Proposal for a COUNCIL IMPLEMENTING DECISION on repealing Implementing Decision (EU) 2024/1341 on the suspension of certain provisions of Regulation (EC) No 810/2009 of the European Parliament and of the Council in respect of Ethiopia
Date: 2026-04-20
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU visa policy, Ethiopia, Schengen Agreement, administrative cooperation, admission of aliens, application of EU law, external border of the EU, foreign national, illegal migration, return migration

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   EUROPEAN COMMISSION  Brussels, 20.4.2026  COM(2026) 167 final 2026/0092 (NLE)  Proposal for a COUNCIL IMPLEMENTING DECISION on repealing Implementing Decision (EU) 2024/1341 on the suspension of certain provisions of Regulation (EC) No 810/2009 of the European Parliament and of the Council in respect of Ethiopia   
 
EXPLANATORY MEMORANDUM 

1. 

CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

• 
In  accordance  with  Article  25a(2)  of  Regulation  (EC)  No  810/2009  (the “Visa  Code”)1,  the 
Commission  shall  regularly  assess  third  countries'  cooperation  on  readmission  and  report  to 
the Council at least once a year.  
Based on the 4th assessment on cooperation, adopted in 2023 and covering the reference year 
2022,  and  taking  into  account  the  steps  taken  by  the  Commission  to  improve  the  level  of 
cooperation of the third country concerned in the field of readmission and the Union’s overall 
relations with  the third  country concerned, the Commission  concluded that  Ethiopia did  not 
cooperate  sufficiently  and  that  action  was  therefore  necessary.  On  27  September  2023,  in 
accordance  with  point  (a)  of  Article  25a(5)  of  the  Visa  Code,  the  Commission  adopted  a 
proposal  for  a  Council  Implementing  Decision  suspending  the  application  of  provisions  in 
Article 14(6), point (b) of Article 16(5), Article 23(1), and Articles 24(2) and (2c) of the Visa 
Code in respect of nationals of Ethiopia. The Council adopted Implementing Decision (EU) 
2024/1341 on 29 April 20242. 

In accordance with Article 25a(6) of the Visa Code, the Commission shall continuously assess 
and  report,  on  the  basis  of  the  indicators  set  out  in  paragraph  2  of  that  Article,  whether 
substantial  and  sustained  improvement  in  the  cooperation  with  the  third  country  concerned 
can  be  established  and,  taking  also  account  of  the  Union's  overall  relations  with  that  third 
country, may submit a proposal to the Council to repeal or amend the implementing decisions 
referred to in paragraph 5 of that Article.  
Based on the 6th annual assessment on cooperation adopted in 20253 and covering reference 
year  2024,  the  Commission  took  note  of  the  substantial  action  taken  by  Ethiopia  and  the 
positive trend in improving cooperation, which needed to turn into sustained progress.  

Based on the continuous assessment of cooperation, including in the relevant technical expert 
and  Council  working  groups,  and  on  the  sustained  progress  noted  in  the  6th  Joint  Working 
Group held on 18 February 2026, the Commission considers that since the entry into force of 
Council  Implementing  Decision  (EU)  2024/1341,  substantial  and  sustained  improvement  in 
the cooperation on readmission can be established in the identification of Ethiopian nationals 
illegally  staying  on  the  territory  of  the  Member  States,  in  the  issuance  of  emergency  travel 
documents  and  in  the  regular  organisation  of  return  operations.  Therefore,  the  Commission 
considers  it  appropriate  to  table  a  proposal  for  a  Council  Implementing  Decision  repealing 
Council Implementing Decision (EU) 2024/1341. 

The case of Ethiopia 

In  February  2018  the  EU  concluded  a  non-binding  readmission  arrangement  with  Ethiopia 
(“Admission procedure for the return of Ethiopians from European Union Member States”). 
Since  then,  six  Joint  Working  Group  meetings  have  taken  place  to  monitor  the 
implementation of the agreement.  

1 

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3 

Regulation  (EC)  No  810/2009  of  the  European  Parliament  and  of  the  Council  of  13  July  2009 
establishing a Community Code on Visas (Visa Code), OJ L 243, 15.9.2009, p. 1. 
COUNCIL  IMPLEMENTING  DECISION  (EU)  2024/1341  of  29  April  2024  on  the  suspension  of 
certain provisions of Regulation (EC) No 810/2009 of the European Parliament and of the Council in 
respect of Ethiopia. 
COM(2025) 416 final of 15 July 2025. 

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In the 4th Article 25a report of 2023, the Commission considered that Ethiopia’s cooperation 
on readmission in 2022 was insufficient. There were persistent challenges in the identification 
of Ethiopian nationals illegally staying on the territory of the Member States due to the lack of 
response from the Ethiopian authorities with regard to readmission requests, difficulties with 
the  issuance  of  emergency  travel  documents,  including  when  the  nationality  had  previously 
been confirmed, and difficulties with the organisation of return operations for voluntary and 
forced returns on scheduled and charter flights. 

Despite  efforts  to  intensify  the  engagement  on  readmission  and  the  provision  of  technical 
assistance by the EU, cooperation on  readmission with  Ethiopia had not  improved. The EU 
conveyed to Ethiopia clear messages about the need to improve cooperation in readmitting its 
nationals  with  no  right  to  stay  in  the  EU  Member  States  and  to  fully  implement  the 
readmission  arrangement,  including  through  the  swift  identification  and  issuance  of 
emergency  travel  documents  for  all  returns,  including  forced  ones.  Due  to  the  lack  of 
improvement despite continuous steps taken by the Commission and taking into account the 
EU’s  overall  relations  with  Ethiopia,  it  was  considered  that  Ethiopia’s  cooperation  with  the 
EU  on  readmission  was  not  sufficient  and  that  further  action  was  needed.  The  Commission 
therefore proposed visa measures in September 2023, which were adopted by the Council in 
April 2024. 

In  the  6th  Article  25a  report,  adopted  in  July  2025  and  covering  reference  year  2024,  the 
Commission  took  note  of  the  substantial  action  taken  by  Ethiopia  and  the  positive  trend  in 
improving  cooperation  which  needed  to  turn  into  sustained  progress.  Ethiopia  restarted 
processing  forced  return  cases  and  issuing  emergency  travel  documents  with  appropriate 
validity  (as  indicated  in  the  readmission  arrangement)  and  improved  its  responsiveness 
towards Member States’ authorities. Three identification missions took place in 2024 and one 
in  2025, with  positive results  regarding confirmation of nationality  and improving timelines 
for  the  communication  of  results,  and  the  commitment  provided  to  Member  States  that 
emergency  travel  documents  would  be  issued  upon  request  for  all  cases.  The  first  charter 
flight operation since 2021 took place in December 2024 and cooperation via charter flights 
has continued in the course of 2025. In December 2025, a successful training on nationality 
verification  techniques  was  organised  by  the  EU  in  Brussels,  for  Ethiopia’s  national 
administration and consulates in Europe. 

On  the  basis  of  all  of  the  above,  the  Commission  considers  that  substantial  and  sustained 
improvement in the cooperation on readmission can be established and is proposing to repeal 
Council Implementing Decision 2024/1341.  

The Union’s overall relations with Ethiopia 

Ethiopia is a key country for stability in the Horn of Africa. It is the second most populated 
country in Africa (110 million inhabitants) and a host of  over 1.1 million refugees from the 
region.  There  has  been  internal  conflict  in  Ethiopia  since  November  2020,  which  led  to  the 
signing on 2 November 2022 of the Permanent Cessation of Hostilities Agreement in Pretoria, 
South Africa. During the critical stage of the conflict in Sudan that broke out in April 2023, 
the Ethiopian authorities provided substantial assistance with visa issuance and facilities at the 
border during the evacuation of the EU nationals from Sudan.  

The  country  enjoys  duty-free  and  quota-free  access  to  the  European  market  under  the 
“Everything but Arms” scheme.  

Ethiopia is a member of the Intergovernmental Authority on Development and a member of 
the  Steering  Committee  of  the  Khartoum  Process.  Ethiopia  is  a  party  to  the  Samoa 
Agreement.  Ethiopia  is  an  important  partner  for  the  European  Union,  with  a  longstanding 

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partnership  dating  back  over  40  years.  In  2016,  the  EU  and  Ethiopia  signed  a  “Strategic 
Engagement”,  committing  both  sides  to  close  cooperation  in  areas  ranging  from  regional 
peace and security to trade and investment, and including migration and forced displacement. 
The EU assists Ethiopia through the Multi-annual Indicative Programme (MIP) for Ethiopia 
2024-2027, initially set at EUR 650 million and revised to EUR 609 million after a mid-term 
review. This initiative marks a significant progression in the EU's engagement with Ethiopia, 
transitioning  from  crisis  response  and  reconstruction  support  to  a  sustainable,  long-term 
investment  partnership.  It  covers  3  priority  areas:  Green  Deal,  Human  Development 
(including migration and forced displacement) and Governance / Peacebuilding.  

• 

Consistency with existing policy provisions in the policy area 

The  proposed  decision  is  consistent  with  the  Visa  Code  setting  the  harmonised  rules  of  the 
common  visa  policy  governing  the  procedures  and  conditions  for  issuing  visas  for  intended 
stays on the territory of the Member States not exceeding 90 days in any 180-day period. The 
proposed decision is also consistent with the previous proposal to establish the measures4.  

• 

Consistency with other Union policies 

The EU promotes a comprehensive approach on migration and forced displacement, based on 
shared  values  and  responsibilities.  The  New  Pact  on  Migration  and  Asylum  foresees 
developing and deepening tailor-made comprehensive and balanced partnerships to foster co-
operation on all relevant aspects:  

– 

– 

– 

– 

– 

Providing  protection  to  those  in  need  of  it  and  support  to  host  countries  and 
communities; 

Building economic opportunity and addressing the root causes of irregular migration 
and forced displacement; 

Supporting partners to strengthen migration governance and management; 

Fostering cooperation on return and readmission; 

Developing legal pathways to Europe. 

The cooperation between Member States  and third countries on the readmission of illegally 
staying  third  country  nationals  is  an  important  element  of  this  policy.  In  the  Council 
conclusions of October 2024, the European Council called for determined action at all levels 
to  facilitate,  increase  and  speed  up  returns  from  the  European  Union,  using  all  relevant  EU 
policies, instruments and tools, including diplomacy, development, trade and visas5. 

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Legal basis 

Regulation (EC) No 810/2009 of the European Parliament and of the Council of 13 July 2009 
establishing a Community Code on Visas (Visa Code), Article 25a(6). 

4 

5 

Commission  proposal  for  a  COUNCIL  IMPLEMENTING  DECISION  on  the  suspension  of  certain 
provisions of Regulation (EC) 810/2009 of the European Parliament and of the Council with respect to 
Ethiopia, COM(2023) 568 final 2023/0344. 
EUCO 25/24. 

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Subsidiarity (for non-exclusive competence)  

• 

n.a. 

• 

Proportionality 

The  purpose  of  the  proposed  measure  is  to  repeal  the  visa  measures,  acknowledging  the 
substantial and sustained progress in cooperation achieved by Ethiopia, notably in relation to 
the shortcomings identified, and to the intensity of the efforts. The measure is proportionate to 
the objective pursued.  

RESULTS 
CONSULTATIONS AND IMPACT ASSESSMENTS 

EX-POST 

EVALUATIONS, 

OF 

STAKEHOLDER 

Ex-post evaluations/fitness checks of existing legislation 

Stakeholder consultations 

Collection and use of expertise 

Impact assessment 

Regulatory fitness and simplification 

3. 

• 

n.a.  

• 

n.a.  

• 

n.a.  

• 

n.a.  

• 

n.a.  

• 

Fundamental rights 

The repeal of the visa measures means that visa applications will again be processed under the 
standard rules of the Visa Code, hence fundamental rights will not be affected.  

BUDGETARY IMPLICATIONS 

OTHER ELEMENTS 

Implementation plans and monitoring, evaluation and reporting arrangements 

Explanatory documents (for directives) 

4. 

n.a.  

5. 

• 

n.a.  

• 

n.a.  

• 

Detailed explanation of the specific provisions of the proposal 

Article 1 sets out that Council Implementing Decision (EU) 2024/1341 of 29 April 2024 on 
the suspension of certain provisions of Regulation (EC) No 810/2009 with respect to Ethiopia 
is repealed.  

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Article  2  contains  the  list  of  addressees  of  the  proposed  decision,  i.e.  the  relevant  Member 
States. 

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2026/0092 (NLE) 

Proposal for a 

COUNCIL IMPLEMENTING DECISION 

on repealing Implementing Decision (EU) 2024/1341 on the suspension of certain 
provisions of Regulation (EC) No 810/2009 of the European Parliament and of the 
Council in respect of Ethiopia 

THE COUNCIL OF THE EUROPEAN UNION, 

Having regard to the Treaty on the Functioning of the European Union,  

Having  regard  to  Regulation  (EC)  No  810/2009  of  the  European  Parliament  and  of  the 
Council  of  13  July  2009  establishing  a  Community  Code  on  Visas  (Visa  Code)6,  and  in 
particular Article 25a(6) thereof,  

Having regard to the proposal from the European Commission, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

Ethiopia’s  cooperation  on  readmission  in  2022  was  assessed  as  insufficient  in 
accordance  with  Article  25a(2)  of  Regulation  (EC)  No  810/2009.  Significant 
improvements  in  the  cooperation  on  all  the  steps  of  the  readmission  process  were 
needed, including to ensure that Ethiopia effectively cooperates on identification and 
issuance of travel documents, as well as on return operations, with all Member States 
in a timely and predictable manner. 

Taking  into  account  the  steps  taken  by  the  Commission  to  improve  the  level  of 
cooperation,  and  the  Union’s  overall  relations  with  Ethiopia,  it  was  considered  that 
action by the Union was necessary. 
Council  Implementing  Decision  (EU)  2024/13417 
the 
application  of  certain  provisions  of  Regulation  (EC)  No  810/2009  with  respect  to 
nationals  of  Ethiopia.  The  objective  was  to  encourage  Ethiopia  to  undertake  the 
necessary actions to improve cooperation on readmission. 

temporarily  suspended 

The provisions temporarily suspended  were those referred to  in  Article 25a(5), point 
(a),  of  Regulation  (EC)  No  810/2009:  suspension  of  the  possibility  of  waiving 
requirements  with  regard  to  the  documentary  evidence  to  be  submitted  by  visa 
applicants  referred  to  in  Article  14(6),  suspension  of  the  general  15  calendar  days 
processing period referred to  in  Article 23(1), which as  a consequence also excludes 
the application of the rule allowing the extension of this period up to a maximum of 45 
days only in individual cases, meaning that 45 days becomes the standard processing 
period,  suspension  of  the  issuing  of  multiple-entry  visas  in  accordance  with  Article 
24(2)  and  (2c),  and  suspension  of  the  optional  visa  fee  waiver  for  holders  of 
diplomatic and service passports in accordance with Article 16(5), point (b). 

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OJ L 243, 15.9.2009, p. 1. 
COUNCIL  IMPLEMENTING  DECISION  (EU)  2024/1341  of  29  April  2024  on  the  suspension  of 
certain provisions of Regulation (EC) No 810/2009 of the European Parliament and of the Council in 
respect of Ethiopia. 

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(5) 

(6) 

(7) 

(8) 

(9) 

The  Commission’s  continuous  assessment  of  Ethiopia’s  cooperation  on  readmission 
since the entry into force of Council Implementing Decision (EU) 2024/1341 indicates 
that a substantial and sustained improvement in the cooperation on readmission can be 
established in the identification of Ethiopian nationals illegally staying on the territory 
of  the  Member  States,  in  the  issuance  of  emergency  travel  documents  and  in  the 
regular organisation of return operations. Therefore, it is no longer necessary to apply 
visa  measures  to  nationals  of  Ethiopia  and  Implementing  Decision  (EU)  2024/1341 
should be repealed. 

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

This  Decision  constitutes  a  development  of  provisions  of  the  Schengen  acquis  in 
which Ireland does not take part, in accordance with Council Decision 2002/192/EC8; 
Ireland is therefore not taking part in the adoption of this Decision and is not bound by 
it or subject to its application. 

As regards Iceland and Norway, this Decision constitutes a development of provisions 
of  the  Schengen  acquis  within  the  meaning  of  the  Agreement  concluded  by  the 
Council  of  the  European  Union  and  the  Republic  of  Iceland  and  the  Kingdom  of 
Norway  concerning  the  latters’  association  with  the  implementation,  application  and 
development of the Schengen acquis9 which fall within the area referred to in Article 
1, point B of Council Decision 1999/437/EC10. 

As regards Switzerland,  this Decision constitutes a development  of the provisions of 
the  Schengen  acquis  within  the  meaning  of  the  Agreement  between  the  European 
Union,  the  European  Community  and  the  Swiss  Confederation  on  the  Swiss 
Confederation’s association with the implementation, application and development of 
the  Schengen  acquis11  which  fall  within  the  area  referred  to  in  Article  1,  point  B  of 
Decision  1999/437/EC  read  in  conjunction  with  Article  3  of  Council  Decision 
2008/146/EC12. 

(10)  As regards Liechtenstein, this Decision constitutes a development of the provisions of 
the Schengen acquis within the meaning of the Protocol between the European Union, 
the  European  Community, 
the  Principality  of 
Liechtenstein  on  the  accession  of  the  Principality  of  Liechtenstein  to  the  Agreement 
between the European Union, the European Community and the Swiss Confederation 

the  Swiss  Confederation  and 

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10 

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12 

Council Decision 2002/192/EC of 28 February 2002 concerning Ireland’s request to take part in some 
of the provisions of the Schengen acquis (OJ L 64, 7.3.2002, p. 20). 
OJ L 176, 10.7.1999, p. 36. 
Council  Decision  1999/437/EC  of  17  May  1999  on  certain  arrangements  for  the  application  of  the 
Agreement  concluded  by  the  Council  of  the  European  Union  and  the  Republic  of  Iceland  and  the 
Kingdom  of  Norway  concerning  the  association  of  those  two  States  with  the  implementation, 
application and development of the Schengen acquis (OJ L 176, 10.7.1999, p. 31). 
OJ L 53, 27.2.2008, p. 52. 
Council  Decision  2008/146/EC  of  28  January  2008  on  the  conclusion,  on  behalf  of  the  European 
Community, of the Agreement between the European Union, the European Community and the Swiss 
confederation  on  the  Swiss  Confederation’s  association  with  the  implementation,  application  and 
development of the Schengen acquis (OJ L 53, 27.2.2008, p. 1). 

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on  the  Swiss  Confederation’s  association  with  the  implementation,  application  and 
development of the Schengen acquis13 which fall within the area referred to in Article 
1,  point  B  of  Decision  1999/437/EC  read  in  conjunction  with  Article  3  of  Council 
Decision 2011/350/EU14. 

(11)  As  regards  Cyprus,  this  Decision  constitutes  an  act  building  upon,  or  otherwise 
relating to, the Schengen acquis within the meaning of Article 3(2) of the 2003 Act of 
Accession, 

HAS ADOPTED THIS DECISION:  

Council Implementing Decision (EU) 2024/1341 is repealed. 

Article 1 

Article 2 

This  Decision  is  addressed  to  the  Kingdom  of  Belgium,  the  Republic  of  Bulgaria,  the 
Republic of Croatia, the Czech Republic, the Federal Republic of Germany, the Republic of 
Estonia,  the  Hellenic  Republic,  the  Kingdom  of  Spain,  the  French  Republic,  the  Italian 
Republic,  the  Republic  of  Cyprus,  the  Republic  of  Latvia,  the  Republic  of  Lithuania,  the 
Grand  Duchy  of  Luxembourg,  Hungary,  the  Republic  of  Malta,  the  Kingdom  of  the 
Netherlands,  the  Republic  of  Austria,  the  Republic  of  Poland,  the  Portuguese  Republic, 
Romania,  the  Republic  of  Slovenia,  the  Slovak  Republic,  the  Republic  of  Finland,  and  the 
Kingdom of Sweden. 

Done at Brussels, 

For the Council 
The President 

13 
14 

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

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