REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL SEVENTH REPORT UNDER THE VISA SUSPENSION MECHANISM
Date: 2024-12-06
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU migration policy, EU visa policy, corruption, external border of the EU, free movement of persons, judicial cooperation, money laundering, organised crime, right of asylum, terrorism, third country

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 6.12.2024  COM(2024) 571 final  REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL SEVENTH REPORT UNDER THE VISA SUSPENSION MECHANISM  
 
 
Contents 

INTRODUCTION ........................................................................................................................................ 2 

I. 

1. 

THE EU’S NEIGHBOURHOOD .................................................................................................... 6 

VISA-FREE FOR LESS THAN 7 YEARS ..................................................................................... 6 

GEORGIA ..................................................................................................................................................... 6 

UKRAINE ................................................................................................................................................... 12 

KOSOVO* ................................................................................................................................................... 18 

2. 

VISA-FREE FOR MORE THAN 7 YEARS ................................................................................ 23 

ALBANIA .................................................................................................................................................... 23 

BOSNIA AND HERZEGOVINA .............................................................................................................. 27 

REPUBLIC OF MOLDOVA ..................................................................................................................... 30 

MONTENEGRO ......................................................................................................................................... 33 

NORTH MACEDONIA ............................................................................................................................. 37 

SERBIA ....................................................................................................................................................... 40 

II. 

EASTERN CARIBBEAN ............................................................................................................... 43 

III.  LATIN AMERICA ......................................................................................................................... 46 

CONCLUSION ........................................................................................................................................... 51 

* 

This designation is without prejudice  to positions on status, and is in line  with UNSCR 1244/1999 and the ICJ 
Opinion on the Kosovo declaration of independence. 

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INTRODUCTION 

Visa  liberalisation  has  been  an  important  part  of  the  EU’s  toolbox  for  cooperation  on  migration, 
security, and justice with third countries. It facilitates mobility and people-to-people contacts. It can 
boost the travel and tourism sector and promotes cultural and academic exchanges. It can also foster 
diplomatic relations and international cooperation, ideally leading to increased political interactions in 
different areas ranging from trade and economic cooperation, security, innovation and technology. 

At the same time, the Commission’s monitoring of the EU’s visa-free regimes has shown that visa-
free travel can also be the source of significant migration and security challenges, which need to 
be  addressed.  This  report  continues  to  pay  specific  attention  to  visa  policy  alignment,  investor 
citizenship schemes, readmission cooperation, and unfounded asylum applications. The main purpose 
of the visa exemptions that the EU has granted to third countries is to facilitate travel by ensuring visa-
free entry and short stays in the Schengen area for a maximum period of 90 days in any 180-day period. 
People representing a security risk for the EU and its Member States should not be allowed to travel 
visa-free to the Schengen area, and people seeking international protection or to settle for  a longer 
period in the EU should use the applicable schemes and pathways. 

In October 2023, the Commission proposed a revision of the visa suspension mechanism1 to better 
address challenges linked to visa-free schemes and any possible abuses of visa-free travel by making 
the mechanism easier to trigger and increasing its deterrent effect. The Commission encourages the 
European Parliament and the Council to swiftly conclude negotiations on the proposal and ensure its 
adoption. 

Scope of the Report – a new strategic and global approach 

The Commission’s continuous monitoring of the EU’s visa-free regimes is a key task for the good 
functioning  of  the  EU  visa  policy  and  the  overall  security  of  the  Schengen  area.  Article  8(4)  of 
Regulation (EU) 2018/1806 (the ‘Visa Regulation’)2 requires the Commission to ensure an appropriate 
monitoring of the continuous fulfilment of the visa exemption requirements by those countries whose 
nationals obtained visa-free access to the Schengen area following the successful completion of a visa 
liberalisation dialogue, and to report regularly to the European Parliament and to the Council. To this 
end, since 2017 the Commission has adopted six reports under the Visa Suspension Mechanism3, 
covering  the  visa-free  partners  in  the  Western  Balkans  (Albania,  Bosnia  and  Herzegovina, 
Montenegro,  North  Macedonia  and  Serbia)  and  in  the  Eastern  Partnership  region  (Georgia,  the 
Republic of Moldova – referred to below as “Moldova” –, and Ukraine).  

Following-up on a Communication of May 20234, the sixth report took a broader approach, so as to 
ensure  that  monitoring  and  reporting  is  more  comprehensive  and  strategic,  therefore  going 
beyond the EU’s neighbourhood and covering all visa-free third countries presenting specific 
challenges that, if not  addressed, may lead to  trigger the suspension  mechanism.  The Commission 

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2 

3 

4  

Proposal for a Regulation of the European Parliament and of the Council amending Regulation (EU) 2018/1806 as 
regards the revision of the suspension mechanism, COM/2023/642 final. 
Regulation (EU) 2018/1806 of the European Parliament and of the Council of 14 November 2018 listing the third 
countries  whose  nationals  must  be  in  possession  of  visas  when  crossing  the  external  borders  and  those  whose 
nationals are exempt from that requirement, OJ L 303, 28.11.2018, p. 39. 
COM(2017) 815 final (first report); COM(2018) 856 final (second report); COM(2020) 325 final (third report); 
COM(2021) 602 final (fourth report), COM/2022/715 final/2 (fifth report), COM/2023/730 final (sixth report). 
Communication from the Commission to the European Parliament and the Council on the monitoring of the EU's 
visa free regimes, COM/2023/297 final. 

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therefore  expanded the geographic scope for the first  time by reporting also  on  six visa-free third 
countries  that  operate  citizenship-by-investment  schemes,  namely  Antigua  and  Barbuda, 
Dominica, Grenada, Saint Kitts and Nevis, Saint Lucia, and Vanuatu5. 

The EU’s neighbourhood 

This  seventh  report, as  required by Article 8(4)  of the Visa Regulation,  continues to  include a  full 
assessment of the continuous compliance with the visa liberalisation requirements for Georgia and 
Ukraine, as they completed their respective visa liberalisation dialogues less than seven years ago. 
Moreover, following the successful conclusion of the EU-Kosovo visa liberalisation dialogue and the 
application of the visa exemption for Kosovo as of 1 January 20246, this report also includes a first 
prospective analysis on Kosovo’s continuous compliance with the visa liberalisation requirements.  

As  regards  the  countries  that  completed  a  visa  liberalisation  dialogue  more  than  seven  years  ago7 
(Albania, Bosnia and Herzegovina, Moldova, Montenegro, North Macedonia, and Serbia), the 
report continues to flag specific challenges deriving from visa-free travel and/or representing specific 
irregular migration or security risks for the EU, such as  visa policy alignment, investor citizenship 
schemes, readmission cooperation, or unfounded asylum applications.  

For  all  enlargement  partners,  issues  related  to  benchmarks  addressed  through  the  completed  visa 
liberalisation dialogues are assessed as part of the enlargement process, under Chapter 23, Judiciary 
and Fundamental Rights, and Chapter 24, Justice, Freedom and Security, and are reported on in-depth 
in the Commission’s annual enlargement reports. As of 2024, four enlargement countries (Albania, 
Montenegro, North Macedonia and Serbia) have also been included in the Commission Rule of Law 
Report. 

As  part  of  their  Reform  Agenda  under  the  Growth  Plan  for  the  Western  Balkans,  Western  Balkan 
partners  have  committed  to  make  reforms  on  the  “fundamentals”  of  the  accession  process,  which 
include concrete commitments on the fight against organised crime, the fight against corruption and 
visa policy alignment.   

With  regard  to  the  Western  Balkans,  the  report  builds  on  the  ongoing  implementation  of  the  EU 
Action Plan to address migration along the route presented by the Commission on 5 December 20228. 
The Action Plan has responded, among other challenges, to the surge of irregular migration to the EU 
via the Western Balkan route in 2022. These increased crossings of the external borders of Member 
States from the region were partly due to secondary movements from third-country nationals who had 
arrived visa-free to the Western Balkans, travelling onwards to the EU. The joint implementation of 
the Action Plan between the EU and the region contributed to the decrease of migratory pressure by 

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6 

7   

8  

This report does not cover Vanuatu, as the Commission’s final assessment concerning the security risks deriving 
from Vanuatu’s investor citizenship schemes was presented on 31 May 2024 in the Report from the Commission to 
the  European  Parliament  and  the  Council  on  the  suspension  of  the  visa  exemption  for  nationals  of  Vanuatu, 
COM/2024/366 final. 
Regulation (EU) 2023/850 of the European Parliament and of the Council of 19 April 2023 amending Regulation 
(EU) 2018/1806 listing the third countries whose nationals must be in possession of visas when crossing the external 
borders and those whose nationals are exempt from that requirement (Kosovo (This designation is without prejudice 
to positions on status, and is in line with UNSCR 1244/1999 and the ICJ Opinion on the Kosovo declaration of 
independence.)) (OJ L 110, 25.4.2023, p. 1–4). 
Article 8(4) of Regulation (EU) 2018/1806 only requires the Commission to report for a period of seven years after 
the date of entry into force of visa liberalisation for those third countries; thereafter, the Commission may continue 
to report whenever it considers it to be necessary, or upon request by the European Parliament or by the Council. 
https://home-affairs.ec.europa.eu/system/files/2022-12/Western%20Balkans_en.pdf  

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almost one third on the Western Balkan route in 2023 compared to 2022 and by a further 79% decrease 
according to preliminary data in the first nine months of 2024 compared to the same period in 2023. 
This  joint  implementation  also  contributed  to  further  strengthen  cooperation  between  the  EU  and 
Western  Balkan  partners  on  migration  management.  The  Action  Plan  covers  border  management, 
asylum and reception capacities, fighting migrant smuggling, readmission cooperation and returns as 
well as visa policy alignment.  

Overall, a good pace of delivery has been maintained in  all these policy areas, thanks to enhanced 
engagement  and  outreach  to  all  Western  Balkan  partners  at  all  levels.  However,  work  needs  to 
continue. Irregular migration remains a challenge for the Western Balkan partners. Visa requirements 
have been reintroduced in the region – in late 2022 and early 2023 – for some key nationalities behind 
the  increase  in  irregular  arrivals  in  2022.  However,  ensuring  further  visa  policy  alignment  and 
reinforcing  controls  on  visa-free  arrivals  in  the  region  remains  necessary.  Combating  migrant 
smuggling and trafficking in human beings as well as ensuring effective returns remain key priorities. 
The Commission has stepped-up its financial support with total funding for migration-related activities 
in the region under the Instrument for pre-accession (IPA III) amounting to EUR 351.9 million (2021-
2024).  This  includes  regional  programmes  ‘EU  Support  to  Strengthen  the  Fight  against  Migrant 
Smuggling and Trafficking in Human Beings in the Western Balkans’ (EUR 36 million), ‘EU Regional 
Support to Protection-Sensitive Migration Management Systems in the Western Balkans – PHASE III’ 
(EUR 19.2 million), and ‘EU Regional Support to Border Security in the Western Balkans’ (EUR 7 
million).  

The report draws upon contributions from the partners covered, the European External Action Service 
and the EU delegations, the relevant EU justice and home affairs agencies9 and Member States10. These 
contributions  have  informed  the  relevant  assessments  contained  in  the  report.  This  seventh  report 
assesses actions taken by the concerned partners in 2023, with updates for 2024, where deemed to have 
a significant impact on this year’s recommendations. It also reports on operational cooperation with 
the EU and with Member States11, and it includes an overview of migration trends12 reflecting Eurostat 
data for the 2023 statistical year, including changes compared with 2022. 

Latin America and the Caribbean 

As done in the sixth report, and already following the new approach set out in the legislative proposal 
on  the  revision  of  the  suspension  mechanism13,  this  report  also  covers  other  geographical  areas 
beyond the EU’s neighbourhood, focusing on visa-free countries where specific issues have arisen 
and where further cooperation may be needed to address specific migration and/or security challenges 
that could be assessed under the visa suspension mechanism. In this respect, this report continues to 

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10  

11 

12 

13  

The European Union Agency for Asylum (EUAA), the European Border and Coast Guard Agency (Frontex), the 
European Union Agency for Criminal Justice Cooperation (Eurojust), and the European Union Agency for Law 
Enforcement Cooperation (Europol). 
Twenty Member States provided contributions on relevant examples of cooperation with the countries in question, 
in the areas of migration and security. 
For this report, the term ‘Member States’ refers to Member States applying Regulation (EU) 2018/1806 (‘the Visa 
Regulation’), i.e. all EU Member States (except Ireland) and Schengen Associated Countries. 
While the visa liberalisation benchmarks relating to migration are limited to migration policies of the third countries 
concerned, the section on migration trends reflects irregular migration to Member States, refusals of entry issued by 
Member States, and applications for international protection lodged in Member States by nationals of the countries 
covered in the report. 
Article 8d(2) of the proposal. 

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assess the visa-free countries that operate investor citizenship schemes in the Eastern Caribbean and 
presents an assessment of the visa-free countries in Latin America. 

As stated in the 2023 Joint Communication on a New Agenda for Relations between the EU and Latin 
America and the Caribbean14, the EU and Latin America and the Caribbean are natural partners, 
united  by  unique  historical  and  cultural  links,  deep  economic  and  social  ties  and  a  joint 
commitment  to  peace,  democracy,  fundamental  rights  and  multilateralism.  People  are  at  the 
centre of this partnership: mobility and people-to-people contacts are key elements to strengthen those 
links.  At  the  same  time, the  Commission’s  monitoring  of  the  EU’s  visa-free  regimes  with  Latin 
American and Caribbean partners has shown some specific migration and security challenges. These 
challenges derive in particular from the operation of investor citizenship schemes by five countries in 
the Eastern Caribbean, and by the increasing number of unfounded asylum applications lodged in the 
EU by nationals of some Latin American countries. The two last sections of this report present the 
Commission assessment of these challenges and recommendations on how to address them. 

14  

JOIN(2023) 17 final. 

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I.  THE EU’S NEIGHBOURHOOD 

1.  VISA-FREE FOR LESS THAN 7 YEARS 

GEORGIA 

1.  Visa policy alignment 

Georgia has a visa-free regime with 25 countries that are on the EU list of visa-required countries15: 
Armenia,  Azerbaijan, Bahrain,  Belarus, Belize, Botswana,  China (visa  waiver agreement  signed in 
April 2024), Dominican Republic, Ecuador, Iran, Jordan, Kazakhstan, Kuwait, Kyrgyzstan, Lebanon, 
Oman, Qatar, Russia, Saudi Arabia, South Africa, Tajikistan, Thailand, Türkiye, Turkmenistan, and 
Uzbekistan.  

Georgia made no progress towards further visa policy alignment; on the contrary, with the signature 
of  the  visa  waiver  agreement  with  China  in  April  2024  the  divergence  with  the  EU  visa  policy 
increased. Georgia claims that, since it does not share any direct land border with the EU, its lack of 
visa  policy  alignment  does  not  pose  a  risk  for  the  EU  in  terms  of  irregular  migration  or  security. 
However, the Commission recalls that visa policy alignment is a key objective for all countries in the 
EU’s neighbourhood and with EU membership goals. Therefore, the Commission expects Georgia to 
make progress on visa policy alignment.  

2.  Document security, including biometrics  

Georgia has been issuing biometric passports since 2010. Non-biometric passports will be fully phased 
out by 1 January 2025, when the last ones currently in circulation will expire16. As part of cooperation 
with Interpol, Georgia exchanges information on lost and stolen passports.   

In December 2023, a law was passed mandating the withdrawal by 1 July 2024 of non-electronic ID 
cards issued before 28 July 2011 and their replacement with electronic ID cards.  

15  
16  

Annex I to Regulation (EU) 2018/1806. 
On 1 January 2024, the number of remaining valid non-biometric passports was 2012. 

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3. 

Integrated border management, migration management, asylum 

In March 2023, Georgia adopted the Integrated Border Management Strategy for 2023-2027 and, in 
August  2023,  adopted  the  Action  Plan  of  Integrated  Border  Management  Strategy  for  2023-2027. 
Georgia  continued  to  invest  in  the  development  of  border  security,  amongst  others,  by  creating  a 
Mountain Rapid Response Unit in 2023. A cooperation plan on border surveillance was launched with 
one EU Member State and with another EU Member State a technical agreement on naval cooperation 
was signed involving Georgia’s Coast Guard.  

Georgia has a track record of structured cooperation with Frontex. Frontex observers are based at five 
border crossing points (Tbilisi, Kutaisi airports, Sarpi land border crossing and seasonally at Batumi 
airport and seaport). In 2023, a total of 28 Frontex officers were deployed to Georgia. Georgian police 
officers were deployed to 12 Member States’ airports (a total of 24 officers in 2023). The main purpose 
of this cooperation is to prevent the abuse of visa-free travel by Georgian citizens, including by lodging 
unfounded asylum applications (see below). 

Georgia  is  a  member  of  the  Eastern  Partnership  Risk  Analysis  Network,  a  Frontex-led  regional 
platform for information exchange and intelligence-sharing. The Ministry of Internal Affairs Academy 
of Georgia has been given the Frontex Partnership Academy Status since 2019. Georgia participated 
in the Joint Operation Coordination Points Air, Land and Sea 2023 through exchange of best practices 
and visits/deployment of Frontex border management experts. Cooperation with Frontex included also 
training programmes (e.g. Tailored Briefings on Document Fraud and Impostors), study visits, expert 
advice and exchanges under the programme Staff Exchange 2023.  

Bilateral/multilateral  cooperation  with  Member  States  on  border  management/migration  continued, 
including  high-level  contacts/visits,  deployment  of  Member  States  liaison  officers  in  Georgia, 
specialised training and expert advice with an emphasis on detection of forged documents and fight 
against organised crime networks specialising in migrant smuggling.  

Georgia implemented the Sixth Visa Suspension Mechanism Report’s recommendation and joined the 
European Multi-disciplinary Platform Against Criminal Threats (EMPACT) Operational Action Plan 
of Migrant Smuggling for the years 2024-2025. In 2023, it participated in six Operational Action Plans 
(OAPs) and 77 Operational Actions (OPs). Cooperation within the EMPACT scheme also resulted in 
the implementation of the “Low Value Grant (LVG)” project focusing on the fight against Georgian 
organised crime groups in the EU.    

On readmission and return, several EU Member States and Frontex pointed to close cooperation with 
the Georgian authorities. Georgia regularly accepted return operations both by charter and scheduled 
flights. Georgia also made their escorts available, when requested, for organisation of collecting return 
operations. In addition, the Georgian Ministry of Foreign Affairs and the Ministry of Internal Affairs 
extended their cooperation with Frontex on identification of returnees not holding travel documents 
by  training  the  Standing  Corps  and  Member  States  on  the  use  of  the  Georgian  Readmission  Case 
Management System for electronic submission of requests for their identification. 

Georgia continued its efforts to address the issue of unfounded asylum applications filed by its citizens 
in EU Member States. Based on 2021 amendments to the Law on rules for Georgian citizens on leaving 
and  entering  Georgia,  Georgian  authorities  continued  to  pursue  ‘exit-control  checks’  at  Georgian 
border crossing points. From 1 January 2021 to 1 April 2024, a total of 7 910 citizens of Georgia who 
intended to travel to the EU were stopped at the border. The Georgian authorities continued to address 
irregular migration with criminal prosecution of persons and groups involved in migrant smuggling, 

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including those involved in providing false information for asylum requests in the EU. Three people 
were convicted in 2023 (11 in 2022).  

Georgia  also  cooperated  with  the  IOM,  in  partnership  with  the  UNHCR,  on  the  project  “Effective 
Migration Governance for Sustainable Return and Reintegration of Georgian Citizens” to support a 
safe, orderly and sustainable return and reintegration of Georgian citizens, and with the IOM/WHO on 
health-driven migration from Georgia and unfounded asylum applications in the Schengen area (under 
the “Georgia Cares” project). 

4.  Monitoring  trends  in  irregular  migration,  applications  for  international  protection, 

returns and readmission  

In 2023, the number of applications for international protection by nationals of Georgia in Member 
States decreased by 8% compared to 2022, with 24 375 applications lodged in 2023 (26 555 in 2022). 
The recognition rate17 of 7% in 2023 remained stable compared to the previous year. 

In  2023,  there  were  ten  irregular  border  crossings  of  Georgian  nationals  to  EU  Member  States, 
compared to 20 in 2022. In 2023, the number of Georgian nationals found to be irregularly staying in 
Member  States  rose  by  12%,  with  24  595  people  in  2023  against  22  005  in  2022.  The  number  of 
refusals of entry issued to Georgian nationals decreased by 8%, from 4 015 in 2022 to 3 680 in 2023. 

In 2023, the number of return decisions issued to nationals of Georgia continued to rise with 20 240 
orders issued in 2023 compared with 17 415 in 2022 which is an increase of 16%. The same trend was 
present with regard to the number of people returned (10 555 in 2023 compared with 7 725 in 2022, a 
rise of 37%). The return rate slightly improved, from 44% in 2022 to 52% in 2023. 

5. 

Public order and security 

Source: Eurostat 

Georgia  continued  its  cooperation with  Europol,  maintaining  a  Liaison  Officer at  Europol  HQ and 
participates in seven Europol analytical projects. Between June 2023 and March 2024, 1 124 pieces of 
operational information related to more than 13 161 persons were shared with Europol members and 

17       For the purpose of this report, the recognition rate is calculated as the share of positive decisions at first instance 
(including  refugee status, subsidiary protection status, as well as national humanitarian status) in the total number 
of decisions at first instance. For a definition, see https://home-affairs.ec.europa.eu/pages/glossary/recognition-rate-
procedures-international-protection_en    

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partner countries through the Secure Information Exchange Network Application (SIENA) channel. 
In the framework of cooperation with CEPOL, Georgia benefited from various specialised training 
programmes  under  the  EU-funded  project  "Training  and  operational  partnership  against  organized 
crime”  (TOPCOP).  Georgia  continued  its  cooperation  with  Eurojust,  participating  in  Joint 
Investigation Teams.  

Georgia continued to implement the National Strategy for Combating Organised Crime for 2021-2024 
with a focus on fight against drug trafficking and cybercrime. Following Russia’s war of aggression 
against Ukraine, preventing trafficking and illegal circulation of weapons and munition was addressed 
with legal amendments. Georgia continued active participation in working groups and projects as a 
member of Interpol. Two EU Member States offered training to Georgian law enforcement officers on 
detecting forged documents and identifying victims of online sexual exploitation.     

In February 2023, Georgia adopted the second National Drug Strategy for 2023-2030 (directly inspired 
by  the  EU  Drug  Strategy  for  2021-2025)  and  its  respective  Action  Plan  for  2023-2024.  Georgia 
continued its cooperation with the European Union Drugs Agency (EUDA) based on a 2022 working 
arrangement as well as in the context of the EU4MD II project.  

Georgia  continued  to  implement  the  national  counterterrorism  strategy  2022-2026  and  its 
corresponding action plan. In 2023, twelve Georgian citizens and three third-country nationals were 
arrested on charges of belonging to or supporting a terrorist organisation. In 2023, Georgia joined the 
UN Countering Terrorist Travel programme ‘goTravel’. Georgia continued also to apply the national 
strategy on the Prevention, Detection and Suppression of Money Laundering, Terrorism Financing and 
Proliferation  of  Weapons  of  Mass  Destruction  (2023-2026)  and  its  action  plan.  In  2023,  Georgia 
expanded its cooperation with Europol on counter-terrorism, joining the agency’s Counter Terrorism 
Joint Liaison Team (CT JLT) and participating in numerous counter-terrorism analysis projects. 

The  Sixth  Visa  Suspension  Mechanism  Report  recommended  that  Georgia  adopts  a  new  anti-
corruption strategy and action plan, ensuring adequate resources for their implementation and paying 
special  attention  to  the  investigation,  prosecution,  and  adjudication  of  high-level  corruption  cases. 
Georgia has not yet developed a new national anti-corruption strategy or an action plan.  

The Sixth Visa Suspension Mechanism Report stipulated that Georgia should set up an Asset Recovery 
Office  and  Asset  Management  Office  and  step  up  its  asset  recovery  efforts.  Despite  Georgia’s 
cooperation with EU Asset Recovery Offices, a recommendation to set up an Asset Recovery Office 
remains to be addressed. There is also no dedicated entity specifically tasked with managing recovered 
assets. Seized assets are managed by the National Agency of State Property.      

The Sixth Visa Suspension Mechanism Report recommended that Georgia ensures that legislation on 
the Anti-Corruption Bureau, the Special Investigation Service and the Personal Data Protection Service 
addresses  recommendations  from  the  Venice  Commission.  The  amendments  to  the  Law  on  Anti-
Corruption Bureau adopted in May 2024, fail to address key Venice Commission recommendations, 
particularly  those  pertaining  to  the  Anti-Corruption  Bureau’s  effective  independence,  political 
neutrality and functions. 

Georgia  participates  in  the  Group  of  States  against  Corruption  (GRECO).  Following  the 
recommendations  of  GRECO,  in  2023  Georgia  amended  the  Law  on  the  Prosecution  Service, 
extending the scope of asset declaration regime to all prosecutors. The GRECO evaluation report on 
Georgia from July 2024 includes recommendations regarding the strategic framework, integrity checks 
and transparency. 

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6.  External relations and fundamental rights 

In the reporting period, Georgia adopted legislation whose application undermines fundamental rights. 
The adoption of the Law ‘on transparency of foreign influence’ in May 2024, and the adoption of the 
legislative  package  on  ‘family  values  and  protection  of  minors’  in  September  2024  undermine  the 
overall legal framework for upholding fundamental rights. Both initiatives infringe upon human rights 
and fundamental freedoms, in particular the rights to freedom of association, expression, and privacy.  
The Law on transparency of foreign influence was adopted in May 2024 despite a Venice Commission 
opinion18  and  the  EU’s  reiterated  calls  recommending  repealing  the  law.  The  law  undermines  the 
freedom of association and expression, the right to privacy, the right to participate in public affairs as 
well as the prohibition of discrimination. Cumbersome reporting requirements and extensive powers 
given to the Ministry of Justice in controlling civil society and media organisations increase the risk 
of selective and arbitrary application. 

The  European  Council  underlined  in  its  conclusions  of  27  June  2024  that  the  adopted  law  ‘on 
transparency of foreign influence’ represents backsliding on at least three out of the nine steps set out 
in  the  Commission’s  recommendation  for  candidate  status  (on  disinformation,  on  polarisation,  on 
fundamental rights and involvement of Civil Society Organisations). The European Council concluded 
that the Georgian government’s course of action jeopardises Georgia’s EU path, de facto leading to a 
halt of the accession process. 

On 17 September 2024, the Parliament adopted a legislative package consisting of the ‘Law on family 
values  and  protection  of  minors’  and  eighteen  amendments  to  existing  laws,  without  prior  public 
consultations and a thorough analysis of the compliance with European and international standards. 
The  legislative  package  on  family  values  and  protection  of  minors,  signed  into  law  on  3  October, 
increases  stigmatisation  and 
undermines 
discrimination. As a result of the legislative activities and the continued prevalence of homophobic 
hate  speech,  LGBTIQ  people  in  Georgia  are  facing  an  increasingly  hostile  and  stigmatising 
atmosphere.  

the  fundamental  rights  of  Georgian  people  and 

The 2024-2026 action plan for the implementation of the human rights strategy was adopted following 
a limited consultation process and does not include provisions concerning LGBTIQ people and the 
protection of privacy. The action plan partially addresses freedom of religion or belief. Implementation 
of the action plan has not yet begun, and monitoring of implementation has not been clearly defined.  
Significant  gaps  in  the  strategic  framework  as  regards  the  protection  of  minority  rights  including 
representation of minorities remain to be addressed. 

The European Council conclusions of 17 October 2024 reaffirmed that Georgia’s accession process is 
halted  and  called  on  the  Georgian  authorities  to  adopt  democratic,  comprehensive  and  sustainable 
reforms, in line with the core principles of European integration. 

The  Commission  will  closely  monitor  the  implementation  of  the  Law  on  ‘transparency  of  foreign 
influence’ and the legislative package on family values and protection of minors given that compliance 
with fundamental rights, including effective implementation and policies on anti-discrimination, are 
specific requirements based on which Georgia was granted visa liberalisation.  

18  

CDL-PI(2023) (coe.int): Urgent opinion on the Law on Transparency of Foreign influence issued by the Venice 
Commission on 21 May 2024  

10 

 
 
 
Following the recommendation on data protection of the Fifth Visa Suspension Mechanism Report, a 
new  Law  on  Personal  Data  Protection  was  adopted  in  June  2023  and  amended  in  May  2024.  Key 
Venice Commission recommendations regarding institutional independence, impartiality and powers 
of the Personal Data Protection Service remain outstanding. 

7.  Recommendations 

Taking  into  account  recent  developments  in  Georgia,  there  are  ongoing  reflections  on  the  possible 
activation of the visa suspension mechanism in relation to certain categories of persons. In order to 
continue  fulfilling  all  visa  liberalisation  benchmarks  and  to  avoid  the  possible  activation  of  the 
suspension  mechanism,  Georgia  needs  to  take  further  urgent  action  to  address  the  Commission’s 
recommendations. In particular, the following issues need to be addressed:  

a)  Ensure and uphold the protection of fundamental rights of all Georgian citizens, including the 
freedoms of association, assembly and expression, the right to privacy, the right to participate 
in public affairs, as well as the prohibition of discrimination.  

b)  Avoid and repeal any legislation that may restrict fundamental rights and freedoms, go against 
the  principle  of  non-discrimination  and  contradict  relevant  European  and  international 
standards.  In  particular,  repeal  the  Law  on  ‘transparency  of  foreign  influence’  and  the 
legislative  package  on  ‘family  values  and  protection  of  minors’,  and  amend  the  national 
strategy and action plan on human rights to ensure that the rights of LGBTIQ persons are fully 
upheld.  

c)  Align Georgia’s visa policy with the EU list of visa-required third countries, in particular with 

regard to countries presenting irregular migration or security risks to the EU.  

d)  Step up action to  address  the issue of unfounded asylum applications and irregular stays in 
Member  States,  such  as  information  campaigns  on  the  visa-free  regime  to  relevant  migrant 
profiles and stricter border checks. 

e)  Set up an Asset Recovery Office and Asset Management Office, and continue efforts in asset 

tracing, freezing, management, confiscation and disposal. 

f)  Adopt a new  anti-corruption  strategy and  action  plan, ensuring adequate  resources for  their 
implementation  and  pay  special  attention  to  investigation,  prosecution,  and  adjudication  of 
high-level corruption cases. 

g)   Amend 

the  Law  on  Anti-Corruption  Bureau 

to  address  key  Venice  Commission 
recommendations,  particularly  those  pertaining  to  the  Anti-Corruption  Bureau’s  effective 
independence, political neutrality and functions. 

h)  Align the Law on Personal Data Protection with the EU acquis. 

11 

 
 
 
UKRAINE 

1.  Visa policy alignment 

Ukraine has a visa-free regime with 15 countries that are on the EU list of visa-required countries: 
Armenia, Azerbaijan, Bahrain, Belarus, Ecuador, Kazakhstan, Kuwait, Kyrgyzstan, Mongolia, Oman, 
Qatar, Saudi Arabia, Tajikistan, Türkiye, and Uzbekistan.  

There was no progress towards more alignment with the EU list of visa-required countries in 2023. 

2.  Document security, including biometrics 

Ukraine has been issuing biometric passports since 2015. The last non-biometric passports were issued 
in  2016,  and  their  complete  phase-out  will  occur  in  2026,  when  they  expire.  In  May  2022,  a 
deduplication software was developed and put in operation to define duplicates in the National System 
for Biometric Verification and Identification of citizens of Ukraine, foreigners, and stateless persons 
(NSBVI),  under  the  administration  of  the  State  Migration  Service  of  Ukraine.  As  a  result  of  the 
deduplication conducted, 4 581 duplicate cases with very high or medium level of confidence were 
found. This exercise was crucial for identifying fraud as well as for proper information management. 

Every citizen of Ukraine receives a unique national number, which never changes (even if the person 
in question changes name) and is incorporated into every identification document, including passports.   

Despite  the  ongoing  war  of  aggression  against  Ukraine,  in  2023  the  issuing  of  identity  documents 
continued, except in territories of Ukraine temporarily occupied by Russia, including Crimea. After a 
temporary interruption in  2022,  in  2023  Ukraine resumed the functioning  of the register of invalid 
Ukrainian  passports;  the  database  is  updated  daily.  Exchange  of  information  on  stolen  and  lost 
documents between Ukraine and Interpol has never been interrupted. 

3. 

Integrated border management, migration management, asylum 

Since the beginning of Russia’s full-scale invasion, large parts of Ukrainian international borders have 
been occupied by Russia. A total of 110 crossing points on the border with  Russia, Belarus and on 
Transnistrian segment of the border with Moldova remained closed. A further 49 points in territories 
temporarily occupied by Russia are no longer under control of Ukraine. However, in sectors under 
control of Ukrainian government border management continued without interruption.  

The Strategy of Integrated Border Management for the period 2023-2025 was amended in July 2023.  
The Action Plan for the implementation of the strategy was adopted in December 2023. In June 2023, 
a national methodology for assessing the quality of the implementation, conceived with the assistance 
of EU experts, was officially adopted. A joint working group on quality control in border management, 
which  includes  Frontex  and  EU  Advisory  Mission  (EUAM)  Ukraine  in  observer  capacity,  was 
subsequently set up.  

In 2023, considerable  efforts  were made to  upgrade  the technical  equipment of all border crossing 
points remaining under control of Ukraine. Ukrainian border services received from some EU Member 
States significant quantities of equipment and specialised training. The EUR 12 million Frontex grant 
in support of the State Border Guard Service of Ukraine was successfully implemented throughout 
2023. The acquired equipment was a solid technical contribution to maintaining the core Integrated 
Border Management (IBM) functions of Ukrainian institutional partners. The grant  enabled greater 
capabilities,  particularly  at  the  country’s  western  borders,  preparing  the  ground  for  renewed  joint 
operational activities.  

12 

 
 
Joint patrolling with border services of some EU Member States continued.  

In June 2023, Ukraine adopted two new laws on migration, updating, amongst others, the procedures 
to grant and withdraw residence permits and the penalties for irregular stay.  

With air and sea access to Ukraine being limited, and the whole territory, borders included, being under 
martial law, both regular and irregular migration to, from and through Ukraine were reduced. In 2023, 
a total of 5 467 irregular migrants were intercepted on borders with Ukraine (12 094 in 2022) and 3 
389 irregular migrants were discovered on the territory of Ukraine (5 062 in 2022); among the latter, 
45% were citizens of Russia, Azerbaijan, and Moldova.  

Ukraine continued to combat trafficking in human beings and remained engaged in the implementation 
of the Common Anti-Trafficking Plan to address the risks of trafficking in human beings and support 
potential  victims  among  those  fleeing  the  war  in  Ukraine.  Ukraine  takes  active  part  in  the  regular 
meetings of the EU Network of National Coordinators and Rapporteurs and in law enforcement and 
judicial cooperation with Member States and the EU Agencies. In 2024 it participated in 19 operational 
actions  organised  within  the  framework  of  the  EMPACT  and  in  several  joint  investigation  teams 
against organised crime groups involved in trafficking in human beings. Due to the economic hardship 
and Russian military aggression, Ukrainian nationals remain vulnerable to trafficking. Therefore, the 
actions set out in the Common Anti-Trafficking Plan must continue to apply. 

The cooperation between Ukraine and Frontex is based on the working arrangement signed in 2007. 
In  2023,  Frontex  continued  providing  relevant  advice  within  its  mandate,  assisting  Ukrainian 
authorities  in  responding  to  urgent  capacity  building  needs  and  to  a  reflection  process  on  the  new 
multiannual IBM framework. 

In  2023,  there  were  no  meetings  of  the  EU-Ukraine  Joint  Readmission  Committee.  However,  the 
development  of  cooperation  on  readmission  with  EU  Member  States  continued  in  2023,  with  the 
signature of implementation protocols with Romania and Latvia. 

Ukraine continued the cooperation with IOM, ICMPD and UNHCR.     

Applications for asylum continued to be examined in Ukraine. However, since the Russian full-scale 
invasion  on  24  February  2022,  the  number  of  applications  diminished  significantly;  in  2021,  there 
were 1198 applications, but only 205 in 2022, and 109 in 2023. Positive decisions went from 157 in 
2021 to 46 in 2022, and 53 in 2023. As of end 2023, there were 2520 recognised refugees or persons 
under subsidiary protection residing in Ukraine.     

4.  Monitoring  trends  in  migration,  temporary  protection,  applications  for  international 

protection, and readmission 

Following the activation of the Temporary Protection Directive19 in 2022, as of 5 November 2024 the 
estimated  number  of  active  registrations  for  temporary  protection  in  the  27  Member  States, 
Norway, Iceland, and Switzerland, according to data uploaded on the Temporary Protection Platform 
and channeled via the Blueprint Network, is 4 569 496, of which 4 424 322 in the EU MS. 436 095 
inactive  registrations  were  recorded  on  the  platform.  Germany,  Poland  and  Czechia  remain  the 
Member States hosting the highest number of beneficiaries of temporary protection (1.13 million in 

19  

Council Implementing Decision (EU) 2022/382 of 4 March 2022 establishing the existence of a mass influx of 
displaced persons from Ukraine within the meaning of Article 5 of Directive 2001/55/EC, and having the effect of 
introducing temporary protection, ST/6846/2022/INIT, OJ L 71, 4.3.2022, p. 1–6. 

13 

 
 
 
Germany, almost 1 million in Poland, and close to 400 000 in Czechia).20 In 2023, there were 1 056 020 
decisions granting temporary protection in the EU, corresponding to one fourth of the number of the 
decisions taken in 2022.21 

In 2023, the number of Ukrainian applicants for international protection in Member States was 16 145, 
46% less than in 2022 (29 790). The recognition rate remained stable in 2023 (88%). 

The  number  of  Ukrainian  nationals  irregularly  crossing  the  EU  border  in  2023  decreased  by  11% 
(4 579 in 2023 compared with 5 148 in 2022). In 2023, 40 815 Ukrainian nationals were found to be 
irregularly  staying  in  EU  (43  360  in  2022,  a  decrease  of  6%).  The  number  of  refusals  of  entry  to 
Ukrainian nationals fell by 37%, from 28 795 in 2022 to 18 235 in 2023. 

5. 

Public order and security 

Source: Eurostat 

In  May  2023,  Ukraine  adopted  the  Overarching  Strategic  Plan  for  the  Reform  of  the  Entire  Law 
Enforcement  Sector  for  2023-2027,  with  ambitious  objectives.  In  September  and  October  2023, 
Ukraine adopted revised legislation on fighting against money laundering. In December 2023, Ukraine 
adopted  new  legislation  on  fighting  against  the  smuggling  of  goods  and  avoidance  of  excise 
taxes/custom duties; in this field, tobacco smuggling is considered a particularly serious problem by 
Ukrainian authorities. In August 2024, Ukraine adopted the Action Plan, which will implement the 
Overarching Strategy for the reform of the law enforcement sector. 

Cooperation  with  the  EU  on  combating  organised  crime  continued,  including  via  five  Joint 
Investigation Teams (JIT) with EU Member States in 2023; eight more JITs with EU Member States 
were created in the beginning of 2024. Intensive cooperation also  took place under EMPACT (122 
operational actions). Cooperation with the EU via Europol continued with more than 28 000 messages 
exchanged through SIENA and with numerous operational actions, against various criminal activities 
such  as  cybercrime  (including  fraud  in  cybercurrencies),  smuggling  of  drug  precursors,  migrant 
smuggling, trafficking in human beings, illicit trade of firearms.  

Efforts were made to improve the registration and control of circulation of weapons; in June 2023 a 
Unified Register of Weapons became operational.   

20  
21  

Statistics | Eurostat (europa.eu). 
Statistics | Eurostat (europa.eu). 

14 

 
 
 
 
On 5 July 2024, the Cabinet of Ministers approved a draft regulation developed by the Ministry of 
Internal  Affairs  to  create  a  Coordination  Centre  on  Countering  Illegal  Circulation  of  Firearms,  its 
Components  and  Ammunition  to  serve  as  a  temporary  consultative  and  advisory  body  under  the 
Cabinet of Ministers. The primary objectives of the Centre include coordinating the efforts of various 
state  agencies  involved  in  firearms  circulation,  facilitating  information  exchange,  and  developing 
regulations based on international best practices. This initiative aligns with recommendations from the 
European Commission, as outlined in the 2023 Enlargement package. 

There is also operational cooperation between EU and Ukraine in this field, including by a working 
group  inside  the  Group  of  European  Experts  on  Firearms  (EFE)  composed  of  Ukraine,  five  EU 
Member States and Europol. The EU provided training and expert advice under the coordination of 
EUAM. The topic of trafficking of firearms and other small arms and light weapons (SALW) is being 
addressed  since  2019  by  the  EUAM,  including  through  a  project  implemented  by  the  OSCE  (“In 
support of Ukraine’s efforts to combat illicit trafficking in weapons, ammunition and explosives”). 
The project builds on the 2018 ‘EU SALW Strategy’ and strengthens the capacities of the State Border 
Guard Service of Ukraine, the Ministry of Internal Affairs of Ukraine and the State Fiscal Service/State 
Customs Service of Ukraine in combating illicit trafficking in weapons, ammunition and explosives in 
Ukraine. Firearms trafficking is also discussed in the framework of the ‘EU-Ukraine internal security 
dialogue’, since 2023, following Ukraine’s candidate status. 

In  line  with  the  2018  ‘EU  strategy  against  illicit  firearms,  small  arms  and  light  weapons  and  their 
ammunition’,  the  EU  continuously  works  with  Ukraine  to  prevent  the  diversion  of  firearms  and 
SALW,  their  ammunition  and  explosives.  The  EU  engagement  in  addressing  the  risk  of  illicit 
trafficking  in  SALW  and  their  ammunition  has  been  focused  on  the  following  areas:  a)  a  support 
provided  through  ongoing  CFSP  Council  Decisions  implemented  by  OSCE,  UNDP  SEESAC,  and 
Conflict Armament Research; b)  the implementation of the EU ‘List of Actions to counter firearms 
and other SALW diversion in the context of Russia’s war of aggression against Ukraine’; c) end-use 
monitoring of the military assistance provided under the European Peace Facility. The EU also works 
together with Ukraine and international partners in the framework of the EU-Ukraine internal security 
dialogue;  Quad  +  EU  meetings  with  Ukraine;  G7  Non-proliferation  Directors  Group;  and  regular 
dialogues with third countries on conventional arms control. 

As regards the fight against drug smuggling, the State Policy Drug Strategy for the period 2023-2030, 
has not been adopted yet. Ukraine continued international cooperation in this field  with the EUDA 
based on a 2022 working arrangement as well as in the context of the EU4MD II project, Europol, 
within EUBAM, and within the framework of EMPACT.  

In  the  fight  against  cybercrime  (especially  theft  of  funds  by  deception  and/or  hacking),  Ukraine 
intensively cooperated with EU Member States, Europol and Eurojust, but also US agencies and third 
countries (e.g., Georgia).  

As  a  consequence  of  Russia’s  war  of  aggression  against  Ukraine,  the  justice  system  faced  an 
unprecedented  number  of  cases  linked  to  war  crimes  and  crimes  against  humanity.  One  of  the 
consequences was the creation in April 2023 of the Coordinating Centre for the Support of Victims 
and Witnesses. Another consequence of the Russian military aggression was an increased number of 
acts of sabotage and terrorism (187 in 2023), specifically targeting Ukrainian critical infrastructures, 
which strained further the resources of law enforcement and security agencies, as well as those of the 
whole judicial system.  

15 

 
 
In the fight against corruption, Ukraine continued to apply the Anti-Corruption Strategy for 2021-2025 
and the State Anti-Corruption Programme for 2023-2025. In August 2023, the Asset Recovery Strategy 
for 2023-2025 was adopted and the action plan for its implementation was adopted by the government 
in August 2024.  

In December 2023, a new law was adopted on strengthening the institutional capacity of the National 
Anti-Corruption Bureau of Ukraine (NABU), increasing the staff of NABU from 700 to 1000 people. 
On  the  other  hand,  despite  the  recommendation  issued  in  previous  Visa  Suspension  Mechanism 
Reports, there was still no progress with the establishment of autonomous wiretapping capabilities by 
the  NABU.  In  July  2023,  NABU  signed  a  cooperation  agreement  with  the  European  Public 
Prosecutor's Office (EPPO).  

On 1 January 2024,  the  law  on strengthening  the independence of the Specialised Anti-Corruption 
Prosecutor's Office (SAPO) was adopted; it provides SAPO with the status of a separate legal entity 
from  the  Office  of  the  Prosecutor  General  and  defines  the  procedure  for  competitive  selection  for 
appointment to administrative positions in SAPO and to the posts of prosecutors, including the head 
of SAPO.  

In  March  2023,  Ukraine  amended  the  legislation  on  selection  and  preparation  of  prosecutors, 
improving the mechanism for the recruitment and disciplinary procedures.  

Other  legislative  measures  related  to  the  fight  against  corruption  adopted  in  2023  included  some 
amendments to legislation on regulation of financing of political parties and electoral campaigns and 
the restoration of the obligations of reporting on financing of political parties as well legal amendments 
for the restoration of declaration of assets by public officials.  

In 2023, NABU opened 257 investigations (compared to 187 in 2022). Based on the results of the 
NABU investigation, and under the procedural guidance of SAPO, in 2023 there were 100 indictments 
submitted  to  the  High  Anti-Corruption  Court  (compared  to  54  in  2022);  the  court  issued  44  final 
convictions (including against four judges, one Member of Parliament, two deputy ministers and one 
civil servant of the highest category (A) 

In June 2024, the law revising the legal basis on the Economic Security Bureau of Ukraine entered 
into force developing an open, transparent and competitive process for selection of management and 
staff, vetting of staff as well as an independent performance audit, thus contributing to enhancing the 
accountability, integrity and professionalism in combatting economic crimes. 

6.  External relations and fundamental rights 

The  respect  for  fundamental  rights  is  overall  ensured  and  Ukraine  has  shown  its  commitment  to 
protecting them and further aligning with EU standards, despite the restraints due to the ongoing war 
and martial law. Martial law has led to some restrictions of rights and freedoms, but they have remained 
largely in proportion to the security situation and have generally been applied with caution. 

Ukraine made significant progress towards the ratification of the Rome Statute of the International 
Criminal Court by adopting the ratification law for the Rome Statute and made steps towards aligning 
domestic legislature with international obligations. 

Ukraine continues to implement the Council of Europe project ‘Combating hate speech in Ukraine’ 
for 2023-2025. The aim of the project is to strengthen national legal remedies against discrimination 
and hatred, including improving forms of compensation for victims. 

16 

 
 
Following the ratification of the Council of Europe Convention on Preventing and Combating Violence 
Against Women and Domestic Violence (Istanbul Convention) Ukraine adopted amendments to the 
Code  on  Administrative  Offences  in  May  2024  to  bring  legislation  on  preventing  and  combating 
domestic violence in line with the Convention. 

As  a  result  of  Russia’s  full-scale  invasion  and  deliberate  targeting  of  civilians  and  civilian 
infrastructure,  the  number  of  people  with  disabilities  continues  to  increase  among  the  military  and 
civilians. In June 2023, Ukraine adopted a new law on registration of persons with disabilities in need 
of assistance from specialised funds. The new law was accompanied by a budgetary effort to finance 
assistance to persons with disabilities.  

On 8 December 2023, Ukraine amended the legislation on national minorities, introducing substantial 
changes to the Laws on national minorities (Communities), on media, on state language, on publishing 
and on education, followed by several implementing laws, roadmaps and methodologies. 

As a result of Russia’s war of aggression, there are 3.7 million internally displaced persons in Ukraine. 
In April 2023, Ukraine adopted a State Policy Strategy on Internal Displacement and its accompanying 
action plan for the period 2023-25. Amongst the main objectives, other than housing and employment, 
is to ensure the continuous education of children from displaced families.        

7.  Recommendations 

Overall, Ukraine continues to fulfil the visa liberalisation requirements and has taken action to address 
some of the Commission’s previous recommendations. However, further efforts  are needed, where 
possible in the current context. In particular, the following issues need to be further addressed: 

a)  Align Ukraine’s visa policy with the EU list of visa-required third countries, in particular with 

regard to countries presenting irregular migration or security risks to the EU. 

b)  Continue  strengthening  efforts in  the  fight against  organised  crime,  with  a  special focus on 
countering the smuggling of firearms and drugs, combatting trafficking in human beings and 
the financial dimension of organised crime, despite the war-related challenges.  

c)  Continue  strengthening 

that  anti-corruption 
institutions are fully independent and able to deliver a real and significant output, also in view 
of long-term reconstruction efforts. 

the  anti-corruption  framework,  ensuring 

17 

 
 
 
KOSOVO 

The Commission launched a visa liberalisation dialogue with Kosovo on 19 January 2012 and on 14 
June  2012  presented  a  visa  liberalisation  roadmap22  identifying  the  legislative  and  other  measures 
which Kosovo needed to adopt and implement. Following that, the Commission adopted four reports 
assessing  Kosovo’s  progress23.  On  4  May  2016,  the  Commission  proposed  to  the  Council  and  the 
European  Parliament24  to  lift  the  visa  requirement  for  Kosovo.  After  Kosovo  fulfilled  the  two 
previously  outstanding  requirements,25  on  18  July  201826  the  Commission  confirmed  that  Kosovo 
fulfilled all 95 benchmarks as set out in the roadmap and proposed visa liberalisation for Kosovo.  

Following negotiations between the European Parliament and the Council, Regulation (EU) 2023/850 
was adopted on 19 April 202327, amending Regulation (EU) 2018/1806 by transferring Kosovo from 
Part 2 of Annex I to Part 4 of Annex II to that Regulation. The exemption from the visa requirement 
started to apply on 1 January 2024, and applies to holders of biometric passports issued by Kosovo in 
line with the standards of the International Civil Aviation Organisation (ICAO). 

Since  completing  the  visa  liberalisation  roadmap  in  2018,  Kosovo  has  continued  to  adopt  and 
implement  legislation  in  the  fields  covered  by  the  roadmap,  largely  complying  with  EU  and 
international standards in line with the benchmarks of the roadmap. 

1.  Visa policy alignment 

Kosovo has a visa-free regime with 16 countries that are on the EU list of visa-required countries: 
Bahrain, Belize, Eswatini, Fiji, Guyana, Jordan, Kuwait, Lesotho, Malawi, Maldives, Oman, Papua 
New  Guinea,  Qatar,  Sao  Tome  and  Principe,  Saudi  Arabia,  and  Türkiye.  In  August  2024,  Kosovo 
reinstated a visa requirement for nationals of Botswana, Namibia, and South Africa. 

As stated in the preamble to the Regulation that granted Kosovo the visa-free status28, to ensure that 
migration is managed well and to ensure a secure environment, Kosovo should seek to further align its 
visa policy with that of the EU. The lack of alignment of Kosovo’s visa policy with the EU visa policy 
contributes to an increased risk of irregular migration to the EU via the Western Balkan route.  

As part of its Reform Agenda under the Growth Plan, Kosovo has committed to further align with the 
EU  list  of  visa-required  countries.  Pending  full  alignment,  a  more  rigorous  screening  of  visa-free 
arrivals of third-country nationals, in particular those from countries presenting security or irregular 
migration risks, would be a minimal temporary measure expected from Kosovo. 

22  
23  

24  
25  

26  
27  

28  

https://ec.europa.eu/commission/presscorner/detail/en/IP_12_605  
COM (2013) 66 final, COM(2014) 488 final, COM(2015) 906 final, accompanied by SWD(2015) 706 final, and 
COM(2016) 276 final. 
COM (2016) 277 final. 
Ratification of the Border Demarcation Agreement with Montenegro (21 March 2018) and the establishment and 
strengthening of a steady track record of investigations and final court rulings in organised crime and corruption 
cases. 
COM(2018) 543 final. 
Regulation (EU) 2023/850 of the European Parliament and of the Council of 19 April 2023 amending Regulation 
(EU) 2018/1806 listing the third countries whose nationals must be in possession of visas when crossing the external 
borders and those whose nationals are exempt from that requirement (Kosovo (This designation is without prejudice 
to positions on status, and is in line with UNSCR 1244/1999 and the ICJ Opinion on the Kosovo declaration of 
independence.)) 
Ibid., Recital 6. 

18 

 
 
 
 
2.  Document security, including biometrics 

Kosovo issues machine-readable biometric personal travel documents in compliance with ICAO and 
EU standards for security features and biometrics in travel documents. Machine-readable biometric 
personal travel documents have been issued since 2011. The last non-biometric passports issued in 
2011  expired  in  2021.  Hence,  there  are  no  more  valid  non-biometric  passports  in  circulation.  One 
Member State mentioned that, although the new basic travel document issued by Kosovo (biometric 
with chip) has good security features, documents are personalised with inkjet technology, which makes 
them easier to forge. 

In  2023,  Kosovo  launched  two  initiatives  to  improve  document  security:  first,  the  government 
approved a new law for identity cards and sent it to the Assembly for approval; second, it approved a 
new Administrative Instruction for Issuing Identity Cards which simplifies the application process and 
strengthens the security features of ID cards. 

Kosovo Police regularly reports lost and stolen passports to Interpol. In 2022, it reported 4 440 Stolen 
and Lost Travel Documents (SLTDs), while in 2023 it reported 4 531 SLTDs to Interpol. 

3. 

Integrated border management, migration management, asylum 

In terms of border management, in December 2023 Kosovo approved a new Law on border control to 
further align with the relevant EU acquis, specifically the Schengen Borders Code and the Directives 
on Advanced Passenger Information (API) and Passenger Name Record (PNR). Kosovo continues to 
implement  integrated  border  management  (IBM)  at  its  border  crossing  points,  improved  in  2013 
through  the  establishment  of  the  National  Centre  for  Border  Management  (NCBM),  tasked  with 
distributing information and acting as a joint multi-agency risk analysis centre. Kosovo has drafted 
and approved three consecutive strategies for IBM during the period 2009-2024. There is currently a 
strategy in place for the period 2020-2025. 

The basis for cooperation with Kosovo is the EU-Kosovo Stabilisation and Association Agreement, 
which  entered  into  force  in  2016.  Kosovo  also  signed  a  number  of  bilateral  agreements  related  to 
border management with neighbouring countries, such as the 2018 agreement with Albania, related to 
joint border controls at Morine–Kukes border crossing point.  

Kosovo  signed  a  working  arrangement  with  Frontex  in  2016.  Since  then,  Kosovo  has  cooperated 
closely  with  Frontex  as  Kosovo  authorities  have  benefitted  from  Frontex  officers’  expertise  in 
document  verification  and  border  management.  One  of  the  expected  outcomes  of  the  project  “EU 
Regional Support to Strengthen Border Security Capacities in the Western Balkans” is for Kosovo to 
obtain access to capacity building programs and equipment, advance national coordination centres, as 
well as to align its IBM strategy with the European IBM concept and strategy.  

Regarding irregular migration management, in December 2023, days prior to the entry into force of 
visa liberalisation, Kosovo established an early warning mechanism for monitoring migration trends 
of Kosovo citizens in the Schengen area. The Ministry of Internal Affairs has revised the action plan 
of  the  migration  strategy,  in  order  to  align  it  with  recent  EU  developments.  The  action  plan  was 
approved in June 2024.  

With regard to cooperation on readmission, until 2022, Kosovo signed readmission agreements with 
24 countries, including 20 Member States of the Schengen area. In 2023 Kosovo started to negotiate 
bilateral readmission agreements with Latvia, Lithuania and Poland. Overall, Member States reported 
very close cooperation on readmission with Kosovo. One Member State highlighted that improvements 

19 

 
 
are needed with regard to certain readmission requests that have been increasingly rejected since 2018 
inter alia due to a lack of registration in biometric databases or inaccurate civil registry. 

Following  the  launch  of  Frontex  annual  call  to  Western  Balkan  partner  institutions  to  take  part  in 
Frontex-managed  Country  Working  Group  (CWG)  meetings  as  observers,  Kosovo  was  granted 
observer status to CWG Algeria, Morocco and Iraq. 

The European Union Asylum Agency (EUAA) and the Ministry of Internal Affairs signed in March 
2022 a roadmap for cooperation between Kosovo and the EUAA, regarding the strengthening of the 
asylum  and  reception  system  in  line  with  the  common  standards  of  the  asylum  system  and  EU 
standards. In March 2024, the deadline for the implementation of the roadmap was extended for one 
year, taking into account that some of the objectives foreseen in the roadmap are still relevant. 

4.  Monitoring  trends  in  migration,  temporary  protection,  applications  for  international 

protection, and readmission 

The number of applications for international protection lodged in Member States by citizens of Kosovo 
slightly decreased (by 4.5%) between 2022 and 2023, with 3 220 applications lodged in 2022 compared 
with 3 075 applications in 2023. The recognition rate of 14% in 2022 dropped to 10% in 2023. 

In 2023, Member States reported 176 irregular border crossings by Kosovo citizens, representing a 
significant improvement of 48% less than in 2022 (339), and the same trend applies to the number of 
Kosovo citizens found to be irregularly staying in Member States – a decrease by 13% compared with 
2022 (from 5 025 in 2022 to 4 360 in 2023). The number of refusals of entry for Kosovo citizens in 
Member States  dropped by  3% in  2023 (from 1 830 in  2022 to  1  780 in 2023)  marking  a positive 
change of the trend from the past year. 

The number of return decisions issued in  2023  (4  565)  remained stable  compared to  2022  (4 455) 
which represents a minor increase of 2%. In 2023, 1 465 returns of Kosovo citizens were reported, 
compared  with  1  540  in  2022  (a  decrease  of  5%).  The  same  trend  marked  the  return  rate  which 
decreased from 35% in 2022 to 32% in 2023. 

Source: Eurostat 

As full Eurostat data for the year 2024 will only be available in mid-2025, it is not yet possible to 
assess fully the impact of the entry into force of the visa liberalisation on migration and asylum trends 
in the Schengen area.  

20 

 
 
 
However,  some  Member  States  reported  a  substantial  increase  in  unfounded  asylum  applications 
lodged  by  Kosovo  citizens  since  the  beginning  of  2024.  In  the  first  seven  months  of  2024,  3 905 
applications have been lodged by Kosovo citizens in EU Member States (+108% compared to the same 
period in 2023). As part of the initiatives taken to address the issue, Kosovo and the local Schengen 
cooperation group have initiated discussions to establish an information sharing mechanism between 
Member  States  authorities  (including  local  diplomatic  missions)  and  Kosovo  authorities  for  the 
purpose of monitoring irregular migration and asylum trends. This initiative also involves reigniting 
Kosovo’s internal  communication campaign to  inform  about  the  rights  and  obligations  applying to 
travel to the Schengen area and Kosovo engaging bilaterally with the most affected EU Member States.  

5. 

Public order and security 

Since June 2023, due to the lack of decisive action to de-escalate the tensions in the north of Kosovo, 
the EU has been implementing a number of measures vis-à-vis Kosovo, which also impact financial 
support. In 2023, Kosovo started implementing amendments made in 2022 to the legal framework on 
criminal and judicial matters, including the Criminal Code, Criminal Procedure Code, the Law on the 
Agency for Prevention of Corruption, and the Law on Declaration, Origin and Control of Assets and 
Gifts. Kosovo further amended the Criminal Code and the Criminal Procedure Code in 2023. These 
amendments contributed to further align Kosovo’s legal framework with the EU acquis in these fields. 
Kosovo  also  launched  the  drafting  of  the  new  Anti-Corruption  Strategy.  The  2023-2028  national 
strategy and action plan on the prevention and countering of terrorism were adopted in June 2023. 

A Law on the Special Prosecution was adopted in October 2023, which notably provides a legal basis 
for a special investigation unit within the Kosovo Police to support the Special Prosecution Office. 
This law also creates the basis for Joint Investigations Teams  to investigate and prosecute criminal 
offenses for which the Special Prosecution Office is competent. 

Cooperation on security between Kosovo and the EU is supported by a Working Arrangement signed 
in  2020  between  Kosovo  and  Europol,  complemented  by  specific  agreements  for  the  exchange  of 
classified information and the use of SIENA channel. Kosovo has deployed a liaison officer to Europol 
since March 2023. Kosovo Police also participates in EMPACT activities, where in the 2024-2025 
EMPACT cycle, Kosovo has confirmed participation in 12 operational action plans and 70 Operational 
Actions. The authorities continued to implement the bilateral implementing arrangement with the EU 
for the joint action plan on counterterrorism for the Western Balkans. 

Kosovo also maintains a working arrangement with the European Union Agency for Law Enforcement 
Training (CEPOL), signed in 2017. Kosovo participates in CEPOL activities, including through the 
EU-funded project “Western Balkans partnership against crime and terrorism”. 

Kosovo continued its cooperation with the EUDA based on a 2020 working arrangement as well as in 
the context of the IPA8 project.  

6. 

Fundamental rights 

In  general,  Kosovo's  constitutional  and  legal  framework  guarantees  the  protection  of  fundamental 
rights and freedoms. Kosovo appointed a national coordinator for domestic violence and established a 
central secretariat for combating gender-based violence, in accordance with the Istanbul Convention. 
With regards to the fight against gender-based violence, Kosovo put in place a new program for the 
rehabilitation of perpetrators and adopted criminal legislation amendments increasing punishment and 
establishing safeguards for the application of the law. Amendments to the Criminal Procedure Code 
also  addressed  some  shortcomings  related  to  compliance  with  procedural  deadlines  and  defence 

21 

 
 
representation.  Remaining  issues  of  concern  include  delayed  and  excessively  prolonged  court 
proceedings.  The  adoption  of  the  Civil  Code,  which  would  strengthen  the  protection  of  civil  and 
fundamental rights, remains pending. 

The government adopted a Strategy for the protection and promotion of the rights of communities, 
which aims  to  strengthen  the rights  of minorities. However, several  actions negatively  affected the 
rights and living conditions of non-majority communities disproportionally in the north of Kosovo, 
such  as  expropriation  processes  carried  out  without  following  legal  procedures,  a  Central  Bank 
regulation restricting cash transactions in any other currency than Euro, and closures of Serbian banks, 
Serbian  postal  offices  and  Serbia-supported  public  services  providers  in  Kosovo,  which  operated 
outside  of  the  Kosovo  legal  framework.  Kosovo  is  expected  to  safeguard  existing  mechanisms 
protecting the rights of non-majority communities and improve their implementation, in a coordinated 
and  agreed  manner,  making  use  of  the  EU-facilitated  Dialogue  on  normalisation  of  relations  with 
Serbia. In a long-awaited decision, Kosovo implemented the judgment of the Constitutional Court on 
Deçan/Dečani Monastery land ownership.  

In  July  2024,  a  new  Law  on  the  media  regulator,  was  adopted  by  the  Assembly.  It  contributes  to 
enhancing  media  regulation  and  the  regulator’s  performance.  Nonetheless,  the  Assembly’s 
amendments failed to reflect a majority of the EU and other international partners’ recommendations. 
Concerns remain over the independence, powers and financing of the regulator and over the lack of 
clarity and proportionality of the law. The opposition referred the Law to the Constitutional Court for 
review.    

7.  Recommendations 

Overall, Kosovo continues to fulfil the visa liberalisation requirements. However, further efforts are 
needed. In particular, the following issues need to be further addressed: 

a)  Align  Kosovo’s  visa  policy  with  the  EU  list  of  visa-required  third  countries.  Pending  full 
alignment, a more rigorous screening of visa-free arrivals of third-country nationals, in particular 
those from countries presenting security or irregular migration risks, should be introduced either 
via  operational  and/or  administrative  initiatives  (e.g.,  at  border  crossing  points)  or  by  national 
legislation as a minimal temporary measure expected from Kosovo. 

b)  Continue and strengthen the initiatives recently launched in cooperation with Member States to 
monitor  the  issue  of  unfounded  asylum  applications  by  Kosovo  citizens  in  Member  States, 
including by reinforcing awareness campaigns to inform about the rules applying to travel to the 
Schengen area and by applying stricter screening upon departures. 

c)  Continue  implementing  bilateral  readmission  agreements  to  keep  the  current  good  level  of 

cooperation, and work towards concluding new readmission agreements. 

d)  Continue implementing the legal and policy framework on judicial and criminal matters. 

e)  Further  strengthen  the  protection  of  the  rights  of  non-majority  communities  and  improve  their 

implementation. 

22 

 
 
 
 
2.  VISA-FREE FOR MORE THAN 7 YEARS 

ALBANIA 

1.  Visa policy alignment 

Albania has a visa-free regime with 13 countries that are on the EU list of visa-required countries, of 
which  seven  enjoy  permanent  visa  exemption  (Armenia,  Azerbaijan,  Belarus,  China,    Kazakhstan, 
Kuwait, and Türkiye) and six have a seasonal visa waiver to enter Albania (Bahrain, Oman, Qatar, 
Saudi Arabia and Thailand – 16 March to 31 December 2024, and Indonesia – 1 April to 31 December 
2024). In addition, third-country nationals who have a 10-year residence permit in the United Arab 
Emirates, valid at least one year at the moment of entry, can also enter Albania visa-free.  

In April 2023, Albania removed Russia, India and Egypt from its list of seasonal visa exemptions. In 
March 2024, however, it added Indonesia to the list. In May 2024, Albania partially suspended its visa-
free waiver with Belarus for diplomatic and service passport holders. This visa-free regime is however 
maintained for all Belarus holders of an ordinary passport. In July 2024, Albania suspended its visa-
free regime with Guyana for all passport holders. 

The lack of alignment of Albania visa policy with the EU visa policy contributes to an increased risk 
of irregular migration to the EU via the Western Balkans route. The Commission expects from Albania 
further  progress  on  visa  policy  alignment.  As  part  of  its  Reform  Agenda  under  the  Growth  Plan, 
Albania  has  committed  to  further  align  with  the  EU  list  of  visa-required  countries.  Pending  full 
alignment, a more rigorous screening of visa-free arrivals of third-country nationals, in particular those 
from countries presenting security or irregular migration risks, would be a useful temporary minimal 
measure. 

2.  Monitoring  trends  in  irregular  migration,  applications  for  international  protection, 

returns and readmission  

The number of applications for international protection lodged in Member States by Albanian nationals 
decreased by 30% between 2022 and 2023, with 9 100 applications lodged in 2023 compared with 13 
020 applications in 2022. The recognition rate of 9% in 2022 slightly increased in 2023 (10%). 

In 2023, Member States reported 639 irregular border crossings by Albanian nationals, 14% less than 
in 2022 (746). The same trend marked the number of Albanian nationals found to be irregularly staying 
in Member States in 2023 (32 975) compared to 2022 (38 930) or a decrease of 15%. The number of 
refusals of entry for Albanian nationals in Member States dropped by 12% in 2023 (from 15 265 in 
2022 to 13 440 in 2023). 

The number of return decisions issued in 2023 (17 415) dropped by 28% compared to 2022 (24 165). 
In 2023, 8 235 returns of Albanian nationals were reported, compared with 10 020 in 2022 (a decrease 
of 18%). The return rate slightly increased from 41% in 2022 to 47% in 2023 continuing the positive 
trend from the past years. 

23 

 
 
Source: Eurostat 

3.  Cooperation on migration, border management and readmission  

Albania continued to engage positively on the implementation of the EU Action Plan on the Western 
Balkans. Albania continued to implement an Intersectoral Strategy of Integrated Border Management 
for 2021-2027 and its related Action Plan for 2021-2023. In May 2024, Albania also adopted a new 
National  Strategy  for  Migration  2024-2030  and  its  related  Action  Plan  2024-2026.  Work  on  these 
initiatives  focused  on  increasing  migration  management  capabilities  and  inter-institutional  and 
international cooperation, with six projects being carried out in this area.  

With regard to migration and border management, Joint Operations (JOs) are being carried out with 
the European Coast and Border Guard Agency (Frontex). Albania signed a new Status Agreement on 
15  September  2023  which  entered  into  force  in  June  2024  and  allowed  new  deployments  of  the 
European Border and Coast Guard standing corps officers by Frontex at Albania’s borders with non-
EU countries in addition to existing deployments since 2019 and 2021 at Albania’s land border with 
Greece  and  maritime  border  with  Italy.  Overall,  Member  States  reported  close  cooperation  with 
Albania. There is a Frontex Liaison Officer based in Tirana with a regional mandate covering Albania, 
Kosovo and North Macedonia. 

In the field of readmission, Albania continued to implement the EU-Albania Readmission Agreement 
as well as bilateral readmission agreements. 407 requests for readmission of Albanian citizens from 
EU Member States were processed (i.e., 33 more than in 2022). Overall, Albania is reported to have 
cooperated  to  a  satisfactory  extent  with  Member  States  on  readmission.  Only  two  Member  States 
reported that, although efforts on returns have increased, additional efforts may be needed to step up 
the level of cooperation. 

In  2023,  Member  States  did  not  require  any  further  assistance  of  Frontex  on  identification  and 
acquisition of travel documents for presumed Albanian nationals. In 2024, following the Frontex call 
to  Western  Balkans  to  take  part  in  Frontex-managed  Country  Working  Group  (CWG)  meetings  as 
observers, Albania was granted observer status to CWG Algeria, Bangladesh, Morocco and Somalia. 

Albania continued its cooperation with the EUAA. The second Roadmap framing this cooperation and 
covering 2024-2027 has been endorsed by the Albanian Minister in October 2024. 

4.  Actions taken on unfounded asylum applications    

Albania has followed up on the measures taken in 2022 and mentioned in the sixth report under the 

24 

 
 
 
visa suspension mechanism. Following the adoption in 2022 of an Inter-institutional Action Plan “On 
the  Prevention  of  the  Asylum-Seeking  Phenomenon  of  Albanian  Citizens  in  the  Schengen/EU 
countries”, in 2023 Albania has started to implement it, building on previous positive experience in 
addressing the phenomenon. Albania also continued to implement the dedicated bilateral action plan 
for  addressing  the  issue  of  Albanian  asylum  seekers  in  France.  Albania  has  also  continued  to 
strengthen checks on Albanian citizens who cross their national borders for travelling to the Schengen 
area. Within these efforts, specific focus was placed on checks on minors travelling abroad, including 
notarised declarations of minors at the border.  

Albania  also  continued  to  implement  the  action  plan  for  addressing  the  issue  of  unaccompanied 
Albanian minors in Italy. 

Albania’s  border  and  migration  police  also  engaged  in  intensive  cooperation  and  exchange  of 
information with its counterparts in the region to tackle the phenomenon of Albanians travelling via 
neighbouring countries for the purpose of seeking asylum in the EU and therefore avoiding detailed 
verifications imposed on Albanian citizens when travelling from Albania. 

5.  Citizenship by investment  

In  the  sixth  report  under  the  visa  suspension  mechanism,  it  was  reported  that  in  2023,  Albania 
announced its decision to suspend the initiative related to the establishment of an investor citizenship 
scheme. Indeed, Albania did not establish an investor citizenship scheme and no new developments 
were reported by Albania on this matter. The Commission will continue monitoring this issue. 

6.  Cooperation on security 

In 2023, Albania took part in 20 joint investigation teams, devoted to combating various categories of 
organised crime, mainly drug trafficking, money laundering, and computer-based crimes. In general, 
Albania  has  offered  a  good  level  of  cooperation  with  all  countries  involved.  In  the  fight  against 
organised  crime,  Albania  has  given  special  importance  to  cooperation  with  EU  law  enforcement 
agencies,  strengthening  and  increasing  cooperation  with  counterpart  structures  at  the  regional  and 
international level. This cooperation has consisted in the exchange of police information in the areas 
of investigation of criminal offenses for narcotics, illegal trafficking, money laundering, economic and 
financial  crime,  computer  crime  and  serious  crimes,  where  the  information  was  exchanged  mainly 
through the channels of Interpol, Europol, and the CARIN Network. Albania has deployed a second 
liaison officer to Europol in 2023. 

In  2023,  the  Albanian  State  Police  intensified  information  exchange  by  increasing  the  number  of 
SIENA messages shared with international partners. 

Albania continues to be the most active third country participating in the EMPACT. Albanian State 
Police  is  co-leader  on  the  Operation  Action  “Taskforce  on  Western  Balkan  migrant  smuggling”. 
During  the  reporting  period,  Albanian  State  Police  participated  in  six  Joint  Action  Days  (JADs) 
concerning migrant  smuggling, trafficking in  human beings  and arms  trafficking. These operations 
and information exchanges with partners have brought positive results on the seizures and arrest of 
perpetrators. All results of JADs have been reported to Europol. 

Cooperation  with  CEPOL  has  occurred  within  the  framework  of  the  Western  Balkans  Partnership 
against Crime and Terrorism (WB PaCT). During 2023 52 Albanian State Police employees from the 
Criminal Police Department, Border and Migration Department, and Counter-Terrorism Directorate 
have participated in CEPOL activities under this project. 

25 

 
 
Albania successfully implemented the measures foreseen in the Joint Action Plan on Counterterrorism 
under its five objectives. The first six-month report for 2023 on the implementation was submitted to 
the Commission in October 2023.  

Albania continued its cooperation with the EUDA based on a 2019 working arrangement as well as in 
the context of the IPA8 project. 

7.  Recommendations 

Albania has taken action to address most of the Commission’s previous recommendations. However, 
further progress is needed, and the following issues need to be addressed: 

a)  Align Albania’s visa policy with the EU list of visa-required countries. Pending full alignment, 
a more rigorous screening of visa-free arrivals of third-country nationals, in particular those 
from countries presenting security or irregular migration risks, should be introduced either via 
operational  and/or  administrative  initiatives  (e.g.,  at  border  crossing  points)  or  by  national 
legislation as a minimal temporary measure expected from Albania. 

b)  Continue and strengthen initiatives to address the issue of unfounded asylum applications in 

the EU, in particular concerning unaccompanied minors. 

26 

 
 
 
 
BOSNIA AND HERZEGOVINA 

1.  Visa policy alignment 

Bosnia and Herzegovina has a visa-free regime with seven countries that are on the EU list of visa-
required countries: Azerbaijan, China, Kuwait, Qatar, Russia, Saudi Arabia (seasonal) and Türkiye.   

To further align with EU visa policy, in September 2023 Bosnia and Herzegovina introduced a visa 
requirement for citizens of Bahrain and, in March 2024, for citizens of Oman, thus reducing its list of 
visa-free regimes not in line with EU visa policy. However, Bosnia and Herzegovina also renewed its 
seasonal  3-month  visa-free  regime,  from  June  to  September  2024,  for  a  maximum  of  30  days,  for 
citizens of Saudi Arabia.  

The lack of alignment of Bosnia and Herzegovina visa policy with the EU visa policy contributes to 
an increased risk of irregular migration to the EU via the Western Balkans route. The Commission 
expects  further  progress  on  visa  policy  alignment  from  Bosnia  and  Herzegovina  and  strict 
commitments  to  be  made  in  the  context  of  Bosnia  and  Herzegovina’s  Reform  Agenda  under  the 
Growth Plan. Pending full alignment, a more rigorous screening of visa-free arrivals of third-country 
nationals,  in  particular  those  from  countries  presenting  security  or  irregular  migration  risks,  is  a 
necessary temporary minimal measure.  

2.  Monitoring  trends  in  irregular  migration,  applications  for  international  protection, 

returns and readmission 

In 2023, 1 620 applications for international  protection were submitted by nationals  of Bosnia and 
Herzegovina  in  Member  States,  28%  less  than  in  2022  (2  245),  continuing  the  positive  trend  of 
decrease since 2021. The recognition rate decreased from 8% in 2022 to 6% in 2023. 

In 2023, Member States reported 20 irregular border crossings by nationals of Bosnia and Herzegovina 
at the EU’s external borders, compared with 22 in 2022. In 2023, the number of nationals of Bosnia 
and  Herzegovina  found  to  be  irregularly  staying  in  Member  States  dropped  by  23%,  with  3  790 
irregular  stays  in  2023  compared  with  4  930  in  2022.  The  number  of  refusals  of  entry  noticeably 
decreased in 2023 (by 24%), from 5 265 cases in 2022 to 3 985 in 2023. 

The number of return decisions issued to nationals of Bosnia and Herzegovina (2 430 in 2023 against 
2  885  in  2022)  and  the  number  of  people  returned  (1210  in  2023  against  1280  in  2022)  dropped 
respectively by 16% and 5%. The return rate continued to increase from 44% in 2022 to 50% in 2023. 

Source: Eurostat 

27 

 
 
 
3.  Cooperation on migration, border management and readmission 

A  new  Law  on  foreigners  entered  into  force  in  September  2023.  Bosnia  and  Herzegovina  is 
implementing its action plan on migration and asylum 2021-2025 and its strategy and action plan for 
integrated border management for 2019-2023. A new strategy for integrated border management for 
2024-2029 was pending adoption as of mid-2024. A draft Law on border control, aimed at aligning 
with the EU acquis, remains to be adopted as of mid-2024. 

Negotiations between Bosnia and Herzegovina and the European Commission for the Frontex Status 
Agreement started in February 2024 and finalised in September 2024. The signature of the Agreement 
will follow shortly. The Frontex liaison officer based in Belgrade continues to also cover Bosnia and 
Herzegovina. 

Bosnia and Herzegovina continued overall close cooperation on readmission based on an agreement 
with the EU, which is implemented in an efficient manner as far as most Member States are concerned. 
Some Member States signalled insufficient cooperation by Bosnia and Herzegovina on readmission in 
2023 (although improving from 2022), resulting in the positive treatment of 55% requests. 

Despite a general decrease in irregular border crossings to the EU via the Western Balkan route, the 
sub-route from Bosnia and Herzegovina to Croatia experienced an increasing trend, with roughly 30% 
more crossings in the first nine months of 2024 compared to the same period of 2023. In the first nine 
months  of  2024,  almost  90%  of  all  irregular  border  crossings  on  the  Western  Balkans  route  were 
recorded along this border. Following the closure of the sub-route from Serbia to Hungary, criminal 
networks relocated their operations to the one from Bosnia and Herzegovina to Croatia. 

The number of irregular migrants intercepted by the authorities of Bosnia and Herzegovina in 2023 
increased by 25% compared with 2022. The most numerous were citizens of Afghanistan, Morocco, 
Syria, Pakistan, Türkiye (including those who use the possibility to travel to Bosnia and Herzegovina 
visa-free), Bangladesh and Iran. 

Croatia, the only Member State with a border with Bosnia and Herzegovina, is particularly affected by 
irregular arrivals. Croatia cooperates intensively on border management with Bosnia and Herzegovina, 
including through joint patrols. Both countries also participate in the Europol supported Task Force 
ZeBRA,  which  targets  organised  crime  groups  involved  in  migrant  smuggling.  Other  EU  Member 
States  also  provided  support  to  Bosnia  and  Herzegovina  on  migration  and  border  management, 
including training (e.g. on the use of biometrics) and technical expertise for the upcoming setup of an 
Advance Passenger Information and Passenger Name Record (API/PNR) system and of a document 
database to improve the detection of falsified or forged documents (both in progress).  

Bosnia and Herzegovina continued the fruitful cooperation with the European Union Asylum Agency 
(EUAA), although a roadmap for the period 2024-2025 has not yet been adopted. 

4.  Cooperation on security 

Bosnia and Herzegovina continued its cooperation with Europol. In June 2023, the contact point was 
put into operation and in July a liaison officer was deployed in the Hague. This is an important step. 
Bosnia and Herzegovina’s use of Europol products and services has increased since, with intensive 
exchange  of  information  via  SIENA  communication  system,  mainly  on  the  fight  against  drug 
trafficking,  financial  crimes,  combatting  organised  crime,  migrant  smuggling  and  prevention  of 
terrorism. Bosnia and Herzegovina increased its participation in EMPACT, with 12 operational actions 

28 

 
 
in 2023. Intensive cooperation on the fight against trafficking in weapons and munitions was carried 
out via EMPACT firearms priority. Cooperation with EU Member States via Interpol also continued.  

Bosnia and Herzegovina continued to implement its anti-terrorism strategy for 2021-2026; action plans 
were adopted at all levels of government in 2023. Implementation of the bilateral arrangement with 
the EU in the framework of the Joint Action Plan on Counterterrorism advanced. 

A strategy against terrorism and violent extremism is in place since November 2022, with action plans 
adopted  in  2023.  In  February  2024,  Bosnia  and  Herzegovina  adopted  a  Law  on  Anti-Money 
Laundering and Counterterrorism  Financing  (AML/CTF),  improving provisions on risk assessment 
and providing for a permanent coordinating body, which aims to align with the EU acquis, as well as 
a risk assessment for AML/CFT on virtual assets and an action plan for 2024-2027. 

Bosnia and Herzegovina continued its cooperation with the EUDA in the context of the IPA8 project. 

5.  Recommendations 

the  Commission’s  previous 
Bosnia  and  Herzegovina  has 
recommendations. However, further progress is needed, and the following issues need to be addressed:  

taken  some  action 

to  address 

a)  Align  Bosnia  and  Herzegovina’s  visa  policy  with  the  EU  list  of  visa-required  countries. 
Pending full alignment, additional security measures including a more rigorous screening of 
visa-free  arrivals  of  third-country  nationals,  in  particular  those  from  countries  presenting 
security  or  irregular  migration  risks,  should  be  introduced  either  via  operational  and/or 
administrative initiatives (e.g., at border crossing points) or by national legislation as a minimal 
temporary measure expected from Bosnia and Herzegovina. 

b)  Swiftly sign and ratify the Frontex status agreement with the EU. 

c)  Improve coordination of border management, urgently addressing the issue of irregular border 

crossings on the sub-route passing through Bosnia and Herzegovina. 

29 

 
 
 
 
REPUBLIC OF MOLDOVA 

1.  Visa alignment 

Moldova has a visa-free regime with 11 countries that are on the EU list of visa-required countries: 
Armenia, Azerbaijan, Belarus, Cuba, Kazakhstan, Kyrgyzstan, Qatar, Russia, Tajikistan, Türkiye and 
Uzbekistan.  

There was no progress towards more alignment with EU visa policy in 2023, but in April 2024 the 
Moldova-Ecuador Agreement on visa-free travel was terminated. In its contribution for the preparation 
of this report, Moldova declared that it will fully align its visa policy with the EU’s visa policy by the 
date of accession. 

The Commission expects Moldova to make further progress on visa policy alignment. Pending full 
alignment, a more rigorous screening of visa-free arrivals of third-country nationals, in particular those 
from countries presenting security or irregular migration risks, would be a minimal temporary measure 
expected from Moldova. 

2.  Monitoring  trends  in  irregular  migration,  applications  for  international  protection, 

returns and readmission 

The  number  of  applications  for  international  protection  by  Moldovan  nationals  in  Member  States 
decreased  by  29%  between  2022  and  2023,  with  8  385  applications  lodged  in  2022  against  5  945 
applications in 2023. The recognition rate was 3% in 2023, compared to 2% in 2022. 

In 2023, attempts by Moldovan nationals to cross the EU’s external borders irregularly remained low 
(20), (29 in 2022). The number of Moldovan nationals found to be irregularly staying dropped from 
45 835 in 202 to 40 170 in 2023 (a decrease of 12%). In 2023, the number of Moldovan nationals being 
refused entry in Member States was 9 805, which is 26% more than in 2022 (7 785). 

In 2023, the number of return orders issued to Moldovan nationals remained stable (9 120 in 2023 
compared to 9 125 in 2022), while the number of returns increased by 37.5% (3 610 in 2023 compared 
with 2 725 in 2022) which contributed to the higher return rate of 40% in 2023 compared to 29% in 
2022. 

Source: Eurostat 

30 

 
 
 
 
3.  Cooperation on migration, border management and readmission 

Moldova continued to foster international cooperation on fighting cross-border crime in the framework 
of  EMPACT.  Moldova  continued  close  cooperation  with  different  EU  actors  -  Frontex,  Europol, 
CEPOL,  EUDA  and  the  European  Union  Border  Assistance  Mission  to  Moldova  and  Ukraine 
(EUBAM) - including through the EU Support Hub for Internal Security and Border Management in 
Moldova.  

On border management, in 2023 Moldova continued enhanced cooperation with Frontex on the basis 
of the Status Agreement from March 2022, which enables the agency to deploy European Border and 
Coast Guard standing corps officers with executive powers. Amongst the concrete results were Joint 
Operations (JO) Moldova 2023 (ended) and 2024 (ongoing), at the air border (Chisinau Airport) and 
the land borders with Romania and Ukraine. It is the first Status Agreement and the first joint operation 
with  executive  powers  in  an  Eastern  Partnership  country.  Regular  exchange  of  information  and 
intelligence-sharing is carried out via Frontex-led regional platform Eastern Partnership Risk Analysis 
Network  (EaP-RAN).  In  addition,  ten  Moldovan  observers  were  deployed  for  extended  periods  to 
selected airports in the EU. IBM capacity building-related initiatives were rolled out between Moldova 
and Frontex based on the bilateral Cooperation Plan for 2022-2024. 

Since July 2022, the Frontex Liaison Officer to the Eastern Partnership countries, initially intended to 
be based in Kyiv, has been temporarily deployed to Chisinau instead. 

Cooperation  with  EU  Member  States  on  a  bilateral  basis  also  continued,  including  deployment  of 
Moldovan  border  police  agents  in  an  EU  Member  State  airport  and  on  the  external  land  border  of 
another  EU  Member  State,  training,  technical  expertise  and  provision  of  significant  quantities  of 
technical equipment implemented through EU-funded projects.  

In 2023, EUR 4 million were reallocated to national authorities under an EU-funded project addressing 
the impact of the displacement crisis, in order to strengthen the local border management capacities 
through provision of equipment, infrastructure and relevant training.  

Moldova’s  cooperation  on  readmission  and  returns  was  rated  as  excellent  both  by  Frontex,  and 
numerous  Member  States.  Travel  documents  were  delivered  quickly  and  efficiently;  Moldovan 
authorities  offered  also  full  and  effective  cooperation  with  return  operations,  including  by  charter 
flights.  In  November 2023, Moldovan escorts received the Collecting Return Operation training to 
enable them to participate in this operational activity from 2024. 

4.  Cooperation on security 

In the domain of security, in 2023 Moldova for the second year in a row had to face spillover effects 
of  Russia’s  war  of  aggression  against  Ukraine,  as  well  as  increased  hybrid  warfare,  cybersecurity 
attacks and various forms of transborder crime. In 2024, Moldova has continued to face unprecedented 
foreign  interference  from  Russia  and  its  proxies,  especially  in  the  context  of  the  2024  presidential 
elections and referendum on EU accession. 

During  2023, the EU-Moldova cooperation on security continued to  intensify. One element  of this 
cooperation was the Moldova – EU Hub for internal security and on border management (“EU Security 
Hub”),  launched  in  2022.  In  2023,  the  EU  Security  Hub  addressed  the  following  priority  areas:  
countering  terrorism  and  violent  extremism,  hybrid  threats  and  drugs  trafficking.  In  May  2023,  a 
civilian  CSDP  -  EU  Partnership  Mission  (EUPM)  was  launched.  Its  mandate  is  to  enhance  the 

31 

 
 
resilience of Moldovan security sector in the areas of crisis management and hybrid threats. In addition 
to advice and training, the Mission has a Project Cell offering targeted operational support. 

The  cooperation  with  Europol  continued  and  Moldova  is  encouraged  to  take  further  advantage  of 
existing tools. A Moldovan liaison officer is deployed in Europol headquarters and, since March 2023, 
selected Europol officers are deployed in Moldova to provide operational support and exchange best 
practices,  especially  in  the  domain  of  cross-border  organised  crime.  Operational  actions  against 
firearms, drugs and trafficking in human beings were carried out with Europol, under EMPACT and 
the EU Security Hub. Moldova used Europol methodology for the Serious and Organised Crime Threat 
Assessment (SOCTA) to create national assessments of serious and organised crime threats in years 
2022-23.  The  exchange  of  information  with  Europol  intensified  in  2023.  Moldova  is  currently 
executing EMPACT Operational Action Plans for 2024 – 2025.   

Between March 2023 and March 2024, five Joint Investigation Teams composed of Moldovan and EU 
Member  States  personnel,  with  the  involvement  of  Eurojust,  carried  operational  actions  both  in 
Moldova and in concerned EU Member States. In July 2023, Moldova appointed a Liaison Prosecutor 
at Eurojust for a period of six months and subsequently extended until 31 July 2024. 

In 2023, Moldova had a very intensive information exchange with Interpol. The agency also carried 
out numerous training programmes for Moldova police personnel. 

Cooperation on a bilateral basis with EU Member States continued. Assistance offered to Moldova 
included  training  of  law  enforcement,  technical  expertise,  knowledge  sharing  and  delivery  of 
specialised  software.  Three  EU  Member  States  cooperated  with  Moldova  as  part  of  the  Southeast 
European Law Enforcement Centre (SELEC) cooperation, with law enforcement and security agencies 
carrying numerous joint actions/investigations.  

In the field of the fight against corruption, a new law on the protection of whistle-blowers came into 
effect  in  October  2023  and  in  December  2023  Moldova  adopted  National  Integrity  and  Anti-
Corruption Programme for 2024 – 2028.  

Moldova continued its cooperation with the EUDA based on a 2012 Memorandum of Understanding 
as well as in the context of the EU4MD II project. 

5.  Recommendations   

Moldova has taken action to address the Commission’s previous recommendations. However, further 
progress is needed, and the following issues need to be addressed: 

a)  Align  Moldova’s  visa  policy  with  the  EU  list  of  visa-required  countries,  in  particular  with 

regard to countries presenting irregular migration or security risks to the EU. 

b)  Continue efforts to combat organised crime, with particular attention to tackling smuggling of 
firearms  and  drugs,  combatting  trafficking  in  human  beings  and  the  financial  aspects  of 
organised crime. 

32 

 
 
 
 
 
 
MONTENEGRO 

1.  Visa policy alignment 

Montenegro has a visa-free regime with 11 countries that are on the EU list of visa-required countries, 
of  which  seven  enjoy  a  permanent  visa  exemption  (Azerbaijan,  Belarus,  China29,  Kuwait,  Qatar, 
Russia30,  Türkiye)  and  four  have  a  seasonal  visa  waiver  to  enter  Montenegro  for  touristic  reasons 
between April and October (Armenia, Egypt, Kazakhstan, Saudi Arabia). 

Seasonal visa waivers, introduced in April 2023 with Armenia, Egypt, Kazakhstan, Saudi Arabia and 
Uzbekistan, ceased to have effect on 31 October 2023. All but for Uzbekistan were renewed in 2024 
and are effective from 1 May to 31 October 2024. The seasonal visa waivers allow citizens of the four 
above-mentioned countries to enter Montenegro without a visa for 30 days under certain conditions. 
Furthermore, a seasonal visa waiver for a maximum period of 10 days was also introduced for certain 
third-country nationals holding a residence permit of the United Arab Emirates for at least three years 
prior.  

The lack of alignment of Montenegro visa policy with EU visa policy contributes to an increased risk 
of  irregular  migration  to  the  EU  via  the  Western  Balkans  route.  The  Commission  expects  from 
Montenegro further progress on visa policy alignment. As part of its Reform Agenda under the Growth 
Plan, Montenegro has committed to  further align with  the EU list  of visa-required countries, reach 
interoperability  between  its  systems  and  databases  used  in  the  current  visa  approval  system,  start 
working on collecting biometric data as well as introduce additional security measures to screen visa-
free arrivals of third-country nationals.  

Pending full alignment, a more rigorous screening of visa-free arrivals of third-country nationals, in 
particular those from countries presenting security or irregular migration risks, would be a minimal 
temporary measure expected from Montenegro. 

2.  Monitoring  trends  in  irregular  migration,  applications  for  international  protection, 

returns and readmission  

The  number  of  applications  for  international  protection  lodged  in  Member  States  by  nationals  of 
Montenegro  decreased  by  11%  between  2022  and  2023,  with  375  applications  lodged  in  2023 
compared  with  420  in  2022.  The  recognition  rate  of  3%  in  2023  remained  stable  compared  to  the 
previous year (4%). 

Member States reported four irregular border crossings in 2023 by nationals of Montenegro compared 
to one in 2022. The number of Montenegrin nationals found to be irregularly staying in 2023 decreased 
by 12% (from 1 100 in 2022 to 970 in 2023). In 2023, the number of refusals of entry for nationals of 
Montenegro in Member States dropped by 29.5% (370 refusals in 2023 compared with 525 in 2022). 

The number of return decisions issued to the country’s nationals decreased by 7% (425 in 2023 against 
465 in 2022), and the number of people returned dropped by 26% (215 in 2023 against 290 in 2022). 
The return rate respectively decreased from 62% in 2022 to 51% in 2023 which reversed the positive 
trend of the past years. 

29  

30  

Nationals of the China with a valid travel document may stay in Montenegro up to 30 days, as an organised tourist 
group that together enters, stays and leaves Montenegro, provided they have a proof of paid tourist arrangement and 
proof of provided return to the country of origin or transit. 
Nationals of Belarus and  Russia may stay in Montenegro up to 30 days, with a valid travel document issued by 
those countries. 

33 

 
 
 
Source: Eurostat 

3.  Cooperation on migration, border management and readmission  

Montenegro cooperated in a satisfactory manner on readmission with the EU. No issues were reported 
in  2023  and  no  request  has  been  submitted  by  Member  States  in  relation  to  the  identification  and 
acquisition of travel documents, as relevant provisions in the EU-Montenegro Readmission Agreement 
are considered to be implemented in an efficient manner so far and no further assistance on this aspect 
is required by Frontex.  

Following the launch of Frontex’s yearly call to Western Balkan partner institutions to take part  in 
Frontex-managed Country Working Group (CWG) meetings31 as observers, Montenegro was granted 
observer status to CWG Algeria, Bangladesh, Morocco, and Iraq. 

Close  cooperation  on  readmission  is  also  reported  with  third  countries  in  the  Western  Balkans. 
Montenegro currently does not have readmission agreements with any of the main countries of origin 
of migrants, despite recent outreach efforts.  

As  regards  cooperation  with  Frontex,  in  May  2023,  a  new  Status  Agreement  was  signed  between 
Montenegro and the European Union on operational activities carried out by Frontex. The agreement 
enables the organization of joint operations and deployment of Frontex border management teams in 
Montenegro. This includes conducting operational activities at any border crossing and anywhere in 
the territory of Montenegro (not just at the EU external border, as previously), where officers of the 
European Border and Coast Guard standing corps work alongside Montenegro's border police officers 
to  perform  border  control  duties,  with  the  possibility  of  exercising  executive  powers.  A  Working 
Arrangement  is  underway  to  define  the  governance  for  the  use  of  the  EUROSUR  framework  for 
operational activities. The implementation of the new Agreement began on 1 November 2023, through 
the  expanded  Joint  Operation  “JO  Montenegro  Land  2023”.  The  2024  JO  adds  the  possibility  of 
activating ad-hoc land and sea border crossing points in cooperation with Frontex.  

The close cooperation with Frontex further strengthened the capacity of Montenegro’s Coordination 
Centre. The internal organisation of Montenegro’s Coordination Centre was further developed, and a 
number of vehicles and patrol boats were acquired, increasing the Centre’s operational capacity. 

31  

Third  country-specific  meetings  composed  of  and  chaired  by  Member  State  representatives  (and  co-chaired  by 
Frontex) for the exchange of information in the field of return. 

34 

 
 
 
 
 
Montenegro continued to implement its strategy on integrated border management and its ‘Schengen 
action plan’. Border management equipment continued to be progressively upgraded in accordance 
with the ‘Schengen action plan’. 

Montenegro continued cooperation with the EUAA within the framework of the 2021 Joint Roadmap, 
whose lifespan has been expanded until the next one is concluded. The needs assessment for the second 
Roadmap took place in spring 2024. The intensive cooperation between Montenegro and EUAA has 
already produced significant results through the implementation of the Roadmap and is believed to 
have strengthened Montenegro’s asylum system. 

As regards further work in the area of asylum, Montenegro is working towards establishing a system 
for the of electronic identification and registration of migrants through the Project “Individual measure 
to strengthen the capacity of integrated border management in Montenegro”, financed by the EU, and 
implemented by the IOM. 

4.  Cooperation on security 

Montenegro continued to cooperate actively with Interpol, Europol, CEPOL and EU Member States. 
In the  field  of international  police cooperation with Europol,  during 2023, efforts were  focused on 
combating transnational cocaine trafficking, organised criminal groups, including serious crimes and 
corruption.  In  2023,  Montenegro  participated  in  54  operational  actions  across  10  EMPACT 
Operational  Action  Plans.  The  regular  exchange  of  information  with  Europol  through  SIENA 
continued. A liaison officer from Montenegro has been deployed at Europol HQ since 2015.  

In order to develop analytical data and intelligence on smuggling networks, a Group for Suppression 
of  Human  Smuggling  and  Cross-Border  Crime  has  been  established  within  the  Department  for 
Intelligence  Affairs  and  Risk  Analysis  of  the  Border  Police.  In  2023,  the  border  police  started 
operational-investigative  actions,  in  cooperation  with  the  competent  prosecutors  and  the  criminal 
police, leading to the opening of several new SIENA cases aimed at investigating groups of migrant 
smugglers that operate through Montenegro’s territory. 

Montenegro continues to implement measures of the EU-Montenegro Implementing Arrangement of 
the Joint Action Plan on Counter-Terrorism for the Western Balkans. 

In  November  2023,  an  updated  Bilateral  Arrangement  between  Montenegro  and  the  EU  for  the 
implementation of the Joint Action Plan of Western Balkan partners to combat terrorism was signed. 
Montenegro  continues  the  implementation  of  joint  activities  among  individual  Western  Balkan 
partners to combat terrorism. 

Montenegro continued its cooperation with the EUDA in the context of the IPA8 project. 

5. 

Investor citizenship schemes  

As  reported  in  the  sixth  report  under  the  visa  suspension  mechanism,  Montenegro’s  investor 
citizenship  scheme  was  terminated  on  31  December  2022,  but  the  Montenegrin  authorities  have 
continued to process applications for citizenship submitted before the termination date.  

Montenegro  processed  423  applications  in  2023 (for  423  applicants  and  927  family  members)  and 
granted citizenship to 701 individuals. Of these 701 individuals, 396 hold the citizenship of the Russian 
Federation and 65 of the People’s Republic of China. Citizenship was granted to individuals holding 
the nationality of other visa-required third countries (South Africa, Türkiye, Lebanon, Pakistan, India, 
Belarus,  Philippines,  Indonesia,  Cambodia,  Kazakhstan,  Malaysia,  Nigeria,  Saudi  Arabia,  Tunisia, 
Uzbekistan).  Montenegro  reported  that  for  all  persons  who  are  subsequently  found  to  have  been 

35 

 
 
granted  Montenegrin  citizenship  and  are  on  the  list  of  persons  subject  to  international  restrictive 
measures,  the  government  is  committed  to  initiating  proceedings  for  the  loss  of  Montenegrin 
citizenship by force of law. 

The  Commission  will  continue  to  monitor  any  developments  in  this  regard  until  all  pending 
applications have been processed.  

6.  Recommendations 

Montenegro  has  taken  action  to  address  the  Commission’s  previous  recommendations.  However, 
further progress is needed, and the following issues need to be addressed: 

a)  Align  Montenegro’s  visa  policy  with  the  EU  list  of  visa-required  countries.  Pending  full 
alignment, security measures including a more rigorous screening of visa-free arrivals of third-
country nationals, in particular those from countries presenting security or irregular migration 
risks should be introduced either via operational and/or administrative initiatives (e.g., at border 
crossing  points)  or  by  national  legislation  as  a  minimal  temporary  measure  expected  from 
Montenegro. 

b)  Ensure that pending applications under the recently terminated investor citizenship scheme are 
screened and processed in accordance with the highest possible security standards and that the 
citizenship granted via that scheme to persons subject to international restrictive measures are 
revoked. 

36 

 
 
 
 
 
NORTH MACEDONIA 

1.  Visa policy alignment 

There is still only one third country which is visa-free for North Macedonia and that is visa-required 
for  the  EU,  i.e.,  Türkiye.  This  situation  did  not  change  compared  to  the  6th  report  under  the  visa 
suspension mechanism. All other measures taken in 2023 to make progress on visa policy alignment 
have been maintained in 2024. In particular, in January 2023, North Macedonia reintroduced a visa 
requirement  for  nationals  of  Botswana  and  Cuba.  The  decision  to  temporarily  allow  nationals  of 
Azerbaijan to enter North Macedonia without a visa expired in March 2023 and was not extended. 

2.  Monitoring  trends  in  irregular  migration,  applications  for  international  protection, 

returns and readmission  

In 2023, the number of applications for international protection in Member States by nationals of North 
Macedonia increased by 2%, with 6 855 applications lodged in 2023 compared with 6 715 in 2022. 
The recognition rate was 1% (compared to 2% in 2022). 

In 2023, 12 irregular border crossings  by  nationals  of  North  Macedonia  were  reported at  EU level 
against 9 in 2022. In 2023, the number of nationals of North Macedonia found to be irregularly staying 
remained stable compared with the previous year, with 7 055 irregular stays in 2023 against 7 035 in 
2022. The number of refusals of entry decreased by 19%, from 3 080 refusals in 2022 to 2 495 in 2023. 

Last  year  marked  for  the  first  time  a  decreasing  trend  in  the  number  of  return  decisions  issued  to 
nationals of North Macedonia (3 015 in 2023 against 3 150 in 2022, a 4% decrease), while the number 
of persons returned increased by 20.5% (1 965 in 2023 against 1 630 in 2022). Member States reported 
good cooperation on return and readmission and the return rate increased in 2023 with 65% of returns 
compared with 52% in 2022. 

Source: Eurostat 

3.  Cooperation on migration, border management and readmission  

Following the 2022 Status Agreement, cooperation on border management between North Macedonia 
and Frontex is at a high level without changes in the reporting period (Frontex officers were deployed 
in North Macedonia in 2023 following the agreement). The status agreement is being implemented 
smoothly  through  the  realisation  of  the  Frontex  “Joint  Operation  North  Macedonia”.  There  is  also 
regular participation in other Joint Operations of Frontex as well as in Joint Action Days. 

37 

 
 
 
Overall, Member States reported good cooperation on border management and readmission, even if 
performance at land borders could be improved and readmission could be improved both in terms of 
outcome and timing. 

In  2023  Member  States  have  not  required  any  further  assistance  of  Frontex  on  identification  and 
acquisition of travel documents. This could be an indication that the relevant aspects of the EU-North 
Macedonia Readmission Agreement are implemented in an efficient manner. Following the launch of 
Frontex yearly call to Western Balkan partner institutions to take part at Frontex-managed Country 
Working Group (CWG) meetings as observers, North Macedonia was granted observer status to CWG 
Algeria, Bangladesh, Morocco, and Iraq.  

The third generation of the Roadmap for Cooperation agreed between the EUAA and North Macedonia 
for the period 2023 – 2025 is in place and remains an important tool to strengthen the asylum and 
reception system.  

In October 2024, North Macedonia joined the European Migration Network (network of EU migration 
and asylum experts) in the capacity of an observer country.  

4.  Cooperation on security 

The level of cooperation and exchange of information with Europol is good and increased during 2023 
A liaison officer from North Macedonia has been deployed at Europol since 2015. Law enforcement 
authorities of North Macedonia are providing information on weapons seized and suspects arrested, 
and they are providing  feedback when requested in  operational  activities. North  Macedonia is  also 
participating in EMPACT.  

During 2023, the regular exchange of information by criminal areas between North Macedonia and 
Europol  recorded  a  significant  increase  compared  to  2022.  The  exchange  of  information  through 
SIENA  and  CT  SIENA  also  increased  (the  latter  by  38%  compared  to  2022).  North  Macedonia 
continued to participate in Europol analytical projects launched in the previous years and joined three 
more projects between 2023 and 2024. 

In the current period, the liaison officer of North Macedonia assigned to Europol actively attended 
weekly meetings related to the fight against terrorism. 

North Macedonia continued its cooperation with the EUDA in the context of the IPA8 project. 

5. 

Investor citizenship schemes  

The  Law  on  Citizenship  of  North  Macedonia  allows  for  the  acquisition  of  citizenship  without  any 
previous  residence  requirements  for  persons  who  represent  a  ‘special  economic  interest’  for  the 
country. No amendments were made to this law in 2023 and 2024. In 2023, no decisions were made 
on applications for citizenship of particular economic interest, while five requests were submitted and 
their assessment is ongoing. The Commission reiterates that the implementation of this law should not 
lead to a systematic granting of citizenship in return for investment, as it may be used to bypass the 
EU short-stay visa procedure and the in-depth assessment of individual migratory and security risks it 
entails and can therefore have an impact on the visa-free regime.  

6.  Recommendations 

North Macedonia has taken action to address most of the Commission’s previous recommendations. 
However, further progress is needed, and the following issues need to be addressed:  

38 

 
 
a)  Complete the full alignment of visa policy of North Macedonia with the EU list of visa-required 
countries.  Pending  full  alignment,  a  more  rigorous  screening  of  visa-free  arrivals  of  third-
country nationals should be introduced either via operational and/or administrative initiatives 
(e.g.,  at  border  crossing  points)  or  by  national  legislation  as  a  minimal  temporary  measure 
expected from North Macedonia. 

b)  Ensure that applications for citizenship under the ‘special economic interest’ law are handled 
with  thorough  background  vetting  on  applicants  and  refrain  from  enabling  systematic 
acquisition of citizenship for special economic interest. 

39 

 
 
 
 
 
SERBIA 

1.  Visa policy alignment  

Serbia  has  a  visa-free  regime  with  16  countries  that  are  on  the  EU  list  of  visa-required  countries: 
Armenia, Azerbaijan, Bahrain, Belarus, China, Indonesia, Jamaica, Kyrgyzstan, Kuwait, Kazakhstan, 
Mongolia, Oman, Qatar, Russia, Suriname, and Türkiye.  

In an effort to better align its visa policy with the one of the EU, between October 2022 to April 2023, 
Serbia decided to introduce a full visa regime for citizens of Bolivia, Burundi, Guinea-Bissau, Cuba, 
India and Tunisia.  

In  November  2023,  Serbia  adopted  a  ‘plan  for  the  harmonization  of  the  visa  regime  with  EU  visa 
policy’ specifying  that alignment concerning countries which are visa required in  the EU will take 
place one year or six months before Serbia’s accession to EU. Nevertheless, as the lack of visa policy 
alignment contributes to an increased risk of irregular migration to the EU on the Western Balkans 
route, the Commission expects  faster progress from Serbia on visa policy alignment. As part of its 
Reform Agenda under the Growth Plan, Serbia has committed to further align with the EU list of visa-
required countries. Pending full alignment, a more rigorous screening of visa-free arrivals of third-
country nationals, in particular those from countries presenting security or irregular migration risks, is 
a minimal temporary measure expected from Serbia. 

2.  Monitoring  trends  in  irregular  migration,  applications  for  international  protection, 

returns and readmission 

In 2023, 4 690 applications for international protection were submitted by Serbian nationals in Member 
States, an increase of 9.5% compared to 2022 (4 280) which maintains the trend from the previous 
years. The recognition rate decreased from 5% in 2022 to 2% in 2023. 

Irregular crossings of the EU external borders by Serbian nationals dropped by 34% from 32 in 2022 
to  21  in  2023.  The  number  of  Serbian  nationals  found  to  be  staying  irregularly  in  Member  States 
continued the downward trend with 13 025 people in 2023 compared with 13 625 in 2022 (a decrease 
of 4%). In 2023, the number of Serbian nationals refused entry marked the same trend and decreased 
by 13% (6 550 in 2022 against 5 675 in 2023). 

The number of return decisions issued to Serbian nationals rose by 4% (5 835 in 2023 compared to 5 
630 in 2022). Similarly, the number of people returned increased by 5% (3 505 in 2023 compared to 
3 245 in 2022) and the return rate increased from 58% in 2022 to 60% in 2023. 

Source: Eurostat 

40 

 
 
 
3.  Cooperation on migration, border management and readmission 

Serbia continued to engage positively on the implementation of the EU Action Plan on the Western 
Balkans. In 2023, Serbia continued to implement a new integrated border management strategy for the 
period 2022-2027 and an action plan for 2022-2024. Serbian efforts to secure its borders and to tackle 
migrant  smugglers  via  dedicated  special  police  operations  since  October  2023  produced  a  broad 
deterrent effect across the region, currently mitigating pressure and influencing migration routes. A 
shift  towards  the  Bosnia  and  Herzegovina-Croatia  corridor  has  been  observed,  largely  due  to  the 
difficulties in transiting Serbia and the gradual adaptation of smugglers’ operations to the new realities 
on the ground. 

Serbia continued cooperation on migration and border management with Frontex based on a Working 
Arrangement and a Status Agreement; the latter allowing for deployments of officers of the European 
Border  and  Coast  Guard  standing  corps  with  executive  powers  via  joint  operations.  A  new  Status 
Agreement was signed on 25 June 2024. There is a Frontex Liaison Officer based in Belgrade with a 
regional mandate covering Serbia, Bosnia and Herzegovina and Montenegro. Frontex and participating 
EU Member States continued deployment of Standing Corps officers to Serbian land border sections 
with Bulgaria and Hungary. 

Serbia  continued  cooperation  with  the  EUAA.  The  relevant  "Roadmap"  was  extended  for  the  year 
2023, as the basis for cooperation with EUAA. The third Roadmap for cooperation for the period 2024-
2026 has been developed and its final endorsement is pending. 

In March 2023 Serbia joined the European Migration Network (network of EU migration and asylum 
experts) in the capacity of an observer country.  

Serbia continued cooperation with EU Member States on migration and border management on the 
basis  of  bilateral/multilateral  agreements.  Examples  of  cooperation  included  equipment/technical 
assistance, exchange of information/statistics (including reports on counterfeit documents and cross-
border crime), risk analysis, joint border patrols (1 342 such patrols with Bulgaria, Croatia, Hungary 
and Romania), training courses, etc. In 2023, the Serbia-Austria-Hungary Trilateral Initiative (based 
on an agreement from November 2022) was launched, to reinforce the controls at Serbia’s border with 
North  Macedonia with  the  creation of  a common task force composed of Austrian, Hungarian  and 
Serbian personnel, and by pooling together the equipment provided by the three countries.  

On  readmission,  Frontex  and  EU  Member  States  reported  overall  good  cooperation  with  Serbia. 
However,  as  for  the  return  of  third-country  nationals  (the  most  numerous  concerned  citizens  of 
Afghanistan, Morocco and Syria), only half of the requests presented by EU Member States (1 090 out 
of 2 198) were accepted by Serbian authorities. 

4.  Cooperation on security 

Serbia continued its close cooperation with Europol, especially in the areas of major crimes, organised 
crime  and  the  fight  against  terrorism.  Serbia  maintains  a  Liaison  Officer  in  Europol  headquarters. 
Operational cooperation with EU Member States coordinated by Europol was intensive, including via 
Joint  Investigation  Teams  and  dedicated  multinational  task  forces,  e.g.  Operational  Task  Force 
RAPAX, dedicated to the fight against trafficking of human beings for sexual exploitation between 
Europe and Latin America.  

Serbia continued its  participation in  EMPACT. An important  part of the cooperation with  Europol 
includes  regular  information  exchange  via  SIENA.  Serbian  police  also  continued  to  provide 

41 

 
 
information  to  Europol  databases  and  Analytical  Projects;  the  number  of  Serbian  contributions 
increased in 2023 by 10% compared with 2022.   

Serbia’s cooperation with CEPOL was very intensive in 2023, both via training and in staff exchanges, 
with a focus on cybercrime, cryptocurrencies, fake news/disinformation and digital skills for police 
personnel.   

Eurojust and Serbia have continued their close cooperation in criminal matters, notably through the 
Serbian  Liaison  Prosecutor.  Serbia  also  participated  in  Joint  Investigation  Teams  supported  by 
Eurojust.  

Serbia  continued  close  cooperation  on  security  with  Interpol.  Cooperation  with  neighbouring  EU 
Member States, especially Croatia and Romania, was intensive concerning serious crimes in border 
areas, including migrant smuggling and smuggling of drugs, weapons and ammunitions.   

Serbia continued its cooperation with the EUDA based on a 2020 working arrangement as well as in 
the context of the IPA8 project. 

5.  Recommendations 

Serbia has  taken  action  to  address  the  Commission’s  previous  recommendations.  However,  further 
progress is needed, and the following issues need to be addressed: 

a)  Align Serbia’s visa policy with the EU list of visa-required countries. Pending full alignment, 
a more rigorous screening of visa-free arrivals of third-country nationals, in particular those 
from  countries  presenting  security  or  irregular  migration  risks,  should  be  introduced  via 
operational  and/or  administrative  initiatives  (e.g.,  at  border  crossing  points)  as  a  minimal 
temporary measure expected from Serbia. 

b)  Fully implement the third-country national’s clause of the EU-Serbia readmission agreement. 

42 

 
 
 
 
II.  EASTERN CARIBBEAN 

Since 2020, the Commission has been engaging with the five visa-free Eastern Caribbean countries 
operating investor citizenship schemes (Antigua and Barbuda, Dominica, Grenada, Saint Kitts and 
Nevis, and Saint Lucia) to obtain relevant information and data on those schemes.  

All five countries operate different investor citizenship schemes, which consist mainly in either direct 
contributions to the State budget or investments in large infrastructure, utilities or real estate projects. 
The  first  option  is  normally  cheaper,  while  the  real  estate  option  is  normally  more  expensive.  The 
process to apply for citizenship and the due diligence and security screening used are similar across 
the five countries, with five main steps:  

1) 
2) 

3) 

4) 
5) 

licensed marketing agents are trusted to find interested investors in third countries.  
interested  investors  file  their  applications  through  authorised  local  agents,  who  submit  the 
applications and supporting documents to the Citizenship-by-investment (CBI) unit.  
a  three-layer  vetting  process  is  conducted  on  the  origin  of  the  funds  (by  the  banks),  on  the 
identity, security and reputational profile of the applicants (by international due diligence firms) 
and on the security and immigration risks (by the CARICOM Implementation Agency for Crime 
and Security’s Joint Regional Communications Centre - JRCC).  
based on the above-mentioned checks, the CBI unit approves or rejects the application.  
for approved applications, the final decision on the granting of citizenship is taken by competent 
Minister.   

As  presented  in  the  Sixth  Visa  suspension  mechanism  report  of  October  2023,  there  are  several 
elements emerging from the Commission’s assessment, suggesting that the five countries’ screening 
and vetting procedures may not be sufficiently thorough to ensure the rejection of applications from 
individuals who could be a potential security risk for the EU once acquiring the citizenship of those 
countries and consequently visa-free access to the EU.  

43 

 
 
 
None of the five countries require residence or even physical presence in the country before citizenship 
is granted32. This implies that the biometrics of successful applicants are not registered. Also, to various 
extents, all five  countries allow successful applicants  for the possibility to  change their name after 
having obtained citizenship by investment. In Antigua and Barbuda and Dominica, it is allowed as of 
5 years after obtaining citizenship; in Grenada after one year. However, the old name is kept in the 
passport under the heading ‘observations’. 

Since  the  publication  of  the  sixth  report,  for  all  countries’  schemes  the  number  of  successful 
applicants  has  continued  to  increase,  while  the  number  of  rejections  remain  relatively  low, 
despite some increasing trends for some countries. The table below includes the data provided to the 
Commission by the five countries33.  

Antigua and 
Barbuda 

3 719  

(2014-2022) 

685 (2023) 

Total 
applications 
received  

Dominica  

Grenada 

Saint Kitts and 
Nevis 

Saint Lucia 

13 161 (2015-
2022) 

3 151 (2014-
2022) 

17 668 (2015-
2022) 

2 013 (2015-
2022) 

4 068 in 2023 

1 251 (2022) 

1 987 (2023) 

4 076 (2023) 

739 (2024 until 
30/6) 

2 981 in 2024 
(until 30/6) 

2 297 (2023) 

138 (2024 until 
31/07) 

98 (2024 until 
30/6) 

1 226 (2024 
until 30/4) 

Rejections 

157 (2014-
2022) 

420 (2019-
2022) 

Total 
passports 
issued 

24 (2023) 

210 (2023) 

23 (2024) 

180 (2023) 

7 205 

(2014-2022)  

1 191 (2023) 

198 (2024 until 
30/6) 

34 596 
(2018-2022, 
2022 data 
being verified) 

9 539 (2023) 

5 484 (2024 
until 30/6) 

204 (2015-2022) 

532 (2015-2022) 

70 (2015-2022) 

59 (2023) 

207 (2023) 

28 (2023) 

34 (2024) 

4 (2024) 

81 (2024) 

6 479 (2014-
2022) 

35 577 (2015-
2022) 

N/A 

2023-2024: N/A 

2023-2024: N/A 

The successful applicants continue to include mostly nationals that would otherwise require a visa 
to  enter  the  EU.  The  main  successful  applicants’  nationalities  in  2023-2024,  according  to  the 
information received, include Iran (1 918), China (1 099), Syria (747), Iraq (425), Nigeria (308) and 
Lebanon (149), among others.34 Following the Russian aggression against Ukraine, all five countries 

32  

33  

34  

Antigua and Barbuda has introduced an obligation to visit the country within 3 years after the citizenship is granted 
and other countries are reflecting on introducing a similar obligation. 
The data set is not complete and presents a number of inconsistencies. The number of total applications is often 
lower  than  the  total  number  of  passports  issued  because  applications  can  cover  more  than  one  person  (e.g.,  a 
successful application for a family of 4 counts as 1 application, but 4 passports issued). 
It is worth noting that the figures per third country provided in this paragraph are based on  data submitted by the 
Eastern  Caribbean  countries  regarding  the  top  5  nationalities  in  terms  of  successful  applications.  It  is  therefore 

44 

 
 
 
 
 
 
 
 
 
have suspended the examination of applications from Russian and Belarusian nationals. However, in 
2023 Grenada still had a considerable number (around 2 300) of pending applications from Russian 
nationals which have been processed in 202435. 

Following the publication of the sixth report, the Commission has continued the engagement with 
the five countries, at both political and technical level. On 12 January 2024, the Commission held 
a high-level meeting with the Prime Ministers of the five countries, which was followed by a technical 
fact-finding  mission  of  the  Commission  services  to  the  region  in  January  2024  and  exchanges  of 
information in writing. 

The mission and the updated information received confirmed most of the main concerns presented in 
the sixth report, i.e., that the investor citizenship schemes cannot be zero-security-risk, as well as 
the economic and political importance of those schemes for the five countries.  

At the same time, over the past months all five countries have showed an increased awareness of the 
need  to  strengthen  their  due  diligence  and  security  screening  systems,  and  openness  to  substantial 
improvements with the support of their international partners. In particular, in the first months of 2024, 
the  five  countries  signed  a  Memorandum  of  understanding  providing  a  framework  for 
cooperation to strengthen the security of their schemes. In accordance with the memorandum, the 
five countries decided to harmonise the minimum investment fee to 200 000 USD. For Antigua and 
Barbuda, Dominica, Grenada and Saint Lucia this constituted an increase of 100% (from a previous 
threshold of 100 000 USD). The memorandum also included a commitment to share information on 
applicants,  implement  enhanced  transparency  measures,  establish  a  regional  regulation  authority, 
strengthen their security screening frameworks, and establish common standards on agents, marketing 
and promotion of schemes. 

The Commission will continue to work in close cooperation with the five Eastern Caribbean countries 
and assess the implementation of the above-mentioned reforms, under the current legal framework of 
Article 8(2)(d) of the Visa Regulation that provides for the triggering of the visa suspension mechanism 
in cases of an increased risk or imminent threat to the public policy or internal security of Member 
States. Once the revised visa suspension mechanism will be adopted, the Commission will adapt its 
assessment on the basis of the new rules. In any circumstances,  the Commission’s assessment  will 
continue to take due account of the overall relations between the EU and the third countries concerned 
as well as the overall political context. 

possible that the actual figures per third country are slightly higher than those provided based on this data collection 
exercise (i.e., some of these nationalities may not have made it to the ‘top 5’ in one or more Eastern Caribbean 
countries). All applications from nationals of Iran reported here were processed only by Dominica.  
Grenada informed the Commission that as of 16 September 2024, there were 87 Russian applications outstanding 
for review. 

35  

45 

 
 
 
 
 
 
III.  LATIN AMERICA  

In  the  Visa  Communication  of  May  202336,  one  of  the  main  highlighted  challenges  was  the  rising 
number  of  asylum  applications  lodged  by  visa-exempt  third-country  nationals.  Asylum 
applications by nationals of visa-free countries often have a low recognition rate and thus create a 
significant burden for the Member States asylum systems: around 20% (more than 1.2 million) of the 
asylum applications lodged in the EU between 2015 and 2023 were lodged by third-country nationals 
travelling visa-free to the EU. This is happening at a moment when the reception capacity of  some  
Member States is at its limits given the multi-crisis situation on the geopolitical front, and in particular 
the need to integrate the high numbers of persons with temporary protection that found refuge in the 
EU  due  to  the  ongoing  war  of  aggression  of  Russia  against  Ukraine  and  the  continuous  irregular 
arrivals of migrants from other parts of the world.  

Besides the countries in  the EU’s neighbourhood regularly  covered by visa suspension mechanism 
reports, over the last years some EU Member States are facing an increasing trend of asylum applicants 
from the visa-free countries in Latin America, as shown by the tables below. Between 2015 and the 
first quarter of 2024, asylum applications lodged by nationals of the visa-free countries of the Latin 
American region have increased significantly, leading to a situation where they represent half of the 
total asylum applications from third-country nationals travelling visa free (around 600 000 out 
of around 1.2 million). 

36  

Communication from the Commission to the European Parliament and the Council on the monitoring of the EU's 
visa free regimes, COM/2023/297 final. 

46 

 
 
 
 
 
Table 1 – First time asylum applications 2015-Jan-Jul 2024 - Source: Eurostat 

Country 

2015 

2016  2017 

2018 

2019 

2020 

2021 

2022 

2023 

Jan-
Jul 
2024 

Costa Rica 

10 

5 

15 

20 

60 

40 

20 

80 

115 

120 

El Salvador  555 

1765 

2965 

5040 

9070 

4230 

1830 

3580 

2880 

1540 

Guatemala 

20 

40 

85 

230 

620 

500 

265 

440 

545 

260 

Honduras 

220 

475 

1325 

2770 

7245 

5670 

2360 

3260 

4030 

1580 

Mexico 

75 

Nicaragua 

45 

Panama 

5 

Argentina 

15 

Brazil 

Chile 

90 

35 

50 

65 

5 

20 

80 

125 

200 

160 

135 

260 

335 

195 

165 

1890 

6530 

3900 

1365 

2780 

3235 

1545 

10 

35 

15 

55 

50 

60 

125 

170 

85 

100 

340 

450 

325 

810 

1475 

985 

205 

290 

670 

1605 

1650 

795 

1555 

1775 

1245 

50 

50 

105 

225 

300 

195 

370 

600 

385 

Colombia 

270 

1050 

3935 

10045 

31850 

29055 

13140 

42420 

62015 

31845 

Paraguay 

15 

15 

30 

80 

375 

370 

250 

740 

1085 

735 

Peru 

145 

150 

550 

1515 

6810 

6140 

3055 

12685 

23035 

16135 

Uruguay 

0 

10 

20 

30 

110 

170 

140 

110 

200 

110 

Venezuela 

775 

4690 

12985 

22195 

44770 

30325 

17380 

50050 

67085 

41740 

TOTAL 

2275 

8595 

22540 

44830 

109865 

83010 

41315 

119265 

168580 

98505 

47 

 
 
 
 
 
 
 
 
Country 

Year  

Refusals 
entry 

of 

Irregular 
stays 

First-time 
applications 

asylum 

Recognition 
rate37 

Argentina 

Brazil 

Chile 

Colombia 

Costa Rica 

El Salvador 

Guatemala 

Honduras 

Mexico 

Nicaragua 

Panama 

Paraguay 

Peru 

Uruguay 

Venezuela 

TOTAL/AVERAGE 
(%) 

2022 

2023 

2022 

2023 

2022 
2023 

2022 

2023 

2022 

2023 

2022 

2023 

2022 

2023 

2022 

2023 

2022 

2023 

2022 

2023 

2022 

2023 

2022 

2023 

2022 

2023 

2022 

2023 

2022 

2023 

2022 

2023 

350 

335 

2 825 

2 380 

180 
210 

3600 

3655 

20 

20 

165 

130 

115 

105 

515 

475 

190 

235 

425 

370 

25 

25 

725 

460 

1 155 

990 

30 

25 

250 

405 

10 555 

9 835 

1 110 

1 285 

4 565 

4 990 

620 
700 

9 800 

14 260 

75 

85 

650 

720 

285 

260 

2 405 

2490 

695 

730 

1 325 

1080 

35 

40 

1 265 

1800 

3 650 

4 755 

190 

220 

2 000 

2 175 

28 670 

35 590 

810 

1 475 

1 555 

1 775 

370 
600 

42 420 

62 015 

80 

115 

3 580 

2 880 

440 

545 

3 260 

4 030 

260 

335 

2 780 

3 235 

125 

170 

740 

1 085 

12 685 

23 035 

110 

200 

50 050 

67 085 

119 265 

168 580 

2% 

4% 

8% 

9% 

5% 
4% 

6% 

6% 

0% 

11% 

31% 

31% 

17% 

32% 

17% 

23% 

12% 

18% 

25% 

52% 

14% 

6% 

5% 

3% 

5% 

5% 

3% 

5% 

4% 

3%38 

10% 

14% 

In  2023,  there  were  168  580  applications  lodged  by  nationals  of  the  fifteen  countries  concerned, 
compared to 119 265 applications in 2022. This represents an increase of over 40% in one year.  

While there have been asylum requests by nationals of all the fifteen countries in the region that have 

37  

38  

The  recognition  rate includes  EU-regulated  forms  of  protection  (refugee  status  and  subsidiary  protection)  and 
excludes national protection forms (humanitarian reasons). It is calculated by dividing the number of positive first 
instance decisions (granting refugee status or subsidiary protection) by the total number of decisions issued. 
In 2023, 91% of first instance decisions resulted in granting national humanitarian statuses to Venezuelan applicants, 
(72% in 2022). 

48 

 
 
 
 
a  visa  waiver,  Venezuela,  Colombia  and  Peru  present  the  highest  numbers  and  increasing  trends, 
followed by Honduras, Nicaragua, and El Salvador. The other countries present lower numbers and 
less significant increasing trends, and therefore for the moment do not give rise to specific concerns39. 

Source: Eurostat 

As regards Venezuela, the number of applications for international protection by Venezuelan nationals 
in Member States during the last three years is steadily increasing with more than 50 000 applications 
per year. There were 69 540 applications lodged in 2023 against 52 075 applications in 2022. The 
Commission acknowledges that these trends are linked to the current political and economic situation 
of Venezuela and recalls the commitment of the EU to support, together with its international partners, 
a peaceful, democratic and inclusive Venezuelan-led solution to end the crisis in the country. 

As  regards  Colombia,  in  2023  Colombian  nationals  lodged  63  310  applications  for  international 
protection  in  Member  States,  an  increase  of  46%  compared  with  2022  (43  370).  The  Commission 
acknowledges that these trends are also linked to the fact that Colombia is hosting almost 3 million 
refugees and migrants from Venezuela. As stated in the Joint Communication, the EU will continue to 
support Colombia and the region in facing this migration crisis.  

As regards Peru, there was a sharp increase of 81% in the number of applications for international 
protection lodged in Member States between 2022 and 2023, with 23 280 applications submitted in 
2023 compared with 12 880 in 2022.  

As regards Honduras, in 2023 there were 4065 applications for international protection in Member 
States, compared to 3335 in 2022, representing an increase of 18%. 

As regards Nicaragua, in 2023 there were 3340 applications for international protection in Member 
States, compared to 2855 in 2022, representing an increase of 15%. 

As regards El Salvador, in 2023 there were 3060 applications for international protection in Member 

39  

Though Brazil has some of the highest numbers in the region in terms of refusals of entry and irregular stays, this 
should be considered in proportion to its larger population. 

49 

 
 
 
 
States, compared to 3770 in 2022, representing a decrease of 19%. 

To ensure the sustainability of the visa exemption, visa-free travel should be used strictly for short 
stays.  Commission  services,  in  cooperation  with  the  EEAS,  will  engage  in  dialogue  with  the  most 
concerned countries in the region to exchange information and best practices, support the efforts of 
authorities  in  the  implementation  of  appropriate  border  controls  on  departure,  awareness  raising 
campaigns  on  rights  and  obligations  under  the  visa-free  regimes,  and  other  appropriate  actions  to 
address the underlying reasons for the high numbers of asylum applications.  The Commission will 
monitor  the  implementation  of  the  above-mentioned  measures  and  the  impact  on  the  numbers  of 
irregular stays and asylum applications, under the current legal framework of Article 8(2)(a) and (b) 
of the Visa Regulation that provides for the triggering of the visa suspension mechanism in cases of a 
substantial increase in irregular migration or unfounded asylum applications. 

As for long stays, the two parties should step up cooperation on legal pathways and foster mutually 
beneficial mobility arrangements, as stated in the Joint Communication a New Agenda for Relations 
between the EU and Latin America and the Caribbean. 

50 

 
 
 
 
CONCLUSION 

Member States report overall close cooperation with all partners in the EU’s neighborhood on both 
migration  and  security.  Several  of  these  partners  need  to  continue  addressing  unfounded  asylum 
applications, and all should continue making progress on visa policy alignment, to prevent  the risk 
that  third-country  nationals  enter  without  visas  in  their  territories  and  then  continue  travelling 
irregularly towards the EU. 

For the EU’s neighborhood, the follow-up to the completion of the visa liberalisation process continues 
to be a powerful tool for supporting reforms and boosting cooperation with the EU on migration, border 
management  and  security.  The  Commission  considers  that  Albania,  Bosnia  and  Herzegovina, 
Moldova, Montenegro, North Macedonia, and Serbia have taken action to address a number of the 
recommendations made in the Sixth Report under the Visa Suspension Mechanism. For Ukraine and 
Kosovo, whose nationals obtained the visa exemption less than seven years ago and for which reporting 
on the fulfilment of the visa liberalisation requirements is still necessary, the Commission considers 
that those requirements continue to be fulfilled. However, both need to take further action to address 
the Commission’s recommendations. For Georgia, whose nationals also obtained the visa exemption 
less  than  seven  years  ago  and  for  which  reporting  on  the  fulfilment  of  the  visa  liberalisation 
requirements is still necessary, the Commission considers that, in order to continue fulfilling all visa 
liberalisation  benchmarks  and  to  avoid  the  possible  activation  of  the  suspension  mechanism,  the 
country needs to take further urgent action to address the Commission’s recommendations, particularly 
in the area of the protection of fundamental rights. 

Close monitoring of this process will continue, including through meetings between senior officials, 
and  the  regular  Justice,  Freedom  and  Security  subcommittee  meetings.  The  monitoring  of  issues 
related to the visa liberalisation requirements will also continue to be addressed in the Commission’s 
annual enlargement reports. 

The Commission will also continue to engage with the visa-free countries in the Eastern Caribbean 
operating investor citizenship schemes in view of preventing any possible security risks  for the EU 
and its Member States, and with the concerned Latin America countries in order to prevent that visa-
free travel is used to lodge unfounded asylum applications. 

51