COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL European Asylum and Migration Management Strategy
Date: 2026-01-29
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU migration policy, EU strategy, external border of the EU, foreign national, international cooperation, labour mobility, migration control, return migration, right of asylum, third country, trafficking in human beings

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 29.1.2026  COM(2026) 45 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL European Asylum and Migration Management Strategy  
 
 
1.  INTRODUCTION 

Delivering on migration is and will continue to be a political priority. Citizens expect a 
migration and asylum policy that is fair and firm, one that effectively manages migration 
and remains true to European values.  

Building on steady progress during the last years, the European Union is now opening a 
new chapter. The Commission and the Member States have been working closely together 
to reduce illegal migration and improve migration management. The combination of 
the reforms brought by the Pact on Migration and Asylum (the Pact) balancing solidarity 
and responsibility, an assertive migration diplomacy, and effective operational cooperation 
within and outside the Union is showing results, notably with a gradual reduction in illegal 
arrivals since 2023 (1).  

An  EU  approach  to  managing  migration  is  indispensable  to  deliver  on  citizens’ 
expectations – one where the EU shows that it is able to prevent illegal migration and 
break  the  business  of  criminal  smuggling  networks,  protect  people  fleeing  war  and 
persecution, and encourage talent to come to the EU to boost the competitiveness of our 
economy.  

Most migrants arriving and staying in the Union illegally are not eligible for any form of 
protection and have no right to stay (2). Moreover, only about a fourth of those who have 
no right to stay actually leave the Union (3). There can be no tolerance for misusing a 
system  designed  to  provide  protection  to  those  in  genuine  need.  This  dysfunctional 
situation has created loopholes for enduring illegal residence in the Union – with wide-
ranging  implications  for  education,  housing  and  local  services  –  thereby  undermining 
public trust in Europe’s capacity to manage migration and shape its migration policy based 
on European interests. It also impacts Europe’s capacity to attract the additional workforce 
that  our  economies  and  labour  markets  urgently  need.  In  addition,  since  2021,  the 
weaponisation of migration by Belarus and Russia has further complicated the Union’s 
migration and security landscape, creating new forms of hybrid threats using migration for 
political purposes. 

90% of people entering the EU illegally do so using services provided by criminal groups 
and smuggling networks (4) that put peoples’ lives at risk in the desert and on the seas, 
strip people of their dignity in the pursuit of profit and violate fundamental rights. Migrant 
smuggling  fuels  a  criminal  system  that  creates  social  tension  and  insecurity  along 
migratory routes. While seeking a better life in the European Union may be legitimate, 
those not entitled to protection must do so lawfully by using the appropriate legal channels. 
Every smuggling trip avoided is potentially a life saved.  

The  EU  remains  committed  to  being  a  space  that  protects  people  fleeing  war  and 
persecution. Granting protection to those who need it, is an obligation under Union and 
international  law.  Europe  itself  provides  protection  for  large  numbers  of  refugees,  and 
internationally, Union diplomacy and financial support help protect asylum seekers and 
refugees hosted in third countries. 

(1)  Illegal border crossings into the EU show a steady decrease, with overall figures having declined by 
26% in 2025, following a 38% decrease in 2024 on all main routes to the Union. International protection 
applications follow a similar decreasing trend (-21%). 

(2)  Based on Eurostat data, the recognition rate for 2024 stood at 51.4%, whereas it dropped to just above 

33% the first half of 2025, rising to 42.8% in quarter three of 2025.  

(3)  Annual  Asylum  and  Migration  Report  (2025),  based  on  Eurostat  data  for  the  period  1  July  2024  – 

30 June 2025; https://eur-lex.europa.eu/legal-content/NL/ALL/?uri=CELEX:52025DC0795.  

(4)  https://www.europol.europa.eu/crime-areas/migrant-smuggling 

 
 
 
The  EU’s  support  to  Ukrainians  is  the  most  recent  telling  example  of  a  long-lasting 
tradition  that  developed  gradually  over  time.  European  citizens  opened  their  homes  to 
refugees fleeing  the Russian war of aggression against Ukraine (5), which triggered the 
largest displacement in Europe since the Second World War, with more than four million 
displaced  persons  staying  in  the  Union.  Providing  temporary  protection  to  Ukrainians 
remains a priority for the Union and the Member States, just as is supporting them to return 
home to help rebuild their country when the situation allows based on a coordinated and 
gradual approach. Furthermore, between 2015 and 2024, some 3.9 million asylum seekers 
received a protection status in the EU, in addition to temporary protection beneficiaries. In 
2024 alone, some 438 000 asylum seekers received protection (6).  

However,  abuses  of  the  Member  States’  asylum  systems  undermine  their  capacity  to 
provide  protection  and  adequate  reception  to  those  in  need,  as  well  as  to  offer 
integration  programmes  to  migrants  entitled  to  stay  in  the  Union.  Furthermore,  those 
abuses equally undermine the Schengen area because unauthorised secondary movements 
undercut the very idea of free movement without internal borders. The Pact overhauls the 
European migration and asylum system, providing for more control over illegal migration, 
simplifying the rules and procedures on asylum, strengthening resilience and preparedness, 
and introducing instruments dedicated to managing possible future crises.  

Preventing  illegal  migration,  protecting  people  fleeing  war  and  persecution  and 
encouraging talent mobility is in the mutual interest of the EU and its partners. While the 
Union continues to work on improving its migration management systems, the key to its 
success lies in good cooperation with partner countries outside the EU. In the end, no 
country can address the challenges of this global phenomenon on its own and all partners 
should play their role in a whole-of-route approach. While continuing to be grounded in a 
solid internal framework, going forward the European migration policy should increase its 
focus  on  cooperation  with  partner  countries.  The  Commission,  in  cooperation  with 
Member States, in a Team Europe approach, will redouble its efforts in that direction. 

The  Union  remains  an  attractive  destination  for  tourists,  students,  researchers  and 
workers,  with  more  than  90%  of  non-EU  nationals  arriving  to  the  EU  in  a  legal  and 
controlled manned. This has contributed to our economies, our societies and shaped our 
cultures. In 2024, 1.7 million people came to the EU legally to work and study (7). The 
recent digitalisation of the EU’s border management and visa policies are improving the 
experience  of  travellers  by  reducing  waiting  times  and  streamlining  procedures,  while 
maintaining the highest security standards. 

The EU is an open, globally connected continent, with an ageing and shrinking working 
population  and  today  is  facing  labour  and  skills  shortages  in  many  sectors.  To  keep 
growing economically, foster competitiveness and promote open strategic autonomy, the 
Union must become a global magnet for attracting and retaining talent. For this purpose, 
the  Union  and  its  Member  States  should  address  the  bottlenecks  that  slow  down  our 
systems, including related to visa processing and recognition of qualifications, and upscale 
strategic cooperation with partners to facilitate talent’s access to the Union and Member 
States, promoting the arrival of students,  researchers and workers at  all skills  levels,  as 
well as maximising the human potential of all who are already here.  

(5)  Temporary protection for persons fleeing Ukraine - monthly statistics - Statistics Explained - Eurostat  
(6)  https://ec.europa.eu/eurostat/web/interactive-publications/migration-2025#international-protection;  top 

3 countries of origin are Syria, Afghanistan and Venezuela. 

(7)  https://ec.europa.eu/eurostat/statistics-

explained/index.php?title=Residence_permits_%E2%80%93_statistics_on_authorisations_to_reside_a
nd_work 

2 

 
 
 
A  longer-term  perspective  should  also  take  account  of  ongoing  technological 
developments, which are opening new, still untapped opportunities for more effective and 
safe migration processes. The Strategy aims to harvest the potential of digitalisation and 
Artificial  Intelligence  (AI)  in  migration  and  asylum  to  provide  Member  States  with 
modern, secure and efficient tools to improve the quality, consistency and timeliness of 
decision making, and to enhance security, while improving services for people.  

This Strategy was developed in accordance with the Asylum and Migration Management 
Regulation (8) and builds upon the national strategies submitted by the Member States (9) 
in line with that Regulation (10) and takes into account the views expressed by the European 
Parliament (11), the Member States, and various stakeholders, including the expertise of 
the EU Agencies. It aims to deliver a vision for a European migration and asylum policy 
that strengthens the EU’s cohesion, seeks innovative ways forward, and asserts the EU’s 
regional and global role over the next five years. The actions under this Strategy are rooted 
in the respect of fundamental rights in accordance with the Charter and in full respect of 
our international obligations. 

To achieve the main objectives of this Strategy – preventing illegal migration, protecting 
those in need and attracting talent to the EU – the Union should pursue the following five 
priorities: 

Stepping up 
Migration 
Diplomacy

Strong EU borders 
to enhance control 
and security 

A fair, firm and 
adaptable asylum 
and migration 
system

More effective 
return and 
readmission

Labour and talent 
mobility to boost 
competitiveness 

2.  STEPPING UP MIGRATION DIPLOMACY  

Building on the tangible results of recent years, the Union’s focus over the coming five 
years  needs  to  be  on  continuing  to  prevent  people  from  putting  their  lives  at  risk  in 
dangerous journeys, to sustain the reduction in illegal arrivals to the EU, and to reduce 
the pressure on the asylum and migration systems by supporting the implementation of the 
reforms  introduced  by  the  Pact  and  promoting  globally  the  respect  of  migrants  and 
refugees’ fundamental rights.  

The  ongoing  work  to  equip  the  Union  with  a  modern,  fair  and  efficient  migration 
management  and  asylum  system  must  go  hand-in-hand  with  an  effective  migration 
diplomacy that promotes the interests of the Union and stays true to European values. 
It needs to be rooted in the principle that managing migration is a joint responsibility, with 

(8)  Article 8 of the Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 
2024  on  asylum  and  migration  management,  amending  Regulations  (EU)  2021/1147  and  (EU) 
2021/1060 
ELI: 
http://data.europa.eu/eli/reg/2024/1351/oj.  

Regulation 

604/2013; 

repealing 

(EU) 

and 

No 

(9)  25 Member States submitted their national strategies to the Commission; Denmark is not bound by the 

obligation to submit a national strategy, while Hungary informed that it will not submit one. 

(10)  Article 7 of the Asylum and Migration Management Regulation. 
(11)  Hearing of the LIBE committee of 4 December 2025. 
3 

 
 
 
 
 
all actors along the migratory routes having their role to play. Over the next five years, this 
principle  will  guide  the  Union’s  action  in  strengthening  the  existing  comprehensive 
partnerships and launching new ones with key countries of origin and transit of migration, 
as well as with the main host countries of refugees, building trust with our partners, and 
promoting the role of the EU as a central actor in the global debate and efforts to manage 
migration. The Union continues to shape its relations with third countries on migration-
related  matters  promoting  its  values  and  interests  and  cooperating  with  partners  in 
managing the pressures related to migration in a mutually beneficial manner, as it is in our 
common interest to work together to respond to this shared challenge. 

Migration  diplomacy  should  be  comprehensive,  contributing  to  better  preventing  and 
controlling irregular departures, dismantling migrant smuggling networks and addressing 
root causes of migration, providing protection close to the place of origin, and offering 
resettlement and other complementary pathways to people in need of protection. It should 
also ensure the swift and effective return and readmission of own nationals with no right 
to stay in the Union, and, on the other hand, help attract workers, students and researchers 
with  the  skills  and  talent  that  would  support  European  competitiveness,  while  also 
contributing to the economic development of the countries of origin. 

These principles are already reflected in the partnerships the EU has been establishing 
with third countries in the past years, notably with Egypt, Jordan, Mauritania and Tunisia. 
These  are  also  integral  to  the  Pact  for  the  Mediterranean (12),  which  promotes  a 
partnership-based  and  whole-of-the-route  approach  to  migration,  as  part  of  an  overall 
comprehensive strategy that strengthens our relations with our Southern neighbourhood 
partners. The Union should continue to promote this approach as it offers further stability, 
real  opportunities,  and  ensures  cooperation  on  effective  and  rights-based  migration 
governance between the EU and partners along the different routes. 

It is important that the EU and its Member States pursue an assertive migration diplomacy 
by reinforcing the links with other policies and using leverages and incentives, in line 
with the calls of the European Council (13) over the last years. The toolbox at the Union’s 
disposal includes visa policy, by means of the mechanism of Article 25a of the Visa Code 
and the Visa Suspension Mechanism, as well as trade, through the recently agreed revision 
of  the  Generalised  Scheme  of  Preference  Regulation,  which  will  give  the  possibility  to 
temporarily withdraw trade preference in  case of a lack of cooperation on readmission. 
This toolbox should also extend to external financing, as proposed by the Commission in 
the Global Europe Regulation for the next Multiannual Financial Framework 2028-2034. 
It should be combined with EU Member States’ bilateral tools, leverages and incentives to 
be mobilised in support of joint EU actions. The Commission and the High Representative 
will explore possible new incentives and leverages in other policy areas as well, to promote 
the EU interest and create new opportunities for international cooperation.  

The Union will continue to actively engage in relevant multilateral fora to build reliable 
partnerships and improve global migration governance. This includes the International 
Migration  Review  Forum  of  the  United  Nations  Global  Compact  on  Safe,  Orderly  and 
Regular Migration expected in May 2026, and continuing support to the implementation 
of the Global Compact for Refugees. It will also engage with the Council of Europe on 
addressing current challenges posed by illegal migration and migrant smuggling (14). The 
Commission  will  contribute  to  the  ongoing  reflection  of  the  Council  of  Europe  in  the 

(12)  Joint  Communication  to  the  European  Parliament  the  Council  the  European  Economic  and  Social 
Committee and the Committee of the Regions – The Pact for the Mediterranean – One Sea, One Pact, 
One Future, https://eur-lex.europa.eu/legal-content/EN/TXT/HTML/?uri=CELEX:52025JC0026.  

(13)  European Council, 20 March 2025, Conclusions, paragraph 25, EUCO 1/25. 
(14)  Migration challenges: Council of Europe ministers call for political declaration on rights - Portal 

4 

 
 
 
context  of  the  initiative  launched  during  the  informal  Ministerial  Conference  of  10 
December  2025  on  the  application  of  the  European  Convention  of  Human  Rights  fully 
taking into account both the objectives of protecting rights and ensuring security. 

To tackle the root causes that lie behind illegal migration, the Union and its Member States 
will continue working on addressing global poverty, promoting economic  development, 
and  boosting  peace  and  security,  notably  by  continuing  to  support  the  United  Nations 
system, engaging  actively in current reforms, where appropriate, and aiming to provide 
needed support in the face of unprecedented resource gaps, in line with EU interests.  

Whole-of-route approach and deepening cooperation with the EU neighbourhood 

The  Commission  will  continue  to  promote  a  whole-of-route  approach  to  address  the 
multi-faceted challenges of mixed migration movements of economic migrants and people 
seeking  protection,  and  support  third  countries  in  reinforcing  their  migration,  border 
management,  asylum and returns systems, including  to  build their capacities to  provide 
adequate  reception  and  protection  solutions  for  asylum  seekers  and  refugees,  focusing 
primarily on countries close to migrants’ places of origin. Actions will be tailor-made to 
each  context  and  may  range  from  efforts  to  counter  migrant  smuggling  and  human 
trafficking,  border  management,  registration,  providing  protection  and  strengthening 
service  provision  systems  that  include  host  communities,  as  well  as  managing  legal 
pathways and ensuring swift, safe and dignified return and readmission and sustainable 
reintegration.  

Continuous  close  cooperation  with  international  organisations,  such  as  the  United 
Nations High Commissioner for Refugees (UNHCR), the International Organization for 
Migration (IOM) and other relevant international governmental organisations, will be key 
to  support  the  whole-of-route  approach  to  match  the  needs  of  the  EU’s  increased 
international engagement. The Commission aims to support innovative ways to promote 
safe spaces for protection of asylum seekers and refugees closer to their countries of origin, 
to help prevent dangerous journeys that lead to loss of life along the routes, and to support 
voluntary return and reintegration programmes from third countries to countries of origin. 
The  whole-of-route  approach  could  include  the  possible  setting  up  or  strengthening  of 
existing (15) multi-purpose centres along the main migratory routes, in agreement with 
the third country concerned and in cooperation with international organisations.  

EU  candidate  countries  and  potential  candidates  should  also  play  a  role  in  migration 
management. The establishment of efficient asylum and migration management systems, 
and the alignment of migration, visa and border management policies with those of the EU 
are a necessary precondition for accession to the Union. The EU should especially maintain 
deep cooperation and support enlargement partners with a focus on strengthening border 
management,  fighting  migrant  smuggling  and  trafficking  in  human  beings,  supporting 
alignment  with  the  EU  acquis  on  migration,  asylum  and  visa  policies  and  enhancing 
readmission and returns. The European Union Agency for Asylum (EUAA), the European 
Border  and  Coast  Guard  Agency  (Frontex)  and  Europol  will  continue  to  support  and 
cooperate  with  partners.  The  EU  Action  Plan  on  the  Western  Balkans  has  already 
contributed to a significant decrease of illegal border crossings along the Western Balkans 
route and cooperation should continue under this framework.  

Preventing dangerous journeys and saving lives 

(15)  For example, within the framework of the Migration Protection, Return and Reintegration Programme 
https://international-

for 
partnerships.ec.europa.eu/policies/programming/projects/migrant-protection-return-and-reintegration-
programme-sub-saharan-africa-mprr-ssa_en.  

(MPRR-SSA) 

Sub-Saharan 

Africa 

5 

 
 
 
Migrant  smuggling  is  a  heinous,  often  transnational,  crime  that  exploits  people, 
endangering their lives and dignity, for the economic benefit of criminal networks, or that 
is used by state actors aiming at undermining the security of the Union. It undermines our 
migration management system and challenges the protection of our external borders. The 
EU  and  its  Member  States,  not  criminal  organisations,  must  be  the  ones  deciding  who 
comes to the Union and under which circumstances.  

To disrupt the business model of smugglers, prevent irregular departures and the loss of 
lives, the EU needs to continue its efforts to strengthen the capacities of our partners to 
control and manage borders upon entry and exit, and to deploy their search and rescue 
capacity,  to  minimise  incidents  and  protect  people  against  severe  risks.  The  earlier  the 
intervention along the route, the higher the chances to prevent incidents and deaths. Recent 
EU initiatives have translated into a more effective prevention of dangerous journeys.  

To  respond  efficiently,  the  EU  also  needs  to  work  on  strengthening  international 
cooperation, making the Global Alliance to Counter Migrant Smuggling a robust, long-
term  cooperation  framework  that  brings  together  stakeholders  to  prevent  migrant 
smuggling, respond to it, and create safe alternatives to illegal immigration. 
Building  on  the  first  two  years  of  the  implementation  of  the  Global  Alliance,  the  2nd 
International Conference of the Global Alliance on 10 December 2025 paved the way for 
the  establishment  of  a  structured  cooperation  to  match  the  Union’s  higher  ambitions. 
Partners who endorsed the Joint Declaration (16) committed to a set of shared principles, 
commitment and responsibility to strengthen international cooperation in tackling migrant 
smuggling collectively  and globally  in a ‘whole of route’ approach, and in  the spirit of 
shared responsibility. Annual Senior Officials’ meetings will drive the follow-up work to 
implement  the  priorities  and  foster  enhanced  coherence  and  joint  planning,  while 
Ministerial  Conferences  will  ensure  sustained  political  leadership.  This  will  step  up 
coordination  and  increase  the  impact  of  various  regional  and  thematic  initiatives  (e.g. 
Budapest, Khartoum, Niamey, Prague and Rabat processes, Eurofront and El Pacto with 
Latin  America  and  the  Caribbean),  as  well  as  the  G7  and  the  work  carried  out  by  the 
UNODC  and  the  Council  of  Europe),  with  the  aim  of  further  streamlining  actions  and 
fostering synergies. 

Smuggling  networks  abuse  digital  platforms,  crypto  assets  and  other  technologies  to 
promote  their  illicit  activities,  fuel  their  operations  and  hide  illegal  gains.  One  of  the 
priorities of the Global Alliance will be to counter ‘digital smuggling’, stepping up the 
engagement  with  digital  platforms  and  tech  providers.  At  the  same  time,  we  need  to 
leverage technology to our advantage, by equipping law enforcement authorities with new 
tools and technologies, including AI-driven analytic capacities, to process and connect vast 
datasets, to allow law enforcement to stay always one step ahead of smugglers. To this 
end,  Europol,  recently  reinforced  with  its  Centre  Against  Migrant  Smuggling (17),  will 
enhance  its  operational  activity  in  the  fight  against  the  online  footprint  of  migrant 
smugglers.  The  Commission  will  also  deepen  its  strategic  partnership  with  the  United 
Nations Office on Drugs and Crime (UNODC) to tackle the online dimension of migrant 
smuggling and disrupt illicit financial flows through a “follow the money” approach. This 
requires  the  use  of  financial  intelligence  and  secure  information-sharing  to  identify 
criminal actors at every level.  In addition, state of the art digital identification and trust 
services can facilitate the application of new measures to combat fraud and identity theft, 
as well as to support the digitalisation and automation of border controls. 

(16)  https://home-affairs.ec.europa.eu/document/download/54b4208d-d928-4177-aac3-

c70c4f6b2745_en?filename=Global%20Alliance%20Joint%20Declaration_final.pdf 

(17) IP_25_2229_EN.pdf 

6 

 
 
 
The use of commercial means of transport, mainly by air, is now an established modus 
operandi of migrant smuggling networks, which are bringing migrants to third countries 
close  to  or  bordering  the  EU,  where  migrants  then  attempt  to  enter  the  EU  illegally. 
Building on the successful results achieved with a toolbox (18) addressing these activities, 
the  EU  will  engage  with  key  stakeholders  on  the  follow-up  to  the  International  Civil 
Aviation Organization (ICAO) Working Paper (19), with the aim of developing common 
approaches and exploring joint actions that could be endorsed by key partner countries and 
aviation stakeholders, including in the context of ICAO. 

As part of the efforts to equip countries along the migratory routes with the necessary tools 
to manage migration and fight migrant smuggling, the EU will support partners in building 
the necessary capacity to strengthen the judicial and law enforcement responses, and 
establish solid channels of cooperation, including through joint investigation teams. These 
efforts  will  aim  to  ensure  more  effective  detection,  investigation,  and  prosecution  of 
smuggling  networks.  Ultimately,  this  should  lead  to  a  higher  number  of  successful 
prosecutions  and  meaningful  sanctions,  making  migrant  smuggling  a  riskier,  more 
complex, and less profitable criminal activity. The EU should be able to rely on a network 
of  partners  engaged  in  countering  migrant  smuggling  along  the  routes,  to  get  real-time 
intelligence and information on migratory flows, helping the countries along the routes to 
be prepared. The Commission, acting in coordination with Member States, will cooperate 
with Interpol, Europol, Eurojust, Frontex and key international organisations, also relying 
on the support of the European Network of Immigration Liaison Officers.  

A serious challenge posed by migrant smuggling is that the criminals who organise and 
conduct those activities often reside outside the EU and are therefore outside the reach of 
the jurisdiction of the Member States. In parallel to the proposal being discussed by the 
European Parliament and the Council to reinforce the EU law framework on preventing 
the  facilitation  of  illegal  migration  (20),  the  EU  is  developing  a  new  sanctions  regime 
targeting migrant smugglers and traffickers, particularly high-value criminal actors, with 
the aim of freezing their assets, depriving them of profits and restricting their ability to 
enter the EU, in full complementarity with criminal justice measures.  

The EU strategic and comprehensive partnerships with Egypt, Jordan and Tunisia, and 
the migration partnership with Mauritania, as well as an increased engagement with key 
partners,  including  Lebanon,  Morocco,  Senegal  and  Türkiye,  have  contributed  to  a 
significant decrease in the number of illegal crossings observed on the Eastern and Central 
Mediterranean and Atlantic routes (21). The Commission is also developing its support to 
Libya on search and rescue capacity and actions related to protection, humanitarian returns 
and  evacuations,  in  line  with  international  law  and  the  respect  of  human  rights.  The 
Commission, in cooperation with all relevant stakeholders,  will continue  engaging with 
third  countries  to  strengthen  search  and  rescue  efforts,  combat  migrant  smuggling  and 
human  trafficking,  protect  displaced  persons,  and  improve  cooperation  on  return  and 

(18)  Toolbox addressing the use of commercial means of transport to facilitate irregular migration to the 

EU, https://home-affairs.ec.europa.eu/toolbox-addressing-use-commercial-means-transport-facilitate-
irregular-migration-eu_en 

(19)  https://www.icao.int/sites/default/files/Meetings/a42/Documents/WP/wp_449_en.pdf 
(20)  Proposal for a Directive of the European Parliament and of the Council laying down minimum rules to 
prevent and counter the facilitation of unauthorised entry, transit and stay in the Union, and replacing 
Council  Directive  2002/90/EC  and  Council  Framework  Decision  2002/946  JHA;  EUR-Lex  - 
52023PC0755 - EN - EUR-Lex. 

(21)  Annual Asylum and Migration Report (2025), based on Frontex data, between 1 July 2024 and 30 June 
2025,  arrivals  along  the  Central  Mediterranean,  Atlantic  route  and  Eastern  Mediterranean  route 
decreased by 40%, 25% and 11% respectively compared to the previous reporting period.  

7 

 
 
 
readmission  from  the  EU  and  from  other  third  countries,  ensuring  full  respect  of 
fundamental rights and international obligations. 

The rising number of migrants smuggled across the English Channel from France to the 
United Kingdom calls for a robust response to tackle illegal migration and fight organised 
crime, while doing our utmost to prevent further loss of life at sea. Following up on the 
joint statement of the EU-UK Leaders’ Summit in May 2025, and in the context of the 
Global Alliance to Counter Migrant Smuggling, the EU is increasing cooperation with the 
United  Kingdom.  In  this  context,  the  pilot  project  agreed  by  France  and  the  United 
Kingdom, and supported by the Commission, is useful to deter these dangerous journeys 
and address this challenging situation at the EU’s external border. 

Supporting partner countries in strengthening their asylum and protection systems   

At  the  end  of  June  2025, more  than  117  million  people worldwide  were  forcibly 
displaced (22). This figure has nearly doubled in the past decade, reflecting nearly a decade 
of year-on-year increases. Two-thirds of those who are forced to leave stay in neighbouring 
areas, often hosted in low- and middle-income countries. Remaining in the region where 
effective protection is granted benefits displaced persons and refugees as it diminishes the 
risks of dangerous journeys and related human suffering and helps States in managing the 
challenges of migration in line with international obligations.  

Building  on  the  results  achieved  under  NDICI-Global  Europe, the  Commission  will 
continue  to  support  programmes  to  strengthen  national  asylum  systems,  reception  and 
protection frameworks and  migration  management  in  third  countries.  Support  will  be 
provided  for  legal  and  institutional  reforms  and  capacity  building  for  refugee  status 
determination, registration and documentation systems in several partner countries. This 
work  will  be  further  linked  to  regional  dialogues  and  partnerships  with  key  origin  and 
transit countries. In addition, the Commission will continue to provide protection services 
and durable solutions to forcibly displaced people.  

Promoting pathways to protection 

Opening legal pathways to protect people in need of protection is a tangible demonstration 
that the EU is assuming its global responsibilities. At the same time, legal pathways serve 
the objective of managing arrivals in an orderly and secure manner, taking smugglers and 
dangerous journeys out of the equation. It is also a strategic tool that can strengthen EU 
cooperation with partner countries, as part of a holistic, comprehensive and whole-of-route 
approach to migration management. These pathways help alleviate the pressure on those 
partners,  fostering  capacity  to  improve  their  reception  and  international  protection 
conditions, and complement our policies aiming to prevent dangerous onward movements 
from  the  countries  of  origin.  It  should  therefore  be  embedded  within  the  broader 
cooperation  framework  with  partner  countries.  Therefore,  the  EU  should  step  up  its 
ambitions  on  resettlement  and  humanitarian  admission,  as  an  integral  part  of  its 
migration diplomacy toolbox. 

Overstretched capacities of national reception systems, as well as other significant political 
and financial factors, have resulted in a reduction of the places the EU Member States are 
able  to  offer  for  the  period  2026  -  2027  in  the  Union  Resettlement  and  Humanitarian 
Admission  Plan  (23).  However,  a  more  effective  management  of  migration  with  the 

(22)  UNHCR - Refugee Data Finder - Key Indicators, https://www.unhcr.org/refugee-statistics 
(23)  Council Decision (EU) 2025/702 of 17 March 2025 authorising the European Commission to take part, 
on behalf of the Union, in the negotiations for an international instrument setting up an International 
Claims Commission for Ukraine; ELI: http://data.europa.eu/eli/dec/2025/702/oj. 

8 

 
 
 
implementation of the Pact should create the conditions for more ambitious resettlement 
and humanitarian admission plans over the next years. 

Supporting returns from third countries 

Since  2016,  the  EU  has  significantly  increased  its  support  to  sustainable  voluntary 
returns from transit countries to the migrants’ countries of origin. This has helped third 
countries reduce pressure on their systems and reduce the number of illegal arrivals to the 
EU.  It  has  also  offered  an  opportunity  for  migrants  stranded  without  a  perspective  of 
protection  and  no  means  to  return  by  themselves,  shielding  them  from  the  abuses  of 
smugglers.  The  financial  support  provided  under  the  current  Multiannual  Financial 
Framework NDICI-Global Europe instrument amounts so far (2021-2025) to over EUR 1 
billion, to support return from third countries and reintegration, as well as to build third 
countries’  ownership  and  capacities  to  manage  reintegration  through  national  referral 
mechanisms,  in  North  Africa,  Sub-Saharan  Africa  as  well  as  in  Asia.  One  of  the  key 
programmes for supporting the return and reintegration of third country nationals is the 
Migrant  Protection  Return  and  Reintegration  Programme  (MPRR).  It  contributes  to  the 
protection of vulnerable and stranded migrants, including through assisted voluntary return 
from North Africa and the Sahel, and their sustainable reintegration in Sub-Saharan Africa. 
The MPRR has supported the return of over 127 500 individuals and the reintegration of 
over 106 600 between December 2022 and November 2025. Overall, within the framework 
of the current NDICI-Global Europe, the MPRR in both North of Africa and Sub-Saharan 
Africa has so far received over EUR 650 million, out of the total of EUR 1 billion allocated 
to return and reintegration under the NDICI-Global Europe between 2021 and 2025 (24). 
Supporting  voluntary  returns  towards Sub-Saharan  Africa  and  other  key  countries  of 
origin, as well as efforts to develop national reintegration systems, will remain important 
components of the EU migration diplomacy.  

The  Commission  will  further  promote  assisted  voluntary  return  and  reintegration 
from  third  countries  in  the  context  of  its  strategic  cooperation  with  third  countries, 
working  in  cooperation  with  the  Member  States and  the  third  countries  concerned,  and 
with the support of the Frontex EU reintegration programme and international actors such 
as IOM. Actions to reinforce voluntary returns from third countries go hand in hand with 
the efforts to reinforce return and readmission of third country nationals illegally staying 
in the EU (see section 5). 

3.  STRONG EU BORDERS TO ENHANCE CONTROL AND SECURITY 

Maintaining the integrity of the Union’s external borders and of the Schengen area as 
an  area  without  internal  border  controls  is  a  key  element  of  an  integrated  and 
comprehensive approach to migration management.  

To achieve this, the Union needs to maintain strong external borders that can guarantee 
security and order, ensure effective control over who enters (25) and stays in the Union 
legally, while preventing illegal entries and stays. Together with a robust legal framework 
that prevents abuses and unauthorised secondary movements within the EU as introduced 
by the Pact, the effective protection of the EU’s external borders should also improve the 

(24)  Migrant Protection, Return and Reintegration Programme for Sub-Saharan Africa (MPRR-SSA) - 

International Partnerships, https://international-
partnerships.ec.europa.eu/policies/programming/projects/migrant-protection-return-and-reintegration-
programme-sub-saharan-africa-mprr-ssa_en 

(25)  The underlying rule, set by the Schengen Border Code (Art. 5(3)) remains that external borders should 

be crossed only at border crossing points, otherwise facing the risk of penalties. 

9 

 
 
 
situation at the EU’s internal borders, facilitate the functioning of the Schengen area, and 
reinforce mutual trust between Member States. 

At  the  same  time,  new  challenges  are  constantly  emerging  at  the  borders,  affecting  the 
security and territorial integrity of the Union and its Member States. Since 2021, the hybrid 
threats  linked  to  the  instrumentalisation  of  migrants  and  the  weaponisation  of 
migration by Russia and Belarus have further intensified in the context of Russia’s war of 
aggression against Ukraine. The Union cannot allow hostile actors to abuse its values and 
principles, including  the right  to  asylum, and undermine  its democracies.  As part of its 
response, including  diplomatic  outreach  and legislative work,  in  2024, the Commission 
issued a Communication (26) in support of EU Member States countering hybrid threats 
from the weaponisation of migration and to strengthen security at the EU’s external borders 
and provided funding to enhance their border surveillance capabilities. Over the next five 
years,  the  Union  must  continue  to  be  fully  prepared  to  tackle  emerging  challenges  or 
threats.  

The Union plans to further develop a robust and effective European Integrated Border 
Management (EIBM), presenting the second EIBM Strategy in 2028, supported by state-
of-the-art information technologies and infrastructures, with Frontex and eu-LISA as its 
operational arms. The revision of the Frontex Regulation planned for 2026, will explore 
how to further strengthen the Agency’s mandate in the area of border protection and how 
to  reinforce  its  standing  corps,  allowing  it  to  expand  its  presence  and  strengthening  its 
operational support to the Member States and third countries. 

A more effective control of access to the EU territory and the Schengen area 

With the gradual roll-out of the Entry/Exit System (EES) started in October 2025, the EU 
is putting into operation the most advanced digital border management system in the world. 
The EES is transforming border control by improving the ability to monitor entries into 
and exits from the EU, as well as who overstays the allowed period, and improving the 
flow  of  information  between  systems  and  authorities,  ensuring  a  more  efficient  and 
effective response to evolving migration and security challenges. 

As a next step, the Union is focused on launching the new migration management database 
(Eurodac)  by  mid-2026,  as  well  as  the  European  Travel  Information  and  Authorisation 
System  (ETIAS)  by  end-2026.  The  full  roll-out  of  interoperability  of  all  systems, 
including the Visa Information System (VIS), is planned for the coming years. 

To deliver on this digital transformation, eu-LISA, the EU’s Agency for the management 
of large-scale  IT systems,  will remain central.  The  MFF proposal  foresees a significant 
increase of its resources to give the Agency the necessary means to develop and put into 
operation all the components of the large-scale IT systems under its remit. 

Moreover, as of mid-2026, Member States will start, as part of the implementation of the 
Pact, with the screening of third-country nationals arriving to the EU without fulfilling 
the conditions for entry into the Schengen area. This will make sure that people arriving 
illegally at EU external borders undergo identity, security, health and vulnerability checks 
and  will  be  channelled  towards  the  appropriate  procedure.  In  this  regard,  the  major 
overhaul of Eurodac in mid-2026, the EU’s central biometric database, will provide the 
authorities  with  a  migration  management  IT-system  to  comprehensively  and  digitally 
oversee,  manage  and  control  asylum  and  migration  in  the  EU.  The  new  mandatory 
asylum  and  return  border  procedures  will  strengthen  control  over  our  borders, 

(26)  Communication from the Commission to the European Parliament and the Council on countering hybrid 
threats from the weaponisation of migration and strengthening security at the  EU’s external borders; 
https://eur-lex.europa.eu/legal-content/EN/TXT/HTML/?uri=CELEX:52024DC0570.  

10 

 
 
 
reinforcing our ability to prevent illegal entry, and making our asylum and return systems 
more effective. Applicants who are unlikely to obtain protection in the EU, who have been 
identified as posing a risk to the EU’s internal security, or who mislead authorities, will 
not be allowed to enter the Union and  will be processed at the border swiftly. National 
independent  monitoring  mechanisms  will  monitor  the  respect  of  fundamental  rights, 
including the rights of the child, during the screening and the asylum border procedure. 

Leveraging technology for the Union’s border management and protection 

In the next five years, the Union will continue building its intelligence-driven capacities 
to  protect  its  external  borders  and  ensure  comprehensive  situational  awareness  and 
appropriate  reaction  capacity.  To  that  end,  EUROSUR  already  provides  state-of-the-art 
surveillance  and  enhances  the  Union’s  ability  to  monitor  and  control  the  common 
Schengen  external  borders  through  near  real-time  exchange  of  information  related  to 
illegal  migration  and  cross-border  crime.  Further  enhancements  in  the  functioning  of 
EUROSUR as well as the use of modern technologies in border surveillance, including 
tactical use of drones and counter-drone capabilities, will be key. The Commission will 
assess  how  Frontex  could  support  Member  States  in  purchasing  such  equipment  and 
provide the necessary training. In addition, the Common Information Sharing Environment 
(CISE),  which  enables  structured  and  secure  information  sharing  among  EU  maritime 
authorities, will continue playing a role in increasing awareness of maritime activities and 
supporting responses to illegal migration. 

New initiatives will further drive the digitalisation of the EU’s border management and 
facilitate the entry of bona fide travellers. The digitalisation of visa procedures, agreed in 
June 2023 and to be implemented by 2030, will make it easier for travellers to apply for a 
Schengen  visa  and  for  national  authorities  to  process  applications  more  swiftly.  At  the 
same  time,  the  proposed  digitalisation  of  travel  documents  (27),  once  adopted  by  the 
European  Parliament  and  the  Council,  including  by  leveraging  the  EU  Digital  Identity 
Wallet, will further confirm the EU’s position as a global leader in secure, efficient, and 
traveller-friendly  border  management.  The  Commission  will  also  propose  updated  EU 
rules on the uniform format for residence permits for third country nationals to address 
security gaps and other challenges (28). 

The deployment of new technologies, including trustworthy and human-centric Artificial 
Intelligence (AI) tools, should be prioritised both at Union and national levels, to anticipate 
developments,  and  to  reinforce  the  preparedness  and  resilience  of  EU  external  borders. 
This  includes  models  to  assist  the  identification  of  assets  or  vessels  that  demonstrate 
irregularities requiring further verifications or investigations (such as connected to distress 
or irregular activities). This will help to support counter-smuggling activities or search and 
rescue; to improve recognition of objects like vehicles or vessels; to swiftly analyse large, 
heterogeneous  data  and  to  carry  out  biometric  recognition  used  for  secure  and  reliable 
controls and travel facilitation as well as fighting identity theft. Many of these tools are 
being developed and will continue to be developed with the support of the Commission’s 

(27)  Proposal for a Regulation of the European Parliament and of the Council establishing an application for 
the electronic submission of travel data (“EU Digital Travel application”) and amending Regulations 
(EU)  2016/399  and  (EU)  2018/1726  of  the  European  Parliament  and  of  the  Council  and  Council 
Regulation  (EC)  No  2252/2004,  as  regards  the  use  of  digital  travel  credentials;  https://eur-
lex.europa.eu/legal-content/EN/TXT/?uri=celex:52024PC0670.  

(28)  Challenges  affecting  Member  States  include  sudden  increases  in  migratory  flows  (leading  to  a  high 
number of cards having to be issued in a short time, as well as high costs), fluctuations in global supply 
chains for production of the blank cards,  and shortages of certain components needed for production. 
These  challenges  became  prominent  during  the  COVID-19  pandemic  and  after  Russia’s  full-scale 
invasion of Ukraine. 

11 

 
 
 
research and development programmes (29), striving to develop them based on European 
solutions.  

The  Commission  will  harness  AI  to  analyse  data  and  identify  trends  at  the  external 
borders, helping authorities share information through more advanced tools and anticipate 
and respond to  developments and risks, in  line  with  the EU  AI  Act  (30).  Together  with 
Frontex, eu-LISA and the Member States, the Commission will develop, test and, where 
appropriate,  support  the  deployment  of  AI-supported  tools  for  risk  analysis,  situational 
awareness  and  identity  management  at  the  external  borders.  Under  the  research  and 
innovation  component  of  EIBM  of  the  Frontex  Regulation (31),  Frontex  will  use  its 
research  and  innovation  tasks  to  plan  and  implement  pilot  projects,  test  and  validate 
technology solutions  in  operational  settings,  and  share the results, guidance and  related 
training  with  national  authorities.  The  EU  will  also  develop  an  independent  European 
capacity  for  automated  identity  recognition  systems,  for  the  purpose  of  migration  and 
border management, building on the existing large-scale IT systems in this area. Any AI 
components of such systems will be developed and deployed in line with the relevant EU 
rules, while aiming to reduce strategic dependencies on non-EU providers. 

4.  A FIRM, FAIR AND ADAPTABLE ASYLUM AND MIGRATION SYSTEM  

The Pact on Migration and Asylum is a key reform establishing a solid legal foundation 
for  a  fair  and  more  efficient  way  of  managing  migration.  It  brings  a  comprehensive 
approach that aims to strengthen EU policy on asylum, migration and border management. 
It sets out fast and efficient procedures for asylum, with strong safeguards for applicants, 
and enhances processes inside the Union and at its external borders. With the Pact, the EU 
is  putting  in  place  an  effective  system  of  solidarity  and  responsibility  to  collectively 
manage migration, where no Member State is left alone under pressure. A system that is 
fair and well managed, that safeguards against abuse, protects children, vulnerable persons 
and individuals’ fundamental rights and allows the Union to meet the challenges  in the 
area of migration and asylum.  

The next five years will therefore require a continued focus on the implementation and 
operationalisation of the Pact. Its implementation in Member States is now well underway 
and given the scale of reforms, the coming years will be pivotal in consolidating the new 
asylum and migration management systems across the Union, also taking into account the 
case-law of the Court of Justice of the European Union and the European Court of Human 
Rights. The Pact is also the necessary foundation on which we can build further. The 
Commission will look at measures to introduce innovative aspects, strengthen operational 
coordination, and fully leverage the opportunities provided by the new legal framework to 
make asylum procedures more efficient and sustainable. This work will be grounded in the 
need for Union policies to remain agile and adaptable and anticipate where improvements 
and complementary initiatives are necessary.  

A ‘whole-of-government’ approach and a coordinated effort across various government 
departments and agencies will be necessary, both at Union and Member States’ level. This 
should  ensure  cross-agency  collaboration,  fostering  mutually  supportive  and  consistent 

(29)  Study  on  strengthening  EU-funded  security  research  and  innovation  –  20  years  of  EU-Funded  Civil 

Security Research and Innovation – Final report; https://data.europa.eu/doi/10.2837/0004501. 

(30)  Regulation (EU) 2024/1689 of the European Parliament and of the Council of 13 June 2024 laying down 
harmonised  rules  on  artificial  intelligence  and  amending  Regulations  (EC)  No  300/2008,  (EU)  No 
167/2013,  (EU)  No  168/2013,  (EU)  2018/858,  (EU)  2018/1139  and  (EU)  2019/2144  and  Directives 
2014/90/EU,  (EU)  2016/797  and  (EU)  2020/1828  (Artificial  Intelligence  Act)  (Text  with  EEA 
relevance), ELI: http://data.europa.eu/eli/reg/2024/1689/oj.  

(31)  In line, in particular, with articles 10(1)(x) and 66 of the Frontex Regulation. 

12 

 
 
 
implementation  of  the  policies  across  all  sectors  and  levels  of  government,  including 
regional and local ones.  

The judicial system needs to be adequately resourced and trained on the reforms for the 
good  functioning  of  the  overall  migration  and  asylum  system.  Seamless  coordination 
between the administrative processing of asylum applications and the judicial system will 
be especially important. By appropriately integrating administrative structures, systems for 
judicial  oversight,  and  communication  channels,  the  administrative  and  judicial  entities 
can expedite processes and minimise bottlenecks.  

Preparedness and  contingency  planning  are crucial to  manage  migration  more 
effectively  by  better  anticipating  emerging  situations.  The  Commission has  been 
strengthening  its  capacity  to  produce  projections  and  scenarios  on  future  arrivals  and 
applications  for  international  protection  and  is  developing  a foresight  capacity  that  can 
support  operational  and  policy  decisions,  as  well  as the  Member  States’ 
preparedness, contingency and resilience (32).  

A modern asylum system should also rely on the support of technological developments. 
By the end of the five-year period covered by this Strategy, Member States should be able 
to carry out their asylum procedures using digitalised case management systems, and new 
AI tools should be able to provide the necessary support to speed procedures, in line with 
the requirements of the EU AI Act.  

Implementing the Pact and ensuring that rules are fit for purpose 

The implementation of the Pact is a manifold process that involves multiple actors to 
translate the large set of legislative acts into operational reality. It will remain a strategic 
priority  over  the  next  five  years.  This  process  entails  addressing  any  further  legislative 
adaptations, 
the  resourcing  of  necessary  reforms  and  ensuring  full  practical 
operationalisation on the ground across all ten building blocks outlined in the Common 
Implementation Plan (33).  

The Commission set up a robust support structure, composed of 27 country teams, to assist 
Member States and ensuring coherence across the EU (34). An additional EUR 3 billion (35) 
were  made  available  to  support  Member  States  in  the  necessary  reforms  for  the 
implementation of the Pact. Tailored engagement will continue when the Pact starts to fully 
apply,  beyond  June  2026.  Throughout  this  process,  the  Pact  needs  to  be  dynamic  and 
adaptable to new and emerging challenges. 

To that end, in December 2025, the European Parliament and the Council agreed on two 
new measures to  complete and complement the  Pact, amending the ‘safe third country’ 
concept and establishing a Union list of safe countries of origin (36). The review scheduled 

(32)  This will be based on the Commission’s Joint Research Centre global foresight study to be published in 

2026.  

(33)  Communication from the Commission to the European Parliament, the Council, the European Economic 
and Social Committee and the Committee of the Regions Common Implementation Plan for the Pact on 
Migration and Asylum; EUR-Lex - 52024DC0251 - EN - EUR-Lex. 

(34)  In  addition,  the  Commission  supports  ten  Member  States  through  the  Technical  Support  Instrument 
(TSI) on the implementation of the Pact. Member States are also benefiting from peer learning and good 
practice exchanges set up in the context of the TSI; TSI 2025 Flagship - Supporting Member States with 
the implementation of the new Pact of Migration and Asylum - European Commission. 

(35)  This amount is being allocated on the top of the financial resources initially planned to be allocated to 

Member States under the Home Affairs financial instruments for the period 2021 – 2027. 

(36)  Proposal for a Regulation of the European Parliament and of the Council  amending Regulation (EU) 
2024/1348 as regards the establishment of a list of safe countries of origin at Union level and Proposal 
for a Regulation of the European Parliament and of the Council amending Regulation (EU) 2024/1348 

13 

 
 
 
 
for  2027  of  the  Asylum  and  Migration  Management  Regulation (37)  and  the  Asylum 
Procedure  Regulation (38)  will  be  the  opportunity  for  a  first  evaluation  of  how  the  new 
rules are working in practice, and whether further adjustments are needed. The EUAA’s 
new monitoring mechanism, to be launched in 2026, will also help identify discrepancies 
and challenges in the application of the asylum and reception rules and inform this review.  

Solidarity, alongside responsibility, is one of the main elements of the Pact. The Asylum 
and Migration Management Regulation provides effective support to Member States under 
migratory  pressure.  In  November  2025,  the  Commission  launched  the  first  annual 
migration management cycle, providing a comprehensive picture of the asylum, migration 
and  reception  situation  in  the  EU,  and  identifying  the  Member  States  under  migratory 
pressure, at risk of migratory pressure or facing a significant migratory situation (39). The 
Council established the first Solidarity Pool for 2026 (40). The Commission, in particular 
through  the  work  of  the  EU  Solidarity  Coordinator,  will  support  Member  States  in 
implementing the Solidarity Pool. The Commission is to launch the migration management 
cycle each year to provide effective support to the Member States facing pressure, while 
the Council is to establish the annual solidarity pool for every following year.  

Establishing effective and stable responsibility-sharing across the Union and reducing 
unauthorised secondary movements within its territory will remain a priority. Unauthorised 
secondary movements undermine the good functioning of the Pact as a whole and have an 
important impact on the Schengen area. It is therefore paramount to improve the status quo 
and counter unauthorised secondary movements. The legislative instruments of the Pact 
include  several  strong  measures  for  this  purpose,  notably  the  obligation  to  screen  all 
migrants arriving illegally and to register all applicants for international protection in the 
renewed Eurodac system, the mandatory border procedures for asylum and return, stronger 
rules to counter absconding, enhanced possibilities to reduce material reception conditions, 
such as when an applicant has absconded from the Member State responsible for them, or 
in other cases of non-cooperation. Effective transfers are of paramount importance for the 
well-functioning  and  credibility  of  the  Common  European  Asylum  System,  and  for 
limiting unauthorised secondary movements between Member States. The Pact creates a 
faster  and  more  predictable  system  for  transferring  persons  to  the  responsible  Member 
State. To that end, in 2026 the EUAA will explore how to best support these reforms. In 
addition,  the  Commission  plans  to  further  explore,  as  needed,  the  potential  impact  of 
different  reception  policies  across  the  EU  on  migrants’  movements,  both  towards  and 
within the EU.  

Modernising asylum procedures through digitalisation and the use of AI 

One  of  the  main  improvements  brought  by  the  Pact  is  the  increased  effectiveness  of 
procedures. In an area where many different actors across administrative structures and the 

as  regards  the  application  of  the  ‘safe  third  country’  concept;  https://eur-lex.europa.eu/legal-
https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=celex:52025PC0186; 
content/EN/TXT/?uri=celex:52025PC0259.  

(37)  Regulation of the European Parliament and of 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 604/2013; https://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=OJ:L_202401351 
(38)  Regulation (EU) 2024/1348 of the European Parliament and of the Council of 14 May 2024 establishing 
a common procedure for international protection in the Union and repealing Directive 2013/32/EU. 
(39)  Commission Implementing Decision (EU) 2025/2323 of 11 November 2025 pursuant to Article 11 of 
the  Council;  ELI: 

the  European  Parliament  and  of 

Regulation 
(EU)  2024/1351  of 
http://data.europa.eu/eli/dec_impl/2025/2323/oj. 

(40)  Council  Implementing  Decision  (EU)  2025/2642  of  19  December  2025  on  the  establishment  of  the 
ELI: 

23.12.2025, 

2025/2642, 

OJ 

L, 

Annual 
2026, 
http://data.europa.eu/eli/dec_impl/2025/2642/oj.  

Solidarity 

Pool 

for 

14 

 
 
 
judiciary are involved, new technological solutions can help overcome bottlenecks, reduce 
the  administrative  burden  and  facilitate  cooperation  and  information  exchange  among 
national authorities, with EU Agencies and among Member States.  

Equipping  migration  authorities  with  integrated  case  management  systems  and  smart 
digital tools will therefore be a priority. The Commission plans to explore, starting in 2026, 
the feasibility of a dedicated proposal for digitalisation in the area of asylum, also in 
light  of  such  proposal  being  prepared  in  the  area  of  return.  An  expert  group  to  consult 
Member States on the best way forward regarding the development of digital asylum case 
management systems, integrating screening, asylum, reception and transfer procedures (41) 
will be set up for that purpose. On this basis, the Commission plans to identify the next 
steps in supporting Member States’ efforts in this area. Starting in 2026, efforts will also 
focus on transforming DubliNet, the system for information exchange under the Asylum 
and Migration Management Regulation, into a  more effective and technically advanced 
tool to support Member States in carrying out the procedures under that Regulation. 

In  addition,  new  technologies  offer  novel  and  still  unexplored  opportunities  to  reduce 
administrative  burden,  simplify  processes,  and  have  high-quality  asylum  decisions.  AI 
could offer national authorities the tools for achieving these opportunities. For instance, in 
the area of interpretation, translation and transcription, or the collection and analysis of 
country-of-origin information, as  well as  in  relation  to  case management  and workflow 
optimisation, or pre-checking whether applications have been filled in completely. These 
activities  could  use  the  results  of  EU-funded  European  research  and  innovation  on 
migration (42).  To  make  progress  in  this  area,  in  line  with  the  existing  regulatory 
requirements,  the  Commission  will  set  up  in  2026  a  Forum  for  AI  on  Migration  to 
explore  how  to  best  utilise  AI  tools  in  asylum,  migration  and  border  management,  to 
identify the possible uses of AI and prepare an operational plan for the concrete roll-out of 
such new tools. This work will also rely on the guidelines that the Commission plans to 
present in 2026 on the classification of high-risk AI systems (43).  

Providing support to displaced people from Ukraine 

Providing  temporary  protection  to  people  fleeing  the  Russian  war  of  aggression 
against Ukraine remains a priority for the Union and the Member States. Ukraine’s future 
and the EU’s future are intertwined through our common security, economic ties but also 
the ties between people that are being built during this time. The EU remains committed 
to continue supporting Ukraine on its path towards accession to the EU. 

To  move  forward  in  a  longer-term  perspective,  while  taking  into  account  the  high 
volatility of the situation, there is a need to design a path towards continuing legal residence 
and facilitate the inclusion of the Ukrainian people in host societies, while supporting those 
who wish to return home when conditions allow. This transition needs to be gradual and 
predictable,  to  support  Ukraine’s  recovery.  The  Council  Recommendation  on  a 
coordinated approach to the transition out of temporary protection for displaced persons 
from  Ukraine  (44)  adopted  in  September  2025  provides  the  basis  for  next  steps.  The 

(41)  The  Commission  has  already  launched  an  external  study  on  digitalisation  and  on  the  operational 
integration  of  asylum,  reception,  Dublin  and  return  case  management  systems,  to  assess  the  current 
situation in the Member States and the added value of Union action in this field. 

(42)  EU-funded 

research 

and 

innovation 

on 

migration: 

https://research-and-

innovation.ec.europa.eu/research-area/social-sciences-and-humanities/migration-and-mobility_en.  

(43)  Article 6 of Regulation (EU) 2024/1689; https://eur-lex.europa.eu/eli/reg/2024/1689/oj/eng 
(44)  Council  Recommendation  of  16  September  2025  on  a  coordinated  approach  to  the  transition  out  of 
temporary protection for displaced persons from Ukraine, ELI: http://data.europa.eu/eli/C/2025/5129/oj. 

15 

 
 
 
operationalisation of the Recommendation is taken forward in various fora with Members 
States, the Ukrainian authorities and international organisations (45).  

As the support to displaced persons from Ukraine is the first case where the Temporary 
Protection Directive of 2001 was activated, the EU will need to draw the lessons learned 
from more than four years of temporary protection to inform possible future responses. 

5.   MORE EFFECTIVE RETURN AND READMISSION 

Fast,  effective  and  dignified  return  and  readmission  of  illegally  staying  third-country 
nationals  is  indispensable  to  the  integrity  of  our  migration  and  asylum  systems. 
Currently, only about a fourth of the migrants ordered to leave the Union actually do so, 
although  there  are  differences  between  Member  States.  It  is  urgent  to  increase  the 
effectiveness  of  returns  to  deter  against  illegal  migration  and  to  safeguard  the  well-
functioning and integrity of the migration and asylum system. 

Over  the  next  five  years,  the  EU  must  be  fully  invested  in  building  a  comprehensive 
common  European  system  for  return.  Some  Member  States  have  already  made 
significant progress in increasing the efficiency of their return procedures. The proposed 
Return Regulation (46), once adopted, will provide a new legal  framework with  swifter, 
simpler and more effective return procedures across the Union that respect fundamental 
rights and international obligations, notably the principle of non-refoulement.  

For  returns  to  work,  third  countries  need  to  fully  play  their  role  and  honour  the 
international obligation to readmit their own nationals. The EU should develop and use all 
leverages and incentives at its disposal, including readmission instruments, financing tools, 
visa and trade policy to foster stronger cooperation on readmission as part of its migration 
diplomacy outreach to third countries. At the same time, Member States need to follow up 
thoroughly  and  timely  on  return  orders  by  requesting,  when  necessary,  that  the  third 
countries confirm the nationality of the person to be returned and provide them with travel 
documents. 

Building a common European system for return 

The  Pact  introduces  several  novelties  and  improvements  in  asylum  and  migration 
management. On return, the new legal framework, introduced by the Pact, will close the 
loopholes between asylum and return, making sure that return decisions and negative 
asylum decisions are issued close together. This  will significantly increase the speed of 
returns, by reducing opportunities to abscond and thus avoiding long periods of uncertainty 
for both the returnees and national authorities.  
Furthermore, with the mandatory return border procedure (47), rejected applicants for 
international protection will return much more rapidly, directly from the external borders 
and within the 12-week deadline established by the new rules. The Commission will put a 
strong  focus  on  ensuring  the  effective  implementation  of  the  new  border  procedures, 
working closely with Member States, Frontex and partner countries to that end. It will also 

(45)  Including with the support of the Special Envoy for Ukrainians in the EU, who has been also engaging 

with Member States and with Ukraine. 

(46)  Proposal for a Regulation of the European Parliament and of the Council establishing a common system 
for  the  return  of  third-country  nationals  staying  illegally  in  the  Union,  and  repealing  Directive 
2008/115/EC of the European Parliament and the Council, Council Directive 2001/40/EC and Council 
Decision 2004/191/EC; https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=celex:52025PC0101.  
(47)  Regulation of the European Parliament and of the Council of 14 May 2024 establishing a return border 
procedure and amending Regulation (EU) 2021/1148; ELI: http://data.europa.eu/eli/reg/2024/1349/oj. 

16 

 
 
 
pay particular attention to readmission cooperation in the context of the mandatory border 
procedure when preparing future reports under Article 25a of the Visa Code. 

Building on these improvements, the priority for the next five years is to fully develop a 
common European system for return, in line with the Commission proposal of March 
2025  for  a  Regulation  establishing  Common  European  System  for  Returns (48).  The 
proposed Regulation gives a more tangible European dimension to return with a European 
return order, laying the ground for the mutual recognition of return decisions, so that EU 
rules cannot be circumvented by moving illegally from one Member State to another. The 
proposed  Regulation  promotes  simplification  and  effectiveness  by  streamlining  internal 
processes, clarifying rights and obligations of returnees, such as the obligation to cooperate 
in  the  return  procedure,  reducing  the  risk  of  absconding  and  unauthorised  secondary 
movements,  and  closing  the  loopholes  between  return  procedures  within  the  EU  and 
readmission activities towards third countries. The return of individuals posing a security 
threat will also be sped up. The proposed Regulation also sets out the rules and safeguards 
to establishing ‘return hubs’ outside the Union, which could offer new solutions for the 
return  of  persons  who  are  obliged  to  leave  the  EU.  An  expeditious  conclusion  of  the 
negotiations on the Return Regulation is important to make a common European system 
for return a reality in the coming years.  

The Commission will also present a legislative proposal on return digitalisation in 2026, 
with a view to developing digital case management systems in this area. This will further 
contribute to reducing the administrative workload of national authorities, simplifying and 
automating  processes.  The  proposal  also  aims  to  consider  the  possibility  to  entrust  EU 
Agencies, such as Frontex and eu-LISA, with enhanced responsibilities as regards digital 
case management systems. 

In  parallel  to  the  reinforcement  of  the  new  legal  framework,  measures  are  needed  to 
improve return processes at operational level.  

The Return Coordinator, supported by the High-Level Network for Returns, will explore 
new ideas and develop practices related to specific challenges such as the return of third-
country  nationals  processed  in  the  return  border  procedure,  those  who  pose  a  security 
threat, or the return of unaccompanied minors, in accordance with EU law and the child’s 
best  interests.  To  this  end,  joint  work  with  Member  States’  authorities  will  continue  to 
optimise the use of available resources and to use all existing tools to accelerate returns. 
The  Commission,  together  with  Member  States,  will  continue  developing  practical 
initiatives with and in third countries for this purpose.  

The  forthcoming  revision  of  the  Frontex  Regulation  in  2026,  will  also  explore  the 
opportunity of strengthening the agency’s operational role in return both within and outside 
the EU. Reflections are ongoing on the possibility to support returns from a third country 
to  another  third  country,  subject  to  clear  conditions  and  legal  safeguards,  reinforcing 
voluntary  return  and  reintegration,  as  well  as  options  for  improving  the  Agency’s 
governance in this area to support the EU strategic priorities.  

The Commission,  together with  Frontex, is  also  taking  steps  to  enhance  and streamline 
data  collection  on  return,  with  a  view  to  improving  the  situational  picture  on  return, 
allowing for better planning of resources and tools. 

(48)  Proposal for a Regulation of the European Parliament and of the Council establishing a common system 
for  the  return  of  third-country  nationals  staying  illegally  in  the  Union,  and  repealing  Directive 
2008/115/EC of the European Parliament and the Council, Council Directive 2001/40/EC and Council 
Decision 2004/191/EC; EUR-Lex - 52025PC0101 - EN - EUR-Lex. 

17 

 
 
 
 
Improving readmission by third countries 

Cooperation on readmission by migrants’ countries of origin is necessary for successful 
returns and for efficient migration management, and it is another key component of the 
common European system for return. Readmission of one’s own nationals is an obligation 
under customary international law on which EU readmission agreements and arrangements 
and  partnership  agreements  (e.g.  Partnership  and  Cooperation  Agreements)  with  third 
countries, as well as multilateral legal frameworks (e.g. Samoa agreement with African, 
Caribbean and Pacific countries) are built.  

In this respect, improved cooperation on readmission remains a key priority of the EU’s 
migration  diplomacy.  The  Commission,  in  close  cooperation  with  Member  States, 
regularly monitors readmission cooperation in the framework of the existing bilateral and 
multilateral readmission instruments and through the annual  assessment on readmission 
cooperation under Article 25a of the Visa Code (49). The Union needs to use and reinforce 
its toolbox to promote cooperation in this area, in line with EU Leaders’ repeated calls for 
the use of all policy tools and instruments to enhance return and readmission. The effective 
implementation  of  the  24  existing  EU  agreements  and  arrangements  on  readmission 
with  third  countries  (50),  and  the  full  respect  for  and  enforcement  of  the  obligations 
enshrined in EU international agreements must remain a priority.  

To  maximise  Union  cooperation  with  third  countries  and  ensure  an  effective  strategic 
approach  to  negotiations,  the  Commission  will  work  with  Member  States  to  further 
strengthen information exchange in this area. Such exchanges should include a reflection 
on  how  to  best  pursue  the  pending  negotiating  mandates  for  readmission  agreements. 
Ongoing readmission negotiations need to be completed swiftly and, where there is added 
value  at  EU  level,  new  negotiations  should  be  launched.  The  Samoa  Agreement  also 
provides a clear framework for the implementation of readmission obligations, recalling 
the  obligation  of  all  parties  to  readmit  their  own  nationals:  its  implementation  will  be 
monitored  and  supported  by  specific  engagement,  as  necessary.  Where  appropriate,  the 
Commission  will  pursue  arrangements  with  international  partners  to  establish  standard 
operating  procedures  for  the  readmission  of  own  nationals  and  remove  obstacles  that 
hamper cooperation with those partners.  

To achieve concrete progress on readmission cooperation as part of migration diplomacy, 
the  Commission,  the  High  Representative  and  the  Member  States  need  to  mobilise  the 
necessary incentives and leverages  by using all relevant  EU policies, instruments  and 
tools. 

Addressing challenging contexts 

Some  situations  involving  specific  third  countries  deserve  increased  attention.  In  this 
regard,  Syria  still  faces  significant  political,  security,  humanitarian  and  developmental 
challenges.  The  EU  supports  a  peaceful  and  inclusive  Syrian-led  political  transition,  as 
well as socio-economic recovery to prevent the resurgence of violence. The Commission 
is working with the UNHCR to support voluntary returns and sustainable reintegration of 
returnees. In addition, the Commission issued guidance for “go and see” visits for Syrian 

(49)  Regulation  (EC)  No  810/2009  of  the  European  Parliament  and  of  the  Council  of  13  July  2009 
https://eur-

Code); 

Visas 

(Visa 

Code 

on 

a 

establishing 
lex.europa.eu/eli/reg/2009/810/oj/eng. 

Community 

(50)  The EU has concluded readmission agreements with Hong Kong, Macao, Sri Lanka, Albania, Russia, 
Ukraine, North Macedonia, Bosnia and Herzegovina, Montenegro, Serbia, Moldova, Pakistan, Georgia, 
Armenia, Azerbaijan, Türkiye, Cape Verde, Belarus, and readmission arrangements with Afghanistan, 
Gambia, Guinea, Bangladesh, Ethiopia and Ivory Coast. Obligations to readmit own nationals are also 
part of other international instruments, including Partnership and Cooperation Agreements (PCA) and 
the Samoa Agreement with 77 African, Caribbean and Pacific countries. 

18 

 
 
 
beneficiaries  of  international  protection  in  the  EU  that  may  wish  to  go  back  to  Syria. 
Frontex has also resumed support for Syrian return operations and reintegration of Syrians.  

The Commission is also working to ensure EU-level coordination as regards the situation 
of Afghans living in the EU. To that end, the Commission is engaging at technical level 
with Afghanistan’s de facto authorities on the possible return and readmission of Afghan 
nationals illegally staying in the EU, particularly those who committed crimes or are posing 
security  risks,  in  compliance  with  EU  law  and  international  obligations,  including  full 
respect of the principle of non-refoulement. The Commission is working closely with the 
Member States and is relying also on Frontex’s support on voluntary return through the 
EU Reintegration Programme.  

6.   LABOUR AND TALENT MOBILITY TO BOOST COMPETITIVENESS  

Over  the  next  years,  skills  gaps  and  labour  shortages,  also  driven  by  demographic 
dynamics,  are  likely  to  accentuate  growing  needs  for  our  labour  market  in  many  key 
sectors and, to different degrees, across the Union (51). Demand in key areas essential to 
the EU economy and citizens’ well-being, spanning from cutting edge fields such as AI to 
the care for our youngest and eldest, will continue to grow. The recently adopted EU Talent 
Pool  has  already  identified  42  occupations  in  which  the  EU  is  facing  labour  and  skills 
shortages  that  constrain  the  European  economic  potential,  and  where  labour  and  talent 
mobility can offer an important contribution.  
The Union of Skills (52) addresses the need to attract and retain talent from third countries, 
complementing  the  measures  to  activate  and  upskill  the  domestic  workforce,  including 
third-country nationals already residing in the Union. Labour and talent mobility are part 
of the EU’s economic model, strengthening its competitiveness, addressing demographic 
and skills’ challenges (53), and fostering innovation.  

In the next five years, the EU should aim to become the most attractive place in the global 
race for talent, bringing skilled workforce ranging from innovators driving technological 
progress to  workers providing essential care services.  For this, we need to  upscale our 
cooperation with partner countries, using labour and talent mobility as a tool for both 
migration diplomacy and comprehensive diplomatic and economic relations with partners, 
and launching new and innovative initiatives at Union level, in cooperation with Member 
States, to attract workers who are trained and prepared for our job market.  

At the same time, attracting labour and talent needs to be complemented by the capacity 
to  retain  it.  To  achieve  this,  the  Union  needs  a  socio-economic  environment  that  can 
facilitate not only the integration of foreign workers in the job market, but that can enable 
them to integrate and contribute to our societies. 

Labour and talent mobility as a tool of migration diplomacy 

Labour and talent attraction and mobility, as well as educational, vocational and training 
pathways, need to become a strategic element of our comprehensive relations with partner 

(51)  Communication from the Commission to the European Parliament, the Council, the European Economic 
and Social Committee and the Committee of the Regions Harnessing talent in Europe’s regions, EUR-
Lex - 52023DC0032 - EN - EUR-Lex. 

(52)  Communication from the Commission to the European Parliament, the Council, the European Economic 
and Social Committee and the Committee of the Regions The Union of Skills; EUR-Lex - 52025DC0090 
- EN - EUR-Lex. 

(53)  Communication from the Commission to the European Parliament, the Council, the European Economic 
and Social Committee and the Committee of the Regions, Demographic change in Europe: a toolbox for 
action, EUR-Lex - 52023DC0577 - EN - EUR-Lex. 

19 

 
 
 
countries.  Scaling  up  the  existing  Talent  Partnerships  with  Morocco,  Tunisia,  Egypt, 
Pakistan and Bangladesh, and launching new ones, is just a first step.  

Beyond Talent Partnerships, the EU must bring together the priorities of competitiveness 
within the context of our comprehensive cooperation with partner countries, following 
the path set by the Pact for the Mediterranean. In this respect, the Commission will pilot, 
as  of  2026,  a  European  Legal  Gateway  Office  in  India  in  the  Information  and 
Communication Technology sector. This will be a one-stop-shop that will provide support 
for candidates from India for labour mobility to the EU. On the basis of the lessons learnt 
from  this  pilot  project,  the  Commission  plans  to  expand  the  European  Legal  Gateway 
Office concept to other sectors and other partner countries, including Talent Partnership 
countries,  in  complementarity to  the EU  Talent  Pool, and taking into account  the EU’s 
strategic interests. Further cooperation on talent mobility should also be promoted in the 
context of the Global Gateway strategy. 

The Union and the partner countries have a common interest in promoting labour mobility. 
However, preparing third-country workers to enter the European labour market and their 
integration into our societies is a complex endeavour that requires investments and efforts 
on both sides. To boost the skill-base that could come to work and live in the Union, and 
looking  at  cost  and  risk  sharing  models  with  the  private  sector,  the  Commission  will 
support  training  and  pre-departure  activities  for  job-seekers  from  third  countries, 
ensuring they have the right technical, professional, linguistic, and cultural skills required, 
including as part of the upcoming European Strategy for vocational education and training.  

The Commission will also involve EU industry and social partners more closely in the 
design  and implementation of initiatives  towards third countries, as they  know best  the 
skills  they  need  and  being  the  main  beneficiaries  of  talent  mobility  policies.  The 
Commission  intends  to  use  existing  fora  such  as  the  Labour  Migration  Platform,  the 
Sectoral  Social  Dialogue  Committees,  and  the  Industrial  Forum  and  the  European 
Research Area Forum to boost industry and employers’ engagement on talent attraction.  
The  EU  Talent  Pool  (54),  the  first  EU-level  tool  to  enable  the  matching  between  EU 
employers with interested non-EU job seekers in specific sectors, will be key to address 
labour and skills shortages, as well as to improve the cooperation with partner countries in 
the long-term. The Commission is prioritising the development of the IT platform to have 
the Talent Pool in place and operational in 2027. To fulfil its potential, early engagement 
and participation of Member States will be essential. 

A legal framework fit for labour and talent mobility 

The ‘Choose Europe’ initiative (55) promotes the EU as a destination for highly skilled 
professionals.  It  highlights  how the EU  offers an ideal  environment  for global talent  to 
advance research and innovation.   

At the same time, the legal framework for labour and talent mobility to the EU remains 
fragmented, with  a complex interaction between  the EU and national  legal  frameworks 
(56), being difficult to navigate for the global talent.  

(54)  Choose Europe: advance your research career in the EU https://commission.europa.eu/topics/research-

and-innovation/choose-europe_en 

(56)  EU  rules  cover  entry  and  residence  conditions  for  certain  categories  of  workers  (highly  qualified 
workers, seasonal workers, and intra-corporate transferees), students and researchers, the right to family 
reunification, and ‘long-term residence’. EU law also lays down a single procedure – and a single permit 
– for non-EU  workers admitted under Member States’ national schemes. Currently, EU  rules do not 
cover other categories of labour migrants, nor the self-employed. 

20 

 
 
 
 
This  is  not  in  line  with  the  EU’s  ambition.  Simplification  and  acceleration  of  the 
processes  to  attract  third-country  nationals  with  strong  innovation  potential,  such  as 
researchers,  students,  skilled  workers,  start-up  founders  or  innovative  entrepreneurs,  as 
well  as  workers  required for  shortage  occupations  in  sectors  such  as  care, healthcare, 
tourism or construction will need to be explored. The Visa Strategy (57), adopted together 
with  this  Strategy,  has  identified  new  ways  to  make  the  existing  framework  on  talent 
attraction work better, including through funding and the Commission Recommendation 
on  attracting  talent  for  innovation (58),  and  look  into  possibilities  for  simplification  and 
better implementation of the legal framework.  

Furthermore, one of the main obstacles to attracting talent is the bottleneck linked to the 
recognition and validation of qualifications and skills of third country nationals. The 
2023 Commission Recommendation on the recognition of qualifications of third-country 
nationals (59) aimed to facilitate national recognition processes. In practice, however, these 
processes  remain often lengthy  and burdensome  and fragmented across the  EU and are 
thus  not  compatible with  a dynamic economic  environment and the need  to  rapidly fill 
labour shortages that European businesses are facing. To address this obstacle, as part of 
the 2026 Fair Labour Mobility Package, the Commission will launch a Skills Portability 
initiative,  which  will  include  possible  new  rules  on  the  recognition  and  validation  of 
qualifications  and  skills,  making  the  procedures  swifter,  while  keeping  the  quality 
standards expected in the European market.  

To  harness  the  potential  of  skills  intelligence,  in  addition  to  accurate  and  timely 
information on skills and labour market situation in the EU and its Member States, and 
building  on  the  experience  of  the  European  Skills  Intelligence  Observatory,  updated 
information is needed on the situation of the labour market in partner countries, including 
on their skills and the qualifications frameworks, to allow comparison with EU skills and 
qualifications. For this purpose, the Commission plans to further deepen its cooperation 
with the European Training Foundation (ETF) on the mapping and comparison of skills 
and qualifications in Talent Partnerships countries and beyond.  

Fighting illegal employment, abuse and exploitation 

While  Europe  needs  to  attract  talent,  it  also  needs  to  step  up  its  fight  against  illegal 
employment  and  abuse  of  third-country  workers  in  the  EU.  Illegal  employment  and 
unauthorised  work,  often  also  associated  with  labour  exploitation,  are  among  the  main 
drivers of illegal migration and need to be tackled more effectively, particularly in the 
sectors more exposed to those risks. The openness of the Union in attracting and retaining 
talent should go together with zero tolerance for illegal employment and exploitation of 
migrant workers. 

The  Commission  will  present  in  2026  the  state  of  implementation  of  the  Employers 
Sanctions Directive (60) and, if needed, propose amendments to increase its effectiveness.  
As  highlighted  in  the  Quality  Jobs  Roadmap (61),  exploitation,  breaches  of  safety  and 
health rules and inadequate housing affect third-country workers. Controls and inspections 

(57)  COM(2026) 43. 
(58)  C(2026) 462. 
(59)  Commission  Recommendation  (EU)  2023/2611  of  15  November  2023  on  the  recognition  of 
third-country  nationals,  C/2023/7700,  OJ  L,  2023/2611,  24.11.2023,  ELI: 

qualifications  of 
http://data.europa.eu/eli/reco/2023/2611/oj.  

(60)  Directive 2009/52/EC of the European Parliament and of the Council of 18 June 2009 providing for 
minimum  standards  on  sanctions  and  measures  against  employers  of  illegally  staying  third-country 
nationals; https://eur-lex.europa.eu/eli/dir/2009/52/oj/eng  

(61)  Communication from the Commission to the European Parliament, the Council, the European Economic 
and Social Committee and the Committee of the Regions, Quality Jobs Roadmap, COM/2025/944 final. 

21 

 
 
 
need to be intensified to detect and sanction exploitative employers and protect the rights 
of third-country workers. As part of the revision of the mandate of the European Labour 
Authority (ELA) in 2026, the Commission will review how the Authority could better 
address the challenges related to abuses of working conditions of third-country nationals.  

In parallel,  better enforcement work, also  with  the support of a reinforced mandate of 
ELA, should  help  ensure  that the provisions of EU law to  protect  the rights  of migrant 
workers,  including  the  Seasonal  Workers  Directive  (62),  the  Employers  Sanctions 
Directive (63)  and  the  revised  Single  Permit  Directive (64),  are  correctly  transposed  and 
effectively applied by Member States.  

Improving integration of third-country nationals 

Integration is both a right and a duty. It is in the Union’s interest to ensure that migrants 
coming to the EU can swiftly and actively contribute to our – and now their – societies, 
whether they fled conflict, arrived as workers, joined their close family or arrived through 
other legal pathways. Consequently, integration is an area where a whole-of-government 
approach is very important at national level. This is vital for social cohesion, but also for 
competitiveness,  and  Europe’s  economic  dynamism,  making  full  use  of  all  skills  and 
talents. It is essential that migrants learn the language of the host Member State, understand 
the  culture  and  administrative  systems,  work,  pay  taxes,  and  fully  participate  in  our 
societies  grounded  in  European  values.  Diaspora  communities  and  migrant-led 
organisations  are  important  actors  in  supporting  the  integration  process,  which  requires 
strong and willing engagement from the side of the migrants, as well as from the side of 
the  host  societies.  In  that  regard,  the  migrants  need  to  be  provided  with  a  genuine 
opportunity  to  integrate.  Building  on  the  comprehensive  and  cross-sectoral  approach 
established in the Action Plan on Integration and Inclusion and on its mid-term review (65), 
integration should be promoted across all levels of governance and society.  

The Commission will continue to foster a holistic approach to connect efforts across EU 
policies,  in  particular  on  regional  development,  for  instance  with  the  EU  Agenda  for 
Cities (66), Urban Agenda Partnership on Inclusion of Migrants and Refugees (67) and the 
upcoming  update  of  the  Rural  Action  Plan (68).  When  it  comes  to  employment  and 
integration in the labour market, third-country nationals continue to help driving growth in 
the EU. Their full potential in the EU labour market remains untapped. Consequently, it is 

(62)  Directive  2014/36/EU  of  the  European  Parliament  and  of  the  Council  of  26  February  2014  on  the 
conditions  of  entry  and  stay  of  third-country  nationals  for  the  purpose  of  employment  as  seasonal 
workers. 

(63)  Directive 2009/52/EC of the European Parliament and of the Council of 18 June 2009 providing for 
minimum  standards  on  sanctions  and  measures  against  employers  of  illegally  staying  third-country 
nationals, OJ L 168, 30.6.2009, pp. 24–32. 

(64)  Directive (EU) 2024/1233 of the European Parliament and of the Council of 24 April 2024 on a single 
application procedure for a single permit for third-country nationals to reside and work in the territory 
of a Member State and on a common set of rights for third-country workers legally residing in a Member 
State 
ELI: 
OJ 
http://data.europa.eu/eli/dir/2024/1233/oj  

PE/93/2023/REV/1, 

2024/1233, 

30.4.2024, 

(recast), 

L, 

(65)  Communication from the Commission to the European Parliament, the Council, the European Economic 
and Social Committee and the Committee of the Regions, Action plan on Integration and Inclusion 2021-
and 
https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52020DC0758 
2027 
Commission Staff Working Document, Mid-term review of the Commission Action Plan on Integration 
and 
https://eur-lex.europa.eu/legal-
2021-2027, 
Inclusion 
content/EN/TXT/?uri=CELEX%3A52025SC0162. 

(66)  https://ec.europa.eu/regional_policy/information-sources/publications/communications/2025/eu-

agenda-for-cities-2025_en  

(67)  https://www.urbanagenda.urban-initiative.eu/  
(68)  https://rural-vision.europa.eu/action-plan_en 

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crucial  to  further  bring  employment  services,  economic  and  social  partners,  and  other 
labour market actors on board. To do so, a continued dialogue and cooperation with them 
will  underpin  any  substantive  effort  to  more  closely  align  migration  and  labour  market 
policies and to strengthen labour market inclusion of migrants.  

This  mainstreaming  of  actions  to  support  the  integration  and  inclusion  of  third-country 
nationals should be further embedded in a wider and longer-term approach, one that also 
contributes to adequately manage national education, health and housing systems, with the 
support. Union funding should support the implementation of the whole-of-government 
approach in Member States when it comes to integration, offering funding opportunities to 
local  and regional authorities, civil  society organisations and migrant-led organisations. 
Overall, this longer-term approach on integration of third country nationals should build 
on  exchanges  taking  place  in  the  various  integration-related  networks (69)  and  work 
continues in the context of relevant strategies (70). 

7.  STRATEGIC USE OF FINANCIAL RESOURCES AND ENHANCING OPERATIONAL 

SUPPORT 

The Commission’s proposal  for the  Multiannual  Financial Framework  (MFF) 2028–
2034 provides for an important increase in the resources dedicated to migration and asylum 
and to international cooperation, while strengthening the Union’s leverage opportunity as 
regards migration cooperation.  

The MFF proposal aims at providing the necessary financial resources also to support 
the  priorities  set  out  in  this  Strategy.  Overall,  an  amount  of  at  least  EUR 81 billion  is 
proposed  to  be  dedicated  to  Home  Affairs  policies,  to  support  migration  and  asylum 
management, enhance internal security, reinforce borders and the visa policy.  

To effectively control and manage the external borders and to guarantee security, the 
proposal for the Union support for the Schengen area, for the European integrated border 
management and for the common policy on visa sets the financial envelope at EUR 15.4 
billion. The Border Management and Visa Policy Instrument (BMVI) for the programming 
period 2021-2027 is currently providing a total of EUR 5.97 billion to support European 
integrated  border  management  in  the  Member  States (71).  The  significant  increase  in 
resources would make it possible to support priorities set out in this Strategy, including the 
digitalisation of the border management, the integration of new technological solutions, as 
well as equipment and infrastructure.  

As regards the Union support for asylum, migration and integration, the Commission 
proposed  an  amount  of  around  EUR  12  billion,  against  the  around  EUR  7.84  billion 
currently available to Member States for the programming period 2021-2027 (72) for the 
Asylum,  Migration  and  Integration  Fund,  and  almost  EUR  3  billion  for  the  European 
Regional Development Fund for the integration of marginalised communities, including 
people with a migrant background. This budget aims to foster solidarity and fair sharing 
of  responsibility  among  Member  States,  and  support,  in  particular,  faster  processing  of 
applications for international protection including at the external borders, more effective 
returns, as well as talent attraction and early integration of third-country nationals. As part 

(69)  European Integration Network, Expert Group on the views of migrants in the field of migration, asylum 

and integration, European Migration Forum. 

(70)  The Gender Equality 2020-2025 and the LGBTIQ+ equality 2026-2030 strategies and the 2026-2030 

anti-racism strategy. 

(71)  This amount includes allocations to Member States as initially agreed, transfers by Member States from 

other Funds and top‐ups from the BMVI Thematic Facility to Member States. 

(72)  This amount includes allocations to Member States as initially agreed, transfers by Member States from 

other Funds and top‐ups from the AMIF Thematic Facility to Member States. 

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of the National and Regional Partnership Plans, the European Social Fund will contribute 
to support the social inclusion and socio-economic integration of third-country nationals.  

For  the  next  MFF,  support  for  Member  States  will  be  implemented  through  a 
performance-based approach under the National and Regional Partnership Plans. When 
drawing up their National and Regional Partnership Plans, Member States should ensure 
that funding will address identified policy challenges, including in the area of asylum and 
migration management, return and labour mobility. 

Furthermore,  the  MFF  proposal  for  2028-2034  increases  coherence,  consistency  and 
complementarity between the internal and external policy dimensions. The proposal for 
Global Europe Regulation (73), with a proposed envelope of EUR 200 billion, has been 
designed to match a more strategic, values-driven and impactful approach to enlargement 
and international partnerships, in alignment with the EU's strategic interests, including its 
migration  objectives.  This  more  strategic  approach  to  the  use  of  funds  should  also  be 
reflected in the programming modalities and in the implementation of this instrument in 
order to  enhance  coherence and effectiveness. Furthermore, the Commission’s proposal 
enhances  the  strategic  approach  to  the  provision  of  funding  to  incentivise  enhanced 
cooperation on migration and readmission. 

The  relevant  EU  Agencies,  notably  Frontex,  EUAA,  eu-LISA,  Europol,  Eurojust,  and 
FRA,  provide  assistance  to  Member  States.  Such  assistance  includes  operational  and 
judicial support, guidance, training or operational management of large-scale IT systems. 
This strand of work is complemented by direct operational support to Member States to 
further  develop  and  strengthen  their  national  capacities.  While  Agencies  are  already 
providing key support to Member States in managing migration, the next five years will 
provide an opportunity to reinforce the tools at the Agencies’ disposal and the support that 
they  provide  to  Member  States  when  requested,  most  notably  in  view  of  the 
operationalisation of the Pact on Migration and Asylum. 

With regard to  Frontex, the Commission  plans to present in  2026, based on  an impact 
assessment  and  following  consultations  with  Member  States  and  other  stakeholders,  a 
revision of its founding regulation. In preparing the proposal, the Commission will explore 
how to best complement the resources of Member States not only in terms of quantity, but 
also  quality  of  tasks,  thereby  contributing  to  stronger  common  borders  in  line  with  an 
integrated  border  management  approach.  The  proposal  could  also  strengthen  the  rules 
related to Frontex’s tasks, deployments, cooperation with third countries and the Agency’s 
structure and governance.  

The EUAA will continue to play an important role in supporting Member States in the 
implementation of the Pact, including through fostering convergence of asylum practices, 
and providing operational and technical support. The operationalisation of the monitoring 
mechanism  in  the course of  2026  will also  be an important  step forward to  support the 
operational and technical application of the asylum rules by Member States. To ensure that 
the Agency is well equipped to deliver on its tasks, following the evaluation of the EUAA 
mandate, the Commission will consider the possible need to amend the Agency’s founding 
regulation, including in support of external policies.  

To deliver on this digital transformation, eu-LISA, the EU’s Agency for the management 
of  large-scale  IT  systems,  will  remain  central.  The  MFF  proposal  therefore  foresees  a 

(73)  Proposal for a of the European Parliament and of the Council establishing Global Europe; EUR-Lex - 

52025PC0551 - EN - EUR-Lex. 

24 

 
 
 
significant increase of its resources to give the Agency the necessary means to develop and 
put into operation all the components of the large-scale IT systems under its remit. 

The revision of Europol’s mandate in 2026, based on an evaluation and impact assessment 
as  well  as  on  consultations  with  Member  States  and  relevant  stakeholders,  will  also 
consider how to strengthen the Agency’s operational, analytical and technological support 
capacities  to  enable  effective  operational  cooperation  both  internally  and  with  partner 
countries. With the adoption of the amended Europol Regulation establishing the European 
Centre against Migrant Smuggling, Europol will play an even stronger role in identifying 
and disrupting criminal networks behind migrant smuggling. 

Eurojust is building its capacity to cooperate with jurisdictions around the world to better 
combat the organised crime groups involved in migrant smuggling and other crimes. The 
agreements on judicial cooperation in criminal matters signed in 2025 with both Lebanon 
and Egypt set a good example to emulate with other partner countries. 

Furthermore, to make the most out of the comprehensive approach to migration diplomacy, 
the  operational  support  that  the  EU  Agencies  can  offer  to  partner  countries,  in 
accordance with their current or future mandates, should be used more strategically. To 
offer a comprehensive package of support to partner countries, and ensure cohesive Union 
engagement,  EU  Agencies,  in  close  cooperation  with  the  Commission,  should  better 
coordinate their outreach to partner countries as well as related agreements and working 
arrangements. Promoting and enhancing operational cooperation of EU Agencies with the 
competent  national  authorities  should  be  embedded  into  the  operational  actions  and  in 
engagements under the EU’s migration diplomacy.  

8.  CONCLUSION 

This first European Strategy on Asylum and Migration Management reaffirms the Union’s 
determination to build and put in place a migration framework that is effective, right-based, 
fair, and adaptable, and meets citizens’ expectations of a well-managed and future-proof 
policy. It promotes a resilient and assertive European Union on the world stage and remains 
adaptable to the developments that take place in our continent and beyond. It serves as a 
compass for EU action, with clear objectives and priority of action, making strategic use 
of available resources and the operational support.  

A migration and asylum policy that is fair and firm and true to European values is a shared 
responsibility,  delivering  on  this  Strategy  will  require  political  commitment  and  close 
cooperation  among  the  European  Parliament  and  the  Council,  Member  States,  EU 
Agencies, international partners and other relevant stakeholders. The Commission counts 
on  the  support  of  all  actors  to  bring  forward  the  objectives  of  this  Strategy,  working 
together to prevent illegal migration and the loss of life on dangerous journeys, to protect 
people fleeing war and persecution, and encourage talent to come to the EU to boost the 
competitiveness of our economies.  

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