COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on EU visa policy strategy
Date: 2026-01-29
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU visa policy, Schengen Agreement, area of freedom, security and justice, asylum seeker, digitisation, external border of the EU, illegal migration, migrant worker, return migration, right of asylum

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   EUROPEAN COMMISSION  Brussels, 29.1.2026  COM(2026) 43 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on EU visa policy strategy  
 
 
I.  EU VISA STRATEGY: A CONNECTED, SECURE AND STRONG EUROPE  

The EU’s visa policy reflects the Union’s interests and values. It is far more than a set of rules 
and administrative procedures: it is a bridge that connects Europe to global opportunities. In an 
age defined by growing mobility, regional instability, and geopolitical competition, the way 
we manage access to Europe is a strategic choice. The EU’s visa policy must reflect the Europe 
we want: firmly committed to the security of our citizens and the integrity of our external 
borders yet open and contributing to our prosperity. 
A  credible  visa  policy  is  essential  to  maintaining  Europe’s  security1.  The  integrity  of  the 
Schengen area, one of our most tangible achievements, depends on robust border management 
and consistent application of common rules. The visa system is Europe’s first line of security 
screening,  helping  to  prevent  illegal  migration,  organised  crime,  and  terrorism.  New 
technologies, information-sharing, and interoperability between EU databases will make our 
visa  system  smarter  and  more  resilient.  But  security  also  relies  on  maintaining  trustworthy 
relations with partner countries, ensuring the respect of and alignment with European rules. A 
secure visa policy must strengthen that trust and safeguard the freedom of movement that lies 
at the heart of the Union. 

Visa policy must also be a driver of Europe’s economic growth and competitiveness. Today, 
talent, innovative ideas, and investments are drawn to regions with well-developed, reliable, 
and  efficient  visa  systems.  Europe  must  remain  the  destination  of  choice  for:  tourists  and 
businesspeople,  students  and  researchers,  artists  and  cultural  professionals,  athletes, 
entrepreneurs and skilled professionals, who contribute to our economies and societies. Digital 
visa procedures, faster decision-making, and more efficient visa processes can make travel to 
Europe as seamless as it is secure. Modernising the visa system is a strategic investment in 
Europe’s economic strength and global attractiveness. 

Europe’s  visa  policy  is  also  a  projection  of  partnership  and  influence.  How  we  open  or 
restrict access sends a clear signal to the world about Europe’s values and strategic interests. 
In  an  increasingly  competitive  and  volatile  world,  a  clear  visa  policy  gives  Europe  real 
leverage. It is a powerful tool that reinforces our global standing and advances our interests 
abroad. 

This first-ever EU visa strategy sets out a framework for a visa policy that advances Europe’s 
long-term interests. It is a policy that strengthens security across the Schengen area, fosters 
EU prosperity and competitiveness, and projects Europe’s position and resilience on the global 
stage.  The  strategy  therefore  reaffirms  the  dual  nature  of  Europe’s  visa  policy,  namely  to 
protect the Union’s security and integrity, and enable bona fide travel that benefits the EU. The 
strategy aims to make visa policy more coherent and unified, grounded in a common European 
framework  of  shared  rules  and  standards,  interoperable  systems  and  coordinated  responses. 
The  strategy  also  aims  to  make  the  EU’s  visa  policy  smarter,  more  digital  and  better  at 
leveraging  technological  innovations.  By  modernising  our  management  of  who  enters  our 
Union, we are shaping how Europe connects with the world – with conviction and purpose. 

II.  VISA POLICY THAT STRENGTHENS OUR SECURITY 

1.  A modern system for granting visa exemptions 

EU  visa-free  travel  is  a  powerful  tool  for  advancing  the  Union’s  strategic  interests  and 
strengthening our security framework. By offering the prospect of visa waivers under certain 
conditions,  the  EU  exerts  strong  geopolitical  leverage  in  its  relations  with  third  countries, 
anchoring  them  to  a  common  area  of  movement  and  giving  them  privileged  access  to  our 

1 In line with COM/2025/148/final.   

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markets.  To  receive  visa-free  status,  partner  countries  must  meet  requirements  on  issues 
ranging from respect for the rule of law to security cooperation and migration management2. 
The EU’s current system for granting visa exemptions is based on a broad set of criteria3. The 
absence of distinctive thresholds leaves considerable room for interpretation by both the EU 
and third countries, which can create a perception of opacity in the decision-making process. 
This perception has, at times, become a source of irritation for third countries rather than an 
effective amplifier of European strategic objectives.  

Therefore, the Commission will  develop a modern system for proposing visa exemptions 
that provides greater clarity and transparency to third countries and serves the EU’s strategic 
interests more effectively and consistently.  

The key element of such system will be a new assessment framework for evaluating current 
visa-required countries as potential candidates for visa exemptions. To support this framework, 
the  Commission,  in  consultation  with  Member  States,  will  develop  a  more  targeted  set  of 
criteria, acting within the current legal framework. Alongside the already existing qualitative 
considerations,  additional  benchmarks  will  be  considered  for  nationals  of  the  third  country 
concerned,  which  could  include:  the  visa  refusal  rate,  unfounded  asylum  applications,  the 
return rate, and an assessment of the country’s practical cooperation on return and readmission. 
Further  criteria,  particularly  those  linked  to  security,  including  cybersecurity  (such  as 
cooperation on counterterrorism, anti-smuggling, and fighting organised crime), should also be 
considered. The new framework will continue to take into account the overall state of relations 
with the third country concerned and the advancement of the Union’s strategic interests. These 
indicative criteria will be agreed with Member States in 2026 and will be used to assess whether 
visa-required countries may qualify for exemption.  

Once a country has been identified as a candidate for visa-free travel for its citizens, the process 
will  be  complemented  by  a  structured  visa  liberalisation  dialogue,  based  on  agreed 
benchmarks  and  demonstrated  cooperation  in  areas  of  strategic  importance  for  the  EU, 
including security, migration and border management. The outcome of such dialogues will be 
formalised through a visa waiver agreement, ensuring reciprocity and long-term sustainability 
of visa-free travel.  

In parallel, the Commission, in consultation with Member States, will assess whether a revision 
of the Visa Regulation is needed to align the recently introduced new suspension grounds with 
the conditions to be fulfilled when considering the granting of a visa exemption. 

2.  Stronger monitoring of visa-free regimes 

The list of countries whose citizens benefit from visa-free travel to the EU has steadily grown, 
now including 64 countries and territories, more than any other similar travel destinations4. 

2 Regulation (EU) 2018/1806 of the European Parliament and of the Council of 14 November 2018 listing the 
third countries whose nationals must be in possession of visas when crossing the external borders and those whose 
nationals are exempt from that requirement (codification), Official Journal L series 303, 28.11.2018, p. 39-58 
(‘Visa Regulation’) identifies third countries whose nationals are visa-required to travel to the Schengen area and 
those who are visa-exempt. 
3 Article 1 of the Visa Regulation provides that a visa exemption is to be based on a case-by-case assessment of a 
variety  of  criteria  relating,  inter  alia,  to  illegal  migration,  public  policy  and  security,  economic  benefit,  in 
particular in terms of tourism and foreign trade, and the Union's external relations with the relevant third countries, 
including, in particular, considerations of human rights and fundamental freedoms, as well as the implications of 
regional coherence and reciprocity. The list of criteria is not exhaustive. 
4 EU visa agreements with non-EU countries, accessed on 06 January 2026. 

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However, once countries get visa-free status for their citizens, it may not always be the case 
that they continue to meet all the conditions for visa exemptions. 

The European Commission’s monitoring of visa-free regimes reveals significant challenges to 
the EU's security, border and migration management due to various forms of abuse of the visa 
exemption. These can include the misuse of asylum procedures, with nearly a quarter of 2024 
asylum applications in the EU coming from visa-free travellers, and a significant proportion of 
these  applications  being  unfounded5.  Another  issue  is  visa-free  nationals  overstaying  their 
authorised stay and remaining in the EU illegally. Moreover, security risks are heightened by 
the  practice  of  certain  visa-exempt  countries  operating  citizenship-by-investment 
programmes, granting  citizenship  without proper security screening.  In  addition,  persistent 
misalignments in the visa policies of some visa-free partners with the visa policy of the EU 
can create or facilitate illegal migration routes into the EU. For EU candidate countries and 
potential candidates, visa policy alignment is a fundamental requirement and contributes to the 
security and protection of the Schengen area. 

The  revised  visa  suspension  mechanism  (VSM),  which  now  includes  wider  and  stronger 
triggers6 to suspend visa-free travel, provides the Union with a robust instrument to respond 
swiftly and proportionately to abuses and security concerns. Full and coordinated use of the 
revised mechanism will be key to ensuring that visa-free travel remains secure, credible, and 
conditional on mutual trust. Maintaining dialogue with the countries concerned will be crucial 
to foster effective cooperation in this regard. 

The visa suspension mechanism report will continue to focus on countries or regions facing 
particular  challenges  that  could  lead  to  possible  suspension  of  their  visa  exemptions.  In 
addition,  the  report  will  include  an  overview  of  visa-free  countries’  compliance  with  the 
conditions for visa exemptions, in line with the new assessment framework and its additional 
benchmarks. This will help ensure continued fulfilment of the criteria by partner countries and 
will  safeguard  the  integrity  of  visa-free  travel  to  the  EU.  Finally,  in  cases  when  the  visa 
exemption has been suspended for certain passport holders, the Commission will monitor and 
support Member States in the effective implementation of such suspension. 

3.   Increased leverage to foster cooperation on the part of third countries  

EU legislation, namely  Article 25a of the  Visa Code7,  already links visa policy with  third 
countries’ cooperation on the return and readmission of their own nationals illegally staying in 
the EU. If cooperation is insufficient, based on the Commission’s assessment and proposal, the 
EU can impose a more restrictive application of some provisions in the Visa Code, for example:  
the suspension of issuance of multiple entry visas, longer processing times, or increased visa 
fees.  These  measures  can  be  applied  for  certain  categories  of  applicants  (e.g.  diplomatic  or 
service passport holders) or all categories of applicants. This mechanism is a powerful tool to 
influence  cooperation  on  the  part  of  third  countries  on  readmission  through  a  common 
European  approach.  The  mechanism  has  proven  most  effective  when  applied  in  a  well-

5 Latest Asylum Trends - Annual Analysis | European Union Agency for Asylum, accessed 06 January 2026. The 
interactive bar chart (in the “Recognition Rates” and “Main citizenships” section) displays the recognition rates 
by nationality between 2015 and 2024, showing that recognition rates are very low for applications lodged by 
nationals of visa-free countries. 
6 The thresholds based on refusals of entry or overstay rates, and the substantial increase of asylum application 
have been lowered. New grounds for suspension were added: the operation of investor citizenship schemes, non-
alignment  with  the  EU’s  visa  policy,  non-compliance  with  commitments  made  during  visa  liberalisation 
dialogues, and the deterioration of the external relations between the EU and the third country concerned. 
7 Regulation (EC) No 810/2009 of the European Parliament and of the Council of 13 July 2009 establishing a 
Community Code on Visas, OJ L 243, 15.9.2009, pp. 1–58 (‘Visa Code’). 

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coordinated manner at EU level and accompanied by coherent messages to third countries on 
the consequences of insufficient cooperation.  

There is potential to use the mechanism in a more coherent way and to strengthen its role in 
promoting the EU’s values and interests. As part of the planned legislative revision of the Visa 
Code, the Commission will propose a more strategic and agile mechanism for implementing 
Article 25a.  

The proposed revision will aim to ensure that the mechanism is more closely aligned with the 
Union’s  objective  of  safeguarding  and  promoting  EU  interests  already  at  the  stage  of  the 
assessment and will lead to a greater emphasis being placed on the Union’s policy priorities.  

Such  a  revision  should  provide  for  greater  flexibility  at  the  stage  of  the  Commission’s 
proposal, and of the subsequent choice of restrictive visa measures. The two existing steps of 
the mechanism will be recalibrated and focused on measures that have proven most effective 
in practice, namely the suspension of fast-track visa processing and of multiple-entry visas for 
certain  (e.g.  diplomatic  or  service)  or  all  categories  of  passports.  In  particularly  serious 
situations, the mechanism should also allow for the suspension of visa issuance for certain 
(e.g. diplomatic or service) or all categories of passports. In addition, the mechanism should 
provide for the possibility to quickly react to a severe and sudden deterioration in return 
and readmission cooperation by a third country, by allowing for a direct triggering of restrictive 
measures if for example a third country introduces a moratorium on forced returns.  

To ensure a more strategic use of the mechanism and a common European approach, it has to 
be applied consistently across the EU. Therefore, the revision will also aim to strengthen EU-
wide coherence and ensure that visa measures imposed on a third country under the Article 
25a  mechanism  are  not  affected  by  exemptions  for  certain    categories  of  passports  (e.g. 
diplomatic or service) granted bilaterally by Member States, which would otherwise undermine 
the effectiveness of the measures.  

The Commission will assess the possibility to extend the logic of the Article 25a mechanism 
to other policy areas, allowing the development of agile and targeted ad hoc measures under 
the Visa Code, in response to insufficient cooperation by third countries in the fields of security 
and border management, including fighting illegal migration and migrant smuggling. This 
could help create a more comprehensive and integrated approach to addressing the underlying 
causes that undermine an effective visa policy.   

In addition to legislative changes, the Commission will implement practical measures to make 
use  of  the  mechanism’s  full  potential,  such  as:  introducing  a  minimal  initial  duration  for 
adopted visa measures, during which the concerned third country should achieve sustainable 
progress  in  cooperation  on  readmission,  which  will  reinforce  their  effectiveness  and  ensure 
clearer  communication  and  predictability  vis-à-vis  third  countries;  encouraging  a  more 
systematic use of the notification under Article 25a(3) of the Visa Code when Member States 
are faced with substantial and persisting practical problems in cooperation; and pursuing a 
systematic  approach  to  the  regular  review  of  the  relevance  of  Commission  proposals  not 
adopted by the Council and the repeal of measures adopted by the Council. 

To make the Article 25a mechanism more effective in improving third countries’ cooperation 
on return and readmission, the EU must expand its toolbox to include instruments in other 
areas,  such  as  international  cooperation  and  trade,  taking  into  account  the  EU’s  strategic 
interests. The Commission will therefore ensure synergies with the Global Europe Regulation 
(Article 12.3) proposed under the new Multiannual Financial Framework for the programming 
period  2028–2034,  to  leverage  third  countries’  cooperation  on  readmission.  The  revised 
Generalised Scheme of Preferences (GSP), which grants preferential trade access to  the EU 

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single market, should also support cooperation on readmission. A more integrated approach 
would give the visa mechanism a more substantial impact and foster a more coherent strategic 
approach in the EU’s relations with third countries concerned. 

4.   Introducing targeted restrictive visa measures 

In  an  increasingly  volatile  geopolitical  environment,  the  European  Union  must  be  able  to 
respond swiftly and proportionately to hostile actions by third countries. The EU’s visa policy 
is one of the Union’s most visible and direct interfaces with the outside world, and it should 
comprise  effective  tools  to  serve  as  both  a  deterrent  and  a  response  mechanism  in  cases  of 
severe political or security deterioration.  

In recent years, the Union has faced growing hostility from several third countries, including 
hybrid  attacks,  information  manipulation  and  interference,  the  politically  motivated 
instrumentalisation of migrants, weaponisation of migration, and open acts of aggression. In 
such  circumstances,  the  continued  issuance  of  visas  (particularly  for  non-essential  travel 
purposes,  such  as  tourism,  leisure,  or  unofficial  visits)  might  no  longer  be  considered 
appropriate as it could pose tangible risks to the Union’s security, public policy, or international 
relations.  

To address these risks and foster a common European approach in the field of visa policy in 
such contexts, the Commission will consider proposing, as part of a future legislative proposal 
for  a  revision  of  the  Visa  Code,  to  introduce  a  new  category  of  targeted  restrictive  visa 
measures  within  the  EU’s  visa  policy  framework.  This  new  category  of  measures  could 
include  equipping  the  Commission  with  the  ability  to  adopt,  in  consultation  with  Member 
States, binding measures that are in the interest of the EU and would allow for the suspension, 
rejection or restriction of visa applications submitted by nationals of such third countries. 
These measures could target specific categories of travellers, such as: holders of diplomatic, 
service, or official passports; identified former and current combatants of aggressor state; or 
applicants whose purpose of travel is non-essential. In this context, careful consideration will 
be given to overall EU interests and relations of the EU with the country in question. To ensure 
transparency,  proportionality,  and  legal  certainty,  any  activation  of  such  measures  should 
follow  a  clear  procedural  framework,  including  prior  consultation  of  Member  States  and  a 
predetermined review period. Safeguards should be built in to provide sufficient flexibility to 
issue visas for human rights defenders, dissidents, independent journalists, members of civil 
society organisations, and other humanitarian and exceptional cases.  

These measures would complement existing mechanisms, such as Article 25a of the Visa Code 
and  the  visa  suspension  mechanism,  by  enabling  the  adoption  of  swift,  proportionate,  and 
reversible restrictions in cases of a grave deterioration in relations with specific third countries. 

Introducing  such  an  instrument  would  increase  the  Union’s  strategic  autonomy  and 
coherence, aligning visa policy more closely with the objectives of the EU’s common foreign 
and security  policy.  It  would  also  send a clear political  message that  granting  access  to  the 
Schengen  area  is  a  prerogative  of  the  Union  and  its  Member  States  linked  to  respect  for 
international  law,  peaceful  conduct,  and  constructive  engagement  with  the  EU.  This  would 
make the EU’s visa policy a credible and strategic instrument in the Union’s external action 
toolbox.  

5.  Strengthening travel document security  

Visa policy depends on the use of secure and reliable travel documents that contain security 
features, which help prevent the falsification and counterfeiting of documents. Despite efforts 
to achieve a harmonised approach between Member States regarding which third-country travel 
documents may be used to enter and stay in the EU, the positions adopted at national level vary 

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significantly. To address this, the Commission will, after consultations with the Member States, 
consider proposing a new mechanism for drawing up a list of accepted third-country travel 
documents for entry into the Schengen area. A common approach to the acceptance of such 
documents, both for visa applications and border crossing, would strengthen the coherence of 
EU visa and border policies and reduce operational and legal uncertainties. Following further 
consultations  with  Member  States,  the  Commission  will  present  policy  options  to  align 
Member States’ positions on this issue. 

Furthermore,  there  have  been  cases  whereby  third-country  nationals  fraudulently  used  EU 
passports  or  residence  permits  to  gain  access  into  the  Schengen  area.  While  biometric 
verification is crucial for secure entry management, operational and technical limitations hinder 
cross-border access to fingerprint data stored in EU travel documents. It is therefore essential 
to  improve  the  capacity  of  Member  States  authorities  to  verify  fingerprints  stored  in  EU 
travel documents. The Commission will therefore assess the feasibility of creating an  EU-
level  central  point  of  contact  through  which  Member  States  could  securely  exchange 
certificates  for  fingerprint  verification,  replacing  the  current  992  bilateral  connections8  (in 
which  every  Member  State  and  the  Commission  are  connected  to  one  another)  and  any 
legislative changes required to achieve this. Increasing interoperability of these connections 
would significantly contribute to simplification and cost savings. 

Finally, document fraud enables serious crime and illegal migration, yet there are currently no 
common EU definitions or minimum criminal or administrative sanctions addressing the use 
of  fraudulent  documents.  The  absence  of  common  definitions,  rules  and  penalties  for 
document fraud creates fragmentation and opportunities for abuse, including visa shopping9. 
The Commission will assess the state of play in the Member States and present policy options 
for a more coherent approach to sanctions for the use of fraudulent documents. Such options 
could  include  a  legislative  initiative  on  harmonised  definitions,  minimum  criminal 
penalties, and targeted amendments to the existing acquis to draw up common administrative 
sanctions, including entry bans, which would ensure a more coherent approach to sanctions, 
enhance deterrence, facilitate investigation and prosecution, and enable sanctions even when 
perpetrators  reside  outside  Member  States’  jurisdictions.  These  measures  would  improve 
monitoring, support operational cooperation, and strengthen the overall integrity of EU visa, 
border and migration policies.  

6.  A more strategic approach to local adaptations of visa rules 

For the issuance of short-stay visas, coordination among Member States is done through local 
Schengen cooperation, as well as prior or ex-post consultation procedures10. The Commission 
regularly  adopts  local  adaptation  implementing  acts  to  adapt  rules  laid  down  in  the  Visa 

8 Travel documents issued by EU Member States contain fingerprints of the holder. Currently, the verification 
whether the biometric information stored in such travel document matches the holder requires bilateral exchange 
of  certificates  between  individual  Member  States’  designated  points  of  contact  (in  practice,  992  technical 
connections). Technical differences between the systems may impact the speed of such verifications.  
9 Visa shopping is the practice where applicants submit their visa applications not in the consulate of a Member 
State that most appropriately fits the applicant’s genuine main destination or purpose of travel, but in the consulate 
of a Member State perceived as offering more favourable conditions, such as lower refusal rates, faster processing 
times or easier appointment availability, or where the applicant applies in different Member States after having 
been previously rejected.  
10 Prior consultation grants Member States the right to object to each other’s visa decisions; ex post consultation 
allows Member States to be informed about other Member States’ decisions.  

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Code, concerning for example supporting documents or the issuance of  multiple entry-visa, 
making them either more or less favourable, depending on the specific regional contexts.  

While  these  adaptations  have  proven  useful,  their  potential  to  advance  the  EU’s  strategic 
interests  through  a  common  European  approach  should  be  further  strengthened  through  the 
Commission’s participation in steering the preparation of such decisions to support and provide 
guidance  to  Member  States  and  ensure  the  coherent  application  of  such  local  adaptations 
between  visa-required  countries,  and  to  safeguard  consistency  with  broader  geopolitical 
objectives. 

In addition, in the context of a proposal for a revision of the Visa Code, the Commission will 
consider whether new criteria should be added to guide the local adaptations. For example, 
these new criteria could include situations where there is a sharp and uncontrolled increase in 
arrivals of nationals of a visa-required third country, not offset by a corresponding number of 
returns, or the country’s level of cooperation on readmission, when assessing migratory and 
security risks.  

7.  A visa policy that protects the most vulnerable  

While strengthening the EU’s security, the common visa policy allows sufficient flexibility to 
Member States to cater to vulnerable applicants, such as human rights defenders, dissidents, 
independent journalists, and members of civil society organisations, on a case-by case basis. 
Member States may, in exceptional circumstances and where justified, issue short-stay visas 
on humanitarian grounds even if certain conditions are not met11. To strike the right balance 
between derogations in individual cases and a harmonised application of the common rules, 
the Commission has recently updated the Visa Code Handbook with additional guidance to 
Member  States  on  using  the  existing  flexibility  provisions  of  the  legal  framework  in  such 
situations,  and  will  continue  to  discuss  the  matter  with  Member  States.  Furthermore,  the 
digitalisation  of  visa  procedures  will  reduce  the  administrative  burden  for  all  applicants, 
including vulnerable groups. In addition, Member States retain the possibility to issue long-
stay visas for humanitarian reasons. 

Key next steps: 

•  Develop in 2026 a new assessment framework for proposing visa exemptions. 
•  Propose a revision of the Visa Code in 2026, including to: 

➢  make  the  Article  25a  mechanism  more  strategic  and  agile  to  respond  more 
effectively  to  insufficient  cooperation  on  readmission;  by  focusing  on  the 
suspension of fast-track visa processing and of multiple-entry visas, as well as 
allowing  for  the  suspension  of  visa  issuance  for  certain  (e.g.  diplomatic  or 
service) or all categories of passports. 

➢  develop  ad  hoc  measures  under  the  Visa  Code  in  response  to  insufficient 
cooperation by third countries in the fields of security and border management, 
including the fight against illegal migration and human smuggling; 

➢  introduce targeted restrictive visa measures in cases of a severe deterioration of 

the political or security situation in a third country; 
➢  introduce new criteria for local adaptations of visa rules.  

•  Full and coordinated use of the revised visa suspension mechanism. 

11 In line with the European Court of Justice case law, Member States are not required, under EU law, to grant a 
humanitarian visa to persons who wish to enter their territory with a view to applying for asylum, but they remain 
free to do so on the basis of their national law (Judgment C-638/16 PPU X and X v État belge). 

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•  Ensure synergies with the GSP regulation and the Global Europe proposed under the 
new  Multiannual  Financial  Framework  to  leverage  third  countries’  cooperation  on 
readmission. 

•  Consider strengthening travel document security, including by: 

➢  establishing a uniform list of accepted third-country travel documents; 
➢  setting  up  an  EU-level  central  point  of  contact  for  verification  of  fingerprints 

stored in EU travel documents; 

•  putting  in  place  a  more  coherent  approach  to  sanctions  for  the  use  of  fraudulent 

documents. 

III.  VISA POLICY THAT POWERS OUR ECONOMY AND COMPETITIVENESS  

1.  Facilitating travel for tourism and business  

The Schengen area is the world’s most visited destination, with 40% of global international 
travel  crossing  its  external  borders12.  In  addition  to  those  from  visa-free  countries,  these 
travellers included people arriving with the over 10 million visas issued last year by Member 
States13. Tourism accounts for approximately 10% of the EU’s GDP and supports around 23 
million jobs across various sectors14. It reinforces the EU’s global standing by showcasing our 
values and heritage, with cultural tourism accounting for 40% of all EU tourism and having an 
important economic impact on other sectors15. International tourists spent EUR 515 billion in 
the EU in 2024, with business travel having the highest expenditure per trip16. This generates 
a key source of revenue for local, regional, and national economies. 

A modern visa policy must make legitimate travel easier and more predictable. Tourists and 
businesspeople  expect  a  seamless  travel  experience  with  faster,  paperless,  and  secure  visa 
procedures. By simplifying access for such travellers, the EU will strengthen its position as a 
global  hub  for  tourism  and  business,  without,  however,  compromising  on  its  high  security 
standards. 

The EU will roll out in the coming years a major reform of its visa rules that will fundamentally 
transform the way visa applications are collected, processed and issued, facilitating travel for 
travellers who need a visa to enter the EU. A key feature of this reform will be the digitalisation 
of visa  procedures. Applicants  will  be able to  complete the  entire visa  application process 
online, and traditional visa stickers will be replaced by secure digital visas17. This reform will 
make travelling to Europe safer and more convenient, while providing Member States with up-
to-date and harmonised tools to process applications efficiently and securely.  

Multiple-entry visas with longer validity periods are a tool that  rewards reliable travellers, 
reduces administrative burden, and stimulates economic activity18. To make further use of this 
tool, the Commission, in close cooperation with Member States, will consider possibilities for 
issuing multiple-entry visas for tourism and business with a validity period beyond five years 
for bona-fide applicants with a lawful visa history and who do not present migratory or security 

12 COM/2025/185 final. 
13 DG HOME, Live work travel in EU, accessed 06 January 2026. 
14 Overview of EU tourism policy - Mobility and Transport, accessed 06 January 2026. 
15 COM/2025/785 final. 
16  Tourism  statistics,  accessed  06  January  2026.  EU  Tourism  in  2024:  Key  Updates  and  Emerging  Trends, 
accessed 06 January 2026. 
17 Schengen visa digitalisation, accessed 06 January 2026. 
18 Canada, U.K., the U.S. 

8 

 
 
 
 
risks, while taking into account the retention periods for biometric data stored in EU IT systems 
for border management. As part of a future revision of the Visa Code, the Commission will 
consider possible options, such as extending the validity of existing five-year multiple-entry 
visas after a new assessment, reconfirming them for an additional number of years, or creating 
a new category of multiple-entry visas valid for a longer period. 

Visa applicants who travel for business on behalf of trusted companies generally present low 
risks  and  are  reliable.  However,  there  is  no  common  approach  to  managing  such  trusted 
travellers  and  corporate  sponsors,  with  each  Member  State  having  separate  schemes  and 
facilitations for the visa  process. Some of these schemes target specific sectors, such as the 
shipping or road transport industries. This leads to fragmentation for businesses that are active 
throughout the EU. Together with Member States, the Commission will consult Member States 
on setting up a possible common list of verified companies, including startups and scaleups, 
whose  employees  would  receive  fast-track  processing,  facilitating  procedures  for  trusted 
business travellers and bringing economic benefits to the entire EU single market.  

For travellers who do not need a visa to enter the EU, the EU will launch in 2026 the European 
Travel Information and Authorisation System (ETIAS). By requiring travellers to submit 
personal and travel information through an online application prior to departure, ETIAS will 
make border checks faster and more efficient, while enabling authorities to carry out enhanced 
security screening before travellers reach Europe’s borders. The European Border and Coast 
Guard Agency (Frontex) will set up a 24/7 ETIAS assistance centre to support both travellers 
(for  example  by  helping  them  fill  in  their  application  form),  and  carriers  (for  instance  by 
assisting them with technical issues)19.  

2.  Attracting talent for innovation and competitiveness 

In today’s increasingly competitive global landscape, the EU’s visa policy should support the 
EU  competitiveness  agenda,  with  a  more  agile  framework  to  attract  global  talent,  foster 
knowledge  transfer  and  international  collaboration,  and  deliver  clear  benefits  to  SMEs, 
startups, and large enterprises seeking diverse, highly qualified and skilled workforce in the 
sectors most relevant for the twin transitions.  

International  students  and researchers contribute  to  the EU’s economy  by filling skill  gaps, 
driving  research,  innovation,  and  contributing  to  a  more  skilled  workforce  through  their 
subsequent  employment  or  entrepreneurship.  Highly  qualified  and  skilled  workers  and 
entrepreneurs,  including  digitally  skilled  ones,  bring  ideas,  drive  investments  and  help 
businesses to grow. Academics, artists and cultural professionals also play a role in enhancing 
the global competitiveness of the EU by fostering international collaboration. 

To remain a world leader in innovation, the EU must become a preferred destination for the 
world’s most skilled and creative individuals. The Union of Skills20, the Start-up and Scale-
up Strategy21, the AI Continent Action Plan22, and the Choose Europe23 initiative all highlight 
the  need  to  facilitate  the  arrival  of  international  students,  researchers,  highly  qualified  and 
skilled  workers,  startup  founders  and  innovative  entrepreneurs.  Flagship  initiatives  such  as 
Erasmus Mundus, the European Universities Alliances, the future joint European degree/label, 
the  upcoming  Vocational  Education  and  Training  Strategy,  and  the  Pact  for  the 

19 ETIAS, accessed on 06 January 2026. 
20 COM(2025) 90 final. 
21 COM(2025) 270 final. 
22 COM(2025) 165 final. 
23 Choose Europe: advance your research career in the EU, accessed 06 January 2026. 

9 

 
 
 
Mediterranean24  also  seek  to  contribute  to  attracting  international  talent  and  reinforce  the 
significance of talent mobility to build comprehensive partnerships. The upcoming 28th regime 
will allow businesses to  register  and operate across  Member States seamlessly, helping EU 
companies grow and attracting investment from across the world. 

Yet  today,  lengthy  and  fragmented  procedures  for  long-stay  visas  discourage  those  people 
Europe needs the most from coming to the EU.   

The EU has a framework in place to attract international students and researchers, as well as 
highly qualified and skilled workers, namely the Students and Researchers Directive25 and the 
EU  Blue  Card  Directive26.  However,  gaps  and  inefficiencies  in  the  implementation  of  that 
framework make the EU less attractive for these categories of persons. Applicants, European 
universities and employers often raise concerns about delays in the processing of long-stay visa 
applications by consulates, difficulties in booking appointments, a lack of clear and accessible 
information on required documentation, as well as complex and inconsistent visa procedures.  

Efforts should be made for the existing framework on talent attraction to work better. To 
this  end,  the  Commission  is  presenting  alongside  this  strategy  a  Recommendation  on 
Attracting  Talent  for  Innovation  encouraging  Member  States  to  simplify  and  accelerate 
procedures, pool and coordinate consular resources, ensure consistent rights and safeguards, 
and  improve  access  to  information  and  coordination  among  national  authorities,  education 
institutions and innovation ecosystems. Complementary measures for top researchers will be 
considered  in  the  upcoming  European  Research  Area  (ERA)  Act,  for  example  to  facilitate 
researchers’ mobility to Europe as part of EU-funded programmes. 

EU  funding  will  complement  these  efforts  by  supporting  Member  States’  consulates  in 
processing applications from non-EU nationals with specialised skills and strong innovation 
and  research  potential,  particularly  participants  in  EU  programmes  such  as  Erasmus+  and 
Marie  Skłodowska-Curie  Actions,  and  also  with  a  focus  on  Talent  Partnership 
countries27. The first European Legal Gateway Office pilot will be launched in India starting 
with the ICT sector. On the basis of the lessons learnt from this pilot, the Commission will 
work  to  expand  the  European  Legal  Gateway  Office  to  other  sectors  and  other  partner 
countries, such as Talent Partnership countries, including with the aim to support third-country 
nationals and employers to address challenges linked to the visa process. Once operational, the 
EU Talent Pool28 will facilitate job-matching in the recruitment of non-EU talent at all skills 
levels,  including  by  providing  information  on  recruitment  and  migration  rules,  as  well  as 
recognition  procedures29. The  implementation  of  these  initiatives  will  have  to  minimise  the 
negative impact and maximise the positive impact on partner countries in order to turn brain  

24 JOIN(2025) 26 final.  
25 Directive (EU) 2016/801 of the European Parliament and of the Council of 11 May 2016 on the conditions of 
entry and residence of third-country nationals for the purposes of research, studies, training, voluntary service, 
pupil exchange schemes or educational projects and au pairing, OJ L 132, 21.5.2016, pp. 21–25. 
26 Directive (EU) 2021/1883 of the European Parliament and of the Council of 20 October 2021 on the conditions 
of  entry  and  residence  of  third-country  nationals  for  the  purpose  of  highly  qualified  employment,  OJ  L  382, 
28.10.2021, pp. 1–38. 
27 Talent Partnerships aim to promote structured cooperation frameworks with partner countries. The Commission 
together with the EU Member States has currently launched Talent Partnerships with Tunisia, Morocco, Egypt, 
Bangladesh and Pakistan. 
28 COM/2023/716. 
29  In  the  context  of  the  Talent  Pool,  low-  and  medium-skilled  workers  who  could  contribute  to  tackling  job 
shortages could potentially benefit from facilitated visa application procedures. 

10 

 
 
 
drain into brain gain. Furthermore, it will be important to provide safeguards to ensure research 
security, and mitigate risks related to international research and innovation cooperation30. 

In parallel, and taking stock of the implementation of the Recommendation, the Commission 
will assess in 2026 whether targeted legislative adjustments are needed to make long-stay 
visa  procedures  simpler  and  more  responsive  to  the  EU’s  competitiveness  and  innovation 
ambitions,  aimed  in  particular  at  people  working,  researching  or  studying  in  STEM-related 
fields (science, technology, engineering, mathematics). The Commission will notably explore 
the feasibility of an ‘Omnibus’ series of targeted amendments to existing EU rules on students 
and researchers and highly qualified and skilled workers to adapt them to the innovation and 
research  ecosystems,  as  well  as  a  targeted  EU  legal  framework  for  start-up  and  scale-up 
founders and innovative entrepreneurs. 

Together, these measures will help turn Europe into a genuine magnet for talent – a continent 
that welcomes knowledge, creativity and entrepreneurship as drivers of its future prosperity.  

3.  Reducing complexities 

Currently, EU law authorises stays within the Schengen area for up to 90 days within 180 days 
for visa-free and visa-required travellers. Any stay exceeding 90 days requires a long-term visa 
or residence permit issued by a Member State. However, some third country professionals who 
heavily rely on mobility between Member States – such as touring artists, athletes attending 
sporting  events,  experts  working  on  cross-border  projects,  work-force  supporting  the  EU 
industries  and  services  or  truck  drivers  servicing  EU  businesses  –  may  require  access  to 
different Member States for more than 90 days within 180 days, without needing long stay 
or residence in the EU.  

This  creates  a  complex  system,  which  is  further  complicated  by  the  existence  of  bilateral 
agreements  concluded  by  some  Member  States  before  the  entry  into  force  of  the  Schengen 
acquis, which allow nationals of specific third countries to stay beyond 90 days, but only within 
the territory of the Member State concerned, thereby undermining the uniform application of 
the Schengen acquis.  

The Commission  will work closely with  Member States to  identify  pragmatic solutions  to 
accommodate extended short stays for selected categories of third-country nationals, ensuring 
a  security  and  economic  benefit  for  the  Union,  as  well  as  legal  clarity  for  travellers.  These 
reflections will also explore the introduction of new legislation with a specific set of extended 
short-stay rules at EU level. In this context, the Commission will review the impact of existing 
bilateral agreements allowing extended stays, with a view to gradually phasing them out31. 

Key next steps: 
•  Roll out swiftly the digitalisation of the visa procedures. 
•  Launch the European Travel Information and Authorisation System in 2026. 
• 
• 
•  Explore options  to  adapt the EU’s  long-stay visa framework to  innovation and research 

Identify options for multiple-entry visas with longer validity. 
Implement the Commission Recommendation on attracting talent for innovation. 

ecosystems. 

30 Council Recommendation of 23 May 2024 on enhancing research security, OJ C, C/2024/3510, 30.5.2024. 
31 As foreseen by Regulation (EU) 2017/2226 of the European Parliament and of the Council of 30 November 
2017 establishing an Entry/Exit System (EES) to register entry and exit data and refusal of entry data of  third-
country nationals crossing the external borders of the Member States and determining the conditions for access to 
the EES for law enforcement purposes, and amending the Convention implementing the Schengen Agreement 
and Regulations (EC) No 767/2008 and (EU) No 1077/2011, OJ L 327, 9.12.2017, pp. 20–82. 

11 

 
 
 
•  Explore  new  rules  for  extended  short  stays  for  selected  categories  of  third-country 

professionals, such as touring artists, competing athletes, or truck drivers. 

IV.  SUPPORTING MEMBER STATES WITH MODERN VISA TOOLS   

1.  Smart IT systems to improve information sharing and prevent visa abuse   

The EU is rolling out one of the most advanced digital systems for border management in 
the world.  

The Entry/Exit System (EES) – an automated IT system that registers non-EU travellers for a 
short  stay  each  time  they  cross  the  external  borders  of  any  of  the  29  Schengen  countries  – 
successfully started operating in October 2025. It allows travellers to verify at any time their 
remaining authorised period of stay and automatically alerts Member States when individuals 
are identified as overstayers. With more than 20 million registrations of entries and exits since 
its launch, the EES has already proven to be a game-changer in managing borders, preventing 
illegal migration, detecting document and identify fraud, and ultimately increasing the security 
of the EU. After the progressive start, the EES will be fully operational at all border crossing 
points in the Schengen area as of April 2026. 

Furthermore, the new Eurodac system for registration of applicants for international protection 
will  become  operational  in  June  2026.  It  will  substantially  improve  the  Union’s  ability  to 
address  visa  misuse  by  visa-required  third-country  nationals.  It  will  include  more  detailed 
information on third-country nationals, and it will link all datasets corresponding to the same 
individual and store data on visa holders who have applied for international protection.  

ETIAS will increase internal security by pre-screening travellers for potential security, illegal 
migration, and high epidemic risks prior to their departure. By automating these checks against 
various  EU  databases,  ETIAS  will  make  border  crossings  faster  and  more  efficient  for  the 
travellers who do not pose a risk.   

The Visa Information System (VIS) already now includes short-stay visa application data for 
foreign  nationals  from  visa-required  countries.  It  aims  to  facilitate,  in  particular,  the  visa 
process for legitimate travellers, while helping authorities to prevent fraud and visa shopping. 
It also helps with checks at external border crossing points to make sure that the person arriving 
at the border is the rightful visa holder. The revised VIS will integrate data on long-stay visas 
and residence permits, in addition to information on short-stay visas. It will also automate the 
querying of all relevant EU databases, improving the quality and consistency of decisions on 
visa applications. 

Once  the  interoperability  framework  of  EU  information  systems  is  fully  implemented  in 
2028, it will be possible to query – through a single, central search – multiple databases at once. 
The interoperability framework will present a comprehensive picture of a person's status by 
pulling together relevant data on a single screen. This means that authorities will be able to 
automatically  detect  multiple  or  fraudulent  identities  or  identify  whether  a  person  did  not 
comply with the rules of their stay. It will also generate cross-system statistics that will provide 
valuable insights into travel patterns, risks, and potential abuses, thereby supporting evidence-
based visa policy.   

In the future, EU IT systems supporting visa processing should aim to leverage technological 
developments,  in  particular  Artificial  Intelligence  solutions.  At  the  same  time,  new 
technologies will offer further opportunities to improve the security of visa processes and make 
the travel experience of bona fide travellers smoother and easier.   

12 

 
 
 
2.  Supporting Member States in visa processing 

Modern visa policy also requires the efficient processing of visa applications. Managing high 
volumes  of  applications  and  ensuring  timely  appointments  at  consulates  pose  challenges, 
particularly during peak periods. These pressures are further increased by necessary procedural 
steps,  such  as  conducting  thorough  security  checks,  reliably  identifying  applicants,  and 
addressing risks related to document fraud. Differences in national practices and varying levels 
of digitalisation across Member States can also result in a less streamlined and a less transparent 
experience  for  applicants.  These  challenges  can  undermine  the  effectiveness  of  the  system, 
reduce trust among Member States and diminish public confidence in the fairness of EU visa 
procedures.  

The roll out of IT tools for border management referred to above will be crucial to strengthen 
the security and integrity of the EU’s visa process. However, this must be complemented by 
practical support for the implementation of visa policy at both consular and central levels. Such 
support  will:  ensure  a  more  harmonised  application  of  visa  rules,  enhance  the  quality, 
efficiency, and consistency of decision-making across Member States, facilitate the roll-out of 
the digitalisation of the visa procedure, and help to reduce visa shopping.  

Although  visa  policy  is  a  core  component  of  the  EU’s  border  management  policy  and 
represents the Union’s first level of protection in safeguarding the Schengen area, it is the only 
home affairs policy that does not benefit from the structured support of an EU Agency. To this 
end, the forthcoming revision of the Frontex mandate will explore the opportunities to establish 
an  EU  Visa  Support  Office  within  Frontex  to  provide  operational  support  in  an  advisory 
capacity. Its tasks could include: developing and delivering training for consular officers to 
ensure  consistently  high  standards  in  visa-decision  making;  supporting  consulates  in 
document  verification  and  the  detection  of  document  fraud  through  specialised  expertise, 
tools and best practices; and conducting risk assessments and country analyses to promote 
coherent, evidence-based visa decision-making across the Union.  

Furthermore, the growing reliance by Member States on external service providers (ESPs) to 
handle parts  of the visa  process  calls  for improved  quality  control  and monitoring.  For this 
reason, the Commission will launch a comprehensive study on outsourcing practices and 
the financing of ESPs charged with collecting visa applications, with a view to drawing up 
options to prevent system abuses.  

3.  Strategic use of EU funding for visa policy implementation 

Member States should continue to make strategic use of available EU funding to support the 
effective  implementation  of  visa  policy.  Priority  should  be  given  to  financing  the 
development of national components and necessary adaptations for the revised VIS and  the 
digitalisation of visa procedures. Funding should also strengthen processing capacities (staffing 
and  equipment)  in  locations  where  applicants  face  long  waiting  times  for  Schengen  visa 
appointments.  The  Commission  aims  to  provide  financial  support  to  Member  States  in  the 
implementation of the visa-related policy priorities to address key needs in visa policy. The 
Commission  also  aims  to  provide  targeted  guidance,  thematic  workshops  and  best  practice 
exchanges to highlight successful initiatives and facilitate the practical implementation of visa-
related activities. Looking ahead to the programming period 2028-2034, the Commission seeks 
to  draw  lessons  from  current  implementation  to  ensure  that  visa-related  priorities  are  more 
prominently  integrated  into  future  funding  frameworks.  By  maintaining  a  strong  focus  on 
innovation, interoperability and operational effectiveness, the Commission aims to ensure that 
EU funding further advances a modern, secure and efficient EU visa policy.  The Commission 
will explore, together with Member States, the feasibility of increasing visa fees harmonised at 

13 

 
 
Union level for Schengen visas, and using revenues from such increase in support of further 
developing the EU’s common visa policy. 

Key next steps: 

•  Ensure the roll  out  of smart  IT systems  for border management and the  interoperability 

framework.  

•  Propose to establish an EU Visa Support Office as part of the proposal for the revision of 

the mandate of Frontex in 2026. 

•  Launch a comprehensive study on the use of external service providers in the visa process. 

V.  CONCLUSION  

To meet current and future global challenges, the Union must adapt. The EU’s visa policy is 
central to this transformation, sitting at the intersection of the Union’s competitiveness, security 
and foreign policy.  

To ensure a successful implementation of this strategy, the Commission will engage with the 
European  Parliament  and  the  Council  of  the  European  Union,  and  will  invite  both 
institutions to support work on the announced future initiatives. In view of their impact on the 
external  relations  of  the  EU,  the  actions  proposed  in  this  strategy  will  be  carried  out  in 
cooperation with the European External Action Service, within the exercise of its functions. 

A modern, forward-looking visa policy will be a key enabler of the EU’s global attractiveness, 
sustaining Europe’s innovation capacity, growth and competitiveness. But openness must go 
hand in hand with responsibility. A credible visa policy must therefore prevent abuses, deter 
illegal  migration,  and  protect  the  integrity  of  the  Schengen  area.  Striking  the  right  balance 
between security and facilitation is essential to both maintaining citizens’ trust and ensuring 
the resilience of Europe’s external borders and its internal security.  

At the same time, visa policy is a powerful instrument of the Union’s external and foreign 
policy. It can promote cooperation with partner countries in areas of strategic importance to the 
EU. The proposed reforms will ensure that visa-free travel is not a permanent entitlement 
but a privilege that requires consistent efforts to be maintained.   

Delivering  on  this  vision  requires  modern  tools  and  effective  implementation.  The 
digitalisation  of  visa  procedures  and  the  simplification  of  application  systems  will  make 
Europe’s visa policy more efficient, secure and user-friendly, benefitting both travellers and 
Member  States.  Consistent  implementation  across  the  Union  will  be  crucial  to  turn  these 
reforms into tangible results.  

Ultimately, visa policy, as an essential pillar of the Schengen acquis, must serve as a strategic 
bridge between openness and protection. It must reassure citizens that Europe’s borders are 
managed effectively, while signalling to  the world  that the  European Union  is  an assertive, 
competitive and strategically-minded global actor, ready to shape mobility on its own terms in 
an increasingly interconnected world. 

14