COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT on the status of migration management in mainland Greece
Date: 2025-04-04
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU aid, EU migration policy, Greece, aid to refugees, asylum seeker, foreign national, illegal migration, international protection, migrant, refugee

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 4.4.2025  COM(2025) 170 final  COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE EUROPEAN PARLIAMENT on the status of migration management in mainland Greece  
 
 
1.  Introduction  

In the past ten years, Greece has been one of the most affected Member States when it comes to irregular 
arrivals of third country nationals at its land and sea borders, creating significant challenges and putting 
its national migration management system under considerable strain. 

To address these significant challenges, boost national capacities and improve migration management 
procedures, the Commission and EU Agencies (European Border and Coast Guard Agency (Frontex), 
EU  Agency  for  Asylum  (EUAA),  European  Union  Agency  for  Law  Enforcement  Cooperation 
(Europol)  and  Fundamental  Rights  Agency  (FRA),  hereinafter:  ‘EU  Agencies’)  have  worked 
particularly  intensively  with  the  Greek  authorities.  This  work  has  supported  the  establishment  of  a 
comprehensive  migration  management  system  and  has  been  underpinned  by  significant  financial, 
operational, and technical support to help the responsible ministries and services involved.  

Efforts were also undertaken to improve the overall implementation of the Dublin III Regulation1 by 
the  Commission,  in  particular  the  implementation  of  the  transfers  of  applicants  for  international 
protection  as  a  precondition  for  the  well-functioning  of  the  Dublin  system.  This  was  a  particular 
challenge for Greece and merited dedicated support from the Commission. In 2016, the Commission 
adopted  several  recommendations  focusing  on  Dublin  transfers  to  Greece2.  More  recently,  the 
Commission  worked  with  Member  States  on  a  Roadmap  on  improving  implementation  of  transfers 
under  the  Dublin  III  Regulation  (‘the  Dublin  Roadmap’),  as  a  basis  necessary  for  the  smooth 
transitioning towards the system established under the Asylum and Migration Management Regulation3.  

As a result of this continuous cooperation and support and the significant efforts of the Greek authorities 
in the last years, migration management in Greece has been significantly improved. Greece has set up 
functional  asylum  and  reception  systems  and  operational  frameworks  in  key  areas  of  migration 
management. Greece has also invested in novel initiatives in different areas such as the comprehensive 
system  for  supporting  unaccompanied  minors,  IT  systems  for  asylum  and  reception  making  the 
processes  more  efficient,  and  screening  at  the  borders.  These  are  particularly  relevant  for  the 
implementation of the Pact on Migration and Asylum.  

The number of irregular arrivals to Greece, mainly through the islands of Lesvos, Chios, Kos, Leros 
and Samos, and through the land border in the Evros region, has remained constantly high in the past 

1 Regulation (EU) No 604/2013 of the European Parliament and of the Council of 26 June 2013 establishing the 
criteria  and  mechanisms  for  determining  the  Member  State  responsible  for  examining  an  application  for 
international  protection  lodged  in  one  of  the  Member  States  by  a  third-country  national  or  a  stateless  person 
(recast), OJ L 180, 29/06/2013, p. 31–59 
2  The  latest  being  the  Commission  Recommendation  (EU)  2016/2256  of  8  December  2016  addressed  to  the 
Member States on the resumption of transfers to Greece under Regulation (EU) No 604/2013 of the European 
Parliament and of the Council, C/2016/8525, OJ L 340, 15.12.2016, p. 60–71.  
3  Regulation  (EU)  2024/1351  of  the  European  Parliament  and  the  Council  of  14  May  2024  on  asylum  and 
migration management, amending Regulations (EU) 2021/1147 and (EU) 2021/1060 and repealing Regulation 
(EU) No 604/201, OJ L, 2024/1351, 22/5/2024. The Dublin Roadmap was endorsed by Member States at the 
Strategic Committee on Immigration, Frontiers and Asylum (SCIFA) meeting on 29 November 2022. After the 
endorsement of the Dublin Roadmap, all Member States have launched multiple initiatives, aimed at increasing 
the efficiency of the national Dublin units and at improving existing procedures. The Commission gathered all the 
emerging good practices following the enforcement of the Dublin Roadmap and presented them in a Commission 
Staff Working Document on 23 November 2023 (SWD(2023) 390 final Commission Staff Working Document 
The  Dublin  Roadmap  in  Action.  Enhancing  the  Effectiveness  of  the  Dublin  III  Regulation:  identifying  good 
practices in the Member States). 

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two years4. At the same time, Greece has remained one of the main countries of transit5, with applicants 
and beneficiaries of international protection moving in an unauthorised manner from mainland Greece 
to other EU Member States and re-applying for protection there.  

This Communication provides an updated overview of the current status of the asylum and reception 
systems in mainland Greece. The scope of this Communication focuses on the situation in the mainland, 
where Dublin transfers are received. Specifically, it focuses on the situation and services available to 
migrants, in particular for those going back or transferred to Greece from other EU Member States, be 
it  international  protection  applicants  under  the  Dublin  Regulation  or  beneficiaries  of  international 
protection Its main objective is to provide an update to Member State authorities in the EU and thus 
help ensure that those who deal with these cases have the necessary information available to facilitate 
their smooth implementation. This is important to ensure that the overall migration management system 
within the EU functions effectively, based on close cooperation among Member States.  

2.  Operational and financial support provided to Greece 

The European Commission (‘Commission’) and the EU Agencies support Member States to develop 
and implement migration management systems that are fit for purpose and in line with the EU acquis.  

As part of this work across the EU, the Commission and the EU Agencies are providing significant 
financial, operational, and technical support to help the responsible ministries and services in Greece to 
manage  migration.  This  has  resulted  in  close  cooperation  with  the  relevant  Greek  authorities  and 
information sharing on the situation in Greece.  

In September 2020, at the time of presenting the Pact on Migration and Asylum and its accompanying 
proposals, and in the wake of the destruction by fire of the main facility of Moria on the Greek island 
of  Lesvos,  the  Commission  established  a  dedicated  Task  Force  for  Migration  Management6  (the 
‘Task Force’), to be responsible for the Union’s work on strategic, operational, legal and financial issues 
of  migration  management7.  The  Task  Force  has  built  on  the  support  the  Commission  and  the  EU 
Agencies  had  already  been  providing  at  the  operational  and  financial  level,  including  through 
deployment on the ground, in Italy, Malta, Cyprus, Spain and Greece since the migration and refugee 
crisis of 2015.  

The  Task  Force’s  support  includes  the  coordination  with  relevant  national  authorities,  international 
organisations and other relevant actors in the following areas: 

4 Around 50,000 arrivals in 2023 and 60,000 in 2024 according to Frontex data. Like other Member States, Greece 
witnessed a significant reduction in arrivals of third country nationals during the Covid and post-covid period. A 
sharp increase in arrivals of third country nationals was noted in the summer of 2023, and high numbers (with 
fluctuations) continue to this day.  
5 Eurodac hits and Dublin statistics only provide a proxy for secondary movements as they do not currently 
relate to applicants, but only to applications. Eurodac hits with Greece as country of departure ranged between 
75,000 and 121,000 per year between 2021 and 2024. 
6  https://home-affairs.ec.europa.eu/policies/migration-and-asylum/migration-management/task-force-migration-
management_en  
7 PV(2020) 2350 final (23 September 2020). The Task Force  was set up as an innovative structure within the 
European Commission’s Directorate General for Migration and Home Affairs (DG HOME). It works in a matrix 
approach, tapping into established resources in DG HOME’s relevant units (policy, operational, financial) and 
cooperates closely with all other Commission services involved. When Russia started its war of aggression against 
Ukraine in February 2022, support efforts were expanded to the Member States most affected, such as Poland, 
Czechia, Slovakia, Hungary and Romania, to support them in addressing challenges and  in welcoming people 
fleeing the war. 

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•  Management of arrivals and registration of applicants for international protection, beneficiaries 

of temporary protection, and illegally-staying third-country nationals; 

•  Providing adequate reception facilities; 
•  Protection of unaccompanied minors and other vulnerable groups; 
•  Application of efficient asylum and return procedures; 
• 
Implementation of different voluntary relocation schemes; 
•  Border management in compliance with the Schengen acquis; 
•  Promotion of integration policies and access to social rights.  

The total amount of financial support under the EU Home Affairs Funds made available to Greece 
since 2015 is just over EUR 5 billion, providing Greece with the means for an ambitious, robust and 
comprehensive migration management policy, which reflects the significant responsibility carried by 
Greece. During the 2014-2020 programming period, more than EUR 3.39 billion were made available 
to Greece to manage migration and borders under the Asylum, Migration and Integration Fund (AMIF), 
the  Internal  Security  Fund  (ISF-  Borders  and  Visa,  Police)  and  the  Emergency  Support  Instrument 
(ESI). Under the 2021-2027 multiannual financial framework, so far more than EUR 1.66 billion have 
been  made  available  under  the  Home  Affairs  Funds  (AMIF,  Border  Management  and  Visa  Policy 
Instrument,  ISF)  to  support  the  implementation  of  existing  and  upcoming  priorities  in  the  area  of 
migration,  border  management  and  internal  security.  Greece  has  also  drawn  approximately 
EUR 681 million from its cohesion envelope (almost 3%), to address migration management needs, and 
has requested to draw a further 2% of the aforementioned funds. 

A large part of EU Home Affairs  funds is used to improve reception capacity, living conditions  for 
migrants and security in Greece. This includes e.g. the reinforcement of medical care for applicants for 
international  protection;  streamlining  asylum  procedures;  the  relocation  of  applicants  for  and 
beneficiaries  of  international  protection  to  Member  States  and  European  Free  Trade  Association 
(EFTA) countries8, and increasing the return of those with no right to stay in the EU.  

The work of the Task Force was able to intensify operational support provided by the Commission 
and  the  EU  Agencies  to  Greece  since  2015.  The  Commission  has  deployed  staff  on  the  ground  in 
Greece,  who  work  in  close  collaboration  with  national  authorities,  EU  Agencies,  International 
Organisations and civil society to help ensure that migration is managed in an effective way. In the past 
two years, the team has consisted of approximately 9 staff members (EU officials and national experts 
seconded by Member States). The deployed team cooperates with all the relevant Ministries, such as 
the  Ministry  of  Migration  and  Asylum,  as  well  as  the  Ministry  for  Labour  and  Social  Welfare,  the 
Ministry  for  Social  Cohesion  and  Family,  the  Ministry  for  Citizen’s  Protection,  the  Ministry  of 
Maritime Affairs & Insular Policy, the Ministry of Education, the Ministry of Health and the Ministry 
of Defence, as well as with civil society organisations, international organisations, local and regional 
authorities, and resident communities in the centres.  

EU Agencies have been providing a significant part of the EU’s operational support to Greece, in line 
with their respective mandates, the EU acquis and in full respect of the Charter of Fundamental Rights 
of the EU.  

The EUAA continues to provide operational support and technical assistance to Greece, through the 
latest  Operational  Plan (2025)9.  The  Plan  aims  to  enhance  national  capacity  in  the  areas  of  asylum, 

8 Iceland, Lichtenstein, Norway, Switzerland. 
9 https://euaa.europa.eu/sites/default/files/EUAA_Operational_Plan_to_Greece_2025.pdf  

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reception, vulnerable persons, through the deployment of around 450 experts and 100 interpreters.  In 
addition, the Greek authorities are currently in the process of several strategic exercises regarding the 
planning for the future of the national reception system, in view of the implementation of the needed 
requirements  under  the  Pact.  The  gradual  scaling  down  and  smooth  handover  of  the  Agency’s 
operational assistance is deemed necessary to foster sustainability and is closely linked to the ongoing 
efforts of the authorities to put in place additional personnel and further enhance their own institutional 
capacity. 

Frontex has a long-standing cooperation with Greece, and supports Greece with approximately 460 
guest officers, who perform border surveillance, assist in the identification and registration of incoming 
migrants, as well as debriefing, screening and technical equipment. Frontex and Greece also cooperate 
in other activities, such as training and capacity building. 

Europol  continues  to  provide  operational  assistance  particularly  to  the  Greek  law  enforcement 
authorities  -  Hellenic  Police  and  Hellenic  Coast  Guard  -  in  the  management  of  migratory  flows  in 
accordance with its responsibilities and mandate. Europol facilitates and supports Member State cross-
border  investigations  targeted  at  dismantling  criminal  networks  involved  in  organised  migrant 
smuggling, trafficking in human beings, document fraud and other forms of serious and organised crime 
and terrorism.  

As part of its mandate to provide assistance and expertise on fundamental rights to European Union 
institutions, bodies and agencies, as well as Member States, the Fundamental Rights Agency (FRA) 
engages in a wide range of activities, including monitoring and advisory roles. FRA regularly visits the 
Reception and Identification Centres to identify fundamental rights gaps and potential risks in breaching 
fundamental rights, collect and disseminate good practices, and share fundamental rights expertise10.  

International organisations and Civil Society Organisations (CSOs) provide support throughout the 
Greek  territory.  Many  CSOs  continue  to  be  active  in  all  areas  of  migration,  despite  a  challenging 
environment11. They are often working in close cooperation with the Greek authorities, including e.g. 
for interpretation, legal aid, healthcare provision, cash assistance provision, non-formal education, as 
well as support to unaccompanied minors and families with children .  

Finally, Greece has also been supported through bilateral arrangements with other EU and European 
Economic  Area  (EEA)12  Member  States,  which  have  financed  specific  projects13  and  deployed 
specialised  personnel,  in  particular  in  the  area  of  the  protection  of  unaccompanied  minors.  EU  and 
Associated  States  have  also  supported  Greece  through  voluntary  relocation,  first  under  a  voluntary 
relocation scheme running between 2020-2023, which relocated more than 5 000 people from Greece, 
and currently under the Voluntary Solidarity Mechanism, following the political declaration of June 
2022, which enabled over 2 100 transfers from Greece by mid-February 2025. 

3.  Reception conditions in the mainland 

3.1 Reception System 

10 In July 2024, FRA published a report gathering examples of alleged rights violations of migrants and refugees 
between 2020 and 2024, setting out steps to promote investigations into incidents of ill-treatment at borders. 
https://fra.europa.eu/en/publication/2024/guidance-investigating-alleged-ill-treatment-borders 
11 2024 Rule of Law Report, Country chapter for Greece, pp. 31-33. 
12 The EEA includes the 27 EU Member States, as well as Iceland, Liechtenstein and Norway. 
13 https://eeagrants.org/countries/greece  

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With the support of the Commission, the Ministry of Migration and Asylum has undertaken significant 
capacity  building  efforts  to  improve  the  reception  system,  establish  and  manage  facilities  in  a 
sustainable  manner,  and  operationalise  the  key  governmental  services  responsible  for  migration 
management. However, Greece’s reception system for applicants has also faced concerns about living 
standards, and systemic challenges, particularly due to the high numbers of irregular arrivals in the past 
10  years,  with  trends  dropping  during  the  Covid-19  pandemic  period  (2020-2021)  and  reaching 
increased levels again in 2023 and 202414. 

In  the  past  years,  Greece  has  progressively  centralised  the  management  and  coordination  of 
reception  facilities.  The  Reception  and  Identification  Service  (RIS)  is  the  governmental  body 
responsible for managing the reception, identification and registration of  applicants for international 
protection and irregular migrants arriving in Greece. Its staff includes registration officers, screening 
officers, social workers and psychologists, legal advisors, security personnel and administrative staff, 
and plays a critical role in handling migration-related processes. RIS staff undertakes tasks related to 
registration, 
identification  of  vulnerable  persons,  site  management, 
administrative procedures related to applicants of international protection. Security, maintenance and 
cleaning services are provided by external RIS partners, under framework contracts, while medical and 
psychosocial services are provided by IOM under the 'Hippocrates' project (see below). RIS is supported 
by experts seconded by the EUAA, both with specialised staff in the facilities and with strategic support 
in the headquarters.  

information  provision, 

A series of operational frameworks and tools were introduced in the area of reception over the past 
years  to  improve  the  management  and  operation  of  reception facilities,  including  with  the  EUAA’s 
contribution and support. These include, inter alia, site management, case management, communication 
and information provision, logistics, self-assessment of reception conditions, registration procedures, 
as  well  as  specialised  frameworks  on  the  protection  of  unaccompanied  minors  and  vulnerable 
applicants.  

Over the past decade, the Greek Ministry of Migration and Asylum has been able to streamline the 
reception system and the number of functioning facilities, by deciding which mainland facilities 
should  be  upgraded  or closed,  with  a  focus on closing  facilities that  were  either  too  small,  not  cost 
efficient  or  very  remote,  and  maintaining  facilities  that  offered  better  reception  conditions  and 
facilitated access to services. As of January 2025, 2215 facilities were operational (out of which ten are 
in  the  Southern  part  of  Greece  and twelve  are in  the  Northern  part).  In  addition,  three facilities  are 
specifically designed for first arrivals, and include services for the registration of asylum applications 
(so-called  Reception  and  Identification  Centres)16.  The  number  of  open  reception  facilities  in  the 
mainland is considered to be sufficient in view of arrivals to Greece. In January 2025, the total capacity 
of all 22 mainland reception facilities was 21 393 places, with an occupancy rate of 56%, and the three 
Registration and Identification Centres had a capacity of 5 163 places, with an occupancy rate of 59%17. 
The facilities mentioned above are the primary form of housing for asylum applicants, except for the 
dedicated  accommodation provided to  unaccompanied  minors.  On  21  March  2025,  the Minister  for 

14 According to national data, in 2024, there were 54 888 arrivals to Greece by land and sea [excluding Crete], a 
23% increase compared to 2023. 
15 https://migration.gov.gr/en/ris/perifereiakes-monades/domes/  
16 Malakasa, Diavata and Fylakio  
17 There  may  be  slight  deviations  between  the  statistics  and  nominal  capacity  because  of  unavailable  spaces, 
mainly due to necessary maintenance or repairs. 

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Migration and Asylum announced the upcoming closure of three facilities, out of which two are located 
in the mainland (Elefsina, Volos)18. 

The  reception  centres  are  open  facilities  managed  by  the  Greek  authorities  and  supported  by 
International Organisations, the EU Agencies, and NGOs. The facilities all provide basic shelter, which 
can host people both in summer and winter time. Tents are no longer used for accommodation and 
Rubb  Halls  are  currently  used  only  in the  Corinth,  Katsikas and  Filippiada  facilities.  The  level  and 
condition of infrastructure may vary between the facilities, while in some cases the available capacity 
is reduced due to damages, lack of repair or unavailability of spare parts.  

The existing framework foresees the provision of certain key services in all the mainland facilities: 
housing  and  shelter,  food  and  basic  necessities,  including  cash  assistance,  health  support, 
information  and  legal  aid.  Medical  screening  and  vulnerability  assessments  are  provided  in  the 
Reception and Identification Centres. The quality and availability of these services may vary depending 
on the type of facility, location and available funding, yet a satisfactory level of reception conditions is 
maintained. Cash assistance to applicants is managed by the Ministry of Migration and Asylum since 
October 2021 and is currently facing delays.   

Cleaning, maintenance and security services operated by the Reception and Identification Service have 
largely contributed to the daily management of the reception facilities, which improve living conditions 
in  the  reception  centres  and  security  at  the  facilities,  creating  a  safe  environment.  The  Ministry  of 
Migration and Asylum has used framework contracts in the management of these services to allow for 
flexibility according to the needs. Safety and security have also been improved following a review of 
site-specific risks and capacity building support to prevent and manage emergencies.  

Overall,  reception  conditions  in  mainland  reception  centres  have  significantly  improved  since 
2015  and  can  generally  be  deemed  satisfactory,  in  terms  of  facilities,  infrastructure,  equipment  and 
services provided, including with EU funding support. These facilities have also been instrumental in 
decongesting the islands. However, certain gaps were identified, and there were disruptions of important 
services, including the provision of interpretation, transportation, legal aid and cash assistance. Civil 
society organisations have reported on the suspension of these services, as well as other limitations, 
primarily  related  to  the  remote  locations  of  some  facilities  and  subsequent  difficulties  in  social 
integration.  In late 2024, the Greek authorities indicated they were taking measures at central level to 
remedy  those  gaps,  through  the  signature  of  new  contracts  and  arrangements.  In  this  context,  it  is 
important to note that the existing gaps do not amount to deficiencies as envisaged under Article 3(2) 
of the Dublin III Regulation, i.e. of a particularly high level of severity causing a situation of extreme 
material poverty that does not allow the applicant to meet their most basic needs19.  The Commission 
continues to work closely with the Greek authorities to ensure that the necessary services are maintained 
also after EU funding projects have come to an end. One example is the project “Supporting the Greek 

18 https://migration.gov.gr/kleinoyn-treis-domes-filoxenias-exoikonomoyntai-perissotera-apo-35-ekat-eyro/  
19 That level is attained where the indifference of the authorities of a Member State would result in a person 
wholly dependent on State support finding himself or herself, irrespective of that person’s wishes and personal 
choices, in a situation of extreme material poverty that does not allow him or her to meet his or her most basic 
needs, such as, inter alia, food, personal hygiene and a place to live, and that undermines his or her physical or 
mental health or puts that person in a state of degradation incompatible with human dignity. That threshold 
cannot therefore cover situations characterised even by a high degree of insecurity or a significant degradation 
of the living conditions of the person concerned, where they do not entail extreme material poverty placing that 
person in a situation of such gravity that it may be equated with inhuman or degrading treatment. (See, to that 
effect, judgment of 19 March 2019 Jawo, C-163/17, EU:C:2019:218, paragraphs 91 to 93, and order of 13 
November 2019, Hamed and Omar, C-540/17 and C-541/17, not published, EU:C:2019:964, paragraph 39 and 
judgement of 19 December 2024 in Joined Cases C-185/24 and C-189/24 [Tudmur], paragraph 37) 

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Authorities in Managing the National Reception System for Asylum Seekers and Vulnerable Migrants”. 
The project, with a budget of over EUR 191 million, ensured that key services were delivered on time, 
in a flexible approach as demand arose, including the procurement of basic deliverables such as fuel or 
non-food item kits, while services concerning the management of mainland facilities have been taken 
over under the AMIF national programme of Greece ensuring a sustainable response. 

IT  systems  operating  in  the  Greek  accommodation  facilities  are  regulated  by  the  existing  national 
framework. However, some actors have raised concerns with regard to the impact of these IT systems 
on Data Protection and Fundamental Rights. The Hellenic Data Protection Authority (DPA) has issued 
a  fine  to  the  Ministry  of  Migration  and  Asylum  regarding  the  installation  of  the  HYPERION  and 
CENTAUR systems in the reception and accommodation facilities for asylum applicants. The Ministry 
of Migration and Asylum has followed up and published the relevant data protection impact assessment 
(DPIA)  and  fundamental  rights  impact  assessment  (FRIA)  for  the  IT  systems  to  their  corporate 
website20. 

Actions  funded  under  the  EU  Affairs  Funds  for  2021-202721,    are  subject  to  the  fulfilment  of  the 
Horizontal  Enabling  Conditions  (HECs),  one  of  which  relates  to  the  mechanisms  for  ensuring 
compliance with the Charter of Fundamental Rights of the European Union’ in the implementation of 
the  programmes  supported  by  the  Home  Affairs  Funds.  Member  States  must  demonstrate  HEC 
compliance at the moment of the adoption of the national programmes and during their implementation. 
If the Charter HEC is no longer fulfilled at the level of the relevant specific objective, the Commission 
will not reimburse the affected expenditure. In the case of Greece, in the beginning of the programming 
period this requirement  was deemed to have been met by Greece, enabling the disbursement of EU 
funding.  

In summary, to satisfy these requirements Greece has set up a three-tier system that relies on:   

• 

• 

Internal  control  procedures  tasked  with  the  investigation  and  prosecution  of  criminal  acts 
arising in the context of operations by the Hellenic Police or the Hellenic Coastguard,   
Investigations  by  independent  authorities  such  as  the  Greek  Ombudsman  and  the  National 
Transparency Authority, and   

•  The possibility for public prosecutors to investigate allegations, following a relevant complaint 

or press, international organisations and NGO reports.   

3.2 Health 

The Commission supports the Greek Ministry of Migration and Asylum and the Ministry of Health to 
provide access to medical care, mental health and psychosocial support to applicants and beneficiaries 
of international protection in Greece. Health services are provided both in reception facilities and other 
premises (clinics run by NGOs or public hospitals).   

20 https://migration.gov.gr/privacy-policy/ 
21 Regulation (EU) 2021/1147 of the European Parliament and of the Council of 7 July 2021 establishing the 
Asylum, Migration and Integration Fund PE/56/2021/INIT, OJ L 251, 15.7.2021, p. 1–47, Regulation (EU) 
2021/1148 of the European Parliament and of the Council of 7 July 2021 establishing, as part of the Integrated 
Border Management Fund, the Instrument for Financial Support for Border Management and Visa Policy 
PE/57/2021/INIT OJ L 251, 15.7.2021, p. 48–93 and Regulation (EU) 2021/1149 of the European Parliament 
and of the Council of 7 July 2021 establishing the Internal Security Fund PE/58/2021/INIT, OJ L 251, 
15.7.2021, p. 94–131 

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As  of  July  2024,  medical  care  is  supported  through  the  Hippokrates  project22  by  medical  teams 
deployed  on  the  ground  in  all  open  accommodation  sites  in  mainland  Greece.  The  project  aims  to 
enhance flexible health care services in a comprehensive way, especially given past inefficiencies that 
were primarily related to the challenges in identifying and hiring medical personnel in the context of a 
generalised shortage. The project also addresses existing gaps, in particular through adequate and timely 
vulnerability assessments (identification of vulnerable applicants) and referrals to special care, as well 
as more focus on mental health care for both residents and staff of reception facilities. 

Hippokrates is managed by the Hellenic Ministry of Migration and Asylum and implemented by the 
IOM and a third-party healthcare provider. Key responsibilities under the contract are primary health 
services,  identification  of  vulnerable  people  upon  arrival  and  throughout  the  asylum  process, 
transportation facilitation to external healthcare providers, operation of mobile clinics equipped with 
nursery rooms, laboratories, x-ray facilities, and reception areas, including radiologists, lab technicians 
and drivers, and medical equipment provision. 

The  programme  foresees  the  recruitment  of  554  full-time  and  part-time  medical  specialists  across 
different regions (106 for the Aegean islands, 182 for Northern Greece, and 147 for Southern Greece), 
including  general  practitioners,  pathologists,  gynecologists,  pediatricians,  psychiatrists,  radiology 
technologists,  midwives,  nurses,  laboratory  technicians,  social  workers,  and  psychologists.  The 
deployment of staff started in 2024 and is currently ongoing.  

Beneficiaries  of  international  protection  have  free  access  to  healthcare  in  the  same  way  as  Greek 
citizens. Some have faced challenges due to administrative obstacles concerning the initial issuance or 
conversion of AMKA (Social Security Number) following the granting of status, or lack of information 
on the procedures and the required supporting documents. These challenges have been brought to the 
attention of the Task Force on Integration, instituted by the Ministry of Migration and Asylum (see also 
section 5). 

3.3 Protection of vulnerable persons 

Significant efforts have been made over the past years to improve conditions for vulnerable persons.  

Since 2023, the Ministry of Migration and Asylum has taken over responsibility for protection services 
previously delivered by IOM from January 2021 to December 2023. The aim is to provide across all 
mainland  reception  centres  in  Greece  protection  activities,  mental  health  services,  psychological 
support,  and  skill-development  in  the  mainland  facilities.  IOM’s  EU  funded  project  Harmonizing 
Protection  Practices  in  Greece  (HARP)23  enhanced  the  quality  of  humanitarian  response  and 
protection  assistance  for  applicants  within  the  Greek  reception  system,  with  a  particular  focus  on 
vulnerable individuals. 

3.4 Unaccompanied Minors 

There  has  been  significant  progress  in  Greece  regarding  the  protection  of  unaccompanied  minors 
(UAMs), especially since 2020 when a  Special Secretariat for the Protection of Unaccompanied 

https://greece.iom.int/ippokratis-i-provision-medical-and-psychosocial-services-residents-accommodation-

22 
facilities-under-responsibility-reception-and-identification-service  
23 This project is supported under the 2021-2027 Asylum Migration and Integration Fund. 

8 

 
 
 
 
 
 
 
Minors (SSUAM)24  was established within the Ministry of Migration and Asylum.  The SSUAM has 
been  successful  in  creating  a  supportive  ecosystem  for  the  proper  identification,  reception  and 
protection of unaccompanied minors. In 2023, the SSUAM was replaced by the General Secretariat for 
Vulnerable Persons and Institutional Protection (SGVP), including the protection of unaccompanied 
minors.  

UAMs in Greece are hosted in dedicated facilities, with special care. These facilities are separate from 
the general mainland reception facilities, except in the Reception and Identification Centres of Malakasa 
and Fylakio where dedicated safe zones for UAMs operate. In the facility of Diavata, a safe area is 
expected to be created by March 2025 with 24/7 presence of a child protection actor. 

The number of available places in long-term accommodation (shelters and SILs) is 1,775, funded under 
AMIF since 2017. As of 2020, Supported Independent Living (SIL) apartments were introduced for 
UAMs  aged  16-17  offering  accommodation  and  protection  services.  Statistics  on  the  number  and 
accommodation of UAMs are provided by the Greek authorities on a monthly basis25. 

As of December 2020, UAMs who have no safe or known accommodation are no longer allowed by 
law  to  be  placed  in  protective  police  custody.  The  SGVP  has  established  a  National  Emergency 
Response Mechanism (NERM) to identify UAMs living in precarious situations with a dedicated 24/7 
telephone hotline, mobile child protection units in Attica and Thessaloniki, and dedicated emergency 
accommodation for the UAMs pending their referral to long-term accommodation. 

Age assessments of unaccompanied minors are performed by the Reception and Identification Service 
of the Ministry of Migration and Asylum. A joint ministerial decision on age assessment26 foresees a 3-
step procedure (physical, psychosocial and medical examination). Age assessment shall only take place 
in case of doubt and the benefit of doubt is taken into account until the assessment is complete. 

Another important reform is the establishment of a permanent guardianship scheme with the adoption 
of  Law  4960/2022.  Following  an  open  call,  two  NGOs  (METAdrasi  and  Praxis)  were  selected  to 
provide up to 180 qualified guardians across Greece. As  of January 2025, 120 guardians have been 
appointed by the Public Prosecutors so far and are being deployed across Greece. Each guardian can be 
responsible for up to 15 UAMs. Joint Ministerial Decisions lay down the rules for the functioning of a 
new  Guardianship  Council,  the  appointment  of  its  members,  and  the  setting  up  of  the  complaint 
mechanism in relation to the work carried out by the guardians. EUAA experts support the SGVP for 
the development of operational guidelines, Standard Operating Procedures and training necessary for 
the implementation and monitoring of the system.  

Greece  has  also  adopted  measures  to  facilitate  the  transition  to  adulthood  of  former  UAMs.  The 
“HELIOS Junior” project will be implemented until end 2027 by IOM, in cooperation with partners, 
and is  funded  under  AMIF  (EUR  19 million).  The  project aims  to  comprehensively  support around 
2,000 former UAMs between 18 and 21 years to facilitate their integration in Greece.  

3.5 Education 

24 https://migration.gov.gr/en/grammateies/eidiki-grammateia-prostasias-asynodeyton-anilikon/  
25 https://migration.gov.gr/wp-content/uploads/2025/01/SGVP_Statistics-January_EN.pdf  
26 Joint Ministerial Decision 9889/2020 (B'3390) 

9 

 
 
 
 
 
Under Greek legislation27 minor children must be enrolled in public primary and secondary education 
establishments during their stay in the country. In addition to minors, adult applicants for international 
protection also have access to education, as long as no removal measure against them is being enforced. 
Access to education is organised by the Ministry of Education, Religious Affairs and Sports, and the 
relevant legal framework provides for the presence of a Local Coordinator of Refugee Education in all 
reception structures, as well as in urban areas (in local Education Directorates), to register and enroll 
minors (including unaccompanied minors) in schools. Their main role is to provide the necessary means 
to support the integration process, which should be carried out under conditions similar to those for 
Greek citizens, with facilitation of registration in cases of difficulties in submitting documentation. 

The ‘All Children in Education’ (ACE) project, financed by the EU and implemented by UNICEF, 
offered non-formal education to migrant children across Greece. More than 25,000 refugee and migrant 
children benefitted from the programme between 2021 and 2024, which helped to increase the number 
of children enrolled in formal education. The success of this project led to both Commission and Greek 
authorities agreeing to extend it in time, and for the project to be managed by the Greek authorities 
under ESF+, thereby ensuring the sustainability of positive results. The Commission has been following 
up with the Greek authorities and these services are expected to resume in summer 2025.  

4.  Procedures for granting international protection 

The two main authorities relevant for asylum procedures are the Greek Asylum Service (GAS) and the 
Appeals Authority (AA). The Asylum Service, through the Regional Asylum Offices and the Asylum 
Units throughout the country, is the competent authority for examining and deciding on applications for 
international protection. An application may be examined in the regular, accelerated, admissibility or 
border procedure28. Appeals against GAS decisions are brought before the  Appeals Authority . At this 
level,  appellants  have  access  to  free  legal  aid.  The  Appeals  Authority  consists  of  20  Independent 
Appeals Committees. 

In 2024, the GAS employed a total of 856 staff members, including permanent and interim staff, while 
EUAA is supporting GAS with approximately 135 deployed experts29. There are 13 Regional Asylum 
Offices and 13 Asylum Units across the mainland and the Aegean islands, including two specialised 
vulnerability offices in Athens and Thessaloniki providing for specialised support throughout the entire 
asylum procedure. Moreover, there are Departments for Dublin, Withdrawal and Returns, Trainings 
and Administrative Support30. 

The  processing  of  asylum applications has been  rendered  more  efficient over  the  past  years,  with  a 
particular effort of the GAS, supported by the EUAA, to decrease the backlog of pending decisions 
through the deployment of more staff.   

The number of asylum applications has been increasing steadily in the last 4 years, from around 28,000 
in 2020 to over 73,000 in 202431. This places Greece as the second-highest EU Member State in terms 
of number of applications relative to its population for 2024. Top countries of origin of applicants are 
Syria  and  Afghanistan,  followed  by  Pakistan  (2021/2022),  Iraq  (2023)  and  Egypt  (2024)32.  The 

27 Art 55 and 56 of Law 4939/2022 
28 https://ecre.org/aida-country-report-on-greece-2023-update/, p. 29. 
29 According to information received by the GAS and EUAA. 
30 https://migration.gov.gr/en/gas/dioikisi/  
31 https://ecre.org/aida-country-report-on-greece-2023-update/  
32https://migration.gov.gr/wp-content/uploads/2024/12/Report_A_November-2024_International-
Protection_Appendix-A_NEW.pdf  

10 

 
 
 
recognition rate over the total number of decisions adopted has increased over the years from around 
45% in 2021 to around 68% in 2024. 

In  November  2024,  there  was  a  total  of  26  275  pending  decisions  on  applications  for  international 
protection33.  Efforts  to  reduce  the  backlog  of  ongoing  cases  have  been  put  in  place  with  the 
specialisation  of  certain  offices.  Backlog  was  also  reduced  due  to  a  pilot  project  running  since 
September  2023  whereby  the  interview is  omitted  for  certain  nationalities  from countries  with  high 
recognition rates, namely Afghanistan, Syria, Eritrea, Palestine, Sudan and Yemen34. For these cases, 
the  average  duration  of  examination  of  an  asylum  application  is  approximately  45  days.  As  is  the 
practice in other Member States, as of December 2024 after the fall of the Assad regime in Syria, the 
Greek Asylum Service has "frozen" the issuing of decisions on applications for international protection 
from Syrians. 

Persons who are on the mainland without having previously undergone identification procedures at the 
border (on the islands or in Fylakio in the Evros region) are expected to submit their applications at the 
Malakasa  and  Diavata  Reception  and  Identification  Centres,  by  making  appointments  through  the 
special online platform. The Reception and Identification Service is responsible for the registration of 
applications in those registration centres, with the support of EUAA. The introduction of the platform 
has raised concerns: as the platform currently does not include the possibility to verify the person’s 
identity, the authorities do not consider that registration on the platform should be considered as making 
an  application  for  international  protection.  The  Commission  has  conveyed  these  concerns  to  the 
Ministry of Migration and Asylum35 in particular with regard to access to material reception conditions. 

In accordance with the EU-Turkey Statement and a Joint Ministerial Decision36, Greece applies the safe 
third  country  concept  (and  the  admissibility  procedure)  to  applications  submitted  by  applicants  of 
certain nationalities37 who have arrived in Greece through Türkiye.  The  Greek authorities intend to 
amend their procedures following the European Court of Justice ruling in Case C-134/2338 relating to 
the  the  inadmissibility  procedure,  and  following  the  announcement  by  the  President  of  the  Greek 
Council of State of 21 March 202539.  

33https://migration.gov.gr/wp-content/uploads/2024/12/Report_A_November-2024_International-
Protection_Appendix-A_NEW.pdf, p.10. 
34 According to information from the Ministry of Migration and Asylum. The pilot is based on Article 82(7) of 
Law 4939/2022 and applies to the applications of applicants from Afghanistan, Syria, Eritrea, Palestine, Sudan 
and Yemen.  
35The AIDA Country Report on Greece provides a detailed overview of legislative and practice-related 
developments in asylum procedures and content of international protection in 2023 -  https://ecre.org/aida-
country-report-on-greece-2023-update/. 
36 Joint Ministerial Decision 42799/2021.  
37  Since  June  2021,  all  applications  for  international  protection  submitted  by  nationals  of  Syria,  Afghanistan, 
Somalia,  Pakistan  and  Bangladesh  throughout  the  Greek  territory  are  examined  under  the  safe  third  country 
concept pursuant to JMD 42799/2021, as amended by JMD 485868/2021 and 734214/2022 
38 Case C-134/23, Elliniko Symvoulio gia tous Prosfyges and Ypostirixi Prosfygon sto Aigaio, 04/10/2024.. 
39 On 21 March 2025, the President of the Greek Council of State announced that the Plenary decided on 27 
February 2025 to annul the joint ministerial decision 538595/12.12.2023 establishing a national  list of safe third 
countries insofar as it includes Türkiye as a safe third country for applicants for international protection 
originating from Syria, Afghanistan, Pakistan, Bangladesh and Somalia. 
https://www.adjustice.gr/webcenter/portal/ste/pageste/epikairotita/anakoinwseis-proedrou?contentID=SNEWS-
TEMPLATE1742568296785&_afrLoop=5703496456933569#!%40%40%3F_afrLoop%3D5703496456933569
%26centerWidth%3D65%2525%26contentID%3DSNEWS-
TEMPLATE1742568296785%26leftWidth%3D0%2525%26rigthWidth%3D35%2525%26showFooter%3Dfals
e%26showHeader%3Dtrue%26_adf.ctrl-state%3Dblf2qupbn_83.  

11 

 
 
 
Greece imposes fee on second and further subsequent applications; the Commission has underlined to 
the Ministry of Migration and Asylum the need to waive such fee, in line with EU law.  

The Commission maintains a dialogue with the Ministry of Migration and Asylum on these aspects, as 
well as with the Turkish authorities.   

The  productivity  of  the  Appeals  Authority  has  improved  over  time40.  At  the  end  of  2022,  EUAA 
concluded its support activity to the Appeals Authority in reducing the backlog to manageable levels. 
In the period between 1 December 2019 to 30 November 2024, 54 596 appeals with an average waiting 
time of 91 days were lodged on the Greek mainland.  

Legal aid at second instance is provided by the State through the creation and support to a Legal Aid 
Registry,  staffed  with  approximately  110  lawyers.  In  parallel,  the  GAS  has  developed  systematic 
information provided to applicants at all stages of the procedure.  

5.  Integration of beneficiaries of international protection 

In February 2022, Greece adopted a National Strategy for Integration41 acknowledging the need for 
a comprehensive approach to integration. Numerous projects, many of which are EU funded, are under 
implementation  and are supporting the integration of third-country nationals, in particular regarding 
their access to the labour market.    

The HELIOS project has to date been the main integration project in Greece through which 47 75342 
beneficiaries of international protection have received welcome courses, education and employability 
support. The project also offered accommodation support and activities that helped people connect 
and contribute to their new community. Up to 10,816 households have been actively supported with 
rental subsidies from its activation until 31 October 2024. The HELIOS project has been implemented 
by IOM43 with around €60 million in EU funding and the support of several NGOs and municipalities44. 
As of 1 January 2022, the Ministry of Migration and Asylum took over its management and funding.  

The  Helios  project  ended  on  30  November  2024  and  was  replaced  by  Helios+ as  of  January  2025, 
funded under the European Social Fund (ESF+) to ensure its long-term continuation of these services. 
Indeed, the services that will be provided to beneficiaries of international protection will remain similar, 
in particular regarding rental subsidies, language training and integration classes, but importantly offer 
more focus on employability.  

HELIOS+ services include:  

40  21  Independent  Appeals  Committees  operate  under  the  Appeals  Authority.  The  three-member  Appeals 
Committees are composed by three active Administrative Judges. Each Committee has at least one secretary. Each 
judge has one rapporteur. Rapporteurs and secretaries were provided by EUAA (regulation for the functioning of 
the Appeals Authority of 4/11/2020). 
41  https://migration.gov.gr/en/migration-policy/integration/politiki-entaxis-se-ethniko-epipedo/.  The  Strategy 
includes four main pillars: pre-integration of asylum seekers; social integration of beneficiaries of international 
protection; prevention of and effective protection from all forms of violence, exploitation and abuse; monitoring 
the integration process.  
42 IOM factsheet, until 31/10/2024 
43 https://greece.iom.int/hellenic-integration-support-beneficiaries-international-protection-and-temporary-
protection-helios  
44 Catholic Relief Services (CRS), Danish Refugee Council Greece (DRC Greece), Greek Council for Refugees 
(GCR), Solidarity Now, INTERSOS, Municipality Development Agency Thessaloniki S.A (MDAT), Metadrasi, 
PLOIGOS, Public Benefit foundation of the Municipality of Livadeia (ΚΕΔΗΛ), TSoC- The smile of the Child 

12 

 
 
 
•  Housing  support:  Strengthening  independent  living  in  Greece  by  providing  accommodation 

support to secure accommodation, including rental subsidies, 

•  Employability support: Strengthening and facilitating the access of HELIOS+ target group to 
the  labour  market  through  group  and  individual  sessions  of  career  counselling,  vocational 
training and networking with local employers, 

•  Access  to  Social  and  Public  Services:  Facilitating  autonomous  access  to  social  and  public 
services  and  monitoring  the  integration  process  of  HELIOS+  target  group  through 
individualised and group support sessions, 

•  Language  and  Communication  Skills:  Supporting  HELIOS+  beneficiaries’  independent 

• 

communication in the local society and workplace through Greek language courses, 
Integration:  Raising  awareness  and  strengthening  the  host  communities  and  involved 
stakeholders at the local and regional levels through activities fostering social cohesion and 
cultural exchange.  

In  addition,  Greece  and  Germany  jointly  initiated  a  bridge  project  in  January  2025  to  support 
beneficiaries of international protection immediately upon their transfer from Germany to Greece. The 
bridge  project  provides  beneficiaries  with  accommodation,  food  and  social  counselling,  as  well  as 
support to prepare the necessary documents to ensure a seamless integration into Helios+. This bridge 
project will be supported by EU funding and implemented by IOM.  

The capacity of the Greek Social Integration Directorate has been strengthened through the Technical 
Support Instrument (TSI)45 of the Commission, in particular regarding the design, development and 
implementation of reforms in the area of integration. In addition, the Ministry of Migration and Asylum 
is designing a social inclusion online platform to facilitate third-country nationals’ access to the Greek 
labour  market.  This  will  complement  other  initiatives  to  promote  the integration  of  beneficiaries  of 
international protection into the labour market. 

Similarly, a project supported by the Recovery and Resilience Facility (RRF)46, implemented since the 
second  half  of  2022,  prepares  refugees  to  enter  the  workforce  and  fosters  cooperation  with 
companies and other stakeholders. Other integration initiatives include dedicated Job Fairs for local 
employers  and  beneficiaries  of  international  protection  at  the  Reception  and  Identification  Centres 
(organised in cooperation with UNHCR and IOM) and the setting up of one stop shops to inform and 
provide  specialised  services  to  third-country  nationals  (Centres  for  Migrant  Integration  funded  by 
ESF+). These initiatives result in collaborations and networks that help beneficiaries connect with social 
integration services and  programmes and implement social integration activities that promote social 
cohesion47. 

The  Ministry  of  Migration  and  Asylum  has  announced  more  initiatives  in  this  area,  such  as  the 
integration  offices  in  reception  facilities  and  dedicated  projects  under  the  Switzerland-Greece 
Cooperation Programme 2023-2026. Moreover, the authorities are working on additional integration 

45 https://commission.europa.eu/funding-tenders/find-funding/eu-funding-programmes/technical-support-
instrument/technical-support-instrument-tsi_en  
46 https://ec.europa.eu/info/business-economy-euro/recovery-coronavirus/recovery-and-resilience-
facility/greeces-recovery-and-resilience-plan_en  
47 There are 11 KEMs around Greece and are run by the municipalities and funded under ESF+. Only migrants 
legally  residing  in  Greece  can  access  their  services  which  include  counselling,  legal  information,  social  and 
psychological support,  application for benefits, provision of non-mandatory Greek classes, preparation for the 
exams for the Greek citizenship 

13 

 
 
 
actions, using the funding available through the European Social Fund+ in the programming period of 
2021-2027. 

UNHCR is actively involved with targeted activities that aim to advance refugee integration. With pilots 
like a Driving and Road Safety project, language classes for adult refugees on the islands, assistance 
to people with disabilities to have access to social welfare. The ADAMA centre48 run by UNHCR is a 
place where beneficiaries can receive practical help, advice and assistance on how to navigate the Greek 
labour market. Moreover, there are several initiatives at local level such as the Migrant and Refugee 
Integration  Councils  that  several  Municipalities  have  activated  in  order  to  conduct  activities  that 
enable  civic  participation.  Several  Cities  have  formed  the  Cities  Network  for  Integration  (CNI), 
which  plans,  organises,  implements  and  exchanges  information  on  good  practices  in  migrant  and 
refugee integration. The Municipality of Athens has established the  Athens Coordination Center for 
migrant & refugee issues to facilitate the cooperation between the City of Athens and civil society, 
international organisations and the central government. 

All these initiatives seek to further facilitate the transition from the status of  applicant to the one of 
beneficiary  of  international  protection,  and  the  overall  integration  into the  Greek  society.  While the 
Greek  legal  framework  generally  allows  for  integration,  deficiencies  in  implementing  the  existing 
legislation add significant challenges to a seamless integration. These challenges include issuance and 
renewals  of  residence  permits,  formalities  for  the  issuance  of  basic  documentation  (such  as  health 
insurance, bank accounts, tax credentials), recognition of qualifications, access to work and education, 
access to housing and lack of social housing in Greece generally.  

While beneficiaries of international protection have access to some form of financial assistance (the 
minimum guaranteed income49), administrative issues can limit their access. Moreover, they are not 
granted immediate access to some other social benefits available to Greek citizens upon recognition of 
their status, due to requirements linked to the duration of legal stay in the country. This restriction has 
resulted in a pending infringement procedure against Greece50. In practice, beneficiaries of international 
protection often remain in reception facilities meant for international protection applicants beyond the 
applicable transition period.  

Travel documents, requested by beneficiaries of international protection, are often issued together with 
the residence permit, often resulting in onward travelling of beneficiaries of international protection to 
other Member States. 

In  order  to  tackle  these  obstacles,  an  Integration  Task  Force  was  established  by  the  Ministry  of 
Migration  and  Asylum  in  January  202451.  It  aims  to  facilitate  effective  integration  policies  on  the 
ground, and to enhance cooperation and coordination among different Ministries and public authorities. 
The implementation of the relevant legislation and administrative bottlenecks are regularly discussed 
in this forum. 

48 ADAMA Centre - UNHCR Greece 
49 The Minimum Guaranteed Income offers a monthly cash allowance to households living  
below the poverty line. It also has a component for promotion to employment along with activation services.  
50 Directive 2011/95/EU of the European Parliament and of the Council of 13 December 2011 on standards for 
the qualification of third-country nationals or stateless persons as beneficiaries of international protection, for a 
uniform status for refugees or for persons eligible for subsidiary protection, and for the content of the protection 
granted (recast) OJ L 337, 20.12.2011, p. 9–26. See also 
https://ec.europa.eu/commission/presscorner/detail/en/inf_23_142 
51 https://commission.europa.eu/publications/2024-rule-law-report-communication-and-country-chapters_en  

14 

 
 
 
 
6.  Conclusions 

Over  recent  years,  Greece  has  developed  a  national  migration  management  system,  with  the 
infrastructure,  equipment  and  tools  required.  By  scaling  up  its  authorities’  capacity,  Greece  has 
addressed issues of overcrowding and sub-standard reception conditions in mainland centres. Reception 
and international protection procedures have been streamlined and accelerated. Protection of the most 
vulnerable persons has improved, and the legislative framework put in place for unaccompanied minors 
offers a positive outlook. Integration is now evolving as a national policy priority. 

On  this  basis,  while  improvements  may  continue  to  be  necessary  in  certain  aspects  of  migration 
management, it can be concluded that there are no systemic deficiencies in the Greek mainland asylum 
and reception system resulting in a risk of inhuman or degrading treatment within the meaning of Article 
4 of the Charter of Fundamental Rights of the EU. As a result, Dublin transfers to Greece should take 
place in the same manner as for the other Member States,  i.e. without the requirement of individual 
assurances  recommended  by  the  Commission  in  its  Recommendation  (EU)  2016/1117,  and  in 
accordance with the jurisprudence of the Court regarding the interpretation of Article 3(2) of Regulation 
(EU) 604/2013. This Recommendation therefore ceases to apply. The Commission will continue to be 
in close contact with the Greek authorities to ensure compliance with Regulation (EU) 604/2013  in 
particular, as well as the proper implementation of the EU acquis and the Pact on Migration and Asylum.  

The Task Force Migration Management, in cooperation with all relevant stakeholders, proved to be an 
efficient and beneficial tool to achieve significant improvements in Greece, through better collaboration 
and communication. As in all Member States, there is room for improvement in certain policy areas. 
The Commission will continue working with Greece and the EU Agencies to consolidate the existing 
framework  of  cooperation  and  assist  in  fulfilling  Greece’s  declared  goal  of  further  improving  the 
migration  management  system  and  the  treatment  of  third-country  nationals  arriving  in  the  country. 
Operational, technical and financial support to Greece will continue, including through the deployment 
of  Commission  staff  and  the  EU  Agencies  deployed  on  the  ground,  as  well  as  through  the 
implementation of the EU Home Affairs Funds for the 2021-2027 Multiannual Financial Framework.  

Finally,  the  Commission  is  working  closely  with  Member  States,  including  Greece,  to  support  the 
implementation of the Pact on Migration and Asylum. Following the Common Implementation Plan52 
presented by the Commission in June 2024, Greece prepared its own National Implementation Plan, 
setting out the next steps envisaged by the national authorities to implement the provisions of the Pact 
by June 2026, following the suggested breakdown into thematic building blocks. It outlines targets and 
requirements  needed  to  enable  the  corresponding  legislative,  structural  and  operational  changes 
foreseen in the design of the national migration management system, including but not limited to the 
review  of  the  reception  system,  procedures  for  examining  applications  for  international  protection, 
preparedness,  integration,  as  well  as  rules  on  responsibility  and  solidarity.  Until  the  Pact’s  legal 
instruments  start  applying  in  mid-2026,  the  Commission  will  continue  supporting  Member  States’ 
efforts to translate the Pact from legislative acts into an operational reality. 

52 Communication from the Commission to the European Parliament, the Council, the European Economic and 
Social  Committee  and  the  Committee  of  the  Regions  on  the  Common  Implementation  Plan  for  the  Pact  on 
Migration and Asylum, COM/2024/251 final 

15