COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE EUROPEAN COUNCIL AND THE COUNCIL Striking a balance on migration: an approach that is both fair and firm
Date: 2024-03-12
Institutions: European Commission, Secretariat-General
Subjects: EU migration policy, EU office or agency, European cooperation, external border of the EU, fight against crime, illegal migration, international cooperation, return migration, right of asylum, trafficking in human beings

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 12.3.2024  COM(2024) 126 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE EUROPEAN COUNCIL AND THE COUNCIL   Striking a balance on migration: an approach that is both fair and firm  
 
 
I. 

INTRODUCTION 

Migration is a European challenge that requires a European response. This is a lesson Europe 
learnt the hard way. The 2015 refugee crisis and other challenges faced at different external 
borders of the EU revealed the shortcomings of the EU’s dated and incomplete migration and 
asylum laws. They also exposed the complexity of managing a situation that affects Member 
States in  different  ways, and where actions by one Member State have implications for the 
others. These challenges have also shown that migration is a global reality which can only be 
managed effectively by working in a concerted manner with our partners around the globe.  

Upon taking office, the von der Leyen Commission set itself a mission to establish a new, 
durable European framework to manage migration: one that can manage the interdependence 
between Member States, offer a proper response and allow Europeans to trust that migration is 
managed in an effective and humane way, in line with our values. 

This was the intention behind the Pact on Migration and Asylum – a vast set of legislative 
reforms. Four years later, the political agreement reached  between the European Parliament 
and the Council on these reforms sets the stage for fair, efficient, and sustainable migration 
management over the long term. A system where each EU Member State has the flexibility to 
address its challenges while none is left alone under pressure. 

This  is  a  significant  milestone.  Yet,  in  the  last  four  years,  a  series  of  new  and  recurrent 
challenges have been affecting the EU and its Member States. This time has been characterised 
by  a  constant  effort  to  rapidly  address  immediate  needs  through  operational  and  targeted 
action. Withstanding continued and even growing pressure on various migratory routes, the EU 
has  managed  to  show  the  agility  needed  to  confront  and  navigate  complex  challenges.  In 
particular,  the  EU  stood  strong  and  united  in  defending  its  external  borders  against  the 
instrumentalisation of people by the Belarusian and Russian regimes. It did so while taking a 
principled  and  humane  approach  to  those  fleeing  Russia’s  war  against  Ukraine,  as  well  as 
regarding the large number of evacuations of Afghan nationals to Member States and sustained 
resettlement  efforts,  proving  its reliability as a continent  where protection is  guaranteed for 
those in need and taking up its role as a global actor.  

This  two-track  approach  of  pursuing  sustainable  structural  reform  alongside  targeted 
operational  response  is  what  has  allowed  Europe  to  turn  the  page  on  past  fractures  and 
consolidate a common approach to migration and border management.  Moving forward, the 
two tracks need to continue going hand in hand: migration is not a passing phenomenon, and 
everything  points  to  the  fact  that  it  will  continue  to  be  very  present  and  dominate  political 
agendas  in  the  future. Well-managed  and  orderly  legal  migration  can  be  an  opportunity  for 
European societies and economies, including by addressing labour shortages, whilst also acting 
as a deterrent to irregular migration.  

Whilst the legislative reforms will have a transformative impact, this will not be immediate, 
and the system can never be fully shielded from potential challenges. The crucial difference, 
however, is that the EU has now solidified a dynamic and common EU approach to migration. 
The result is that the EU’s Member States are now better equipped than ever before to face 
constantly evolving and complex challenges, acting together with fairness and firmness.  

This Communication looks back at the achievements and advancements of the last four years. 
It identifies immediate priorities to operationalise what was agreed and looks at areas where 
further work is needed to complement the new system.  

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II. 

A NEW LEGAL FRAMEWORK  

The historic political agreement on the Pact on Migration and Asylum between the European 
Parliament  and  the  Council  is  a  game-changer.  It  will  equip  the  EU  with  a  strong  legal 
foundation  to  manage  migration  in  a  comprehensive  and  integrated  way.  The  eleven1 
interlocking laws will ensure a collective approach to better secure our external borders, a fair 
and  more  effective  system  of  solidarity  and  responsibility  as  well  as  efficient  asylum 
procedures with better protection of those in need. 

1.  The changes the Pact will bring 

More secure external borders 

All  irregular  migrants  will  be  registered  and  subject  to  screening  of  identity,  security,  and 
health.  Following  the  screening,  the  border  procedure  will  be  mandatory  for  those  who  are 
unlikely to need protection, present a security risk or mislead the authorities. Each Member 
State will be required to have the capacity to host a certain number of asylum seekers for the 
duration  of  the  procedures  in  adequate  conditions.  Strong  legal  safeguards  will  apply  and 
unaccompanied minors will be exempted from the border procedure unless they pose a security 
threat. All Member States will need to ensure independent monitoring of fundamental rights at 
the border.  

By securing the external borders to control arrivals of irregular migrants, we limit any onward 
secondary movement and guarantee one of the most cherished rights of EU citizens, namely 
the right to move within the Schengen area without internal border control. By ensuring quick 
returns  of  those  rejected  in  the  border  procedure,  we  send  a  clear  message  that  the  new 
European system will not tolerate abuse. 

Finally, the EU will have in place a specific legal framework for handling situations of crisis, 
including instrumentalisation: a new legal instrument will provide for a stable and predictable 
framework at Union level to manage situations of crisis, with a reinforced solidarity component 
ensuring that all the needs of the Member State concerned will be met. Derogations to cater for 
the  specific  situation  of  instrumentalisation  will  provide  Member  States  with  robust  and 
targeted means to protect our external borders while preserving access to asylum and respect 
for fundamental rights. 

Fast and efficient procedures for asylum and return with stronger individual safeguards 

The new rules will put in place more effective asylum procedures with shorter time limits and 
stricter rules for abusive or subsequent applications. The EU will have the possibility to have 
lists of safe third countries and safe countries of origin, which will be used alongside national 
lists. These stricter rules are balanced against important guarantees for the rights of individuals 
including  free  legal  counselling  throughout  all  procedures,  with  particular  attention  to 
vulnerable groups, including unaccompanied minors, as well as families with children. New 
obligations across all legal acts will ensure that unaccompanied children have a representative 
appointed swiftly to take care of their best interests.  

1   Screening Regulation and amending Regulation to facilitate screening (ECRIS-TCN), Asylum and migration 
management  Regulation,  Asylum  Procedure  Regulation  (the  return  border procedure has  been  moved  to  a 
standalone  legislative  instrument),  Regulation  addressing  situations  of  crisis  in  the  field  of  migration  and 
asylum  (incorporating  provisions  on  instrumentalisation),  Eurodac  Regulation,  Reception  Conditions 
Directive,  Qualification  Regulation,  Resettlement  Framework  Regulation,  Regulation  establishing  the 
European Union Agency for Asylum, Single Permit Directive, Blue Card Directive.  

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The new rules will increase convergence among Member States regarding who qualifies for 
refugee status or as regards the quality of reception conditions. EU-wide standards for reception 
conditions will include earlier access to the labour market, better access to education for child 
migrants and protection of vulnerable people. At the same time, Member States’ preparedness 
in managing effectively their reception systems will be increased. More harmonised common 
criteria  for  granting  international  protection,  clarifying  the  rights  and  obligations  of 
beneficiaries have equally been agreed. The fully-fledged EU Asylum Agency has new tools to 
support Member States in bringing greater convergence to asylum and reception practices. The 
Agency’s new Monitoring Mechanism will allow it to monitor the operational and technical 
application of the new legal framework.  

A fair and more effective system of solidarity and responsibility 

For the first time, the Union will have in place a permanent solidarity mechanism, ensuring 
that no Member State under pressure is left alone and that everyone contributes. Member States 
will support each other  with  people solidarity (relocation or offsetting  in case of secondary 
movements),  operational  support  and  financial  contributions,  including  for  projects  in  third 
countries.  Member  States  choose  the  type  of  solidarity  they  wish  to  provide  based  on  a 
mandatory  distribution  key.  Solidarity  contributions  can  be  earmarked  for  Member  States 
confronted with significant numbers of arrivals following search and rescue operations.  

The rules determining the Member State responsible for dealing with an asylum claim have 
been reinforced: a new responsibility criterion for diplomas has been added and the family-
related criteria strengthened. New cessation rules will create a more balanced responsibility for 
applications processed by the Member State of first entry in the border procedure. In case of 
secondary movements, the transfer of people back to the Member State responsible will also 
be more efficient.  

The system will include effective rules to detect and prevent secondary movements, such as 
the  fact  that  the  whole  range  of  material  reception  conditions  will  only  be  provided  in  the 
Member  State  responsible. The  new  rules  also  limit  the  possibility  for  cessation  or  shift  of 
responsibility  between  Member  States,  thus  preventing  the  applicant  from  choosing  which 
Member State becomes responsible for examining the application.  

The upgraded common Eurodac database will support the implementation of the new policies 
on asylum, resettlement, temporary protection and return. The database will also help Member 
States detect and address secondary movements.  

2.  Making the Pact a reality 

This  new legal  framework  will only  be as effective as  its  implementation  and  enforcement. 
This  entails  the  transposition  and  application  of  new  legislation,  new  or  upgraded 
infrastructure,  new  systems,  and  stepped-up  financial  programming.  The  Commission  will 
support  Member  States’  preparations  with  funds,  gap  analysis,  monitoring  and  the  further 
support of EU agencies. It is essential that the two years until the Pact enters into application 
be well used.  

The Commission has started preparations for the implementation and operationalisation of the 
Pact. By June 2024, the Commission will present a Common Implementation Plan that will 
set the path forward with a roadmap, timeline and milestones for EU and national actions. The 
Plan will identify the gaps and operational steps needed to  ensure all Member States put in 
place  the  legal  and  operational  capabilities  required  to  successfully  start  applying  the  new 
legislation by 2026. 

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In line with the logic of the Pact, each Member State is to frame this work within a strategic 
approach to managing migration and asylum at national level. All Member States will have to 
take measures  to  be ready for the Pact  implementation,  but  not  all  are faced  with the same 
challenges.  The Commission’s Implementation Plan will include country-specific gap analyses 
that can serve as a basis for Member States to develop their own National Implementation 
Plans. Member States will also need to develop national strategies, which will then form the 
basis of a five-year European Asylum and Migration Management Strategy, to be drawn up by 
the Commission within 18 months of entry into force of the new rules. 

The effective delivery of a successful transition will be a major common priority for the coming 
two  years.  EU  support  will  include  technical,  operational  and  financial  and  support 
provided by the Commission and EU agencies. In terms of financing, a significant envelope is 
available, complemented by available funding resulting from the upcoming mid-term review 
of the existing Asylum, Migration and Integration Fund (AMIF) and Border Management and 
Visa Instrument (BMVI) programmes, as well as the additional EUR 2 billion from the mid-
to  support  the 
term  revision  of  the  Multiannual  Financial  Framework  earmarked 
implementation of the Pact. 

III.  TARGETED OPERATIONAL RESPONSE 

At the same time as European institutions and Member States have sought to be the architects 
of  this  new  legal  framework,  they  have  also  been  working  hard  as  firefighters  to  address  a 
series of new and recurrent challenges. 

In doing so, the EU has expanded its range of tools to deter and prevent irregular movements 
and the smuggling of migrants, but also to respond to changing patterns of migratory activity 
as  they  arise. A  number  of  improvements  in  the  last  few  years  have  made  the  EU  better 
equipped and prepared to deal with the day-to-day management of migration as well as face 
exceptional and unexpected challenges. 

1.  A whole-of-route-approach 

One of the major innovations in the last years has been to shift focus towards a whole-of-route 
approach to address mixed movements of refugees and migrants, taking into account the entire 
spectrum  of  situations  people  may  find  themselves  in,  and  addressing  them  together  with 
countries of origin and transit.  

The Commission developed four EU Action Plans – focusing on the Western Balkans, Central 
Mediterranean, Atlantic/Western Mediterranean, and Eastern Mediterranean routes – to set a 
path  for  collective,  operational  action  on  these  routes. The Action  Plans  contain  a  series  of 
actions  that  today  are  either  already  completed  or  fully  under  implementation.  This  more 
targeted and coordinated approach has increased the Union’s reactivity and agility in the face 
of evolving challenges, through a wide array of short- and medium-term measures. 

The  EU  Action  Plans  respect  the  specificities  of  each  route  and  reinforce  EU  support  to 
Member States under migratory pressure and partner countries, also through the work of EU 
agencies, with actions to reduce irregular and unsafe migration. 

The  unique  added  value  of  this  approach  has  been  to  focus  work  on  priority  measures  and 
ensure their consistent follow-up, whilst drawing from the full range of policy and operational 
tools at the EU’s disposal.  

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The EU Action Plans 

The EU Action Plan for Central  Mediterranean adopted in  November 2022 proposes  20 
measures,  including  strengthening  border  and  migration  management  in  key  North African 
countries, in particular Tunisia, Egypt, and Libya, expanding the footprint of EU Agencies in 
the region, and operationalising the Team Europe Initiative for the Central Mediterranean route. 
This Plan was also complemented by a dedicated 10-point Plan for Lampedusa in September 
2023.   

The  EU Action  Plan  on  the  Western  Balkans  adopted  in  December  2022  identifies  20 
operational measures structured under five pillars: (1) strengthening border management along 
the routes; (2) swift asylum procedures and support reception capacity; (3) fighting migrant 
smuggling; (4) enhancing readmission cooperation and returns; as well as (5) achieving visa 
policy  alignment.  The Action  Plan  has  strengthened  cooperation  on  migration  and  border 
management with partners along the Western Balkans route.  

The EU Action Plan for the Western Mediterranean and Atlantic routes adopted in June 
2023  focuses  on  strengthening  operational  measures  on  search  and  rescue,  prevention  of 
irregular departures, protection of borders, and return procedures, as well as labour migration. 
Its whole of route approach has furthered cooperation with Morocco, Mauritania, Senegal, Côte 
d’Ivoire, and The Gambia. The focus includes strengthening capacities, stepping up counter-
smuggling  activities,  border  management,  protection,  and  labour  migration,  and  addressing 
challenges arising from security issues in the Sahel. 

The EU Action Plan for the Eastern Mediterranean route adopted in October 2023 focuses 
on  prevention  of  irregular  departures,  combatting  migrant  smuggling,  and  providing  legal 
migration pathways. It includes strengthening cooperation with countries of origin and transit 
in Asia and Africa. Activities reinforcing effective border management along the route included 
supporting  border  management  capacities  on  Türkiye's  eastern  borders,  as  well  as  the  EU 
external land and sea borders. Full and effective implementation of the EU-Turkey Statement 
and the EU-Turkey readmission agreement remains essential. 

2.  Strengthened external border management  

The  EU  has  been  working  diligently,  step-by-step  to  improve  the  EU’s  external  border 
management. Technological advances have been accompanied by an overhaul in the way EU 
Member States share information about border management.  

To improve the understanding of evolving migration and security challenges at the borders, the 
Commission has worked closely with Member States and Agencies to develop a common EU 
situational  awareness.  Since  2021,  the  upgraded  European  Border  Surveillance  System 
(EUROSUR) provides national authorities with  an up-to-date and exhaustive picture of the 
situation at the EU’s external borders. It allows Member States to exchange information with 
one another, with Frontex and with neighbouring countries.  

In  response  to  increasing  irregular  arrivals,  the  work  of  the  Migration  Preparedness  and 
Crisis Blueprint has been stepped up to improve early detection and monitoring of migratory 
trends,  targeting  areas  of  concern  to  Member  States  with  detailed  analysis  and  information 
exchange to help anticipate new pressures on the external border.  

But  creating  a  comprehensive  and  efficient  situational  awareness  does  not  stop  at  the  EU’s 
external borders. It is fundamental to have close cooperation and partnership with neighbouring 
and partner countries. A lot has been achieved during this mandate, including 17 active Frontex 

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working  arrangements  and  5  status  agreements.  Fundamental  rights  safeguards  are 
systematically included. There are currently more than 500 Liaison Officers in third countries 
acting  under  a  common  EU  Network. Their  role  is  to  collect  and  share  information  that  is 
essential to build a common situational picture at the European level.  

A new gold standard of border management 

The  EU  has  continued  its  efforts  to  put  in  place  the  most  technologically  advanced  border 
management system in the world. The upgraded Visa Information System will close security 
information gaps through better information exchange between Member States. Since March 
2023,  the  renewed  Schengen  Information  System  provides  national  authorities  with  more 
complete and reliable information on people to enhance security and border management.  

This year will also be a milestone for the launch of the interoperability framework, which will 
allow all key information systems to be connected. This is essential to close any existing gaps 
that can be exploited by criminals escaping detection by using fraudulent identities. The first 
building block, the Entry/Exit System for registering travellers from third countries, will start 
in the autumn. It will be shortly followed by the ETIAS travel authorisation for visa-exempt 
travellers. When coupled with the new Eurodac database, we will have full oversight over who 
enters the EU. If a security threat is identified, the person will be detained or returned to their 
country of origin. 

Increased operational capacity at external borders 

Over the past decade, the EU’s external borders have been progressively bolstered through the 
deployment  of  staff  from  EU  Agencies  to  support  Member  States.  With  its  strengthened 
mandate, Frontex has been able to better support Member States in managing their external 
borders in line with European Integrated Border Management.  

Today, 2650 border and coast guards in the Standing Corps are deployed to support Member 
States with border checks, return operations, and border surveillance. It is essential to continue 
supporting  the Agency  to  make  sure  that  it  can  fully  roll  out  its  mandate,  including  having 
10 000 border and coast guards in the Standing Corps by 2027. To achieve this, it is now vital 
that Frontex, Member States and the Commission implement the action plan that accompanied 
the  evaluation  of  the  EBCG  Regulation.  Experts  from  EU  agencies,  such  as  the  EUAA, 
Europol, Frontex and Eurojust, are deployed at key points of entry to help national authorities 
in identifying persons who enter the Union.  

New  pilot  projects  at  key  external  borders  (Bulgaria-Türkiye,  Romania-Serbia)  have 
boosted external border management, reinforced cooperation with neighbouring countries and 
ensured  fast  asylum  and  return  procedures.  These  are  already  bringing  tangible  results  – 
Bulgaria, for example, has doubled its capacity to host Frontex Standing Corps officers from 
124 to 264. Similarly, since March 2023 over 400 joint Romanian-Serbian patrol missions have 
taken  place,  contributing  to  the  successful  management  of  Romania’s  external  border  with 
Serbia. Both projects have been extended beyond the initial implementation period (March-
October 2023). Building on this, Bulgaria and Romania will build this work into long-term 
cooperation  to  boost  border  and  migration  management  and  have  signed  Cooperation 
Frameworks  to  this  end.  This  successful  experience  could  serve  as  a  basis  for  broader 
cooperative frameworks, including at a regional level.  

Improving cooperation at sea borders 

Since at least the mid-1990s, thousands of people have crossed the Mediterranean each year by 
boat to try and seek asylum or to migrate to Europe, with the effect that the Mediterranean Sea 

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has become a site of escalating numbers of migrant fatalities in recent years. Managing this 
46 000 km long coastline requires increased cooperation between all actors to ensure that lives 
are saved. 

The EU’s Member States conduct far-reaching rescue operations to prevent loss of life at sea, 
supported over the years by a series of European Border and Coast Guard maritime operations. 
However, the continuous disembarkations of rescued migrants in some coastal EU countries, 
resulting from both national and private operations, have a significant impact on their asylum, 
migration, and border management systems.  

Providing assistance to any persons found in distress at sea is an obligation under international 
law. The European Commission has no formal role in the coordination of search and rescue 
operations or in the determination of a place of safety for disembarkation of assisted persons, 
as  this  is  a  national  competence.  However,  the  Commission  continues  to  promote  more 
structural cooperation in this area, notably through the European Contact Group on Search 
and  Rescue,  established  in  2021  as  a  platform  for  structured  dialogue  among  EU  Member 
States, Schengen Associated countries, and other relevant stakeholders, on the implementation 
of the legal framework and the evolving practice of search and rescue.  

EU Member States are not alone in bordering the Mediterranean and efforts have been stepped 
up to engage third countries on the Northern African side to take up a share of the responsibility 
for  preventing  loss  of  life  at  sea.  EU  funding  has  supported  the  provision  of  expertise, 
equipment, and training, as well as the capacity building of key bodies such as the mobile 
Maritime Rescue Coordination Centre in Libya. Search and rescue vessels have been delivered 
to Libya, while engines and spare parts provided to Tunisia have helped to maintain 17 boats 
used by the coastguard, alongside provision of radar and communication systems. Equipment 
is  complemented  with  training:  this  includes  drawing  on  the  International  Organization  for 
Migration’s  “humanitarian  border  management”  concept  to  foster  a  human  rights-based 
approach to border management in Egypt, and human rights training and monitoring for the 
Libyan  Ministry  of  the  Interior  and  border  guards.  Forthcoming  work  includes  a  training 
academy  in  Libya  and  developing  a  curriculum  for  Tunisian  personnel.  All  EU-funded 
migration-related  programmes  are  closely  monitored  including  through  external  evaluation, 
and the independent monitoring system already in place for Libya will be further strengthened 
elsewhere in North Africa, to oversee implementation including human rights compliance.    

The bulk of the EU’s action to address sea crossings has been to work on prevention of irregular 
departures – through a combination of fighting migrant smuggling, addressing root causes of 
irregular  migration  in  countries  of  origin  and  transit,  extensive  information  campaigns  to 
inform of the deadly risks involved in boat crossings and providing credible alternatives for 
legal  migration  possibilities.  An  improved  return  system  and  greater  cooperation  on 
readmission  with  third  countries  also  acts  as  a  strong  deterrent  discouraging  irregular  sea 
crossings.  

The Pact will provide another part of the solution. The specificity of arrivals following search 
and rescue operations is well catered for by the new legislation. In particular, the new solidarity 
framework  will  ensure  that  the  pressure  from  search  and  rescue  arrivals  is  not 
disproportionately  shouldered  by  Mediterranean  States  alone.  Dealing  with  the  complex 
realities  of  the  Mediterranean  nevertheless  requires  continued  effort  by  all  actors,  both  to 
reduce the space in which smugglers operate and to put an end to the needless loss of life.  

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3.  Targeting the criminal networks that smuggle migrants  

More than 90% of irregular migrants arrive in the EU with the assistance of migrant smugglers. 
Criminal organisations make huge profits from putting lives at risk during dangerous journeys. 
Irregular  migrants  then  face  the  prospect  of  a  precarious  existence  and  the  risk  of  further 
exploitation.  In  the  2023  State  of  the  Union  address,  President von  der  Leyen  called  for  a 
strengthening of all tools at the EU's disposal to effectively counter migrant smuggling.  
In the anti-smuggling package2 of November 2023, the Commission proposed to update the 
20-year-old  legal  framework,  defining  the  crime  of  migrant  smuggling  and  increasing 
penalties.  Its  proposals  would  also  reinforce  EU  governance  on  smuggling,  strengthening 
Europol's  role  and  inter-agency  cooperation  in  the  fight  against  migrant  smuggling.  A 
reinforced  European  Centre  Against  Migrant  Smuggling  with  permanently  posted  liaison 
officers including from Eurojust would bring a step change in Europol's capacity to support 
Member States’ operations and investigations on the ground. 

In parallel, a Global Alliance to Counter Migrant Smuggling was launched with a Call to 
Action.  Its  key  work  strands  are  preventing  people  falling  prey  to  the  smugglers  through 
strengthened border management, information campaigns and a new focus on digital aspects 
of smuggling; responding to smuggling with coordinated law enforcement and ensuring that 
criminal profits are seized; and addressing the root causes of irregular migration, by supporting 
access to quality education, the creation of sustainable economic opportunities and decent jobs  
as well as providing more legal alternatives to disincentivise irregular departures. Dedicated 
expert meetings on these issues will take place in the course of 2024. 

This  work  builds  on  the  renewed  Action  Plan  against  Migrant  Smuggling  (2021-2025), 
which  opened  up  new  avenues  of  cooperation  with  partner  countries  in  this  area,  through 
dedicated and tailor-made Anti-Smuggling Operational Partnerships. These complement work 
already under way through Europol Operational Task Forces, in particular along the Central 
Mediterranean route.  

Dedicated and tailor-made Anti-Smuggling Operational Partnerships with partner countries, 
Member States and UN agencies tackle smuggling in key locations. The first Partnership was 
launched with Morocco in July 2022, opening the door to deeper cooperation with Frontex and 
Europol, which could include agreeing working arrangement as well as the deployment of a 
liaison  officer.  The  Operational  Partnership  with  Tunisia  agreed  in  April  2023  covers 
negotiations for a working arrangement with Europol and further cooperation with CEPOL and 
will be complemented by a EUR 18 million programme to fight the smuggling of migrants and 
the  trafficking  of  persons  in  Tunisia. A  Regional  Operational  Partnership  with  the  Western 
Balkans was launched in November 2022 and was followed up by a EUR 36 million regional 
anti-smuggling  programme  in  June  2023.  By  focussing  on  supporting  law  enforcement  and 
judicial cooperation against criminal networks and drawing on EU funding and the know-how 
of  EU  agencies  to  increase  border  management  capacity,  it  has  already  led  to  increased 
investigations, arrests and prosecutions.  

Beyond  the Anti-Smuggling  Operational  Partnerships,  the  Commission  is  working  through 
bilateral and regional operational cooperation against migrant smuggling in Africa and in Asia. 
This  cooperation  includes  support  to  law  enforcement  and  judicial  cooperation,  capacity 
building  in  land  and  maritime  border  management,  information  and  awareness  raising 
campaigns.  EU-funded  information  campaigns  were  launched  in  Spring  2023  to  alert 
migrants of the dangers of accepting help from smugglers, targeting countries of origin and 

2   Summarised in EU stepping up the fight against migrant smuggling (europa.eu) 

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transit  along  main  migratory  routes,  including  Nigeria,  Tunisia,  Morocco,  Senegal,  The 
Gambia, Pakistan, Iraq. 

Migrant  smuggling  can  often  exploit  established  international  travel  routes.  A  toolbox 
addressing the use of commercial means of transport to facilitate irregular migration to the 
EU  was  adopted  by  the  Commission  in  June  2023.  It  includes  a  set  of  operational  and 
diplomatic  measures  to  address  the  increasing  misuse  of  commercial  transport  by  criminal 
networks engaged in migrant smuggling. The toolbox has been activated to frame discussions 
with partner countries (Türkiye, Pakistan), contributing to decrease irregular arrivals to the EU, 
in particular, to Cyprus. 

Smuggling can also be made easier when people can first come closer to the EU by exploiting 
legal visa-free regimes in the EU’s neighbours. Alignment with the EU visa-free regimes can 
help reduce such opportunities for smugglers.  A concerted initiative underlining the mutual 
interest of visa policy alignment with the EU conducted by the Commission and the Member 
States brought significant results in the Western Balkans in 2022 and 2023. To mitigate this 
vulnerability even further, the Commission has proposed to strengthen options for action in this 
area, by amending the visa suspension mechanism to include lack of visa policy alignment as 
a new ground for suspending visa-free travel.  

Completing the legislative toolbox on smuggling proposed by the Commission to tackle key 
challenges will be essential in the months and years ahead. This includes the proposals to enable 
more effective pursuit and prosecution of migrant smugglers. The collective follow-up to the 
call to action for a Global Alliance to Counter Migrant Smuggling will also be a major focus. 
The first thematic expert group focusing on digital smuggling is planned for April 2024 and 
will focus on engaging with online service providers and private companies to tackle the online 
dimension of migrant smuggling. Denmark is hosting a Conference on mutual partnerships in 
May, an important opportunity to take stock and work on next steps. Strengthened practical 
cooperation between EU agencies, Member State law enforcement and external partners will 
be the bedrock for action against the criminal gangs behind migrant smuggling. 

4.  Being more assertive on returns 

More effective returns are an important part of the EU response to irregular migration and also 
reduce  incentives  for  those  considering  unauthorised  entry.  Establishing  an  effective  and 
common EU system for returns is a central pillar of the Pact on Migration and Asylum, also 
reaffirmed by the EU Strategy for Voluntary Returns and Reintegration.  

This  requires,  in  the  first  place,  effective  systems  in  Member  States  to  implement  return 
decisions. The EU has been supporting Member States in this process through both funding 
and operational support by the relevant EU Agencies. However, the current proportion of return 
decisions that are effectively implemented remains below one in five.    

Strengthening return actions and mutual recognition of return decisions 

Dedicated structures are now up and running to bring targeted support to Member States. The 
EU Return Coordinator, in close cooperation with the High-Level Network for Returns, works 
to improve performance in this area.  

In  this  context,  the  recently  established  Return  Roadmap  provides  a  flexible  framework, 
currently focusing on five key actions: joint identification actions leading to issuing of travel 
documents supported by Frontex in relation to seven priority destinations (Iraq, Bangladesh, 
Pakistan, Tunisia, Nigeria, Senegal and The Gambia); assisted voluntary return, sustainable  
reintegration and joint return operations with Frontex; issuing return decisions at the same 

9 

 
 
time  as  negative  asylum  decisions;  mutual  recognition  of  return  decisions  and  follow-up 
enforcement; and prioritisation of returns of irregular migrants posing a security threat. 

The successful implementation of the Roadmap relies on sharing good practices and dedicated 
workshops are being developed with this aim, hosted by Cyprus, the Netherlands, and Belgium. 
Coordination meetings led by Frontex will feed into a calendar for the first half of 2024 for 
each priority third country to help Member States to manage their return cases.  

Another tool to improve the efficiency of the EU as a whole on returns is mutual recognition 
of return decisions. The Commission Recommendations of March 2023 have resulted in an 
increased use of the Schengen Information System  return alerts by Member States: over 
200 000  new  alerts  on  return  were  introduced  by  Member  States  in  six  months.  Now  that 
Member States authorities can see if a person who is apprehended on their territory has already 
been issued a return decision in another Member State, this information can be used to speed 
up the return. Expert contacts are under way to make the most of this opportunity.3  

One missed opportunity  is the reform of the Return Directive, first proposed in 2018 and 
which  is  not  yet  agreed  under  the  Pact.  The  reform  would  bring  key  improvements  in  the 
management of return policy. It would help prevent and reduce absconding and unauthorised 
movements, with common criteria to assess each case and the possibility to use detention for 
public order and security concerns.  

Support to return and reintegration 

EU  funding  and  Frontex  support  both  help  Member  States  with  return  and  reintegration, 
including by encouraging voluntary return and by keeping potential returnees engaged in the 
return  process.  This  includes  practical  help  such  as  booking  flights,  paying  forced  return 
escorts, and working with the International Organization for Migration (IOM) on reintegration.  

Returns from the EU are supported by both bilateral Member State programmes and by the 
Frontex Joint Reintegration Services, which offers support for reintegration of returnees in 
over 35 third countries (to be expanded to around 50 countries in the near future). Since the 
Service was launched in April 2022, over 5 500  beneficiaries have been  supported, with  an 
acceleration  in  2023.  24  Member  States  and  Schengen Associated  Countries  have  used  the 
Service, covering all the third countries under its scope. The regular provision of reintegration 
support,  especially  for  forced  return  cases,  has  been  welcomed  by  partner  countries,  and 
contributed to facilitating the conduct and acceptance of return operations. An example is the 
EUR 13 million support for sustainable reintegration for returnees from the EU in Morocco, 
Egypt and Tunisia, both direct support to returnees themselves and structural support to the 
national authorities responsible 

Supporting assisted voluntary return from partner countries and sustainable reintegration 
in countries of origin is another key objective. Since 2021, the EU has devoted almost EUR 
400 million to support voluntary return and reintegration of returnees from transit countries in 
Sub-Saharan Africa. Between August 2022 and January 2024, the EU supported over 17 000 
migrants  with  voluntary  return  and  substantial  reintegration  measures  under 
this 
programme.  Under a EUR 68 million programme for voluntary returns from North of Africa, 
the number of migrants returned per year almost tripled between 2020 and 2023 (reaching over 
13 000 in 2023), with significant support to protection ahead of returns.  

Enhancing returns is one of the main pillars of the EU Action Plan on the Western Balkans. A 
new  EUR  13  million  regional  returns  programme  will  further  support  Western  Balkan 

3   On 7 March 2024, a meeting of return and SIS experts took place to improve practical cooperation and make 

full use of the potential of the SIS return alerts to support a more efficient return process. 

10 

 
 
 
partners  to  operationalise  effective  and  rights-based  return  management  systems,  including 
both  voluntary  and  non-voluntary  returns.  A  pilot  project  implemented  by  IOM  with  the 
authorities of Bosnia and Herzegovina has also supported non-voluntary returns of irregular 
migrants, primarily to Bangladesh and Türkiye. 

5.   Responding to acute needs and crises 

The EU has stepped up to respond to a variety of unanticipated pressures and crises that have 
emerged during the course of the last four years. In doing so, the Commission has repeatedly 
shown  how  EU  support  can  bring  relief  to  Member  States  exposed  to  particular  migratory 
pressure at the external border or suffering a particular spike in irregular arrivals. By combining 
support  from  agencies  –  the  EU  Asylum  Agency,  Europol  and  Frontex  –  funding  and 
operational support, the EU can rapidly target help to address specific needs. 

Targeted support to Member States under pressure 

In  Cyprus,  support  is  based  on  a  Memorandum  of  Understanding  agreed  with  Cyprus  in 
February 2022. This covers all aspects of migration management, including substantial funding 
to enhance reception capacities. This has boosted Cyprus’ capabilities for border management 
and helped it to make full use of the possibilities under the Voluntary Solidarity Mechanism, 
as well as its return capacity.    

In Greece, the European Commission has been supporting the strengthening of the national 
migration  management  system,  with  a  focus  on  improving  reception  facilities  and  making 
asylum and return procedures more efficient. Significant financial, operational, and technical 
support  have  helped  national  authorities  in  these  areas,  substantially  improving  overall 
reception  capacity  and  conditions,  streamlining  asylum  procedures,  and  boosting  both 
relocations and returns.  

When almost 10 000 thousand migrants arrived in Lampedusa within 72 hours in September 
2023,  the  EU  provided  immediate  support. The  10-point  plan  set  out  by  President  von  der 
Leyen has been taken forward effectively. On top of financial support, agencies were deployed 
to help with registration of arrivals and referral to the appropriate authorities, as well as with 
additional personnel and surveillance assets. Transfers via air from the island, funded by EU 
emergency assistance, also contributed to alleviate the pressure. This work on the ground was 
complemented by renewed efforts to tackle migrant smuggling networks and diplomatic efforts 
with Tunisia and with countries of origin had a swift impact on reducing irregular arrivals. 

The EU has also been supporting Spain, through both financial and operational support for 
improved  border  management  and  strengthened  reception  facilities  and  procedures  in  the 
Canary Islands, as well as on the mainland. This includes specific Frontex Joint Operations to 
support Spain’s ability to manage its external borders in a safe and effective manner at both sea 
and air borders. 

Combating instrumentalisation 

While those managing the external border must always be equipped and prepared to handle 
shifting patterns of movement as the routes and practice by the migrant smugglers evolve, in 
recent  years  the  EU  has  faced  new  challenges  with  a  growing  number  of  incidents  where 
migrants have been instrumentalised for political purposes.    

The EU has acted swiftly to protect both the individuals concerned, and the Union’s external 
borders. When the Belarusian regime instrumentalised people in the second half of 2021, the 
EU  worked  closely  with  the  Lithuanian,  Polish  and  Latvian  authorities  to  offer  reinforced 

11 

 
 
border protection and funding to support asylum and reception capacity.  Intensified diplomatic 
outreach  helped  to  prevent  further  exploitation  of  individuals  and  facilitated  their  dignified 
return.    

To avoid the need to resort to ad hoc measures in future situations of instrumentalisation of 
migrants, the Pact provides a definition and a stable framework under the EU asylum and return 
rules to clarify how Member States could manage such situations in full respect of EU law, 
fundamental rights and international obligations.  

Supporting those fleeing the Russian invasion of Ukraine 

One of the most significant steps in EU asylum and migration policy during the past four years 
has been the activation in March 2022, upon a proposal by the Commission, of the Temporary 
Protection Directive, which has so far benefitted over four million people fleeing Russia’s war 
of aggression against Ukraine. Despite an unprecedentedly high number of arrivals in a short 
timeframe, the EU helped to ensure that both those fleeing to the EU and the Member States 
receiving them were well supported. Under Temporary Protection, people fleeing the war were 
provided with housing, access to the labour market, medical care and education for children, 
which in turn also avoided unmanageable pressure on Member States’ asylum systems.  

Coordination tools to link up national efforts play a key role in joined-up delivery. To support 
Member  States  with  the  implementation  of  the  Temporary  Protection  Directive,  the 
Commission established the Solidarity Platform ‘Ukraine’4 to bring together all key players 
in this context. The Solidarity Platform has monitored emerging needs of displaced people from 
Ukraine  in  the  EU,  supporting  the  coordination  of  an  operational  response.  In  addition,  the 
Commission set up the Temporary Protection Registration Platform as a way for Member States 
to exchange information in real time on the beneficiaries of temporary protection and adequate 
protection under national law.  

Rapidly recalibrated EU funding was key to underpinning the efforts of Member States and 
civil society, as well as the many communities and individual Europeans supporting those in 
need. The Commission  proposed the Cohesion’s Action for Refugees in  Europe (CARE)  in 
March 2022 which was later reinforced with CARE (+) supporting accommodation, healthcare, 
access to employment, medical, social, and psychological support. This is on top of established 
support for integration through EU funding. EU Agencies also delivered direct support on the 
ground to the Member States bordering Ukraine and to Moldova. The decision to further extend 
the  application  of  the  temporary  protection  regime  until  March  2025  shows  the  EU’s 
unwavering commitment to support Ukraine.  

Reducing secondary movements and showing solidarity 

Over the last four years, considerable efforts have been made to provide support to Member 
States  under  pressure,  either  from  arrivals  at  the  external  borders  or  from  unauthorised 
movements  within  the  EU.  This  has  served  to  address  shortcomings  in  the  current  Dublin 
system pending the implementation of the Pact. 

To support Member States  under pressure, in  particular from arrivals  at  sea, the  Voluntary 
Solidarity  Mechanism  was  established.  The  Commission  coordinates  this  mechanism, 
supported by the European Union Agency for Asylum assessing the needs of the Member States 
of first entry and monitoring the respect of commitments made for both relocation and financial 

4   The Platform 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,  as  well  as  Ukraine,  Moldova  and  international  partners,  notably  the  United 
States, Canada and the United Kingdom. 

12 

 
 
 
solidarity. Alongside delivering more than 4 000 relocations to date, this temporary mechanism 
has provided valuable experience to feed into the implementation of the permanent, structured 
and predictable solidarity mechanism to be put in place under the Pact, where relocation is one 
possible form of support to Member States under pressure. 

To  help  address  secondary  movements,  the  Commission  presented  good  practices  on  the 
implementation of the Dublin Roadmap, aiming to improve communication between Member 
States, increase compliance with EU law, and limit absconding.  The overall objective is to 
improve  the  level  of  Dublin  transfers  and  thus  limit  unauthorised  movements  between  the 
Member  States.  Achieving  the  goals  and  objectives  of  the  Dublin  Roadmap  requires  that 
Member States continue implementing it as a priority and allocate the necessary human and 
financial resources to the Dublin units. Implementation of the measures set in the Roadmap 
remains  key,  not  only  to  address  current  challenges,  but  also  to  ensure  an  effective 
implementation of the Pact. The Commission will continue to support the Member States in 
achieving all the objectives set in the Dublin Roadmap. 

IV.   THE EXTERNAL DIMENSION: WORKING WITH PARTNER COUNTRIES  

Europe is a continent whose history has been shaped by many peoples. Migration is not a new 
phenomenon,  nor  is  it  one  that  affects  Europe  alone.  Migration  journeys  always  have  a 
beginning and an end and countries worldwide face many of the same challenges we do. Any 
European migration policy must be fully embedded in our foreign policy. Migration policies 
that work well are in the interest of partner countries, the EU, as well as refugees and migrants 
themselves. 

1.  A new paradigm based on comprehensive partnerships 

Upon  taking  office,  the  von  der  Leyen  Commission  committed to  taking  a  fresh  look  at  its 
priorities, first in terms of the place of migration in its external relations and other policies, and 
then in terms of what this means for our overall relations with specific partners.  

As a key priority for the EU as well as a major policy issue for partners, migration is an integral 
part of the deepening relationships the EU has with partners worldwide. There is now a clear 
drive to establish deeper partnerships with key third countries that will situate cooperation on 
migration alongside other major interests.  

Comprehensive partnerships embedding migration have proven to be successful in achieving 
mutually beneficial results. This approach will also need to be broadened and expanded with 
more partners. The EU will also need to complete the shift to a more pragmatic and assertive 
way of ensuring our own interests are reflected in the partnerships we maintain, not shying 
away from using leverages, both positive and negative. 

Migration within broader relations with North African and other partners 

The past year has seen a major effort to address the migration challenges in the Mediterranean 
and Atlantic as part of deepening relations overall with North Africa and other partners. The 
Commission has led Team Europe missions with leaders of Member States to Tunisia in July 
2023,  Mauritania  in  February  2024,  and  Egypt  in  March  2024  to  underline  the  EU’s 
commitment  to  developing  comprehensive  and  mutually  beneficial  partnerships  in  which 
migration is a key element, alongside concerns such as regional stability and the huge potential 
for economic development in areas like renewable energy.  

13 

 
 
 
 
These were key themes in the Memorandum of Understanding reached with Tunisia in July 
2023, looking at macroeconomic stability, the economy and trade, green energy and people to 
people contacts. A section on migration has been taken forward alongside the other priorities 
and  saw  a  major  reduction  in  departures  from  Tunisia  since  autumn  2023.  A  new 
comprehensive partnership with Egypt will focus on economic stability, investment, trade, as 
well as migration and mobility, security and human capital development.  

With Mauritania, the EU has proposed to deepen cooperation in many areas, with a focus on 
the green transition. A specific Joint Declaration on a migration partnership signed in March 
2024  will  be  accompanied  by  assistance  and  cooperation,  including  better  socio-economic 
opportunities for young people in Mauritania, support for reception of refugees and the host 
communities  welcoming  them,  for  border  management  and  the  fight  against  smuggling  of 
migrants. 

Tackling root causes 

The EU and its Member States remain, collectively, the largest provider of official development 
assistance in the world. The EU’s investment strategy in support of sustainable infrastructure 
investments,  Global  Gateway,  will  mobilise  up  to  EUR  300  billion    by  2027,  to  boost 
connectivity and support the green and digital transitions. Over half of the total amount will be 
invested in Africa, while EUR 77 billion will be devoted to Economic and Investments Plans 
for the Eastern Partnership, Southern Neighbourhood and the Western Balkans. 

As well as the overall impact of this massive commitment to economic development, EU action 
is more specifically focused on supporting partners in preventing irregular migration through 
addressing  its  root  causes.  Sustainable  economic  opportunities,  vocational  education  and 
training,  particularly  for  young  people,  social  services,  support  to  small  and  medium-sized 
enterprises  and  increased  access  to  finance  can  have  an  important  bearing  on  reducing  the 
pressure for irregular migration. Diaspora investments in countries of origin can also help to 
decrease this  pressure,  while remittances  can be leveraged for development. The EU works 
with partners to address the different drivers of migration and of forced displacement, including 
poverty  and  poor  governance,  disasters,  the  adverse  effects  of  climate  change  and 
environmental degradation, conflicts, and instability both in countries of origin and transit. 

Working together on the ground  

The EU invests in a wide range of dialogues with partners to help third countries enhance 
and/or  develop  their  own  migration  and  asylum  policies  and  systems,  to  improve  their 
capacities for border and migration management, for providing international protection, and to 
address specific needs such as effective reintegration after return. 

Migration dialogues with  priority partner  countries reflect  this comprehensive approach to 
cooperation  on  migration.  For  example,  the  EU-Egypt  Migration  Dialogue  covers  border 
management,  returns  and  reintegration,  protection,  and  labour  migration,  with  support  to 
Sudanese refugees an important priority. The second High Level Dialogue on Migration with 
Türkiye  in  November  2023  confirmed  the  willingness  of  both  sides  to  strengthen  bilateral 
cooperation.  Implementation of the EU-Turkey Statement and of the EU-Turkey readmission 
agreement remain central to cooperation: as well as the hosting of refugees from Syria, key 
workstreams include helping to prevent irregular entries to and departures from the country 
and combatting smuggling networks. In Asia, in March 2023, the Commission launched two 
comprehensive  Migration  and  Mobility  Dialogues  with  Bangladesh  and  Pakistan.  Ongoing 
work with other partners such as Nigeria, Iraq, Tunisia, Morocco and Mauritania allows each 
partner's interests to be taken forward across the full range of issues.  

14 

 
 
Capacity building in the Western Balkans also includes legislative preparation of candidate 
countries for their future responsibilities on migration and asylum as Member States. Other key 
themes include reception capacities, and operational support from EU agencies and funding to 
help Western Balkan partners improve their migration and border management systems. The 
deployment of border guards from Frontex and joint patrols to support border management has 
been expanded through the conclusion of new status agreements (see below).  

This  cooperation  is  enabled  by  a  major  contribution  from  EU  funding.  With  10%  of  the 
NDICI-Global  Europe  (Neighbourhood,  Development  and  International  Cooperation 
Instrument – Global Europe) programme earmarked for migration and forced displacement-
related actions, more than 190 projects are under way, worth some EUR 5.3 billion. This means 
for example that EUR 691 million has been devoted to actions in North Africa in 2021-23, with 
almost  two  thirds  of  this  devoted  to  strengthening  migration  and  asylum  governance  and 
management. Addressing migration and external challenges in the Southern Neighbourhood in 
a comprehensive way will be further strengthened with the recent decision of the European 
Council to reinforce further migration funding.5 

EU funding is also complemented and amplified by support provided by EU Member States 
and other partners in Team Europe Initiatives. These focus on working on critical priorities 
on migration in a given country or region, where a coordinated and coherent effort can have a 
transformative impact. Team Europe Initiatives on the Central Mediterranean route and for the 
Atlantic and Western Mediterranean routes were both launched at political level in December 
2022, to support activities along the key routes to the EU as well as identify gaps and overlaps, 
strengthening  local  coordination  and  prioritising  joint  actions,  while  another  Team  Europe 
Initiative addresses the Afghan regional displacement situation.  

Support for protection worldwide  

Every year, millions of people are forced to leave their homes due to conflict, violence, human 
rights  violations,  persecution,  disasters,  and  the  impacts  of  climate  change. The  number  of 
forcibly displaced persons reached unprecedented heights in 2023 and currently stands at 110 
million  people  displaced  worldwide.  The  vast  majority  of  these  are  hosted  in  developing 
countries and the EU will maintain its commitment to help. 

Together, the EU and its Member States are the world's leading donor in support to refugees, 
contributing to 42% of global funding6. In 2022, the EU alone provided EUR 2.4 billion for 
humanitarian, development and peace support benefiting refugees and their hosts. Over the past 
few years, approximately with 80% of the EU humanitarian budget has been allocated each 
year to projects addressing the needs of forcibly displaced persons and their host communities 
worldwide.  

This includes major EU support to Türkiye, which hosts over 4 million refugees and faced a 
massive challenge from the Syrian crisis, with EUR 10 billion since 2011. The EU has also 
supported  Jordan,  Lebanon,  and  Iraq  to  address  the  impact  of  the  Syrian  crisis,  as  well  as 
playing a significant role in mobilising aid from other donors.  

Between 2021 and 2023, close to EUR 150 million have been allocated to actions in the field 
of protection in Libya, Tunisia, Morocco and Egypt, for example ensuring greater accessibility 
and care at local level for migrants in highly vulnerable situations, facilitating access to basic 
services, improving livelihoods, and in the case of Libya, enabling the transfer from detention 
centres of registered refugees and asylum seekers to urban settings.  

5   Special European Council of 1 February 2024 
6   OECD-DAC 2022 survey 

15 

 
 
 
The  EU  has  also  contributed  substantial  humanitarian  funding  in  Afghanistan,  Iran,  and 
Pakistan totalling over EUR 665 million since 2019, also committing over EUR 400 million to 
help  address  the  displacement  of  the  Rohingya,  chiefly  in  Bangladesh.  Humanitarian  and 
development cooperation support is also provided to other host countries in Asia, Africa and 
Latin America  facing  significant  displacement  situations,  for  example,  Colombia,  Uganda, 
Chad and Mozambique. 

Multilateral engagement 

EU  cooperation  with  UN  agencies  continues  to  be  extremely  valuable  to  both  sides.  The 
multi-faceted and close partnership with the International Organization for Migration (IOM) 
and  the  United  Nations  High  Commissioner  for  Refugees  (UNHCR)  covers  all  aspects  of 
migration  and  forced  displacement  and  has  deepened  further  through  the  response  to  the 
displacement crisis triggered by Russia’s invasion of Ukraine. Together, the EU and its Member 
States are the biggest donors to IOM and the second biggest to UNHCR. Cooperation has also 
been extended regarding situational awareness and preparedness, with UNHCR and IOM now 
participating in the EU Migration Preparedness and Crisis Management Mechanism Network. 
The Ukraine displacement crisis also strengthened EU cooperation with UNICEF on assistance 
to children7. The United Nations Office on Drugs and Crime (UNODC) is a close partner of 
the EU following the Call for Action in the context of the Global Alliance against smuggling 
of migrants.  

The EU supports a number of regional processes to promote the whole-of-route approach: the 
Euro-African Dialogue on Migration and Development (Rabat Process), the EU-Horn of Africa 
Migration  Route  Initiative  (Khartoum  Process),  the  Silk  Route  Partnership  on  Migration 
(Budapest  Process),  and  the  Prague  Process  (West  Balkans,  Eastern  Neighbourhood  and 
Central Asia). Since 2018, the EU also supports the Niamey process in West and North Africa 
to prevent and combat migrant smuggling and trafficking in human beings.  

The new Samoa Agreement signed by the EU and its Member States in November 2023 with 
the Members of the Organisation of African, Caribbean and Pacific States, providing a legal 
framework for relations in the next twenty years, includes an enhanced section on migration 
and mobility.  

The work of the joint AU-EU-UN Tripartite Task Force to find solutions to the migration 
challenges faced by Libya continues on the ground. Agreed priorities8 include working towards 
an end to arbitrary detention of migrants in Libya and development of alternatives to detention, 
and fighting against smuggling, as well as trafficking in human beings.  

With international partners, the EU is supporting the Rome Action Plan for Development and 
Migration in the Mediterranean region, Middle East and Africa launched in July 2023 and the 
continuing  Rome  process,  which  pursues  a  comprehensive  approach  to  tackling  irregular 
migration,  from  economic  investments  to  legal  pathways,  and  from  protection  to  anti-
smuggling measures.    

7    Other  UN  agencies  such  as  the  International  Labour  Organisation  (ILO),  the  United  Nations  Industrial 
Development Organisation (UNIDO) and the United Nations Office for Project Services (UNOPS) implement 
EU-funded programmes on the ground. 

8   EU, AU  and UN push for urgent action to address the pressing needs of migrants and refugees in Libya  - 

European Commission (europa.eu) 

16 

 
 
 
2.  Promoting legal pathways as an alternative to irregular migration 

Cooperation  on  legal  migration  is  one  of  the  elements  of  tailor-made,  mutually  beneficial 
partnerships  that  can  help  address  shared  challenges  and  contribute  to  the  effective 
implementation of readmission obligations. 

Talent Partnerships  
The  Talent  Partnerships  announced  in  the  Pact  enhance  legal  pathways  to  the  EU  while 
engaging partners countries strategically on migration management, in particular by helping to 
reduce irregular migration and incentivising partners to cooperate on return and readmission. 
Commission programmes bringing partner country nationals to study, train or work in the EU 
contribute to these partnerships, in addition to funding and capacity building assistance in areas 
such  as  labour  market  intelligence  and  skills  development,  strengthening  labour  migration 
governance, vocational education and training.  Each is tailor-made with priorities defined by 
the EU, Member States and the partner country. For the potential of this tool to be fully reached, 
the engagement  of Member States at  EU level  will  be essential to  maximise the leveraging 
effect labour migration cooperation can have on readmission.  

The Commission has so far prioritised the launch of such partnerships with Morocco, Tunisia, 
Egypt,  Pakistan  and  Bangladesh.  Talent  Partnerships  with  Nigeria  and  Senegal  are  also 
envisaged,  depending  on  an  improved  cooperation  on  the  full  range  of  migration  issues. 
Following the first Talent Partnership roundtables with each partner country in 2023, a new 
series of roundtable exchanges is taking place in the first half of 2024.  

Attracting Talent 

The EU’s economic growth is being hampered by severe labour shortages affecting numerous 
sectors, across Member States. While measures to maximise the potential of the EU domestic 
workforce are the first priority, labour migration is a necessary part of the solution. To remain 
competitive, the EU must attract skills and talent, building further on measures already taken 
including the revised EU Blue Card Directive and the Single Permit Directive.  Further work 
will be needed to complete the reform of the Long-term Residents Directive to make it easier 
to  acquire  long-term  residence  status  by  simplifying  procedures.  In  November  2023,  the 
Commission proposed to establish an EU Talent Pool, the first EU-wide platform to facilitate 
international recruitment to sectors facing labour shortages. Developing this will be a key area 
of work in the coming years, alongside integration measures to ensure migrants can bring their 
full potential to the labour market. 

Contributing to global resettlement efforts 

EU  resettlement  programmes  have  enabled  the  most  vulnerable  refugees  to  reach  Europe 
without having to resort to using criminal smuggling networks or endanger their lives by taking 
perilous routes. The EU remains committed to providing safe and legal pathways for those in 
need of protection. With the new EU Resettlement Framework under the Pact, the EU will have 
a permanent  system  solidifying the EU’s track record of contributing  to  global resettlement 
efforts. For 2024-25, Member States have pledged to receive over 60 000 persons through the 
EU resettlement and humanitarian admission scheme. Over the last three years, EU funding to 
support Member States has reached over EUR 318 million. The EU also continues to support 
the humanitarian evacuation of people from Libya to Emergency Transit Mechanisms in Niger 
and  Rwanda  for  onward  resettlement  to  help  the  most  vulnerable  to  escape  from  desperate 
circumstances. 

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3.  Using collective leverage for readmission 

For return and readmission to function effectively, countries of origin have to cooperate in the 
identification of their nationals, issue travel documents and accept return operations. This is an 
obligation under international law, as well as under a number of multilateral instruments and 
bilateral  readmission  agreements  and  arrangements.  Yet,  in  practice,  cooperation  is  often 
insufficient and needs to be strategically supported by engagement at all levels, through a Team 
Europe approach and the strategic use of all relevant policies and tools. 

The Commission and the EEAS has strengthened its use of diplomacy and the EU’s collective 
weight to leverage EU policies to support action on returns and readmission. Visa policy has 
provided new tools to promote cooperation in this area.  

Under  Article  25a  of  the  Visa  Code,  the  Commission  regularly  assesses  third  countries' 
cooperation on readmission and reports to the Council. If there is insufficient cooperation on 
readmission  and  taking  into  account  the  Union’s  overall  relations  with  the  third  country 
concerned,  the  Commission  has  the  possibility  to  propose  restrictive  visa  measures.  This 
process  has  been  instrumental  in  identifying  and  addressing  challenges  and  has  led  to 
strengthened  dialogue  on  readmission  with  several  partners,  with  improved  dialogue  and 
cooperation with partners including Iraq, Bangladesh and The Gambia. The fourth report was 
presented  in  July  2023,  and  a  new  proposal  for  visa  restrictive  measures  for  Ethiopia  was 
adopted, together with a proposal to partially withdraw the restrictive measures in place for 
The Gambia.  

The Article  25a  mechanism  only  covers  visa-required  countries.  For  the  64  countries  with 
whom the EU has a visa-free regime in place, the visa suspension mechanism is a safeguard 
against  the  abuse  of  visa-free  travel  that  can  result  in  irregular  migration.  Whilst  this 
mechanism can act as a strong deterrent, it has only been activated once. Concluding the reform 
of this mechanism will be essential to make it easier to use as well as to address a greater range 
of abuses of visa-free travel, such as increased irregular arrivals due to the lack of alignment 
with the EU's visa policy, investors citizenship schemes in visa-free countries, or hybrid threats, 
such as state-sponsored instrumentalisation of migrants. The reform also incorporates stricter 
rules for abuses related to unfounded asylum claims (in 2023, 23% of all asylum applications 
in the EU came from visa-free countries). 

Another potential tool to secure cooperation on returns and readmission could be the revised 
General  System  of  Preferences  (GSP  Regulation).  The  Commission  has  proposed  a  new 
provision in the regulation, which would introduce a new criterion for withdrawing preferential 
tariff  treatment  unilaterally  awarded  by  the  EU,  that  of  serious  shortcomings  in  the 
implementation of the obligation to readmit own nationals. This would increase the incentive 
for  third  countries  to  uphold  their  international  obligations  and  foster  better  migration 
management. The regulation is currently under negotiation.  

The change  of paradigm that the EU has brought  to  its  relationships  with  third countries is 
already showing strong results and this will continue to be a dominant theme of the EU’s work 
for the years to come. Positive incentives – including in the fields of trade, development, legal 
migration  –  need  to  be  used  in  a  strategic  and  coherent  way  so  that  their  positive  dynamic 
benefits cooperation on readmission. 

V.  

SUPPORT FROM EU AGENCIES 

Key to trust in EU and national migration policies is consistency in implementation, requiring 
enhanced  monitoring  and  operational  support  by  EU  Agencies.  Over  the  last  decade,  the 

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operational  expansion  of  EU  border  and  migration  management  agencies’  mandates  has 
enabled them to increase their level of support to Member States and deploy their staff and 
experts in fields such as border control, returns and the processing of asylum claims. 

Frontex 

With  its  strengthened  mandate,  Frontex  has  increased  its  support  to  Member  States  in 
managing external borders, providing services, information, equipment and access to tools and 
expertise that helps to address migratory challenges in Member States. As set out above, this 
includes an increasing role in the area of returns. The progressive establishment of the Standing 
Corps is on track to reach the target of 10 000 by 2027, aiming to be fully equipped and trained 
to provide substantial support for border control and return. However, this will depend in part 
on  Member  States  fulfilling  their  obligations  to  provide  personnel  through  both  long-term 
secondments and short-term deployments. 

Frontex has also increased its agility to better tackle sudden needs and hybrid threats, as shown 
in its swift response in Finland at the end of 2023. On top of operational support, Frontex has 
a crucial role implementing European integrated border management.  

Frontex  also  supports  the  capacity  building  and  border  management  of  third  country 
partners. A new generation of Status Agreements between the EU and third countries allows 
for the deployment of the Frontex Standing Corps with executive powers between two non-EU 
countries, allowing joint border control work across air, sea and land. These have been signed 
so  far  between  the  EU  and  Albania,  Moldova,  Montenegro  and  North  Macedonia.  An 
agreement with Serbia should be signed soon, and negotiations were  officially agreed to be 
launched with Bosnia and Herzegovina on 12 February.  

Frontex also has working arrangements that allow for cooperation with the authorities of 
third countries in areas including information exchange, capacity building and risk analysis. 
Such arrangements currently exist with Albania, Georgia, Bosnia and Herzegovina, Kosovo*, 
North Macedonia, Azerbaijan, Türkiye, Armenia, Nigeria, Cape Verde, Canada, Montenegro, 
USA,  Moldova,  Ukraine  and  the  UK9.    The  Agency  is  currently  negotiating  a  further  16 
working arrangements, including with north and west African partners, while updating the 
existing arrangements with other partners.   

For all these new tasks, Frontex has adopted and implemented a Fundamental Rights Strategy, 
ensuring the Agency’s compliance with EU and international law, including the principle of 
non-refoulement.  

Frontex deployments  

At the beginning of 2024, Frontex has 22 operational activities ongoing, supporting Member 
States  and  Schengen Associated  Countries  in  border  control  and  return,  as  well  as  with 
partner countries. Currently, the Agency has over 2 700 standing corps members deployed. 
The operations provide support to land, sea and air border surveillance. Among other tasks, 
they support border checks at the border crossing points as well as return operations.  

The figures above include Frontex operations in third countries. At the beginning of 2024, 
Frontex  had  over  500  officers  in  the  Western  Balkans,  in  Albania,  Montenegro,  North 
Macedonia and Serbia, as well as in Moldova, assisting the national authorities with border 

*   This designation is without prejudice to positions on status, and is in line with UNSC 1244 and the ICJ Opinion 

on the Kosovo Declaration of Independence. 

9   Activities under arrangements with Russia and Belarus have been suspended. 

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management, surveillance, detection of forged documents and fighting cross-border crime, 
as well as deploying relevant vehicles. 

EU Asylum Agency 

In January 2022, the European Asylum Support Office (EASO) became the EU Agency for 
Asylum (EUAA), a fully-fledged agency with more tools to support Member States in asylum 
and reception management. A Monitoring Mechanism, the methodology of which was prepared 
in 2023, will monitor the operational and technical application of EU legal obligations and thus 
contribute to a more harmonised EU asylum system. As well as helping the work of Member 
States  directly,  EUAA’s  work  to  use  operational  standards,  guidance  and  training  to  align 
asylum and reception practices of Member States promotes greater convergence and helps to 
reduce secondary movements.  

The EUAA has backed up the work of the Commission to help Member States under migratory 
pressure  in  building  strong  asylum  governance  with  operational  and  technical  assistance  to 
Member States on their asylum and reception systems.     

The EUAA also provides capacity building support to some third countries, with a focus on 
candidate  countries. The Agency  has  notably  agreed  on  bilateral  Roadmaps  with  all  of  the 
Western Balkan partners to help align with the EU acquis and tailored to the specific needs on 
the ground.  

EUAA deployments  

The  EUAA’s Asylum  Support  teams  throughout  the  EU  provide  support  to  the  National 
Asylum  and  Reception  Authorities  in  governance,  strategic  planning,  quality,  and 
procedures.  

As of 3 March 2024, EUAA had 1,141 deployments in 12 Member States. 

Europol 

The deployment of staff to Member States, as well as to partner countries, is a key element of 
Europol’s work in facilitating information sharing and supporting investigations. This includes 
deploying experts and guest officers to support local law enforcement authorities to 12 Member 
States and partner countries. In operational work, Europol has been building its network based 
on 20 agreements allowing for the exchange of personal data with third countries on serious 
organised crime and terrorism.10 These will be essential to the effective delivery of the new 
mandate on migrant smuggling and the European Centre Against Migrant Smuggling.  

Europol deployments 

As of 4 March 2024, Europol has 79 deployments in 11 Member States and Moldova.  

These  teams,  comprised  of  Europol  specialists  and  guest  officers,  support  the  national 
authorities with secondary security checks and investigations. They also gather information 
in the field, which is used to develop criminal threat assessments at the European level and 
to support investigations. 

eu-LISA 

eu-LISA is the EU agency responsible for a wide range of major IT systems used in EU justice 
and home affairs policies. Its work will be central to the application of IT tools critical to border 

10   Europol also has 16 working arrangements and strategic agreements which cater for structured cooperation 

without exchanging personal data. 

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management already in use or coming on stream, as well as for their interoperability. It has 
succeeded in introducing a network of systems at EU and national level which make possible 
a full overview of who is entering the EU.  

Eurojust 

Eurojust, the Union’s agency for criminal justice cooperation, is a key actor in the response to 
migrant smuggling. It supports complex cross-border cases requiring judicial coordination and 
Joint Investigation Teams pursuing the criminal smugglers of migrants, and organises a Focus 
Group on Migrant Smuggling to bring together judicial actors from Member States to analyse 
the  changing  tactics  of  organised  crime  groups  in  this  area  and  share  best  practice  in 
investigation and prosecution of these cases.   

VI.   CONCLUSION 

By working together, the EU has proven that it can and will deliver a truly common migration 
and asylum policy. The newly agreed Pact on Migration and Asylum sets out the end-to-end 
approach needed to make migration management in Europe fair, efficient and sustainable. It is 
the single most groundbreaking overhaul of the EU’s migration and border management rules 
since the dawn of the Schengen area and the single market. And it is what will allow generations 
of Europeans to continue benefitting from these unique, European-trademarked freedoms.  

Going forward, we must place a relentless emphasis on implementation to ensure all Member 
States have a well-prepared system as a prerequisite for building the mutual trust needed for 
the new balanced approach of the Pact to work. The Commission will lead the collective work 
on  this,  starting  with  a Common  Implementation  Plan,  and  will  accompany  Member  States 
every step of the way with financial, technical and operational support, including from the EU 
Agencies.  Work  must  also  continue  to  complete  this  legislative  toolbox  with  the  missing 
elements  on  return  and  long-term  residents  as  well  as  the  complementary  initiatives  on 
smuggling, commercial means of transport and visas.  

The Pact will be a game-changer in the way Europe manages migration, but it cannot operate 
in a vacuum. To succeed, Europe will always need to rely on a two-track approach of enacting 
structural reform, alongside continuous efforts to deal with the day-to-day management of 
acute pressures and crises. As in recent years, the Commission will continue to implement 
operational steps to improve the EU’s response to shared challenges, ensuring that moments of 
crisis  are  handled  swiftly,  with  comprehensive  support  to  Member  States  and  fairness  to 
migrants, drawing on available financial resources and the support of the EU agencies.   

Finally, the search for solutions to challenges new and old faced by Member States will be an 
enduring endeavour. The EU as a whole will need to continue looking for practical ways to 
address  some  of  the  more  intractable  issues  related  to  migration,  conscious  that  preventing 
journeys that put lives at risk is a global responsibility. The external dimension of migration 
policy  is  critical  for  success,  and  durable  solutions  will  require  continued  efforts  to  make 
migration a priority in mutually-beneficial partnerships.  

Anchoring our actions in our values and acting together in fairness and firmness, the EU has 
shown that it can deliver on migration. These are the hallmarks that should continue to guide 
our future action.  

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