  have  the  possibility  to  attend  a  local 
school  in  the  EU,  but  activities  should  also  allow  children  to  keep  a  strong  connection  to 
Ukraine.  The  Commission  has  provided  support  and  guidance  through  European  platforms, 
including  the  School  Education  Gateway21,  eTwinning22,  and  the  New  Ukrainian  School 
Hub23. The EU Education Solidarity Group for Ukraine is helping to pool expertise across the 
EU24.  There  is  also  targeted  support  for  students,  recent  graduates,  teachers  and  trainers 
through  the  Erasmus+  programme25,  and  a  dedicated  action  under  the  Marie  Skłodowska-
Curie  Actions26  will  provide  fellowships  for  displaced  researchers  from  Ukraine.  These 

16  Council  Decision  on  the  signing,  on  behalf  of  the  Union,  and  provisional  application  of  the  Agreement 
between the EU and the Republic of Moldova on operational activities carried out by the European Border 
and Coast Guard Agency in the Republic of Moldova (Council Decision (EU) 2022/449, 17 March 2022) 

17  EU launches the Support Hub (europa.eu) 
18  Over  29 000  to  the  U.S.  as  of  the  end  of  July;  around  126 000  to  the  UK  as  of  mid-September;  around 

87 000 to Canada as of mid-September. 

19  Communication  on  the  Fourth  Progress  Report  on  the  implementation  of  the  EU  Security  Union  Strategy 

(COM(2022) 252 final, 25 May 2022). 

20  Supporting the inclusion of displaced children from Ukraine in education | European Website on Integration 

(europa.eu)  

21  https://www.schooleducationgateway.eu/en/pub/latest/news/education-support-ua-refugees.htm    
22  https://school-education.ec.europa.eu/en/etwinning   
23  https://nushub.org/en/  
24  See also Commission staff working document “Supporting the inclusion of displaced children from Ukraine 
in education: Considerations, key principles and practices for the school year 2022-2023” (SWD(2022) 185 
final, 30 June 2022). 

25  A call under preparation for this year would support the creation of an open education digital environment, 

offering quality higher education for students fleeing from Ukraine or internally displaced students. 

26  A call was launched in September 2022 to help Ukrainian researchers continue their work in EU institutions. 

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efforts are undertaken in parallel  to  the EU’s support to  help  school life resume in  Ukraine 
itself (see section 7).  

Beneficiaries  of  temporary  protection  also  have  the  right  to  access  the  labour  market.  To 
ensure  people  can  work  at  the  level  of  their  qualifications,  the  Commission  issued  a 
recommendation  on  the  recognition  of  professional  and  academic  qualifications27  and 
presented  guidance  on  access  to  the  labour  market,  vocational  education  and  training,  and 
adult  learning28.  The  Ukrainian  language  was  added  to  the  skills-profiling  tool  for  third-
country  nationals29,  the  Europass  portal30  and  the  classification  of  skills  and  occupations31. 
Prepared  together  with  the  European  Labour  Authority,  a  Talent  Pool  Pilot  on  the  EURES 
platform facilitates access of beneficiaries of temporary protection to the EU labour market. 
This  allows  jobseekers  to  register  CVs,  consult  published  vacancies  and  to  be  found  by 
prospective employers. Working with the European Training Foundation, the Commission is 
finalising a project on the comparability of the Ukrainian and EU qualification frameworks. 
The  EU  Pact  for  Skills32,  Erasmus  for  Young  Entrepreneurs33  and  an  initiative  for  women 
entrepreneurs34 also support people displaced from Ukraine. The European Child Guarantee 
contributes to integrating children and promoting their parents’ access to the labour market. 

Temporary protection also offers the right to medical care, to include at least emergency care 
and essential treatment of illnesses. In practice, many Member States have gone beyond the 
formal requirements of the Directive and offered broader access35. A dedicated stakeholders’ 
network36  supports  displaced  patients  and  healthcare  professionals,  as  well  as  civil  society 
organisations.  The  Commission  is  at  the  same  time  working  to  assist  the  return  of  those 
wishing  to  return  home  after  having  undergone  a  medical  treatment  in  the  EU  through  the 
Medevac  programme.  The  EU  is  also  contributing  to  tackling  the  mental  health 
consequences  through  psychosocial  support  under  the  EU4Health  programme,  from  which 
Ukraine  now  benefits  under  the  same  conditions  as  EU  and  associated  countries.  In 
particular,  the  mental  health  support  programme  implemented  through  the  International 
Federation of the Red Cross, initially set up to support those arriving in the Member States 
bordering  Ukraine,  will  now  be  extended  to  cover  all  Member  States,  with  funding  to  be 
doubled.  
Clear  and  timely  information  through  the  EU  Solidarity  with  Ukraine  website37  and  a 
helpline in Ukrainian and Russian are part of a wide-ranging communication strategy to help 
ensure  that  beneficiaries  know  their  rights,  and  understand  the  options  for  accommodation, 
jobs, education and healthcare. This has helped build confidence to move within the EU. 

27  Recommendation  on  the  recognition  of  qualifications  for  people  fleeing  Russia’s  invasion  of  Ukraine 
(Recommendation  (EU)  2022/554,  5  April  2022);  and  Guidelines  on  fast-track  recognition  of  Ukrainian 
academic qualifications | European Education Area (europa.eu).    

28  Guidance  for  access  to  the  labour  market,  vocational  education  and  training  and  adult  learning  of  people 

fleeing Russia’s war of aggression against Ukraine (C(2022) 4050 final, 14 June 2022). 

29  Skills Profile (europa.eu).  
30  Europass portal: https://europa.eu/europass/select-language?destination=/node/1  
31  ESCO  is  available  in  Ukrainian:  https://esco.ec.europa.eu/en/news/esco-now-available-ukrainian-language, 

14 June 2022 

32  https://ec.europa.eu/social/main.jsp?catId=1517&langId=en  
33  https://www.erasmus-entrepreneurs.eu/  
34  https://wegate.eu/  
35  Report  on  access  to  health  care  in  EU  Member  States  Implementation  of  Temporary  Protection  Directive 

(2001/55/EC) and Council Implementing Decision (EU) 2022/382 (europa.eu) 

36  EU Health Policy Platform - EU Health Policy Platform (europa.eu)  
37  EU solidarity with Ukraine | European Commission (europa.eu) 

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Operational and financial support 

As  well  as  the  support  offered  to  Member  States  through  coordination  and  common 
guidelines, EU Agencies and rapidly recalibrated EU funding have been key in implementing 
temporary protection across the Union.  

EU Agencies swiftly provided support on the ground to the Member States bordering Ukraine 
and  to  Moldova.  The  European  Border  and  Coast  Guard  Agency  (Frontex)  deploys 
nearly  260  officers  from  the  Standing  Corps,  as  well  as  technical  equipment,  to  Romania, 
Slovakia, Poland and Moldova, and is on alert for new deployments in the area, depending on 
needs.  The  EU  Agency  for  Asylum  has  significantly  expanded  its  operations,  concluding 
new  operating  plans  with  Bulgaria,  Czechia  and  Romania  and  amending  others  to  provide 
additional  support  on  the  implementation  of  temporary  protection.  Over  60  experts  and 
interpreters  are  currently  deployed  to  the  Member  States  and  Moldova.  Europol  deploys 
operational  teams  in  Hungary,  Poland,  Romania,  Slovakia,  and  in  Moldova,  to  support 
national  authorities  in  the  early  detection  of  criminal  activities  connected  to  the  war, 
including migrant smuggling and trafficking in human beings.  

Addressing funding needs 

The  Commission  has  provided  unprecedented  flexibility  in  the  use  of  EU  funding  to 
underpin the efforts of Member States, key organisations and civil society to support those 
in need.  

The  Commission  has  taken  swift  action  to  mobilise  available  resources  from  Cohesion 
Policy Funds. The Cohesion’s Action for Refugees in Europe (CARE) proposals38 made in 
the immediate aftermath of the invasion allowed Member States  to  flexibly use  resources 
still  available  under  the  2014-2020  Cohesion  envelope,  including  REACT-EU39,  for 
measures  supporting  people  fleeing  from  Ukraine.  These  were  followed  up  by  FAST-
CARE40, covering the 2021-2027 period. These both help Member States to rapidly access 
as much funding  as  possible  through  increased  pre-financing,  100%  EU  co-financing and 
simplified procedures.  

Programmes  adopted  under  the  European  Social  Fund  (ESF)/ESF+  already  concentrate 
significant  efforts  towards  addressing  the  consequences  of  the  war.  The  new  flexibilities 
will be able to support education, employment, and social inclusion, as well as provide food 
and  basic  material  assistance  to  those  fleeing  the  invasion.  The  European  Regional 
Development  Fund  (ERDF)  programmes  also  make  an  important  contribution  through 
investment addressing the challenges arising from the migratory needs. 
Flexibility41  introduced  for  the  use  of  the  2014-2020  Home  Affairs  Funds42  has  also 
supported  first-reception  needs  (emergency  accommodation,  food,  healthcare  etc.)  and 
implementation  of  temporary  protection  (initial  processing  and  registration  activities, 
referral  of  persons  to  specialised  support  services  etc.).  Part  of  support  should  be 
channelled to  civil society organisations and local and regional authorities, which play an 

38  Regulation (EU) 2022/562 of 6 April 2022 as regards Cohesion’s Action for Refugees in Europe (CARE); 
Regulation 2022/613 of 12 April 2022 as regards increased pre-financing from REACT-EU resources.  
39  Regulation 2020/2221 of 23 December 2020 as regards additional resources and implementing arrangements 
to  provide  assistance  for  fostering  crisis  repair  in  the  context  of  the  COVID-19  pandemic  and  its  social 
consequences and for preparing a green, digital and resilient recovery of the economy (REACT-EU). 
40  Proposal for additional flexibility to address the consequences of the military aggression of the Russian 
Federation FAST (Flexible Assistance for Territories) – CARE (COM(2022) 325, 30 June 2022). 

41  Regulation 2022/585 of 6 April 2022 on the Asylum, Migration and Integration Fund.  
42  Asylum,  Migration  and  Integration  Fund  (AMIF),  Internal  Security  Fund–Borders  and Visa  (ISF-BV)  and 

Internal Security Fund–Police (ISF-P). 

6 

 
 
                                                           
essential role in delivering the emergency assistance.  
Member States can also use the Technical Support Instrument43 to enhance their capacity 
to welcome people fleeing Ukraine and to facilitate their integration. 

For  longer-term  needs,  significant  funding  is  available  under  the  2021-2027  financial 
framework.  Member  States  also  have  the  possibility  to  include  measures  to  support  the 
integration of people with a migrant background, under both Cohesion Policy and national 
programmes under the Home Affairs funds. 

Technical-level visits of the Commission services to all key Member States ensured support 
to  the  national  authorities  and  a  one-stop-shop  was  established  to  facilitate  optimal  and 
complementary use of available EU funds. 

The  EU  commitment  to  protect  those  fleeing  Russia’s  invasion  of  Ukraine  is  unwavering. 
The Commission intends to make full use of the possibilities available under the Temporary 
Protection  Directive,  and  allow  for  the  temporary  protection  granted  to  be  extended  for  a 
further year until March 2024. This gives certainty and stability to millions. It is crucial that 
Member  States  ensure  that  beneficiaries  continue  to  enjoy  their  rights,  helping  people  to 
transition  to  more  stable  work  and  children  to  settle  in  education.  The  EU  will  continue  to 
support  Member  States’  efforts  to  ensure  smooth  and  mutually  beneficial  integration  and 
inclusion of new arrivals in EU societies. 

Many  people  will  need  to  move  between  EU  and  Ukraine  several  times,  while  sustainable 
support  will  also  be  needed  for  those  who  choose  to  return  home  permanently.  The 
Commission  will  support  the  reintegration  of  Ukrainians  who  return  home,  as  part  of  the 
wider  relief  and  reconstruction  commitment  towards  Ukraine.  It  will  work  with  Member 
States  and  the  Ukrainian  authorities  through  the  Solidarity  Platform,  to  develop  practical 
guidance and solutions so that those who go back home de-register or notify the competent 
authorities, safe in the knowledge that they can re-enter the EU easily and access again the 
rights that temporary protection affords.  

3.  MOVEMENTS ALONG THE ESTABLISHED ROUTES  

In  2022  so  far,  irregular  arrivals  on  the  Eastern  Mediterranean,  Central  Mediterranean,  and 
Western Mediterranean/Atlantic routes have exceeded pre-pandemic figures, while remaining 
significantly below the levels of 201544.  

The  Central  Mediterranean  route  remains  the  most  frequently  used  route.  Almost  all 
arrivals  were  to  Italy,  with  Malta  seeing  a  substantial  decrease.  Currently,  Tunisians, 
Egyptians  and  Bangladeshi  are  the  main  nationalities  along  the  route.  Most  departures 
continue  to  come  from  Libya  and  Tunisia,  though  Turkey  now  accounts  for  16%  of  total 
irregular arrivals. 2022 also saw migratory movements from Lebanon directly to Italy.  

Irregular  arrivals  along  the  Eastern  Mediterranean  route  doubled  compared  to  2021, 
mostly  due  to  heightened  migratory  pressure  in  Cyprus,  which  currently  accounts  for 
roughly 60% of arrivals along the route. The number of arrivals in Greece remains lower than 
before the pandemic. Syrians, Nigerians and Turks are the main nationalities on this route.  

On  the Western  Mediterranean/Atlantic  route,  Algeria  and  Morocco  remain  the  main 
countries  of  departure  towards  mainland  Spain  and  the  Canary  Islands.  Main  countries  of 
origin are Morocco, Algeria, Senegal, Côte d’Ivoire and Guinea.  

43  Regulation (EU) 2021/240 of the European Parliament and of the Council of 10 February 2021 establishing 

a Technical Support Instrument. 

44  In 2015, there were 1 047 210 irregular border crossings recorded on the three main routes.  

7 

 
 
                                                           
Irregular border crossings on the three Mediterranean routes until 25 September 45 (source: Member States)  

Along  the  Western  Balkans  route,  there  were  over  86  000  detected  irregular  border 
crossings in the first  eight months of 2022,  nearly three times more  than in  2021 and  more 
than  ten  times  the  total  in  the  same  period  in  201946.  The  main  nationalities  were  Syrian, 
Afghan  and  Turkish.  Factors  influencing  the  high  number  of  flows  include  movements  by 
migrants already present in the region, as well as people arriving by air to Serbia due to visa-
free  regimes.  There  is  a  particularly  strong  increase  on  the  route  through  North  Macedonia 
and  Serbia  route.  Given  the  sharp  increase  of  arrivals,  the  Commission  is  monitoring  the 
situation via the Blueprint Network with increased vigilance, with a  first dedicated meeting 
on 4 October.  

The situation at the Eastern border with Belarus continues to be stable, with a significantly 
lower number of irregular border crossings than at the peak of the instrumentalisation crisis in 
202147. However, there is recent evidence of a slight increase in attempts of irregular border 
crossings – still significantly below the peak in 2021 – at the border with Lithuania, Poland 
and  Latvia48,  while  nationalities  and  routes  appear  to  be  shifting,  with  many  arriving  in 
Belarus after travelling legally to Russia.  

45  Until  25  September  2022,  the  number  of  irregular  arrivals  along  the  Mediterranean  routes  was  116 610,  a 
39%  increase  compared  to  the  same  period  in  2021  and  a  47%  increase  compared  to  the  same  period  in 
2019. On the Central Mediterranean route, there were 70 088 irregular arrivals, a 55% increase compared to 
2021  and  a  634%  increase  compared  to  2019.  On  the  Eastern  Mediterranean  route,  there  were  23 601 
irregular  arrivals,  a  111%  increase  compared  to  2021  and  a  51%  decrease  compared  with  2019.  On  the 
Western  Mediterranean/Atlantic  route,  there  were  22 921  irregular  arrivals,  a  16%  decrease  compared  to 
2021 and a 7% increase compared to 2019. On this route, arrivals to the Canary Islands, amounting now to 
12 347,  are  5%  lower  than  in  2021,  almost  13  times  higher  than  in  2019;  these  figures  include  departures 
from  Western  Sahara  (the  presentation  in  this  report  is  without  prejudice  to  the  position  of  the  European 
Union  with  regard  to  the  status  of  Western  Sahara,  which  is  listed  by  the  United  Nations  as  a  non-self-
governing territory, whose status remains the object of a negotiation process conducted under the auspices of 
the UN, see the Court of Justice case law in cases C-104/16P and C-266/16). 

46  Source: https://frontex.europa.eu/we-know/migratory-map/  
47  So far in 2022, there have been over 800 irregular border crossings, compared to around 8 300 in 2021 and 
19 500 prevented illegal entries recorded, compared to 48 200 in 2021, to Poland, Lithuania and Latvia. The 
main nationalities of those apprehended in 2022 are so far Iraqis, Belarusians and Syrians. 

48  Between April and mid-July, the average of overall weekly prevented irregular border crossings was around 

270. Since mid-July, this figure has increased to around 790 per week. 

8 

 
 
 
 
                                                           
The first seven months of the year saw a rise in asylum applications compared to the same 
period in 2021, a year when figures were depressed by the pandemic,  from around 290 000 
applications  to  almost  480  00049.  This  compares  to  375  288  in  the  same  period  of  2019. 
Afghans, Syrians and Venezuelans lodged the most applications, and, as in 2021, most were 
received by Germany, France and Spain.  

4.  MANAGING THE MIGRATORY SITUATION  

Whilst the pressure may not be evenly distributed, no Member State has not felt the impact of 
the dramatic external events of the past year, whether arrivals from Ukraine, or the significant 
increase in irregular arrivals on other routes, or a combination of the two. Absolute figures do 
not  always  reflect  the  relative  impact  on  individual  Member  States,  given  their  size, 
absorption capacity or history of large numbers of arrivals.   

Supporting Member States on the ground 

The Commission and the EU Agencies have continued offering targeted expert support to the 
Member States in managing migration and reception challenges.  

The Commission’s Task Force on Migration Management, established in September 2020, 
has continued its work to improve the reception conditions on the Greek islands. Given the 
high number of arrivals on the Central and Western Mediterranean/Atlantic routes, the Task 
Force has also supported Italy, Malta and Spain in managing the migratory flows, as well as 
offering active support to Cyprus, and to the Member States bordering Belarus and Ukraine.  

Over  recent  years,  European  solidarity  with  Greece  has  been  unprecedented.  This  includes 
financial support and the presence of staff from the Commission and EU Agencies to support 
Greece in border management, asylum and return procedures, as well as operational planning 
and coordination. Progress has been made on the construction of new reception facilities on 
the  Greek  islands,  with  the  new  centres  on  Samos,  Kos  and  Leros  now  established.  EU 
Emergency  Assistance  is  supporting  the  construction  of  Multi-Purpose  Reception  and 
Identification  Centres  on  five  islands.  Thanks  to  transfers  to  the  mainland  and  over  4  800 
relocations to other Member States supported by EU funds, the total number of residents in 
camps  across  the  Greek  islands  is  now  some  4  400  people  (down  from  42  000  in  2019). 
Reception conditions  on the islands and on the  mainland (shelter, hygiene, access  to  health 
and education for all children etc.) have been substantially improved and are in line with the 
European standards. More efficient asylum procedures have seen the backlog of applications 
halve  in  the  first  four  months  of  2022  compared  to  the  same  period  in  2021.  Specific 
reception and care are provided for unaccompanied minors, new pre-integration measures for 
asylums seekers in reception centres such as language and skill development courses are in 
place, and new projects for integration of recognised refugees have been launched.   

Commission support to Spain for the management of migratory flows, including through the 
contribution  of  staff  from  the  Commission  and  EU  Agencies  (Frontex  and  EUAA),  has 
focused on the reform of the national reception system, recognising the pressures stemming 
from the increased migratory pressure. Reception capacity for asylum seekers increased from 
some 10 000 places in September 2021 to some 18 000 in September 2022. EU funding has 
also supported the reform of the Asylum Office, with a major increase in recruitment. Further 
funding will support the reception system in Ceuta and in the Canary Islands.  

Continued support to Italy includes coordinating with the Italian authorities the long-standing 
work  of  Frontex,  the  EU  Agency  for  Asylum  and  Europol,  including  via  the  EU  Regional 

49  Around 21 600 asylum applications were lodged in this period by Ukrainian nationals, the majority during a 

short-lived spike before the activation of the Temporary Protection Directive. 

9 

 
 
                                                           
 
Task Force in Catania, and the presence of EU staff on the ground, as well as EU funding. 
This  goes  hand  in  hand  with  the  work  together  with  the  Italian  authorities  in  addressing 
migratory flows from Libya and along the Central Mediterranean route. 

As  several  Member  States  noted  in  2022  an  increasing  number  of  asylum  applicants  from 
visa-required  third  countries  benefiting  from  visa-free  regimes  in  the  Western  Balkan 
region,  the  Commission  is  pursuing  this  issue  with  the  relevant  partners  bilaterally,  in  the 
framework of the visa suspension mechanism, and under the enlargement process. It remains 
crucial  that  Western  Balkan  partners  align  their  visa  policies  with  the  EU  for  the  good 
functioning of the EU’s visa free regime. 

Support to Cyprus 

Cyprus  is  facing  a  122%  increase  in  irregular  arrivals  compared  to  2021,  mainly  due  to 
arrivals from Turkey to the non-government controlled areas and then over the Green Line. 
Currently,  Cyprus  has  the  highest  number  of  asylum  seekers  per  capita  in  the  EU.  The 
Commission, with the EU Agencies, has stepped up support. A comprehensive action plan 
supports  the  implementation  of  a  joint  Memorandum  of  Understanding  on  migration 
management  agreed  between  the  Cypriot  authorities,  the  Commission  and  the  Agencies  in 
February 2022. This support includes more than 160 experts deployed on the ground by the 
Commission, Frontex, Europol and the EU Asylum Agency combined.  

Following  the  setting  up  of  a  tripartite  Return  Working  Group  with  Frontex  and  the 
Commission, Cyprus is steadily increasing returns, including through joint return operations 
organised by Frontex. Cyprus now ranks third among Member States for non-EU nationals 
returned by commercial flights with the support of Frontex, with the escort of forced returns 
helped by the deployment of return specialists in March. These efforts are backed up by EU 
outreach  to  the  countries  of  origin  and  transit  most  relevant  for  Cyprus,  including  Turkey, 
Nigeria, the Democratic  Republic of Congo, Pakistan and Cameroon. A key issue in  these 
contacts has been enrolments in fake “universities” in the non-government controlled areas 
of Cyprus, with those entering the island from Turkey on the basis of such enrolments and 
subsequently  attempting  to  cross  the  Green  Line.  The  Commission  has  engaged  in  intense 
outreach, in particular towards Turkey and the Turkish-Cypriot administration, to put an end 
to  practices  that  facilitate  such  irregular  arrivals.  EU-funded  information  campaigns  in 
countries of origin are complementing this work.  

Funding  for  Cyprus  under  the  2021-2027  Home  Affairs  Funds  includes  support  to  the 
construction  of  a  new  open  reception  centre  and  pre-departure  detention  centre,  with  safe 
zones for vulnerable people, recreational and common areas, medical and quarantine areas. 

As part of the gradual approach proposed by the French Presidency of the Council, particular 
attention was given to the solidarity dimension of the Pact. A large number of Member States 
endorsed  a  political  Solidarity  Declaration50  in  June  2022,  establishing  a  voluntary 
solidarity  mechanism,  also  paving  the  way  for  continued  discussions  on  the  Asylum  and 
Migration  Management  Regulation.  The  signatory  States51  asked  the  Commission  to 
coordinate  the  mechanism,  including  by  assessing  the  needs  of  the  Member  States  of  first 
entry,  and  monitoring  the  respect  of  the  commitments  made.  This  aims  to  ensure  adequate 
support  for  the  Member  States  of  first  entry  on  the  Central,  Eastern  and  Western 
Mediterranean/Atlantic  routes,  while  also  taking  account  of  the  pressure  on  all  Member 

50  First step in the gradual implementation of the European Pact on Migration and Asylum: modus operandi of 
a  voluntary  solidarity  mechanism  -  French  Presidency  of  the  Council  of  the  European  Union  2022 
(europa.eu)  

51  Along  with 18 Member States, Norway, Switzerland, Liechtenstein are also signatories of the Declaration, 

for which the voluntary solidarity mechanism is also open. 

10 

 
 
                                                           
States caused by Russia’s invasion of Ukraine. The mechanism is  temporary, spanning one 
year, and voluntary. Relocation is the preferred type of solidarity, but Member States can also 
provide  financial  contributions,  under  the  coordination  of  the  Commission.  It  is  kept  under 
active  review  and  may  be  extended.  While  relocations  concern  persons  in  need  of 
international protection and prioritise the most vulnerable, funding contributions can also be 
directed to projects in partner countries.  

To  coordinate  the  implementation  of  the  mechanism,  the  Commission  has  established  a 
Solidarity  Platform  on  the  Voluntary  Solidarity  Mechanism  (Solidarity  Platform  ‘Pact’), 
which  it  chairs  in  cooperation  with  the  Presidency  of  the  Council.  So  far,  13  Member  and 
associated States have agreed to offer relocations, and others have agreed to provide financial 
contributions.  The  first  results  of  the  Declaration  are  starting  to  be  seen,  with  a  transfer  of 
asylum seekers already in August and more in the pipeline. The Commission is working with 
pledging countries, the EU Agency for Asylum and IOM to accelerate the pace of transfers. 
As  the  Declaration  itself  underlines,  this  temporary  mechanism  will  provide  useful  lessons 
for the solidarity elements in the legislative proposals, and will be taken into account in the 
ongoing  negotiations  to  put  in  place  a  permanent,  structured  and  predictable  solidarity 
mechanism.  

Funding 

The  ongoing  adoption  of  national  programmes  for  2021-2027  will  allow  Member  States  to 
draw  on  significant  additional  financial  resources.  The  Home  Affairs  Funds  give  direct 
support  to  strengthening  national  asylum  and  migration  systems  and  building  long-term, 
sophisticated  border  management  and  surveillance  solutions  in  line  with  EU  values  and 
Union law. By mid-September, 15 out of 78 Member States programmes had been adopted, 
with  remaining  programmes  to  be  adopted  by  the  end  of  the  year.  The  Commission  is 
progressing  in  line  with  the  envisaged  planning  for  the  implementation  of  the  Thematic 
Facility Work Programmes 2021-2022.  

EU Agencies’ support to Member States 

The EU Agency for Asylum, succeeding the European Asylum Support Office, stepped up 
its  operations  in  January  2022  when  the  Regulation  establishing  the  Agency  entered  into 
force52. The Agency currently supports 12 Member States53 with their asylum, reception and 
temporary protection needs, deploying over around 1000 experts. 

Europol also plays an essential part in working with Member States to ensure that migration 
management  comes  with  the  necessary  degree  of  security.  Europol  currently  supports  nine 
Member States and Moldova with deployments of Europol officers and guest officers. 

Frontex has more than 2000 officers deployed, as well as technical equipment, at land, sea 
and  air  external  borders  and  in  support  of  returns.  To  address  persistent  capability  gaps, 
resulting  in  shortfalls  in  planned  deployments,  it  is  crucial  that  Member  States  fulfil  their 
obligations and contribute their share.   

Frontex 

Recent  events  have  confirmed  Frontex’  essential  role  in  assisting  Member  States,  on 
border  management,  surveillance  and  returns.  It  has  also  extended  its  work  with  partner 
countries, including through formal status agreements (see Section 7). 

As Frontex’s role has expanded, it has undergone a challenging transition process. While 
protecting  the  EU  external  border,  it  is  imperative  that  any  measures  taken  are  in  full 
compliance with the Charter of Fundamental Rights and EU values. The Commission 

52  Regulation (EU) 2021/2303 of 15 December 2021 on the European Union Agency for Asylum.   
53  Bulgaria, Belgium, Cyprus, Czechia, Greece, Spain, Italy, Latvia, Lithuania, Malta, Netherlands, Romania. 

11 

 
 
                                                           
takes  allegations  of  inappropriate  conduct  of  European  border  and  coast  guards  very 
seriously,  and  follows  up  with  the  Member  States  concerned,  while  monitoring  the 
progress made by the Agency in the implementation of all relevant recommendations. The 
Commission  welcomes  the  Agency’s  reinforced  framework  for  fundamental  rights 
monitoring, with the Fundamental Rights Officer and Deputy now in place. By November 
2022,  the  total  number  of  fundamental  rights  monitors  will  reach  46.  In  June  2022,  the 
Fundamental  Rights  Officer  published  an  annual  report  for  2021,  with  overview  of  the 
monitoring  and  advisory  activities54.  The  Fundamental  Rights  Officer  also  reports 
regularly to the Management Board. 
As provided in the European Border and Coast Guard Regulation55, the Commission will 
conduct  an  evaluation  by  5 December  2023,  looking  at  the  effectiveness,  efficiency, 
relevance and coherence of the actions undertaken by Frontex, and their EU added value, 
including  the  governance  structure  of  the  Agency  and  the  oversight  by  the  Management 
Board.  In  the  lead  up  to  the  evaluation,  the  Commission  will  launch  a  dialogue  with 
Parliament and Council on the Agency’s governance.  

Unauthorised movements 

Secondary movements within the EU undermine the credibility and integrity of the Common 
European  Asylum  System.  While  it  is  difficult  to  collect  reliable  data  on  such  movements, 
Eurodac can provide data on departures and destinations, and can show if a person registered 
in  one  Member  State  had  already  registered  at  least  one  asylum  application  in  another 
Member State56. Similarly, it can show if, following the registration of an asylum application 
in  one  Member  State,  a  person  was  apprehended  as  staying  irregularly  in  another  Member 
State57.  

In  June  2022,  the  Member  States,  the  Commission  and  the  EU  Asylum  Agency  agreed  to 
work on a roadmap in order to ensure better implementation of transfers under the Dublin 
III Regulation58. The roadmap will set out the practical steps Member States should commit 
to take to overcome the main obstacles Member States currently face with transfers. The first 
meeting of the expert group formed of volunteer Member States took place on 8 September 
2022. The roadmap is expected to be finalised and endorsed by the end of the year. 

The  Pact  aims  to  bring  structural  solutions  and  reduce  incentives  for  unauthorised 
movements,  with  more  accurate  and  complete  data.  In  the  Solidarity  Declaration,  Member 
States  stressed  their  commitment  to  tackle  secondary  movements  by  increasing  the  pace  of 
Dublin  transfers59,  while  acknowledging  the  importance  of  ensuring  that  beneficiaries  of 
international protection have access to legal mobility between Member States.  

54  Frontex Fundamental Rights Office releases annual report (europa.eu) 
55  Regulation (EU) 2019/1896 of 13 November 2019 on the European Border and Coast Guard. 
56  In  the  first  half  of  2022,  166 864  asylum  applications  registered  by  national  authorities  generated  a 
“Category 1 - Category 1 hit” in Eurodac, meaning that the person had already registered at least one asylum 
application in another Member State/ Associated State. 

57  In  the  first  half  of  2022,  83 339  searches  in  Eurodac  in  connection  with  fingerprints  of  illegal  stayers 
(Category 3 data in Eurodac) generated hits with Category 1 data, meaning that, following a registration of 
an asylum application in one Member State/ Associated State, a person was apprehended as illegal stayer in 
another Member State/ Associated State. 

58  Regulation (EU) No 604/2013 establishing the  criteria and  mechanisms for determining the Member State 
responsible for examining an application for international protection lodged in one of the Member States by 
a third-country national or a stateless person (recast). 

59  In case a person applies for international protection in a Member State that is not responsible for examining 
that application pursuant to the criteria set out in the Dublin III Regulation, the Member State can request a 
transfer to the Member State that is responsible for examining the application. 

12 

 
 
                                                           
The proposal to amend the Schengen Borders Code60 introduces a new transfer procedure to 
address unauthorised movements and allows Member States to revise existing or to conclude 
new  bilateral  readmission  agreements  between  themselves.  Whereas  the  reintroduction  of 
internal border control should remain a measure of last resort, the proposal also provides for 
the  possibility  to  justify  the  reintroduction  of  internal  border  controls  due  to  large-scale 
unauthorised movements. 

5.  EXTERNAL BORDER MANAGEMENT AND RETURN 

External border management is a core part of the approach of the Pact. It is also one of the 
priorities of the Schengen Strategy61, now taken forward through an annual Schengen cycle - 
a new governance model for the Schengen area - and with progress tracked in the first report 
on the State of Schengen62, adopted in May.  
A key tool for strong border management is  European integrated border  management63. 
The Commission has consulted the Parliament and the Council on the future direction, calling 
for  a  strong  and  cohesive  operational  approach  on  border  control,  search  and  rescue,  risk 
analysis, inter-agency, EU and international cooperation, return, fundamental rights, research 
and innovation, and training. 

The  Commission,  eu-LISA  and  the  Member  States  have  stepped  up  efforts  to  develop  and 
implement  the  new  IT  architecture  and  interoperability.  This  will  give  border  guards 
improved means to control entry into the EU and to manage risks related to security, health or 
irregular migration. The Schengen Information System (SIS) is the largest and most widely 
used  information-sharing  system  for  security  and  border  management  in  Europe.  From 
autumn  2022,  information  on  return  decisions  will  be  shared  in  the  system,  to  improve 
enforcement.  New  information  systems,  such  as  the  Entry/Exit  System  (EES),  will  help 
improve  the  quality  and  efficiency  of  controls  and  the  detection  of  document  and  identity 
fraud.  The  European  Travel  Information  and  Authorisation  System  (ETIAS)  will  help 
identify any security or irregular migration risks from visa-exempt visitors before they reach 
the EU borders. Interoperability will further help to correctly identify persons whose data are 
stored in these IT systems, and thus to combat identity fraud.  As set out in the Commission 
Report  on  the  Implementation  of  the  Interoperability  Regulations64,  it  is  essential  that  eu-
LISA  and Member States catch up on the delays and ensure that the  IT systems for border 
and migration management become fully operational by the end of 2023.  

External  border  management  would  also  be  facilitated  by  the  Commission  proposal  on  the 
digitalisation of visa procedures65. Its main goal is to modernise the lodging and processing 
of  visa  applications,  making  them  more  efficient  and  harmonised  among  Member  States, 
reinforcing both security and the EU’s attractiveness as a travel destination.  

60  Proposal for a Regulation on a Union Code on the rules governing the movement of persons across borders 

(COM/2021/891 final, 14 December 2021). 

61  Communication "A strategy towards a fully functioning and resilient Schengen area" (COM(2021) 277 final, 

2 June 2021). 

62  Communication “State of Schengen Report 2022” (COM(2022) 301 final/2, 24 May 2022). 
63  Policy  document  developing  a  multiannual  strategic  policy  for  European  integrated  border  management 

(COM(2022) 303 final, 24 May 2022). 

64  Report  on  the  state  of  play  of  preparations  for  the  full  implementation  of  the  Interoperability  Regulations 

(COM(2021) 688 final, 10 November 2021). 

65  Proposal for a Regulation as regards the digitalisation of the visa procedure (COM(2022) 658 final, 27 April 

2022). 

13 

 
 
 
 
                                                           
Actions to step up returns  

The common EU system for return is taking shape and important steps have been taken to 
build the foundation for more efficient, sustainable and humane returns from the EU. While 
working on the structural reform of the migration and asylum policy, it is also important to 
ensure the full respect of existing EU law. On 29 September 2022, the Commission adopted a 
series of infringement cases related to the non-compliance of Member States’ legislation and 
practice with EU law standards and procedures in the area of return. 

A particular theme of action has been to step up the rate of returns from the EU, notably with 
the lifting of restrictions triggered by the pandemic. The return of people with no right to stay 
in  the  EU  is  an  indispensable  part  of  a  fair  and  effective  migration  policy.  After  a  Covid-
related  drop  in  2020,  the  effective  return  rate  increased  to  21%  in  2021,  while  remaining 
below the 2019 level of 29%. In absolute terms, over 70 000 third-country nationals returned 
following an order to leave in 2021, around half the number that returned in 2019. The EU 
and  Member  States  need  to  continue  work  both  to  ensure  return  procedures  work  correctly 
inside  the  EU,  and  to  enhance  cooperation  on  readmission  with  partners  worldwide.  Such 
cooperation  has  proved  fruitful  in  enhancing  returns  to  countries  such  as  Bangladesh  and 
Pakistan,  and  helped  those  Member  States  most  directly  affected  by  irregular  migration 
flows, such as Greece, Malta, and Cyprus. 

Since June, the Return Coordinator announced in the Pact has been  steering a High-level 
Network  including  Member  State  representatives  and  Frontex.  The  first  meeting  of  the 
Network took place on 8 September 2022. To guide their joint work, the Coordinator and the 
Network  will  define  and  implement  a  common  and  coherent  approach  and  an  operational 
strategy  on  returns,  which  is  under  preparation.  This  operational  strategy  will  identify 
practical priority activities for addressing shortcomings and increasing mutual coherence. The 
result will be to further develop national policy and legal frameworks – including better links 
between asylum and return procedures in practice – removing the barriers hampering returns, 
reinforcing  national  capacities,  addressing  knowledge  gaps  and  improving  cooperation 
between Member States and with Frontex.  

This  strategic  approach  is  backed  up  with  practical  action.  First,  Frontex  has  established 
itself as a key actor in the area of return, significantly stepping up the support it provides to 
Member  States  in  all  phases  of  the  process  –  in  particular  on  voluntary  return  and 
reintegration. So far in 2022, Frontex had coordinated 210 return operations for 7 210 non-
EU  nationals  through  charter  planes  organised  by  the  Agency,  and  10  115  through 
commercial  flights.  2022  saw  the  first  two  Frontex-led  operations  to  return  40  irregular 
migrants  to  Albania  and  40  to  Nigeria.  Since  April  2022,  Frontex  also  offers  support  for 
reintegration in 24 countries of origin. The high expectations and growing role of this Agency 
in  support of Member States means that clear priorities need to  be identified and resources 
strategically allocated. 
The  April  2021  EU  strategy  on  voluntary  return  and  reintegration66  has  been  taken 
forward.  The  framework,  structures  and  tools  are  now  largely  in  place  to  ensure  that 
voluntary return and reintegration are streamlined in the common EU system for return. Early 
signs from the figures reported for 2021 suggest that uptake of voluntary return is increasing. 
In  addition,  for  the  first  time,  in  2021  more  than  half  of  the  returns  by  scheduled  flights 
facilitated by Frontex were voluntary  (57% in 2021, 58% so far in 2022, up from 38.5% in 
2020). Key tools such as the Frontex Joint Reintegration Services, a common framework for 
reintegration  providers  and  training  for  return  counsellors,  are  now  in  place  to  improve  the 
quality  of  the  support  provided  to  irregular  migrants  willing  to  return.  Work  needs  to 

66  Communication on the EU strategy on voluntary return and reintegration (COM(2021) 120 final, 27 April 

2021). 

14 

 
 
                                                           
continue  on  this  path  to  make  full  use  of  these  new  tools,  in  full  coordination  with  the 
European External Action Service and EU Delegations in third countries, and to ensure that 
voluntary return and reintegration become a central part of Member States’ return systems.  

Finally, return and readmission are now firmly anchored in the new comprehensive approach 
to  deepening  partnerships  with  third  countries  on  migration  set  out  in  the  Pact.  Section  7 
below  sets  out  how  migration  is  becoming  embedded  in  modernised,  comprehensive 
partnerships worldwide.  Readmission is  being addressed  as  an essential  part of relations so 
that progress can be made across a variety of issues of mutual interest.  

The Commission has stepped up the political focus on readmission in external relations, by 
relaunching  discussions  during  high  level  bilateral  contacts  and  missions,  and  coordinating 
relevant messages with Member States. It is using all the tools at its disposal to underline the 
importance  of  return  as  one  integral  part  of  migration  policy.  The  Commission  and  the 
Member  States  have  assessed  the  existing  mandates  for  negotiations  of  EU  Readmission 
Agreements  and  discussed  a  pragmatic,  tailormade  and  flexible  approach  to  make  concrete 
progress in ongoing negotiations. The Commission is actively pursuing this approach, and the 
European  External  Action  Service  and  EU  Delegations  raise  readmission  in  their  contacts 
with key partner countries on migration.  
The implementation  of the mechanism set  up by  Article 25a of the Visa  Code67  provides a 
structured approach to improving cooperation on readmission with third countries by setting a 
framework  to  look  at  this  in  the  context  of  the  overall  state  of  relations  and  linking 
cooperation on readmission with the EU visa policy (see Section 7 below). 

The  international  situation  has  also  required  action  by  the  EU  to  reverse  previous  visa 
facilitation.  On  9  November  2021,  the  Council  adopted  the  Commission  proposal  on  the 
partial suspension of EU-Belarus visa facilitation68. A partial suspension of the EU-Russia 
Visa Facilitation Agreement69 was adopted on 25 February 2022, targeting holders of Russian 
diplomatic  passports,  Russian  government  officials  and  business  people.  On  9  September 
2022  the  Visa  Facilitation  Agreement  with  Russia  was  suspended70,  and  the  Commission 
issued guidelines71 on granting of visas and handling of existing ones. The Commission has 
issued guidance72 on arrivals of Russians in the context of the escalation of the war. 

6.  ADVANCING ON THE PACT  

Recent migration-related developments, coupled with the continuous pressure stemming from 
irregular  migration  on  several  routes,  show  a  sustainable  and  fair  EU  migration  system  is 
indispensable. The Pact on Migration and Asylum is ever more relevant. 

67  Regulation 810/2009 of 13 July 2009 establishing a Community Code on Visas (Visa Code). 
68  Council  Decision  2021/1940  of  9  November  2021  on  the  partial  suspension  of  the  application  of  the 

Agreement between the EU and the Republic of Belarus on the facilitation of the issuance of visas.  

69  Council  Decision  2022/333  of  25  February  2022  on  the  partial  suspension  of  the  application  of  the 
Agreement between the European Community and the Russian Federation on the facilitation of the issuance 
of visas to the citizens of the European Union and the Russian Federation.  

70  Council  Decision  2022/1500  of  9  September  2022  on  the  suspension  in  whole  of  the  application  of  the 
Agreement between the European Community and the Russian Federation on the facilitation of the issuance 
of visas to the citizens of the European Union and the Russian Federation.  

71  Communication from the Commission “Providing guidelines on general visa issuance in relation to Russian 
applicants following Council Decision (EU) 2022/1500 of 9 September 2022 on the suspension in whole of 
the  application  of  the  Agreement  between  the  European  Community  and  the  Russian  Federation  on  the 
facilitation  of  the  issuance  of  visas  to  the  citizens  of  the  European  Union  and  the  Russian  Federation” 
(C(2022) 6596, 9 September 2022). 

72  Communication updating guidelines on general visa issuance in relation to Russian applicants and providing 
guidelines on controls of Russian citizens at the external borders (C(2022) 7111 final, 30 September 2022). 

15 

 
 
                                                           
The  political  agreement  reached  on  7  September  2022  on  a  joint  roadmap  between  the 
European Parliament and the rotating Presidencies of the Council of the EU73 lays the 
groundwork for an  increased dialogue on the Pact,  providing impetus  for  the conclusion of 
negotiations by February 2024 on all pending legislative files related to asylum and migration 
management.  Negotiations  from  autumn  2022  should  ensure  equivalent  and  balanced 
progress, and the follow-up work involving the members of the European Parliament Asylum 
Contact Group and the rotating Presidencies of the Council will be key in this respect.    

On the Council side, the gradual approach of the French Presidency, implying an equivalent 
level  of  commitment  by  Member  States  in  both  areas  of  solidarity  and  responsibility,  has 
brought  significant  progress  towards  the  adoption  of  the  full  legislative  framework.  The 
Council adopted negotiating mandates on the Screening and Eurodac74 legislative proposals. 
Advancing on these files is crucial for  strengthened protection of the EU external border to 
alleviate  pressure  on  the  Schengen  area.  The  new  Eurodac  will  help  track  unauthorised 
movements  and  irregular  migration,  improve  the  prospects  for  returns,  record  the  arrivals 
following  search-and-rescue  operations,  and  complete  the  interoperability  framework.  The 
Screening proposal will ensure fast identification of the correct procedure – asylum or return 
–  at  the  border  or  within  the  territory.  The  Commission  welcomes  the  Czech  Presidency’s 
work on solidarity and the Asylum Procedures Regulation. Member States are encouraged to 
find  agreement  on  the  Asylum  and  Migration  Management  and  the  Asylum  Procedure 
Regulations, as well as on the proposals that address various forms of crises in the field of 
migration75.  

On the Parliament side, the rapporteurs presented draft reports on all legislative proposals that 
accompanied the Pact in 2020, as well as on the recast of  the Return Directive proposed in 
2018. The European Parliament Asylum Contact Group is helping in the work towards swift 
adoption  of  all  reports,  in  line  with  the  commitment  taken  in  the  joint  roadmap.  Starting 
negotiations  on  Eurodac,  the  Asylum  and  Migration  Management  and  the  Asylum 
Procedures Regulations and finalising the work on the well-advanced files proposed in 2016 
as part of the broader asylum reform would bring immediate benefits in terms of enhancing 
migration  management  and  giving  a  coherent  EU  response  to  evolving  challenges.  In 
particular, the provisional agreement on the Union Resettlement Framework Regulation76 
reached in 2018 needs to be taken forward, to give the EU a stable and predictable framework 
for  resettlement  and  humanitarian  admission  policies.  Provisional  agreement  between 
Parliament  and  Council  was  also  reached  in  June  2018  on  the  recast  of  the  Reception 
Conditions  Directive77  and  the  Qualification  Regulation78.  Work  should  also  advance  on 
the new legislative framework on return, with a view to reach an agreement on the proposal 
for  a  recast  of  the  Return  Directive,  as  set  out  in  the  Pact.  Negotiations  should  restart  to 
address the outstanding points in these files. 

73  France, Czechia, Sweden, Spain and Belgium. 
74  Proposal  for  a  Regulation  introducing  a  screening  of  third  country  nationals  at  the  external  borders 
(COM(2020) 612 final, 23 September 2020), and Amended proposal for a Regulation on the establishment 
of “Eurodac” (COM/2020/614 final, 23 September 2020). 

75  Proposals for a Crisis and Force Majeure Regulation (COM (2020) 613 final, 23 September 2020), and the 
Regulation to address situations of instrumentalisation in the field of migration and asylum (COM(2021) 890 
final, 14 December 2021). 

76  Proposal  for  a  Regulation  establishing  a  Union  Resettlement  Framework  (COM(2016)  468  final,  13  July 

2016). 

77  Proposal  for  a  Directive  laying  down  standards  for  the  reception  of  applicants  for  international  protection 

(recast) (COM(2016) 465 final, of 13 July 2016). 

78  Proposal for a Regulation on standards for the qualification of third-country nationals or stateless persons as 
beneficiaries  of  international  protection,  for  a  uniform  status  for  refugees  or  for  persons  eligible  for 
subsidiary protection and for the content of the protection granted (COM/2016/0466 final, 13 July 2016). 

16 

 
 
                                                           
In  December  2021,  the  Commission  proposed  a  Regulation  to  address  situations  of 
instrumentalisation  in  the  field  of  migration  and  asylum79.  This  would  set  a  stable 
framework  under  the  EU  asylum  and  return  rules  clarifying  how  Member  States  could 
manage  such  situations  in  full  respect  of  EU  law,  fundamental  rights  and  international 
obligations.  It  would  end  the  need  to  resort  to  ad  hoc  measures  in  future  situations  of 
instrumentalisation  of  migrants,  as  defined  in  the  revised  Schengen  Borders  Code.  The 
Commission  invites  Parliament  and  Council  to  step  up  their  work  on  this  proposal,  which 
completes the comprehensive approach to migration and asylum put forward in the Pact, and 
examine it alongside the proposal on a Crisis and force majeure Regulation.  

The Commission is also looking forward to the start of negotiations between Parliament and 
Council on the proposal of December 2021 to amend the Schengen Borders Code, following 
the adoption of the Council’s negotiation mandate in June.  

Two  to  three  million  non-EU  nationals  already  come  legally  to  the  EU  every  year.  An 
ambitious  and  sustainable  legal  migration  policy  is  a  key  component  of  the  Pact’s 
comprehensive  approach.  The  Skills  and  Talent  package80  aims  to  address  labour  market 
needs  linked  to  current  demographic  trends  and  skill  shortages  in  the  EU  and  prepare  for 
future needs. The package includes legal, operational and policy initiatives to benefit the EU's 
economy, strengthen cooperation and partnerships with non-EU countries and improve long-
term  migration  management.  Forward-looking  policies  for  legal  migration  to  the  EU  in  the 
medium  to  the  longer  term  will  be  focused  around  three  areas  of  action:  care,  youth  and 
innovation. These policies aim to attract skills and talent in sectors where there are pressing 
labour shortages and needs. The recast of the Directive on long-term residents81 will further 
improve  the  rights  and  the  intra-EU  mobility  of  those  migrants  who  are  already  well 
integrated  in  our  societies,  while  the  recast  of  the  Single  Permit  Directive82  will  further 
streamline  and  simplify  the  admission  procedures  for  the  benefit  of  employers,  migration 
authorities  and  migrants  themselves,  and  improve  the  protection  of  non-EU  workers.  The 
start  of  the  discussions  in  Parliament  and  Council  on  these  proposals  will  contribute  to 
establishing a solid framework to attract new talent to the EU. In addition, as announced by 
President von der Leyen in her State of the Union address, 2023 will be the European Year of 
Skills. The Commission will work on targeted action on recognition of qualifications of third 
country nationals  to  further help  to  attract  talents  to  the European labour market from  third 
countries. 

An ambitious and sustainable legal migration policy also builds on the correct transposition, 
as well as effective application and enforcement, of the legislation in place. The Commission 
will continue to step up its efforts in cooperation with the Member States to ensure the proper 
and  effective  implementation,  application  and  enforcement  of  the  Seasonal  Workers 
Directive83 and the Employers Sanctions Directive84. To better protect third-country nationals 

79  Proposal for a Regulation addressing situations of instrumentalisation in the field of migration and asylum 

(COM(2021) 890 final, 14 July 2021). 

80  Communication “Attracting skills and talent to the EU” (COM/2022/657 final, 27 April 2022). 
81  Proposal for a Directive concerning the status of third-country nationals who are long-term residents (recast) 
(COM(2022) 650 final, 27 April 2022). The negotiations on this proposal should also take into account the 
proposal from the Commission amending the Directive to allow for long-term residence for beneficiaries of 
international  protection  after  three  years  in  the  proposal  for  an  Asylum  and  Migration  Management 
Regulation.  

82  Proposal for a Directive on a single application procedure for a single permit for third-country nationals to 
reside and work in the territory of a Member State and on a common set of rights for third-country workers 
legally residing in a Member State (recast) (COM(2022) 655 final, 27 April 2022). 

83  Directive 2014/36/EU of 26 February 2014 on the conditions of entry and stay of third-country nationals for 

the purpose of employment as seasonal workers. 

84  Directive 2009/52/EC of 18 June 2009 providing for minimum standards on sanctions and measures against 

employers of illegally staying third-country nationals. 

17 

 
 
                                                           
–  including  Ukrainians  –  from  labour  exploitation,  the  Commission  cooperates  with  the 
European Labour Authority, including in the European Platform Tackling Undeclared Work. 
The Commission proposed a Regulation on prohibiting products made with forced labour on 
the Union market85.    

7.  WORKING WITH INTERNATIONAL PARTNERS  

Engagement with key partners on migration and forced displacement 

The  external  dimension  is  an  essential  component  of  the  comprehensive  approach  put 
forward in  the Pact.  Over the past  year, the EU has  intensified its engagement with  partner 
countries  and  stepped  up  its  work  to  pursue  mutually  beneficial  cooperation  in  the  area  of 
migration, including in the multilateral context. To build lasting cooperation, it is crucial for 
the EU and its Member States to speak with one voice with the partner countries in a Team 
Europe  approach,  as  well  as  to  provide  tailor-made  support  addressing  their  needs. 
Partnerships  span  the  full  range  of  cooperation  on  migration  and  forced  displacement.  The 
partnership  approach  equally  relies  on  partner  countries’  engagement  with  the  EU  and 
Member States in a true spirit of cooperation and mutual respect.  
Responding  to  the  European  Council  Conclusions  of  24-25  June  202186,  comprehensive 
action plans are in place to enhance cooperation with ten key partner countries, building on 
earlier progress and setting out further concrete objectives, timelines and support measures to 
enhance  international  cooperation.  These  action  plans,  built  on  discussions  with  Member 
States, aim to ensure coordination and synergy of actions, projects and resources, focusing on 
operational cooperation with individual partner countries.  

As part of the gradual approach and to build strong coherence between the EU’s and Member 
States’  bilateral  work  on  the  external  dimension  of  the  Pact,  the  French  Presidency  of  the 
Council  launched  a  new  coordinating  body  in  the  Council:  the  Operational  Coordination 
Mechanism  for  the  External  Dimension  of  Migration  (Mocadem).  Together  with  the 
strategic  discussions  in  the  External  Migration  Working  Party  (EMWP),  Mocadem’s 
operational  focus  helped  to  consolidate  a  common  strategic  tailor-made  approach  towards 
specific  partners.  Work  continues  to  ensure  coordination  and  complementarity  between 
activities funded by Member States and EU funds. The Commission and Member States share 
information and coordinate their approach on the  regional and bilateral  actions  they plan to 
finance in the area of migration and forced displacement, in line with the political objectives 
set in the EMWP and Mocadem, and with the agreed Multiannual Indicative Programmes, in 
the  Coordination  Group  on  Migration  under  the  NDICI-Global  Europe  and  the 
Member States bilateral cooperation instruments. 

In visits and political dialogue this year, a comprehensive and balanced approach has placed 
migration  and  forced  displacement  in  the  context  of  our  broader  bilateral  and  regional 
relations,  in  Morocco,  Tunisia,  Egypt,  Libya,  Algeria,  Mauritania,  Senegal,  Niger,  Nigeria, 
Ethiopia, Pakistan, Bangladesh, Iraq, Jordan, Lebanon, Turkey and the Western Balkans, the 
African Union, as well as the Rabat, Prague and Khartoum processes.  

Successful outreach – countering the instrumentalisation of migrants by Belarus  

Timely,  resolute  and  united  EU  outreach  to  partners  can  bring  impressive  results,  as 
demonstrated  by  the  response  to  the  Belarusian  regime’s  instrumentalisation  of  migrants. 
The  High  Representative,  Vice-President  Schinas  and  several  Commissioners  had  high-

85  Proposal  for  a  Regulation  on  prohibiting  products  made  with  forced  labour  on  the  Union  market 

(COM(2022) 453 final, 14 September 2022). 
86  2425-06-21-euco-conclusions-en.pdf (europa.eu)  

18 

 
 
                                                           
level  contacts  with  countries  of  origin  and  transit,  as  well  as  with  airline  companies  and 
civil aviation authorities, to build a coalition to counter this hybrid attack. In coordination 
with  high-level  outreach  by  the  Member  States,  Vice-President  Schinas  visited  Iraq,  the 
United  Arab  Emirates,  Lebanon,  Turkey  and  Uzbekistan.  Joint  demarches  were  made  by 
EU  Delegations  with  Member  States,  and  by  Member  States  acting  bilaterally,  in 
Kazakhstan, India, Georgia, Ukraine, Turkey and Uzbekistan. The result was a substantial 
reduction of flights to Minsk, travel limitations for certain nationalities at key airports and a 
significant  number  of  returns  and  repatriations,  notably  due  to  the  impressive  efforts  of 
Iraq.  The  Commission  adapted  ongoing  projects  to  spread  awareness  of  the  dangers  of 
instrumentalisation  (for  example,  in  Iraq,  Turkey,  and  Syria)  and  worked  with  IOM  to 
support the voluntary return and reintegration of migrants from Belarus to their countries of 
origin.  

The  EU  also  acted  swiftly  to  protect  both  the  instrumentalised  people  and  the  Union’s 
external borders87. The Commission and EU Agencies worked closely with the Lithuanian, 
Polish  and  Latvian  authorities  to  reinforce  border  protection,  fight  migrant  smuggling, 
strengthen asylum and reception capacity and improve returns. The EU border with Belarus 
needs  continued  vigilance.  The  proposed  norms  on  sanctions  for  airline  operators  remain 
relevant and need to be adopted quickly. 

The  significant  flows  across  the  Mediterranean  have  required  continued  attention  from  the 
EU  in  2022.  Engagement  with  Morocco  this  year  confirmed  a  strong  joint  commitment  to 
continue the dialogue and cooperation in all areas related to migration, including the regional 
dimension,  return,  Talent  Partnerships  and  fighting  migrant  smuggling88.  In  Libya,  despite 
the  challenging  political  environment,  the  EU  is  engaging  to  address  fundamental  needs  in 
terms  of  protection  of  vulnerable  migrants  and  refugees,  and  the  combatting  of  migrant 
smuggling, including through CSDP missions. EU engagement with Niger and Mauritania 
also demonstrated clear willingness on both sides to address migratory flows and to cooperate 
with the EU. Trilateral cooperation between the  African Union (AU), the EU and the UN 
has been particularly effective in addressing protection issues in Libya over the last five years 
and work is now under way to reinvigorate cooperation.  

At the February 2022 European Union (EU)-African Union (AU) Summit, leaders agreed 
on  an  enhanced  partnership  for  migration  and  mobility,  as  set  out  in  the  Summit  Joint 
Declaration  (A  Joint  Vision  for  2030)89.  Throughout  the  year,  partners  have  also  deepened 
their  cooperation  in  the  context  of  the  AU-EU  Continent-to-Continent  Migration  and 
Mobility Dialogue.  

The  EU  welcomed  the  adoption  of  the  Progress  Declaration  on  the  implementation  of  the 
Global Compact for Migration at the May 2022 International Migration Review Forum.  

The  EU  is  working  in  unprecedentedly  strong  cooperation  with  the  United  States  and 
Canada,  through  a  series  of  high-level  dialogues  on  migration-related  issues  from 
Afghanistan to Latin America, in addition to the close cooperation on support to those fleeing 
Russia’s invasion of Ukraine (see Section 2 above).  

Protecting forcibly displaced people and supporting host countries  

By  the  end  of  2021,  those  displaced  by  war,  violence,  persecution,  human  rights  abuses, 
stood at over 89.3 million, up 8% compared to a year earlier and well over double the figure 

87  See Joint Communication “Responding to state-sponsored instrumentalisation of migrants at the EU external 

border” (JOIN(2021) 32 final, 23 November 2021). 

88  According to the Spanish authorities, in 2022 as  of September, the Moroccan authorities intercepted about 

25% of the departures. 

89  https://www.consilium.europa.eu/media/54412/final_declaration-en.pdf 

19 

 
 
                                                           
of 10 years ago. Since then, the Russian invasion of Ukraine and other emergencies, in cases 
like Afghanistan, Syria, Venezuela, and South Sudan, has pushed the figure over 100 million. 
In line with the EU’s global commitments, engagement in this area has moved progressively 
from  a  short-term  humanitarian  approach  to  a  longer-term  developmental  approach, 
promoting durable solutions for forcibly displaced people and their host communities, in line 
with  the  humanitarian/development/peace  nexus90.  The  EU  is  a  leading  global  actor  and 
donor in improving the protection and assistance to forcibly displaced people and their hosts, 
saving lives and laying the foundations for durable solutions.  

-  Support to internally displaced persons in Ukraine 
The humanitarian situation in Ukraine remains alarming, with an enormous toll on civilians, 
notably  in  the  south  and  east.  17.7  million  people  are  in  need,  over  a  third  of  the  total 
population. Despite difficult access, the international humanitarian response has helped over 
13.3  million  people  across  the  country,  through  good  cooperation  between  the  EU,  United 
Nations,  international  NGOs  and  international  organisations.  EU  humanitarian  funding  has 
also supported those who fled to Moldova.  

The EU is drawing on all possible means to help alleviate the situation inside Ukraine. The 
Union Civil Protection Mechanism (UCPM) has run its largest ever operation delivering by 
the end of September over 68 500 tonnes of assistance, including shelter units. 300 generators 
and fuel were delivered, and preparations for the coming winter needs are under way. Almost 
1 500 patients with severe conditions have been evacuated to the EU.  

The EU  is  also  supporting  Ukraine’s  Fast  Recovery Plan for schools, most  recently,  with  a 
commitment to fund €100 million urgent repairs of schools and kindergartens.  

-  Support to forcibly displaced people and host communities in Syria, Lebanon, Jordan, 

Turkey and Iraq 

After  eleven  years,  the  Syrian  crisis  continues  to  affect  regional  stability,  leaving  many  in 
need of assistance. The EU and its Member States remain committed to support efforts for a 
political solution in line with the UN Security Council Resolution 225491, allowing displaced 
Syrians  to  return  home  when  safe,  voluntary  and  dignified  conditions  are  in  place92.  The 
Commission’s priority remains to promote a transition in Syria, while mitigating the impact 
of the crisis, through direct support to the population. All support is implemented under strict 
operational parameters. The EU continues showing solidarity with Lebanon maintaining its 
level of support for Syrian refugees and vulnerable Lebanese alike, ensuring access to basic 
services, while also helping host communities, as well as monitoring departures. The EU also 
provides  support to  help  Jordan  cope with  the health and socio-economic consequences of 
the  pandemic,  and  actions  linked  to  the  Syrian  crisis.  Support  for  the  integration  of  Syrian 
refugees into national systems is also foreseen in Iraq.  

The  March  2016  EU-Turkey  Statement  remains  the  key  framework  governing  EU-Turkey 
cooperation in the area of migration, and the EU underlines the importance of implementing 
all  commitments  under  the  Statement.  The  EU  continues  in  particular  to  urge  Turkey  to 
resume  return  operations  from  Greece,  in  line  with  the  commitment  taken  under  the 
Statement, as well as to prevent irregular migration to EU Member States. Turkey is hosting 
one  of  the  largest  refugee  populations  worldwide,  some  4  million  people,  including  3.7 
million  Syrians.  The  EU  continues  to  assist  Turkey’s  efforts  and  is  mobilising  additional 
funding  for  refugees  and  their  host  communities.  The  Facility  for  Refugees  in  Turkey  will 
transition  from  humanitarian  to  development  assistance  for  education  and  basic  needs  by 

90  EU action takes place in line with the Communication “Lives in Dignity” (COM(2016)234, 26 April 2016) 

and the Global Compact on Refugees. 
91  http://unscr.com/en/resolutions/doc/2254  
92  In line with UNHCR’s Protection Thresholds and Parameters for Refugee Return to Syria. 

20 

 
 
                                                           
early 2023. The EU has deepened its migration dialogue with Turkey, including through the 
first  EU-Turkey  High-Level  Dialogue  on  Migration  and  Security  on  12  October  2021  in 
Ankara, where discussions highlighted common challenges and the mutual need to work on 
the prevention of new migratory routes and security threats.  

-  Support to displaced people in other parts of the world 
Despite  the  massive  call  on  available  funds  for  the  Ukraine  crisis  and  to  assist  Syrian 
refugees in Turkey and the region,  the EU remains committed to helping forcibly displaced 
people and their host communities  across the globe  – for Venezuelans hosted in  Colombia, 
Ecuador and Peru, for displaced people in and from Myanmar, for internally displaced people 
and refugees hosted in Iraq, Ethiopia and Sudan, and for Afghans hosted in Iran and Pakistan.  
The  EU  is  an  active  member  of  the  regional  support  platforms93  launched  at  the  2019 
Global  Refugee  Forum,  providing  political  and  financial  support,  through  humanitarian 
assistance and development cooperation.  

In Africa, the EU-IOM Joint Initiative for Migrant Protection and Reintegration continued to 
respond to  the needs of  stranded  and vulnerable  migrants  in  26 African  countries, assisting 
those  who  are  en  route,  offering  voluntary  return  assistance  to  those  who  decide  to  return, 
and supporting returnees and their communities in the reintegration process. The Emergency 
Transit Mechanism continues to provide a safe space and long-term solutions for the most 
vulnerable asylum seekers and refugees in Libya, allowing for their evacuation to Niger and 
Rwanda with a view to onward resettlement to Member States and other partners.  

In  Asia,  the  EU  has  assumed  a  political  and  financial  leadership  role  on  regional 
displacement from  Afghanistan, including through the Chairmanship of the Core Group of 
the Solutions Strategy for Afghan Refugees Support platform94, through support to the over 
5.9 million Afghans estimated to be internally displaced  in Afghanistan, as well as to those 
displaced  and  their  host  communities  in  Iran  and  Pakistan.  In  Myanmar,  the  EU  has 
provided  humanitarian  aid  funding  in  2022  to  address  the  immediate  needs  of  the  most 
vulnerable, in conflict affected communities, and  both those internally  displaced, as well as 
the around one million Rohingya refugees living in the camps and settlements in Bangladesh.  

Building on the strengthened dialogue following the Belarusian regime’s instrumentalisation 
of Iraqi migrants, the EU and Iraq are working together on the reintegration of returnees and 
displaced populations.   

Building economic opportunity and addressing root causes of irregular migration 

EU development cooperation has both a medium- and long-term impact on addressing the 
structural root causes of irregular migration and forced displacement. Actions in areas such as 
good  governance,  conflict  prevention  and  climate  mitigation,  as  well  as  socio-economic 
development, can have a direct consequence for migration. Through the Global Gateway95, 
the EU  is  contributing  to narrowing the global investment  gap, supporting  global economic 
recovery and accompanying the twin green and digital transitions beyond European borders. 
Dedicated initiatives delivered as part of the Global Gateway target specific regions, such as 
the  Southern  Neighbourhood,  Africa,  and  Latin  America96,  stimulating  long-term  socio-

93  Intergovernmental  Authority  on  Development  in  the  Horn  of  Africa;  Comprehensive  Regional  Protection 

and Solutions Framework in Central America; and Solutions Strategy for Afghan Refugees. 

94  https://ssar-platform.org/support-platform  
95  Joint Communication The Global Gateway (JOIN(2021) 30 final, 1 December 2021). 
96  Examples include the Economic and Investment Plan for the Southern Neighbours (see SWD(2021) 23 final, 
9 February 2021) in the wider framework of the New Agenda for the Mediterranean (see JOIN(2021) 2 final, 
9  February  2021),  the  EU-African  Union  Global  Gateway  Investment  Package  and  the  future  EU-Latin 
America and Caribbean Global Gateway Investment Package. 

21 

 
 
                                                           
economic  recovery  and  sustainable  development  in  general.  There  are  also  actions  directed 
specifically at opportunities and employability for migrants and host communities.  

Partnerships to strengthen migration governance and management 

Partnerships with key third countries need to reflect a balance of their needs and EU interests. 
Over  the  past  year  there  has  been  progress  in  addressing  issues  of  returns,  readmission, 
border management and smuggling networks.  

Operational cooperation on border management is being pursued with a growing number 
of  key  partners.  European  Border  and  Coast  Guard  status  agreements97  with  Albania, 
Montenegro  and  Serbia  enable  Frontex  to  deploy  teams  of  the  European  Border  and  Coast 
Guard standing corps and technical equipment on the territory of these partner countries. This 
is  having  a  direct  impact  on  addressing  irregular  migration  and  organised  crime.  A  status 
agreement  is  under  way  with  North  Macedonia98  and  the  Commission  is  preparing  to 
recommend a mandate to negotiate a status agreement with Bosnia and Herzegovina. A status 
agreement with Moldova was negotiated and entered into force in record time. The mandates 
for negotiation of status agreements with Senegal and Mauritania99 are the first with partner 
countries  in  Africa,  and  aim  to  support  border  management,  fight  migrant  smuggling  and 
reduce  irregular  migration  on  the  Atlantic  route.  A  working  arrangement  between  Frontex 
and  the  Common  Security  and  Defence  Policy  (CSDP)  mission  EUCAP  Sahel  Niger  is 
already  in  place.  Frontex  and  Niger  are  also  close  to  agreeing  a  working  arrangement. 
Working arrangements are being negotiated with EUBAM Libya and EUAM Ukraine. 

CSDP missions and operations continue to make an important contribution where the fight 
against irregular migration or migrant smuggling is part of their mandates. Civilian missions 
in Libya, Niger, Mali, Iraq, Kosovo*, Palestine support host State authorities in their efforts 
to  strengthen  their  capacities  in  the  field  of  border  management,  to  address  irregular 
migration  and  migrant  smuggling,  as  well  as  security  issues  such  as  trafficking  in  human 
beings.  

As mentioned above, return and readmission is an essential aspect of relations on migration 
management.  The  annual  assessment  under  Article  25a  of  the  Visa  Code  contributes  to 
identifying specific issues in cooperation on readmission with third countries and to ensuring 
that these are regularly addressed, through targeted engagement on readmission, or as part of 
broader dialogues on migration. This enhanced engagement helps to ensure that progress on 
readmission and on the other areas of the partnerships with third countries proceed in parallel. 
Following the adoption of the first assessment report on readmission cooperation for the year 
2019,  the  Commission  proposed  to  the  Council  to  adopt  temporary  restrictive  measures  on 
short-stay visas for Bangladesh, Iraq and The Gambia100 in view of their insufficient levels of 
cooperation  on  readmission,  and  taking  into  account  the  EU’s  overall  relations  with  these 
countries.  In  October  2021  the  Council  adopted  temporary  restrictive  measures  for  The 
Gambia. These are still in force, but important steps forward have been taken, by lifting the 
moratorium  on  forced  returns  (March  2022).  Following  enhanced  engagement  with 

97  Under  these  agreements  Frontex  has  executive  powers  but  operates  under  the  guidance  of  the  partner 

countries’ authorities. 

98  On  29  July  2022,  the  Council  adopted  Council  Decision  (EU)  2022/1350  authorising  the  opening  of 
negotiations on a status agreement on operational activities carried out by Frontex in North Macedonia. 
99  Council Decision 2022/1169 of 4 July 2022 authorising  the opening of negotiations on  a status agreement 
with  the  Republic  of  Senegal  and  Council  Decision  2022/1168  of  4  July  2022  authorising  the  opening  of 
negotiations on a status agreement with the Islamic Republic of Mauritania.  

*   This designation is without prejudice to positions on status, and is in line with UNSCR 1244/1999 and the 

ICJ Opinion on the Kosovo declaration of independence. 

100  Proposals  for  Council  implementing  decisions  with  respect  to  Bangladesh  (COM(2021)412  final,  15  July 
2021); The Gambia (COM(2021)413 final, 15 July 2021); and Iraq (COM(2021)414 final, 15 July 2021). 

22 

 
 
                                                           
Bangladesh and Iraq, the Council decided not to impose measures on Bangladesh, in view of 
progress  made.  Cooperation  with  Iraq  remains  under  scrutiny.  In  December  2021,  the 
Commission  adopted  its  second  assessment  of  the  cooperation  on  readmission  for  the  year 
2020,  and  with  the  High  Representative  stepped  up  engagement  with  several  partner 
countries where  insufficient  cooperation on readmission  required further  action. The results 
of this engagement will inform the Commission’s decision on possible visa measures, taking 
into consideration the EU’s overall relations with the third countries concerned. The adoption 
of the third assessment report is foreseen at the end of the year. 

On 6 April 2022, the Commission proposed to exempt  Qatari and Kuwaiti nationals from 
the visa requirement for short stays in the EU101. The Commission maintains its assessment 
of July 2018 that Kosovo has fulfilled all visa liberalisation benchmarks102 and that visa-free 
travel for the people of Kosovo should be granted.  

In addition, the Commission continues to screen all agreements it has with third countries to 
allow visa free travel for their migratory or security risks. As a result, the EU’s visa waiver 
agreement  with  Vanuatu  has  been  partially  suspended103  since  4  May  2022  in  order  to 
mitigate  the  security  risks  raised  by  Vanuatu's  investor  citizenship  scheme.  As  the  EU’s 
concerns have not been addressed, this suspension could be extended for a further 18 months.  

In July, the Commission, in cooperation with the European External Action Service, launched 
the first anti-smuggling operational partnerships with Morocco and Niger, following the 
renewed  EU  action  plan  against  migrant  smuggling  2021-2025104.  The  partnerships  aim  to 
strengthen  the  legal,  policy,  operational  and  strategic  frameworks  in  partner  countries  in 
response  to  migrant  smuggling,  and  to  increase  the  ownership,  impact  and  long-term 
sustainability of their efforts. The partnerships will include support for border management, 
enhanced  police  cooperation  (including  joint  investigations),  awareness-raising  on  the 
dangers of irregular migration, and enhanced cooperation with EU agencies. 

Developing legal pathways to Europe 

An ambitious and sustainable EU legal migration policy is needed to create safe pathways to 
Europe  and  to  help  attract  skills  and  talent  that  our  economies  need,  given  an  ageing 
population  and  urgent  skills  gaps.  It  is  also  an  important  component  in  successful 
partnerships. The EU Talent Pool proposed in the Skills and Talent package would create the 
first  EU-wide  platform  and  matching  tool  to  help  employers  find  the  staff  they  need  and 
make the EU more attractive for non-EU nationals looking for opportunities. As mentioned 
above, an EU Talent Pool Pilot in an initial phase will help Ukrainians build on their skills 
and experience.  

-  Talent Partnerships 
Talent  Partnerships  with  key  partners  will  seek  to  boost  international  labour  mobility  and 
develop talent to the benefit of Member States, partner countries, and business communities 
on both sides, as well as for the individuals concerned. The Commission  will take concrete 
steps  towards  the  first  Talent  Partnerships  with  Morocco,  Tunisia  and  Egypt  by  the  end  of 
2022,  based  on  the  strong  continuous  cooperation  on  all  aspects  of  migration  management. 

101  Proposal listing the third countries whose nationals must be in possession of visas when crossing the external 

borders and those whose nationals are exempt (Kuwait, Qatar) (COM/2022/189, 27 April 2022).  

102  Annexes to the Report “Update on the implementation of the remaining benchmarks of the visa liberalisation 

roadmap by Kosovo*” (COM(2018) 543, 18 July 2018). 

103  Council  Decision  (EU)  2022/366  of  3 March  2022  on  the  partial  suspension  of  the  application  of  the 

Agreement between the European Union and the Republic of Vanuatu on the short-stay visa waiver. 

104  Communication  “A  renewed  EU  action  plan  against  migrant  smuggling  (2021-2025)”  (COM(2021)  591 

final, 29 September 2021). 

23 

 
 
                                                           
This  will  build  on  a  pilot  now  under  way105,  as  well  as  consultations  with  all  stakeholders. 
The  specific  interests  and  commitment  of  partner  countries  will  be  key  to  their  success,  as 
well  as  those  of  Member  States,  which  retain  competence  on  labour  migration.  The 
Commission calls on Member States to engage actively in discussions with partner countries 
on Talent Partnerships and present concrete proposals on how these could help address their 
labour market needs, notably by identifying the number of places available in key sectors and 
involving  private  companies.  Subsequently,  Talent  Partnerships  with  additional  countries 
could be considered. 

-  Legal pathways to protection: resettlement and humanitarian admission 
Resettlement  is  an  integral  part  of  the  Pact  and  an  important  element  of  the  EU  migration 
policy. The EU contributes a sizeable part to global resettlement efforts and is committed to 
maintaining  this  commitment.  The  2021-2022  pledging  exercise  resulted  in  almost  65 000 
pledges  in  total,  combining  resettlement  and,  for  the  first  time,  humanitarian  admission106, 
including places earmarked for Afghans at risk following the fall of Kabul in August 2021. 
The EU also continues to respond to the Syrian and the Central Mediterranean needs and up 
to  June  2022,  Member  States  reported  more  than  36  000  resettlement  and  humanitarian 
admission  arrivals  combined. To  ensure  continuity  in  EU  efforts,  the  Commission  recently 
called on Member States to provide new pledges for 2023, backed by continued EU funding.  

Even  in  times  of  pressure,  it  is  essential  that  the  EU  sustains  its  resettlement  leadership. 
Innovative solutions can help addressing bottlenecks in  reception  - in particular community 
sponsorship  programmes  can  play  a  key  role  for  providing  accommodation  and  give  civil 
society a stronger role in reception and integration of newcomers. The Safe Homes initiative 
will support this, drawing lessons from the reception of those fleeing the Russian invasion of 
Ukraine to enhance reception systems through community welcome. In the fall, the EU will 
gather a second High Level Resettlement Forum to discuss such innovations with key global 
partners and international organisations.  

Financial and operational tools 

-  Funding 
To  forge  comprehensive  migration  partnerships  and  complement  the  increased  political 
engagement,  the  EU  dedicates  substantial  support  and  funding  to  increase  the  partner 
countries’ capacities to address all aspects of migration and forced displacement.  

The  new  Neighbourhood,  Development  and  International  Cooperation  Instrument 
(NDICI-Global  Europe)  identifies  migration  and  forced  displacement  as  a  key  area  for 
cooperation with partner countries. The programming process undertaken in 2021 and 2022 
factored  in  the  indicative  10%  migration  spending  target,  to  ensure  it  would  be  met,  with 
relevant  migration  and  forced  displacement  considerations  integrated  in  a  tailor-made  yet 
flexible manner, touching on protection, legal migration, border management, as well as on 
return and reintegration and the root causes of irregular migration and forced displacement. 
The  NDICI-Global  Europe  spending  target  for  migration  and  forced  displacement  laid  the 
groundwork  for  the  Commission  to  adopt  an  ever  more  comprehensive  and  coherent 
approach  when  addressing  the  challenges  –  and  seizing  the  opportunities  –  related  to  those 
issues.  The  basis  of  the  EU’s  overall  financial  assistance  to  third  countries  for  the  coming 
years  are  the  country  and  regional  multiannual  indicative  programmes  (MIPs).  The  first 
annual report on NDICI Global Europe will be published this autumn and will also include an 
overview of migration-related spending.  

105  ‘Towards  a  Holistic  Approach  to  Labour  Migration  Governance  and  Labour  Mobility  in  North  Africa 

(THAMM III)’. 

106  See Annex 2. 

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The  Instrument  for  Pre-accession  Assistance  (IPA III)  funds  bilateral  and  regional 
migration  programmes  in  pre-accession  countries.  Actions  in  the  Western  Balkans 
strengthen  migration  management,  asylum  systems  and  border  management.  Key  priorities 
include  improving  return  management  and  expanding  assisted  voluntary  and  non-voluntary 
return programmes, and preventing and combating migrant smuggling. 
In Turkey, following the June 2021 European Council conclusions107, support will continue 
for refugees and host communities, to follow up on the operations of the Facility for Refugees 
in Turkey. Actions will continue in the areas of education, health, protection, basic needs and 
socio-economic  development,  notably  to  ensure  access  to  more  sustainable  livelihoods  for 
refugees, and support host communities.  

The  EU  remains  a  leading  donor  in  the  international  response  to  the  Syrian  crisis  and 
remains  committed  to  supporting  Syrian  refugees  and  host  countries  in  the  region.  The 
successful Sixth Brussels Conference on Supporting the future of Syria and the Region 
held  on  10  May  2022  exceeded  2021  pledges  from  international  donors,  thus  maintaining 
funding and support to major host countries.  

Other  relevant  programmes,  such  as  the  Home  Affairs  Funds,  are  expressly  designed  to 
serve policy interests within the EU, but certain activities can be supported outside the EU, 
especially  in  a  spirit  of  continuity  of  ongoing  activities  (such  as  the  Migration  Partnership 
Facility and the Regional Development and Protection Programme).  

-  Team Europe Initiatives on Migration 
The  EU  and  interested  Member  States  are  coming  together  to  strengthen  operational 
the 
coordination  on  migration 
Atlantic/Western  Mediterranean  route,  under  the  lead  of  Spain,  and  on  the  Central 
Mediterranean  route,  led  by  France  and  Italy.  The  thematic  components  under  this 
framework  correspond  to  the  five  pillars  of  intervention  recognised  by  the  Joint  Valletta 
Action Plan108 and in line with the Pact.  

the  regional  Team  Europe  Initiatives  on 

through 

The EU has also put forward a regional Team Europe Initiative on Afghan displacement. It 
will focus on policy dialogue and migration management, protection, fight against trafficking 
in human beings and smuggling of migrants, provision of basic services, skills development 
and creation of livelihood opportunities, targeting displaced Afghans and host communities in 
Afghanistan and neighbouring countries, including in Central Asia. 

8.  CONCLUSION 

The past year has shown the EU’s capacity to act as a Union of determination and solidarity 
to  address  the  constantly  shifting  challenges  and  opportunities  of  migration  towards  our 
continent.  As  President  Von  der  Leyen  made  clear  in  the  State  of  the  Union  address,  it  is 
important  that  this  solidarity  continues  to  be  present  in  our  migration  debate,  and  the 
unprecedented efforts to welcome millions fleeing Ukraine should be an inspiration for future 
actions – a blueprint for coordinated, collaborative response at EU level. 

The year ahead will be decisive for legislative work on migration and asylum that is urgently 
needed to complete the EU’s ability to respond with solidarity, responsibility and fairness, to 
all  challenges.  The  Commission  looks  forward  to  progress  on  the  roadmap  agreed  between 
the Council and the Parliament in order to reach agreement on key legislative files by Spring 
2024.  

As key next steps, the Commission calls on 

107  2425-06-21-euco-conclusions-en.pdf (europa.eu) 
108  Joint Valletta Action Plan (JVAP) (europa.eu) 

25 

 
 
                                                           
  Parliament  and  Council  to  implement  the  joint  roadmap  with  the  aim  of  adopting  all 

proposals on the table by March 2024. 

  Parliament and Council to swiftly adopt their positions on all the pending proposals. 
  Parliament  and  Council  to  swiftly  progress  in  the  negotiations  on  the  Skills  and  Talent 
package  (the  recast  of  the  Directive  on  long-term  residents  and  the  recast  of  the  Single 
Permit Directive). 

  Member States to implement the Voluntary Solidarity Mechanism. 

The  Commission  will  continue  to  support  these  efforts,  and  to  build  on  other  aspects 
highlighted  by  this  report,  including  border  management,  returns,  solidarity  and  addressing 
secondary  movements,  while  deepening  our  partnerships  worldwide,  and  facilitating  legal 
migration for migrants – while strengthening integration of new arrivals in Europe, who can 
bring needed skills to our economy.  

Developments  in  migration  call  for  the  EU  to  act  with  combined  strength  and  collective 
political will, with each actor taking responsibility for managing migration with dignity and 
respect, and showing solidarity with others. It is in this way that we will show Europe at its 
best, equal to the challenges we will face in the coming years. 

26