Proposal for a COUNCIL RECOMMENDATION for the 2024/2025 Schengen Cycle
Date: 2024-04-16
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU migration policy, Schengen Agreement, border control, digitisation, external border of the EU, fight against crime, illegal migration, internal border of the EU, international cooperation, return migration

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   EUROPEAN COMMISSION  Brussels, 16.4.2024  COM(2024) 174 final 2024/0094 (NLE)  Proposal for a COUNCIL RECOMMENDATION for the 2024/2025 Schengen Cycle  
 
EXPLANATORY MEMORANDUM 

1. 

• 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

Despite  its  solid  foundations,  the  Schengen  area  without  controls  at  internal  borders  (“the 
Schengen  area”)  remains  exposed  to  challenges  that  are  not  confined  to  the  territory  of  one 
single  Member  State.  In  2023,  the  Schengen  area  continued  to  be  confronted  with  several 
pressing  vulnerabilities  at  both  national  and  European  levels  in  core  areas  of  the  Schengen 
system that require an effective joint response.  

Efforts  made  over  the  past  years  to  reinforce  the  governance  framework  have  laid  the 
foundation for coordinated action between Member States and at Union level. The 2024 State 
of  Schengen  report  demonstrates  the  Commission’s  continued  commitment  to  strengthening 
the  governance  of  the  Schengen  area.  The  report,  initiating  the  2024-2025  Schengen  cycle, 
serves as an essential resource for political decision-making and operational follow-up at both 
European and national levels. Building on Schengen evaluations conducted in 2023, the report 
provides  an  overview  of  the  Schengen  area's  current  state,  assessing  progress  at  the 
conclusion of the yearly governance cycle and pinpointing priority areas that  require further 
attention. 

Ensuring the proper functioning of the area without controls at internal borders between the 
Member  States  is  a  joint  endeavour  and  shared  responsibility  that  requires  a  coherent  and 
coordinated approach.  While the governance of the  Schengen  area has  been reinforced with 
the  launch  of  the  first  Schengen  cycle  in  2022,  it  still  lacks  a  framework  to  identify  and 
implement priorities based on common ownership and collective responsibility of all Member 
States. The result is often limited coordination and a frequent lack of joint implementation of 
the  Schengen  rules,  leading  to  unilateral  action  and  fragmented  measures.  The  lack  of  this 
structured framework diminishes  the capacity of the annual  Schengen cycle to  preserve  and 
strengthen the integrity of the Schengen area. 

In line with the way forward announced in the 2023 State of Schengen report, the 2024 report 
is therefore accompanied by a Commission proposal for a Council Recommendation. The aim 
of  the  present  proposal  for  a  Council  Recommendation  is  to  focus  on  a  select  number  of 
issues, requiring Member States to act individually as well as collectively within the remit of 
the Schengen Council, in line with the existing policy initiatives on Schengen matters. Based 
on  the  priorities  identified  in  the  2024  State  of  Schengen  Report,  the  Commission  proposes 
that the Council Recommendation focuses on: 

•  Consolidating the Schengen governance framework; 

•  Enhancing the preparedness, security, and resilience of the external borders; 

•  Accelerating the digitalisation of the Schengen area; 

• 

Intensifying measures against cross-border crime and unauthorised movements; and  

•  Contributing to establishing an effective EU system for return.  

This  Proposal  for  a  Council  Recommendation  on  the  Schengen  area  is  intended  to  serve  as 
input  for  the  upcoming  Schengen  Council  meeting  on  13/14  June  2024,  during  which  the 
Council  is  expected  to  agree  on  the  priorities  for  the  upcoming  2024/2025  Schengen  cycle. 
The  implementation  of  this  Recommendation  should  be  monitored  by  the  Council,  with 

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Member States, the Commission  and relevant  JHA Agencies  regularly reporting on specific 
workstreams.  The  results  of  the  Schengen  evaluation  and  monitoring  activities  will  be 
embedded in this process. 

• 

Consistency with existing policy provisions in the policy area 

This Recommendation seeks to step up the effective implementation of the Schengen acquis 
in a coordinated manner. 

• 

Consistency with other Union policies 

This  Recommendation  seeks  to  make  a  positive  contribution  to  a  fully  operational  and 
resilient  Schengen  area,  facilitating  the  unrestricted  movement  of  over  425  million  people. 
This recommendation is in line with other Union policies, including those regarding security 
and migration, namely the Pact on Migration and Asylum and the Security Union Strategy. 

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

The Treaty  on the  Functioning of the European  Union (TFEU), and in  particular points (a), 
(b), (d) and (e) of Article 77(2) and point (c) of Article 79(2) as well as Article 292, first and 
second sentence, thereof. 

• 

Subsidiarity (for non-exclusive competence) 

Article  292  TFEU  enables  the  Council  to  adopt  recommendations.  According  to  this 
provision,  the  Council  shall  act  on  a  proposal  from  the  Commission  in  all  cases  where  the 
Treaties provide that it shall adopt acts on a proposal from the Commission. 

This applies in the current situation, as ensuring a coordinated approach to common priorities 
having an impact on the functioning of the Schengen area cannot be sufficiently achieved by 
the Member States acting alone and can be better achieved at the level of the Union. 

• 

Proportionality 

This proposal aims at ensuring the adoption of coordinated measures to avoid an inconsistent 
and  fragmented  implementation  of  the  Schengen-wide  priorities.  The  proposal  does  not  go 
beyond what is necessary and proportionate for achieving the intended objectives. 

Choice of the instrument 

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Ex-post evaluations/fitness checks of existing legislation 

Stakeholder consultations 

Collection and use of expertise 

• 

n.a. 

3. 

• 

n.a. 

• 

n.a. 

• 

n.a. 

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Impact assessment 

Regulatory fitness and simplification 

• 

n.a. 

• 

n.a. 

4. 

BUDGETARY IMPLICATIONS 

The  proposal  will  not  generate  new  funding  requirements  and  will  support  an  effective 
implementation of EU funds, by ensuring a strategic prioritisation at EU and national levels.  

5. 

• 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

The  implementation  of  the  proposed  Recommendation  requires  a  close  monitoring  by  the 
Council and the Commission, which will form  a key part of 2024-2025 Schengen Cycle. In 
December  2024,  the  Council  should  take  stock  of  the  progress  made  and  the  Commission 
should  report  on  the  level  of  implementation  of  the  Recommendation  in  the  2025  State  of 
Schengen report.  

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2024/0094 (NLE) 

Proposal for a 

COUNCIL RECOMMENDATION 

for the 2024/2025 Schengen Cycle 

THE COUNCIL OF THE EUROPEAN UNION, 

Having  regard  to  the  Treaty  on  the  Functioning  of  the  European  Union,  and  in  particular 
Articles  77(2)  and  79(2)(c)  in  conjunction  with  Article  292,  first  and  second  sentences 
thereof, 

Having regard to the proposal from the European Commission, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

The creation of the Schengen area without controls at the internal borders (“Schengen 
area”)  is  one  of  the  main  achievements  of  the  Union.  A  well-functioning  Schengen 
area is a common objective that relies on the effective and efficient application of the 
Schengen acquis, a robust governance framework and a high level of mutual trust. 

Since 2022, the Commission assesses the state of the Schengen area in its annual State 
of  Schengen  report.  Launching  the  2024-2025  Schengen  cycle,  the  Commission 
adopted  the  2024  State  of  Schengen  report  on  16  April  2024,  identifying  priorities 
requiring political and operational follow-up within the Schengen Cycle. 

Building  on  the  progress  made  in  2023  to  consolidate  Schengen  governance,  this 
framework needs to be reinforced to improve the setting and follow-up of the common 
priorities for the Schengen area through increased political ownership  of all Member 
States and responsibility at EU level. To achieve this objective, it is appropriate to set 
and  implement  annual  Schengen-wide  priorities  that  will  support  Member  States, 
complementing  their individual efforts  with coordinated and common action  through 
the Schengen Council, and will also facilitate a close monitoring of the progress made 
to ensure a high level of implementation of the Schengen rules. 

Taking into account the Commission’s assessment in the State of Schengen report and 
in light of the urgent action needed in some areas, it is considered opportune to focus 
coordinated  action  on:  finalising  the  consolidation  of  Schengen  governance; 
strengthening  actions  to  enhance  the  preparedness  of  the  Schengen  area  with  more 
resilient external borders, ensuring full compliance with the obligations set out in the 
EU  Charter  of  Fundamental  Rights;  finalising  the  digitalisation  of  the  Schengen 
architecture to boost Europe’s competitiveness while ensuring high security standards 
for  the  citizens  of  the  Union;  stepping  up  collective  responses  to  address  more 
effectively  common  migration  and  security  risks,  including  through  increased  police 
cooperation and a more effective and sustainable EU return system. 

(5) 

Solid  national  governance  structures  and  processes  in  Member  States  supporting  the 
effective  implementation  of  national  integrated  border  management  and  security 
strategies are a prerequisite for effective Schengen governance. National and European 
response capacities need to be strengthened and further developed to address irregular 

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(6) 

(7) 

(8) 

(9) 

migration and secondary movements more effectively. Further efforts are also needed 
to combat cross-border crime and security threats in a more integrated manner. 

Border control at the external borders is in the interest not only of the Member State at 
whose external borders it is carried out but for the Schengen area as a whole. The full 
operationalisation of the European Border and Coast Guard is a priority for the Union. 
Therefore,  the  standing  corps  and  capabilities  for  the  European  Border  and  Coast 
Guard should be swiftly completed reaching 8 000 standing corps by 2025 in view of 
achieving  the  required  objective  of  10  000  standing  corps  by  2027.  Furthermore, 
existing  shortcomings  in  human  resources  as  well  as  in  technical  equipment,  both  at 
Union  and  national  levels,  have  to  be  urgently  addressed.  Member  States  need  to 
guarantee an effective implementation of the national capability plans, which need to 
be  updated  in  line  with  the  recently  adopted  ‘EBCG  Capability  Roadmap’  to  reflect 
the possible evolution of the situation at the external borders and related challenges. 

Schengen  evaluations  have  identified  vulnerabilities  in  the  use  of  databases,  in 
particular the Schengen and Visa Information Systems, which constitute an important 
security  gap.  Failures  in  document  checks  and  verification  of  identity  lead  to 
undetected threats and flawed procedures. This applies to visa applications, checks at 
external  borders,  return  of  third-country  nationals  with  no  legal  right  to  stay,  law 
enforcement  actions,  and  more  generally  registration  with  the  authorities  of  Member 
States. Efforts are needed to ensure that the relevant data is inserted in the databases, 
in  line  with  the  existing  requirements,  and  to  improve  capabilities  and  processes  to 
make  full  use  of  the  available  data,  in  particular  to  effectively  identify  and  verify 
persons and their documents. The implementation of the Interoperability Architecture 
will also help combat identity fraud. 

The effective implementation of the Regulation (EU) No .../... [Screening Regulation] 
requires  Member  States  to  take  immediate  steps  to  ensure  that  all  capabilities  and 
processes are effectively in place by 2025. To this end, they should progressively start 
allocating  appropriate  staff,  sufficient  resources,  including  for  the  independent 
monitoring body of fundamental rights, as well as adequate infrastructure. 

Reinforcing  the  stability  in  the  EU's  neighbourhood  and  beyond  contributes  to  the 
EU's own security. Therefore, cooperation to address irregular migration and combat 
cross-border  crime,  including  migrant  smuggling,  should  be  stepped  up  with  key 
countries along irregular migration routes. Among others, the  Union needs to swiftly 
conclude  the  necessary  status  agreements,  notably  with  Serbia  and  Bosnia  and 
Herzegovina,  that  allow  for  deployments  of  the  European  Border  and  Coast  Guard 
Agency (“Frontex”) border guards with executive powers. Moreover,  Frontex should 
agree on working arrangements with  key partner countries,  including  in  West  Africa 
(Senegal  and  Mauritania),  the  Western  Balkans  (updates  of  current  working 
arrangements), and with Eastern Partnership countries such as Armenia. 

(10)  European  and  national  immigration  and  security  liaison  officers  deployed  in  third 
countries  are  essential  to  improve  the  intelligence  picture  of  the  Schengen  area  on 
current  threats.  Member  States,  however,  are  not  effectively  using  the  intelligence 
offered  by  these  liaison  officers  to  the  fullest  as  the  collection  of  information  is 
fragmented  and  incomplete.  It  is,  therefore,  necessary  to  maximise  liaison  officers’ 
contribution  to  address  the  EU  priorities  and  needs,  by  mapping  and  strategically 
optimising  their  deployments,  mandates  and  reporting  requirements.  These  efforts 
include  making  a  more  targeted  use  of  airport  liaison  officers  carrying  out  essential 
tasks to detect irregular migration and supporting enforcement activities. Furthermore, 

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the networks of various liaison officers in third countries should be reinforced under 
the coordinating role of the EU delegations. This will close intelligence gaps and pool 
the  currently  dispersed  strategic  and  operational  awareness,  leading  to  appropriate 
preparedness and to effective decision-making for border management, migration and 
security. 

(11)  EUROSUR  is  the  central  framework  for  exchange  of  information  and  operational 
cooperation used  for detecting, preventing, and combating  irregular immigration and 
cross-border crime. It is essential that all Member States step up their contribution to 
EUROSUR,  including  as  regards  cross-border  crime,  to  improve  the  national  and 
European  situational  awareness  and  the  EU’s  ability  to  react  at  the  external  borders. 
As  regards  the  pre-frontier  area1,  the  collection  and  exchange  of  information  with 
Frontex, between Member States and, where relevant, with partner countries needs to 
be  strengthened  with  the  use  of  specific  situational  pictures  within  the  EUROSUR 
framework. To ensure smooth cooperation guaranteeing correct and regular provision 
of  information  with  third  countries’  authorities,  the  EUROSUR  model  should  be 
promoted in partner countries by both Member States and Frontex.  

(12)  The  timely  launch  of  the  Entry-Exit  System  (EES)  in  autumn  2024  and  of  the 
European  Travel  Information  and  Authorisation  System  (ETIAS)  in  the  first  half  of 
2025  will  strengthen  the  external  borders  and  reinforce  our  internal  security.  In  this 
context,  all  border  crossing  points  need  to  be  fully  prepared  and  equipped,  while 
procedures  need  to  fully  utilise  the  possibilities  for  automation  to  ensure  fast  and 
efficient  processing  of  travel  flows.  Once  the  new  systems,  as  well  as  their 
interoperability, are in operation, Member States, the Commission, and eu-LISA will 
monitor their effective implementation, in particular through the Schengen evaluation 
and monitoring mechanism. 

(13)  The efforts for the digital transformation of the Schengen area should be seen together 
with  the  Commission’s  upcoming  initiative  on  the  digitalisation  of  travel  documents 
and  facilitation  of  travel,  as  announced  in  the  Schengen  Strategy  of  20212.  This 
initiative will allow the Union to shape future global standards for seamless and secure 
travelling by introducing a uniform standard for digital travel documents. 

(14) 

In an area without internal border controls, citizens should be able to move swiftly and 
in security between Member States. Building on the important progress made toward 
this goal  by Member States with  the support of  the Schengen Coordinator, it is  now 
necessary  to  fully  exploit  the  new  possibilities  included  in  the  [revised  Schengen 
Borders  Code]  and  to  maximise  the  measures  contained  in  the  Commission 
Recommendation  on  cooperation  between  the  Member  States  with  regard  to  serious 
threats  to  internal  security  and  public  policy  in  the  area  without  internal  border 
controls3. In this context, throughout the Schengen area, regional initiatives need to be 
established following a whole-of-route approach, so that Member States facing related 
challenges  agree  and  implement  joint  measures  to  address  cross-border  crime  and 
secondary movements more effectively. For these regional initiatives to be successful, 
all  Member  States  should  give  full  effect  to  the  recommendations  laid  down  in  the 

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In  accordance  with  Article  2(  13  ) of  Regulation  (  EU  )  2019/1896,  the  ‘pre-frontier  area’  means  the 
geographical  area  beyond  the  external  borders  which  is  relevant  for  managing  the  external  borders 
through risk analysis and situational awareness. 
Communication from the Commission to the European Parliament and the Council, ‘A strategy towards 
a fully functioning and resilient Schengen area’, 2 June 2021, COM ( 2021 ) 277 final. 
C ( 2023 ) 8139 final. 

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(15) 

Council  Recommendation 
law  enforcement 
cooperation4  and  to  the  provisions  of  Directive  (EU)  2023/977  on  the  exchange  of 
information between the law enforcement authorities of Member States5 following the 
expiry of the deadline for its transposition on 12 December 2024. 

(EU)  2022/915  on  operational 

Important efforts have been made in 2023 to improve the effectiveness of return with 
an  increase  of  more  than  15%  in  the  number  of  effective  returns,  although  progress 
varies  among  Member  States  and  the  overall  number  of  returns  remains  low. 
Currently,  the  Schengen  Information  System  contains  around  300 000  return  alerts 
corresponding  to  return  decisions  that  have  not  been  suspended  and  are,  therefore, 
enforceable,  the  majority  of  which  have  been  issued  by  Member  States  in  2023.  In 
2023, the Commission and Member States have redoubled their efforts to explore and 
fully  exploit  all  available  options  to  foster  more  mutual  recognition  of  return 
decisions,  based  on  the  Commission’s  Recommendation  of  March  20236  and 
facilitated by the new return alerts in the Schengen Information System.  

(16)  As  part  of  the  country  specific  recommendations  stemming  from  Schengen 
evaluations,  several  Member  States  were  recommended  to  improve  coordination  and 
limit fragmentation of strategic and operational processes at national level as well as to 
fully exploit EU tools for more efficient returns. To ensure complementarity of action 
and  a  holistic  approach,  the  EU  Return  Coordinator  developed  a  ‘Return  Roadmap’ 
with  targeted  actions,  which  is  currently  being  implemented  with  the  support  of 
Frontex and Member States through the High-Level Network for Return. In line with 
the  operational  strategy  for  more  effective  returns7,  it  is  necessary  to  put  in  place  a 
more predictable and common strategic planning of returns under Frontex’s lead.  

(17) 

In  the  implementation  of  this  Recommendation,  the  Member  States  and  Agencies 
concerned must ensure full compliance with the applicable rules on the protection of 
personal  data.  In  particular,  they  must  ensure  that  the  increased  exchange  of 
information  by  law  enforcement  and  judicial  authorities,  including  personal  data,  is 
carried  out  in  full  respect  of  the  data  protection  requirements  and  mandates  of 
respective authorities. The authorities managing and using large-scale IT systems must 
ensure that data protection requirements are respected in practice and that compliance 
is regularly monitored. 

(18)  Support  at  Union  level  is  available  for  the  implementation  of  this  Recommendation 
including  through  the  available  Union  Home  Affairs  Funds,  namely  the  Border 
Management  and  Visa  Policy  Instrument8,  the  Internal  Security  Fund9,  and  the 
Asylum, Migration and Integration Fund10, as well as research and innovation funding 
through  the  EU  Framework  Programme  for  Research  Horizon  Europe11.  For  the 

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OJ L 158, 13.6.2022, p. 53–64. 
OJ L 134, 22.5.2023, p. 1–24. 
C ( 2023 ) 1763 final of 16.3.2023. 
COM ( 2023 ) 45 final. 
Regulation  (  EU  )  2021/1148  of  the  European  Parliament  and  of  the  Council  of  7  July  2021 
establishing, as part of the Integrated Border  Management Fund, the Instrument for Financial Support 
for Border Management and Visa Policy ( OJ L 251, 15.7.2021, p. 48–93 ) .  
Regulation ( EU ) 2021/1149 of the European Parliament and of the Council of 7 July 2021 establishing 
the Internal Security Fund ( OJ L 251, 15.7.2021, p. 94–131 ) .  
Regulation ( EU ) 2021/1147 of the European Parliament and of the Council of 7 July 2021 establishing 
the Asylum, Migration and Integration Fund ( OJ L 251, 15.7.2021, p. 1–47 ) .  
Regulation  (  EU  )  2021/695  of  the  European  Parliament  and  of  the  Council  of  28  April  2021 
establishing Horizon Europe – the Framework Programme for Research and Innovation, laying down its 

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remaining  implementation  period  of  these  funds,  including  on  the  occasion  of  the 
upcoming  mid-term  review  of  the  Home  Affairs  Funds,  Member  States  should 
prioritise the use of the allocated amounts for addressing the proposed actions in this 
Recommendation. Furthermore, additional financial needs will be assessed in light of 
the  evolving  circumstances.  Operational  support  to  Member  States  is  also  available 
through the relevant JHA Agencies. 

(19)  The  implementation  of  this  Recommendation  should  be  monitored  by  the  Council, 
with Member States, the Commission and relevant JHA Agencies regularly reporting 
on  specific  workstreams.  The  results  of  and  follow-up  to  the  Schengen  evaluation 
activities will be embedded in this process. 

(20) 

In  accordance  with  Articles  1  and  2  of  Protocol  No  22  on  the  Position  of  Denmark 
annexed  to  the  Treaty  on  European  Union  and  to  the  TFEU,  Denmark  is  not  taking 
part  in  the  adoption  of  this  Recommendation  and  is  not  subject  to  its  application. 
Given that this Recommendation builds upon the Schengen acquis, Denmark shall, in 
accordance with  Article  4 of the said  Protocol,  decide  within a period of six  months 
after the Council has decided on this Recommendation whether it will implement it. 

(21)  This  Recommendation  does  not  constitute  a  development  of  the  provisions  of  the 
Schengen  acquis  in  which  Ireland  takes  part  in  accordance  with  Council  Decision 
2002/192/EC12.  Ireland  is  therefore  not  taking  part  in  its  adoption  or  subject  to  its 
application. 

(22)  As regards Cyprus, point 4 of this Recommendation constitutes a development of the 

Schengen acquis within the meaning of Article 3(2) of the 2003 Act of Accession. 

(23)  As  regards  Iceland  and  Norway,  this  Recommendation  constitutes  a  development  of 
the provisions of the Schengen acquis within the meaning of the Agreement concluded 
by the Council of the European Union and the Republic of Iceland and the Kingdom 
of Norway concerning the latter's association with the implementation, application and 
development of the Schengen acquis13 which fall within the area referred to in Article 
1 of Council Decision 1999/437/EC14. 

(24)  As  regards  Switzerland,  this  Recommendation  constitutes  a  development  of  the 
provisions of the Schengen acquis within the meaning of the Agreement between the 
European Union, the European Community and the Swiss Confederation on the Swiss 
Confederation’s association with the implementation, application and development of 
the Schengen  acquis15  which fall within the area referred to  in  Article 1 of Decision 
1999/437/EC read in conjunction with Article 3 of Council Decision 2008/146/EC16. 

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rules for participation and dissemination, and repealing Regulations ( EU ) No 1290/2013 and ( EU ) 
No 1291/2013 ( OJ L 170, 12.5.2021, p. 1–68 ) .  
Council Decision 2002/192/EC of 28 February 2002 concerning Ireland’s request to take part in some 
of the provisions of the Schengen acquis ( OJ L 64, 7.3.2002, p. 20 ) . 
OJ L 176, 10.7.1999, p. 36. 
Council  Decision  1999/437/EC  of  17  May  1999  on  certain  arrangements  for  the  application  of  the 
Agreement  concluded  by  the  Council  of  the  European  Union  and  the  Republic  of  Iceland  and  the 
Kingdom  of  Norway  concerning  the  association  of  those  two  States  with  the  implementation, 
application and development of the Schengen acquis ( OJ L 176, 10.7.1999, p. 31 ) . 
OJ L 53, 27.2.2008, p. 52. 
Council  Decision  2008/146/EC  of  28  January  2008  on  the  conclusion,  on  behalf  of  the  European 
Community, of the Agreement between the European Union, the European Community and the Swiss 
Confederation  on  the  Swiss  Confederation’s  association  with  the  implementation,  application  and 
development of the Schengen acquis ( OJ L 53, 27.2.2008, p. 1 ) . 

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(25)  As  regards  Liechtenstein,  this  Recommendation  constitutes  a  development  of 
provisions  of  the  Schengen  acquis  within  the  meaning  of  the  Protocol  between  the 
European  Union,  the  European  Community,  the  Swiss  Confederation  and  the 
Principality  of  Liechtenstein  on  the  accession  of  the  Principality  of  Liechtenstein  to 
the Agreement between the European Union, the European Community and the Swiss 
Confederation  on  the  Swiss  Confederation's  association  with  the  implementation, 
application  and  development  of  the  Schengen  acquis17  which  fall  within  the  area 
referred to in Article 1 of Decision 1999/437/EC read in conjunction with Article 3 of 
Decision 2011/350/EU18, 

HEREBY RECOMMENDS: 

implementation  of 
Member  States,  acting 
recommendations  adopted  pursuant  to  evaluations  carried  out  under  Regulation  (EU) 
2022/922, and collectively within the Schengen Council, in 2024-2025: 

individually, 

including 

through 

the 

1. 

Consolidate  the  Schengen  governance  framework  to  foster  a  higher  level  of 
implementation  of  common  priorities  and  the  Schengen  architecture  and  contribute 
to the completion of the Schengen area, by 

(a)  Reinforcing  the  follow-up  process  to  the  Schengen  Council  meetings  by 
agreeing on common lines of action in line with the State of Schengen report 
adopted  by  the  Commission  and  incorporating  regular  monitoring  and 
reporting through the Schengen Barometer+ and the Schengen Scoreboard. 

(b)  Engaging  with  the  Schengen  Coordinator  to  support  the  implementation  of 
remedial actions stemming from the Schengen evaluations, by making a more 
effective  use  of  the  Schengen  Scoreboard,  including  through  the  exchange  of 
best practices and lessons learned. 

(c)  Establishing  national  governance  structures  and  processes,  coordinated  by 
senior  officials  with  strategic  responsibility  for  Schengen,  and  supporting  the 
effective  implementation  of  European  Integrated  Border  Management  and 
security strategies. 

(d)  Ensuring the careful monitoring and, where applicable, the timely adoption of 
decisions,  in  cases  where,  following  the  completion  of  a  first-time  Schengen 
evaluation, it is established that the necessary conditions for the application of 
the relevant  parts of the  Schengen  acquis have been met, and in particular to 
take  a  final  decision  and  establish  an  appropriate  date  for  the  lifting  of  the 
controls  at  the  internal  land  borders  of  Bulgaria  and  Romania  with  other 
Member States.  

Boost  the  preparedness,  security,  and  resilience  at  the  external  borders,  including 
through improved cooperation with third countries, by 

OJ L 160, 18.6.2011, p. 21. 
Council Decision 2011/350/EU of 7 March 2011 on the conclusion, on behalf of the European Union, 
of the Protocol between the European Union, the European Community, the Swiss Confederation and 
the Principality of Liechtenstein on the accession of the Principality of Liechtenstein to the Agreement 
between  the  European  Union,  the  European  Community  and  the  Swiss  Confederation  on  the  Swiss 
Confederation’s  association  with  the  implementation,  application  and  development  of  the  Schengen 
acquis,  relating  to  the  abolition  of  checks  at  internal  borders  and  movement  of  persons  (  OJ  L  160, 
18.6.2011, p. 19 ) . 

2. 

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(a)  Supporting  the  functioning  of  EU  liaison  officers  that  can  operate  under  the 
umbrella  of  the  EU  delegations  and  provide  strategic  steer  and  coordination, 
thereby  leveraging  the  intelligence  provided  by  European  and  national 
immigration and security liaison officers. 

(b) 

Increasing  operational  presence  in  priority  third  countries,  including  through 
airport 
the  necessary  agreements  and 
arrangements or partnerships  to  better manage borders, migration, return,  and 
security threats, ensuring respect of fundamental rights obligations. 

liaison  officers,  by  concluding 

(c)  Enhancing cooperation with third countries on the exchange of information via 
EUROSUR  by  concluding  bilateral  and  multilateral  agreements  with  priority 
third countries to combat more effectively migrant smuggling and cross-border 
crime, as well as to prevent irregular migration and secondary movements. 

(d)  Remedying the limitations on the effectiveness of European Border and Coast 
Guard,  in  particular  those  related  to  the  national  capabilities  in  line  with  the 
new  Capability  Roadmap  and  those  concerning  the  timely  roll-out  of  the 
standing  corps  to  achieve  8  000  officers  by  2025  and  10  000  by  2027,  by 
proactively  implementing  the  measures  identified  in  the  evaluation  of  the 
EBCG Regulation19. 

(e)  Allocating sufficient resources and capabilities for border and return processes, 
including  the  independent  monitoring  mechanism,  to  ensure  the  effective 
implementation of the revised legislation, in particular the Regulation (EU) No 
.../... [Screening Regulation], Regulation (EU) No .../... [the Schengen Borders 
Code] and the Regulation (EU) No .../... [Crisis Regulation].  

3. 

Consolidate  the  digitalisation  of  procedures  and  systems  to  increase  security  and 
efficiency  at  the  EU’s  external  borders  and  within  the  area  without  internal  border 
controls, as well as intelligence-based decision-making, by 

(a) 

Improving  the  exchange  of  real-time  information  between  authorities  at 
national  level  and  with  authorities  across  the  EU,  as  well  as  using  the 
interoperability tools to their full potential, to ensure that all necessary checks 
are effectively carried out. 

(b)  Allocating  the  necessary  resources  to  maximise  the  effective  use  of  the  EU 
information  systems  for  borders,  migration  and  security  to  support  visa 
processing, border checks, and the effective return of third-country nationals. 

(c)  Ensuring  that  the  equipment,  processes  and  systems  are  in  place  to  allow  for 
the  timely  and  effective  roll  out  of  the  Entry/Exit  System  and  ETIAS  and 
launching  information  campaigns  to  raise  awareness  of  the  new  procedures 
among travellers and relevant stakeholders. 

Ensure the smooth functioning of the Schengen area without controls at the internal 
borders by stepping up the fight against cross-border crime in line with the Council 
Recommendation on operational law enforcement cooperation20 and the Commission 
Recommendation from November 202321, by 

In particular measures 17-19 and 32-25 of SWD ( 2024 ) 75 final ( Annex to COM/2024/75 final ) . 
Council Recommendation ( EU ) 2022/915 of 9 June 2022 on operational law enforcement cooperation 
( OJ L 158, 13.6.2022, p. 53–64 ) . 
C ( 2023 ) 8139 final. 

4. 

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(a)  Establishing  regional  cooperation  initiatives  applying  the  whole-of-route 
approach to  increase joint  measures based on a common planning established 
through joint risk analysis. 

(b)  Supporting  the  commitments  and  strands  of  work  identified  under  the 
framework of the Global Alliance to Counter Migrant Smuggling to strengthen 
the fight against migrant smuggling networks with key partners along irregular 
migration routes, including the digital smuggling phenomenon. 

(c)  Establish  comprehensive  risk  analysis  on  cross  border  crime  and  enhance 
situational  awareness  by  connecting  the  intelligence  and  information  at  the 
external  borders  and  within  the  Schengen  area  in  one  (national)  situational 
picture, as well as by developing the cooperation and exchange of information 
the  National 
between 
Coordination  Centres,  and  Police  and  Customs  Cooperation  Centres  in  all 
Member States through the Secure Information Exchange Network Application 
(SIENA). 

the  reinforced  Single  Points  of  Contact,  with 

(d)  Phasing out the long-lasting controls carried out at internal border sections, in 
line  with  the  new  strengthened  framework  provided  for  in  the  revised 
Schengen Borders Code. 

5. 

Contribute  to  a  more  effective  functioning  of  the  common  EU  system  for  return 
based on better integrated cooperation among Member States, by 

(a)  Taking  steps  to  ensure  that  a  return  decision  or  relevant  parts  thereof  can  be 
shared upon a Member State request for supplementary information following 
an alert on return in the Schengen Information System, notably for the purpose 
of  facilitating  mutual  recognition,  assessing  the  risk  of  absconding  and 
identifying third-country nationals, including those posing a security threat. 

(b)  Actively  increasing  and  encouraging  voluntary  returns  through  a  continued 
implementation  of  the  Assisted  Voluntary  Return  and  Reintegration  strategy, 
particularly  by  setting  up  dedicated  structures  for  return  counselling  and  EU 
streamlined  reintegration  support  with  a  view  to  fostering  ownership  of  the 
returnee  and  supporting  third  countries  to  develop  institutional,  policy,  and 
operational  frameworks  and  structures  to  ensure  ownership  and  sustainability 
of the return and readmission process. 

(c)  Contributing  to  the  targeted  actions  under  the  ‘Return  Roadmap’,  including 
through  actively  supporting  Frontex  in  setting  up  a  predictable  coordination 
system,  based  on  joint  planning  of  Member  States’  use  of  Frontex  support  to 
allow better pooling of resources during all phases of return, including a more 
strategic  use  of  Frontex  return  operations,  particularly  to  priority  third 
countries in line with EU policy, and increase voluntary returns.  

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(d)  Proactively  contributing  through  the  High-Level  Network  for  Returns  to  the 
work  of  the  EU  Return  Coordinator  in  establishing  a  Schengen  model  for 
effective  returns, 
the  development  of  effective  performance 
indicators  and  by  swiftly  implementing  recommendations  stemming  from  the 
2024 Schengen thematic evaluation on returns. 

including 

Done at Brussels, 

For the Council 
The President 

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