52025DC0795

EUROPEAN COMMISSION

Brussels, 11.11.2025

COM(2025) 795 final

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL

The European Annual Asylum and Migration Report
(2025)

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL

The European Annual Asylum and Migration Report
(2025)

I.Introduction

The European Annual Asylum and Migration Report (the Report) is a key deliverable of the Pact on Migration and Asylum (the Pact) that provides a strategic situational picture in this area. It analyses the asylum, migration and reception situation in the Union and in the Member States over the previous 12-month period and establishes a projection of the migratory trends for the coming year 1 .

The Pact marked a major milestone in the development of a comprehensive approach to migration, asylum, border management and integration. It is designed to manage migration in the long term, providing Member States with the flexibility to address effectively and fairly the specific challenges they face. The strength of the Pact lies in the balance between the principles of solidarity and a fair sharing of responsibility among Member States. To this end, Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 2024 on asylum and migration management 2 , one of the legislative acts composing the Pact, introduces a mandatory, flexible and needs-based solidarity mechanism. The functioning of this mechanism is informed by the assessment of the asylum and migration situation in the Union presented in the Report, which forms part of the annual migration management cycle (the Cycle).

The Commission launched the first Cycle with the adoption of this Report, which also includes an update of progress made and challenges in the implementation of the Pact 3 . The situational picture provided for by this Report is also to be used by the Commission for the purposes of adopting the Commission implementing Decision 4 (the Decision) determining which Member States are under migratory pressure, at risk of migratory pressure or facing a significant migratory situation, in line with Regulation (EU) 2024/1351.

The Report and the Decision are accompanied by a Commission proposal for a Council implementing Decision establishing the Annual Solidarity Pool 5 to address the solidarity needs of Member States under pressure in the upcoming year. In parallel, the work continues on the implementation of all the components of the Pact, to provide an effective European system of solidarity and responsibility to manage asylum and migration in a fair, firm and effective way.

II.Delivering on the Pact: responsibility and solidarity in balance

Member States are advancing in the preparations to implement the reforms of the Pact and to fulfil the new obligations on solidarity and fair sharing of responsibility.

In the area of responsibility, the main novelties of the Pact are centred on creating more efficient, firm and fair procedures that will lead to more streamlined and effective asylum and migration systems, with lower administrative burdens on Member States, faster processing, adequate support provided to migrants and high-quality decisions on their cases. Notably, the new screening 6 at the Union’s external borders will allow to swiftly identify and assess all third-country nationals illegally entering the Union. As part of the mandatory asylum and return border procedures 7 , applications from nationals of countries with a low likelihood of receiving international protection will be dealt with in an accelerated manner, directly at the Union’s external borders. The new responsibility rules 8 will enable a quicker and more efficient procedure to establish the Member States responsible for processing applications for international protection. The renewed Eurodac database 9 and the new rules on reception 10 will have a positive impact on managing and limiting unauthorised movements.

In that respect, the Member States of first entry of irregular migrants into the Union will have to shoulder several new tasks, notably in view of the nature of migratory flows arriving at the Union’s external borders. In particular, they will need to invest significant efforts to fulfil their obligations in screening and registering all irregular arrivals, setting up the ‘adequate capacity’ for the mandatory border procedure, as well as assessing applications for international protection.

To support notably these Member States, a permanent solidarity mechanism has been established by Regulation (EU) 2024/1351. It balances the challenges and the responsibilities placed on various Member States. To operationalise the mechanism, in line with the same Regulation, every year the Commission assesses the overall migratory situation in the Union to determine whether there are Member States under migratory pressure, at risk of migratory pressure, or facing a significant migratory situation. To do so, the Commission developed a methodology, in consultation with Member States, to assess whether there are Member States facing disproportionate obligations, taking into account the overall situation in the Union. It relies on available high-quality data and information, ensuring that the results are fair, objective and consistent with the legal requirements. The methodology is described in detail in a dedicated Commission Staff Working Document 11 .

Having identified the Member States under migratory pressure, and taking into account the findings of the Report, including its projection for the coming year, the Commission also proposes the level of solidarity contributions that should be provided to Member States under migratory pressure. Member States can provide solidarity contributions in various forms:

·Relocation, which consists of transferring applicants from Member States under migratory pressure to other, contributing Member States. Member States could also use responsibility offsets, a form of solidarity where Member States that are affected by unauthorised movements can offer, if certain conditions are met, to take over responsibility for applicants already present on their territory from Member States under migratory pressure.

·Financial contributions consisting in transfers of amounts from the contributing Member States to the Union budget, aimed at actions to support the benefitting Member States, for instance, in the management of their migration, asylum and reception systems, border management, or to fund, as regards Asylum, Migration and Integration Fund (AMIF) and under certain conditions, projects and actions in the external dimension of migration, including to reduce irregular arrivals and increase returns.

·Alternative solidarity measures, which can include, for example, material or technical in-kind assistance, including for border management.

The solidarity measures will be identified in the Council Implementing Decision to be adopted pursuant to Article 57 of Regulation (EU) 2024/1351 establishing the Annual Solidarity Pool (the Solidarity Pool), based on a Commission proposal pursuant to Article 12 of Regulation (EU) 2024/1351. Pursuant to Article 57 of Regulation (EU) 2024/1351, Member States must agree on the size of the Solidarity Pool for the following year and on how each Member State will contribute, according to its fair share, and in accordance with the pledging exercise carried out in the High-Level EU Solidarity Forum. In its Decision, the Council should capture the result of the pledging exercise in relation to the needs identified by Member States under pressure, including as regards the use of responsibility offsets.

The Member States considered by the Commission as being under migratory pressure will then have access to the Solidarity Pool and will not be obliged to implement their pledged solidarity contributions, while Member States facing a significant migratory situation will be able to receive, upon their request, full or partial deduction of their solidarity contributions by the Council. At the same time, contributing Member States are not required to implement their pledges towards a benefitting Member State, where the Commission has identified systemic shortcomings in that Member State with regard to the rules on responsibility under Regulation (EU) 2024/1351 that could result in serious negative consequences for the functioning of the system.

In addition to the Solidarity Pool, the Pact establishes a Permanent EU Migration Support Toolbox consisting of the provision of operational and technical assistance by the relevant Union bodies, offices and agencies; support provided by the Union funds and through other funding sources; derogations in the Union acquis to react to specific migratory challenges; activation of the Union Civil Protection Mechanism; measures to facilitate return and reintegration activities; strengthened actions and cross-sectoral activities in the external dimension of migration; enhanced diplomatic and political outreach; coordinated communication strategies; supporting effective and human rights-based migration policies in third countries or promoting legal migration and well-managed mobility. The EU Migration Support Toolbox is available to Member States and can be tailored to their specific needs.

This is particularly important for Member States at risk of migratory pressure, which will be able to benefit from priority access to this Support Toolbox. The Commission will provide funding support and also coordinate with the Agencies possible prioritisation of the provision of operational support.

Implementation of the Pact – state of play

Since the Pact entered into force in June 2024, and following the adoption of the Common Implementation Plan, Member States, supported by the Commission and the relevant Union Agencies, have stepped up efforts to turn the legislative agreement into practical reality and ensure their national asylum, reception and migration systems will be ready for the full application of the Pact by June 2026. At the same time, there is a general need to speed up the pace of these reforms.

Across the Union, as well as at national level, after the initial phase that led to the development of National Implementation Plans and the relevant governance arrangements, the focus has shifted. Now it is on legislative adaptation, practical operationalisation, and resourcing of reforms.

Since the last report, important milestones have been met at all levels. These include the development of national strategies and contingency plans, adaptions of national legal frameworks, and the adoption of the Commission Implementing Regulation laying down rules for the application of Regulation (EU) 2024/1351 12 . The number of Member States set to meet their adequate capacity goals for the new border procedure has increased and testing of Eurodac has started.

At the same time, remaining challenges are becoming clearer. This is particularly the case regarding the implementation of Eurodac, the setting-up of the border procedure and the need to put in place necessary infrastructure, staffing needs and administrative arrangements in a timely manner. Across the Union, screening arrangements should soon be finalised and the reception capacity adapted to the new framework, ensuring sufficient capacity and adequate standards. While most Member States have done so, outstanding arrangements relating to the fundamental rights monitoring and legal counselling need to be concluded.

The Commission and all Member States must continue to work together to ensure that financial programming is aligned effectively behind the national plans and that the key elements of the new framework are sufficiently resourced, be it from Union or national funds.

A detailed state of play of the implementation of the Pact can be found in the Annex.

III.Strategic situational picture of the area of asylum, reception and migration

The evidence in this Report underpins the Commission’s Decision identifying the migratory situation in the Member States and the Commission’s proposal for a Council Implementing Decision establishing the Annual Solidarity Pool necessary to address the migratory situation. As such, the Report provides a comprehensive and strategic situational picture that serves also as an early warning and awareness tool for the Union in the area of migration and asylum.

The strategic situational picture consists of: a) an analysis of the main developments in the area of asylum, reception and migration in the Union and in all the Member States over the 12-month period between 1 July 2024 and 30 June 2025; and b) a projection for 2026 and information on the level of preparedness in the Union and the Member States to respond and adapt to the anticipated trends. The overview in this Report also includes findings from the monitoring undertaken by the European Border and Coast Guard Agency (Frontex), and the evaluation carried out in accordance with Regulation (EU) 2022/922 13 .

It is based on quantitative and qualitative data and information provided by Member States, relevant Union Agencies 14 and the European External Action Service. The analysis and the projection also build on the results of regular exchanges within the EU Migration Preparedness and Crisis Blueprint Network 15 .

The strategic situational picture is included in this Report, and it is complemented by a Commission Staff Working Document containing the statistical breakdown supporting the analysis in the Report, a Commission Staff Working Document providing detailed information supporting the analysis 16 and the Commission Staff Working Document containing the details of the projection for 2026 17 .

a.Analysis of the asylum, reception and migration situation between July 2024 and June 2025

Overall, between July 2024 and June 2025, the migratory situation in the Union continued to improve compared to previous years. Irregular arrivals to the EU, applications for international protection and unauthorised movements decreased 18 , a stable trend already observed since 2024. This is also thanks to the joint efforts by the Commission and Member States in stepping up cooperation with countries of origin and transit and strengthening the Union’s external borders.

Irregular migration at the Union’s external borders 19

Illegal border crossings (IBCs) 20 at the Union’s external borders decreased by 35% compared to July 2023-June 2024. Decreasing trends were observed along most migratory routes, including along those accounting for most IBCs to the Union.

Figure 1 – Illegal border crossings by migratory route 21

Source: JRC elaboration on Frontex data

While the migratory situation in Greece remained overall stable, the country recorded the highest number of IBCs relative to its GDP and population 22 , as well as the majority of IBCs along the Eastern Mediterranean route (over 60 000 IBCs), mostly from Türkiye and Libya, with a marked increase in arrivals registered in Crete. In Cyprus, IBCs decreased significantly – mostly due to fewer departures from Syria and Lebanon – including because of the fall of the Assad regime and the increased engagement with Lebanese authorities. However, relative to its GDP and population, Cyprus still ranked third in the Union in terms of irregular arrivals – almost 3 000 IBCs. In Bulgaria, IBCs slightly decreased, with irregular arrivals coming from Türkiye.

In Italy and Spain, IBCs decreased compared to the period July 2023-June 2024, despite the numbers remaining high in absolute terms. Departures to Italy decreased, partly due to stronger cooperation with Tunisian authorities 23 and tighter border controls at the Turkish border. Departures from Libya remained high and further increased as smuggling networks exploited the growing instability in the region. IBCs to Spain decreased due to fewer arrivals along the Atlantic route to the Canary Islands, following enhanced bilateral and Union cooperation with West African countries, notably with Mauritania 24 and Senegal. Enhanced border surveillance in Mauritania and in Senegal led smugglers to re-route departures via Guinea-Bissau, Guinea and The Gambia. On the Western Mediterranean route, Algeria was the main departure point – accounting for 79% of IBCs on the route – and registering increased IBCs towards the Balearic Islands. Departures from Morocco decreased significantly as a result of strengthened bilateral cooperation with Spain and enhanced border surveillance.

Along the Channel, departures from France to the United Kingdom (IBCs on exit) increased by 15% compared to July 2023-June 2024. While border management efforts in France prevented 40% of the over 72 000 recorded IBCs exiting from France to the United Kingdom, successful crossings (arrivals to the United Kingdom) still increased by about 35% compared to July 2023-June 2024.

In the Western Balkans region, irregular arrivals decreased significantly compared to July 2023-June 2024. The implementation of the EU Action Plan on the Western Balkans 25 provided political, financial and operational support to migration management in the region 26 . Enhanced police controls that disrupted migrant smuggling activities, as well as decreasing IBCs on the Eastern Mediterranean route, also contributed to lower the number of irregular arrivals. The corridor via Bosnia and Herzegovina-Croatia remained the most used one, even though with fewer IBCs than in July 2023-June 2024. Increased migratory activity along this corridor has been observed since late October 2023, after smugglers redirected their activities towards that border section to avoid increased police operations in Serbia. During the reporting period, Croatia registered 76% of the arrivals in the region – over 12 000 IBCs – and the second highest number of IBCs at Union level relative to GDP and population.

At the Union’s Eastern border, the number of IBCs remained low and relatively stable. Most of those IBCs involved Ukrainian nationals irregularly crossing into Romania and requesting temporary protection. Actions by Russia and Belarus continue to influence migratory dynamics at the Eastern border, especially in Poland, Latvia, Lithuania, Finland and Estonia. In response to continued state-sponsored attempts to weaponise migration, they strengthened border controls, reducing the number of IBCs from Belarus (1 421 IBCs, of which 82% to Poland). The risk of weaponisation of migration remains a serious migration and security challenge, adding to occasional violent incidents and attempts to cross the border. Poland established a buffer zone along its border and temporarily limits the right to apply for international protection at that border, except for vulnerable groups. Furthermore, Latvia and Lithuania enhanced surveillance measures at their border with Belarus. Estonia strengthened border management measures at the border with Russia, while Finland closed its crossing points with Russia as of November 2023 as a response to Russia’s attempts to weaponise migration. Since then, the migratory situation at the border with Russia, including with Estonia, has remained relatively calm.

Between July 2024 and June 2025, over 110 000 people were refused entry at the Union’s external borders, mainly at land (55%) and air (41%) borders. Most refusals of entry were due to missing or invalid documentation 27 . Poland, Croatia, France and Romania recorded the highest numbers in absolute terms, while Croatia, Latvia and Estonia issued most refusals relative to their GDP and population. Most refusals of entry involved Ukrainians 28 , Albanians, Moldovans and Turks.

As highlighted in the 2025 State of Schengen report, sustained efforts are needed to strengthen the quality and resilience of the Schengen area’s external borders, particularly in light of escalating security threats 29 . The 2025 Frontex vulnerability assessment showed encouraging results 30 . The assessment, however, also highlighted that capabilities for migration management at the borders need to be further reinforced in some Member States, including by allocating adequate human resources to perform screening and debriefing. At the same time, ensuring the respect of fundamental rights at the border remains a common challenge, especially in the context of weaponised migration.

Arrivals by sea following search and rescue operations 31

The number of third-country nationals disembarked in the Union following search and rescue operations (SAR) decreased by 36% compared to July 2023-June 2024. From 1 July 2024 to 30 June 2025, nearly 97 000 persons were disembarked in the Union following search and rescue operations. Italy and Spain accounted together for over 80% of the persons disembarked in the Union.

Figure 2 – Persons disembarked in search and rescue events

Source: JRC elaboration on Frontex data

Providing assistance to any person found in distress at sea is a legal obligation for Member States, established in international as well as Union law 32 . Attempts to reach the European Union on unseaworthy vessels continued to cause the loss of migrants’ lives at sea, with at least 3 000 people reported dead or missing at sea during the reporting period. The Central Mediterranean and the Atlantic route continued to be the deadliest sea routes to the Union 33 . Sea crossings in small boats from France to the United Kingdom across the Channel facilitated by smuggling networks were a significant challenge for the French authorities involved in search and rescue operations. Smuggling networks organised simultaneous departures in overcrowded boats to overwhelm authorities, which resulted in around 7 000 persons disembarked in France following search and rescue operations.

International protection and temporary protection in the Union 34

Applications for international protection in the Union decreased by 21% compared to July 2023-June 2024, although they remained overall high with 871 000 applications lodged in the Union. The decrease was mainly driven by fewer irregular arrivals and the sharp decrease in applications by Syrian nationals. Member States issued 271 000 decisions granting international protection status 35 , a 20% decrease compared to July 2023-June 2024 36 . Relative to their GDP and population, Greece, Austria and Cyprus were the main Member States granting international protection. In absolute terms, Germany, France and Greece issued most positive decisions on international protection applications, while Spain was the top country granting humanitarian status, mostly to Venezuelans and Colombians.

Figure 3 – Applications for international protection by Member States in absolute values, and per capita and GDP 37

Source: JRC elaboration on EUAA data and Eurostat data (GDP and population)

Greece and Cyprus received the highest number of applications at Union level in relation to their GDP and population. In absolute numbers, Germany received the highest number of applications for international protection – despite a 40% decrease compared to July 2023-June 2024 – followed by France, Spain and Italy. Venezuelans travelling visa-free in the Union lodged a record number of applications for international protection, mostly in Spain. Afghan nationals applied in lower numbers but were the third nationality applying for asylum. Applications by unaccompanied minors also decreased by 25% and accounted for 3% of the total. Relative to GDP and population, Greece, Bulgaria and Cyprus received most applications by unaccompanied minors at Union level, with Egyptian minors applying in increasing numbers in Greece. In absolute terms, these applications were mostly lodged in Germany, Greece and the Netherlands, and mainly by Syrian and Afghan nationals.

Several Member States temporarily suspended processing of applications by Syrians after the fall of the Assad regime, while Syrians still remained the largest group applying for international protection in the Union, mainly in Germany.

Figure 4 – Beneficiaries of temporary protection in the Member States

Source: JRC elaboration on Eurostat data

Following Russia’s ongoing war of aggression and escalation of attacks against Ukraine, 4.3 million persons are benefitting from temporary protection in the Union as of June 2025. Most of them continue to be hosted in Germany and Poland – accounting for 51% of the overall beneficiaries in the Union. Relative to GDP and population, Czechia hosted the highest number of temporary protection beneficiaries, followed by Poland, Slovakia and Estonia. Ukrainians continued to arrive in the Union steadily, with some travelling back and forth temporarily for family visits or seasonal work. Between July 2024 and June 2025, over 681 000 temporary protection registrations were recorded in the Union. Relative to GDP and population, Czechia issued by far the most temporary protection registrations, followed by Poland, Estonia, Lithuania, Bulgaria, Latvia, Slovakia and Cyprus. Between July 2024 and June 2025, Ukrainian nationals seeking longer-term protection statuses applied for international protection in growing numbers in the Union, notably in France and Poland.

Member States face multiple challenges to integrate beneficiaries of temporary and international protection. As identified in the mid-term review of the 2021-2027 Action Plan on Integration and Inclusion, challenges persist notably in the areas of housing, education and the labour market 38 . Migrants seeking international protection or joining family members tend to have lower employment rates than labour migrants. In addition, long-term surveys show that asylum seekers achieve labour market outcomes comparable to nationals only after 10 years of residence. Providing adequate housing also remains a challenge: research shows that in 2023 more than one in six migrants in the Union lived in overcrowded accommodation (+70% compared to the native-born population) 39 . These factors impact negatively on integration outcomes, putting an additional strain on social protection systems and on the functioning of the reception system.

Over 75% of beneficiaries of temporary protection are women and children. Accommodation and social support varied across Member States. Most Member States started to encourage self-reliance and economic independence, progressively providing more limited support for housing and social benefits, while investing in integration measures. Various measures undertaken by Member States contributed to improved integration in the labour market, although labour market integration for women is still more complicated due to specific barriers 40 . Schooling of displaced children from Ukraine differs and school attendance rates varied, with specific challenges remaining for children with disabilities.

Unauthorised movements within the Union 41

Several Member States faced high numbers of unauthorised movements of migrants and applicants for international protection within the Union. According to the Regulation (EU) 604/2013 (the ‘Dublin III Regulation’) 42 , an applicant for international protection cannot choose the Member State responsible for examining his or her application. Movements from one Member State to another and the deficiencies in implementing Regulation (EU) 604/2013 responsibility rules put a particular strain on the asylum, migration and reception systems of the main destination countries.

Though there are no precise data capturing unauthorised movements, proxy indicators show the scale and direction of these movements within the Union 43 . The new Eurodac Regulation and database will allow more accurate monitoring of unauthorised movements 44 . For the time being, available data from Eurodac suggest that unauthorised movements within the Union decreased by around 25% compared to July 2023-June 2024 45 , mostly following the overall decrease of irregular arrivals. Despite this decrease, unauthorised movements continued to pose a challenge for the main countries of destination. Unauthorised movements typically took place from countries of first entry in the Union towards Member States in the north-west of the Union. In absolute terms, Greece, Germany, Croatia, Italy and France were the main countries of departure, while Germany, France, Belgium, Italy and the Netherlands were the countries receiving the most unauthorised movements. The main routes registering most unauthorised movements were Greece to Germany, Croatia to Germany, Italy to Germany and Italy to France.

Figure 5 – Map of unauthorised movements based on Eurodac hits (routes with > 6000 hits) 46

Source: JRC elaboration on EU-LISA data

When complemented with data collected to monitor the functioning of Regulation 604/2013 (‘Dublin statistics’) 47 , Slovenia, Belgium, Luxembourg, Germany, Croatia and Austria were the countries most affected, relative to their GDP and population. A number of Member States are not issuing requests because these often do not lead to a physical transfer of the person. In addition, the implementation rate of transfers remains very low at 19% 48 . Operational and capacity obstacles faced by receiving and transferring Member States also lowered the implementation rate: the lack of sufficient housing, poor material reception conditions and limited early integration opportunities impacted the number of implemented transfers. Germany carried out and received the highest number of transfers, followed by France and the Netherlands. Croatia received by far the highest number of transfers from other Member States compared to its GDP and population. Greece and Italy received a very low number of transfers compared to the number of positive decisions they gave to the requests they received from other Member States 49 .

Increasing the overall number of transfers, resuming transfers towards the Member States that are not accepting transfers, take charge or take back requests, and addressing shortcomings in the national reception system are crucial to ensure the effective functioning of the system, reduce incentives for unauthorised movements and maintain the balance between responsibility and solidarity. While it is expected that the implementation of transfers should significantly improve with the entry into application of the Pact, Member States are expected to fully implement the existing rules without delay.

Reception 50

Despite considerable efforts to improve data collection on reception, statistics are not fully comparable and remain incomplete. This results in a fragmented picture and prevents a conclusive assessment of the pressure on reception systems 51 . Work is ongoing to improve the quality of this data.

Based on the available data 52 , Member States hosted around 1 394 000 people in their national reception systems, mostly in Germany, Italy, France, the Netherlands and Austria. Relative to their GDP and population, Germany, Luxembourg, Austria and Ireland 53 had the most persons hosted in their reception systems. Beneficiaries of temporary protection who are provided accommodation support outside this system are not counted in Member States’ reporting.

Furthermore, the organisation of reception systems varies across the Union: only some Member States include and collect data on persons with different legal statuses in their reception system, including temporary protection beneficiaries, rejected applicants or persons issued a return order. On this basis, temporary protection beneficiaries accounted for between 50% and 70% of the population hosted in the national reception systems of Austria, Finland, Lithuania, Slovakia and Sweden, while a large number of temporary protection beneficiaries were provided accommodation support outside of this system, notably in Czechia, Poland, Hungary, and Romania.

The overall occupancy rate in the national reception systems in the Union was 81% at the end of June 2025 54 . Ensuring sufficient capacity and adequate reception conditions is a key element of a well-prepared asylum, reception and migration system and for the well-functioning of the responsibility rules under Regulation (EU) 604/2013. Several Member States faced challenges in ensuring sufficient capacity in their national reception systems 55 , while at the same time, some Member States, in view of the limited number of applicants, have decreased their accommodation capacity, including Finland, Denmark and Sweden.

Resettlement and humanitarian admission 56

Fourteen Member States made pledges under the ad-hoc Union resettlement and humanitarian admission scheme for 2024-2025. Nearly 12 000 persons arrived in the Union through these pathways during the reporting period. More than half of the beneficiaries were resettled in Germany and France, while Finland and Sweden resettled the most beneficiaries relative to their GDP and population. The volatile situation in the Middle East, notably in Lebanon and in Syria, had an impact on resettlement and humanitarian admission programmes: the numbers of admitted persons decreased in all reporting Member States but the Netherlands and Sweden. Syria was by far the main country of origin of admitted people, followed by Afghanistan, the Democratic Republic of the Congo, South Sudan and Eritrea.

Return 57

Between July 2024 and June 2025, Member States issued, in total, 478 000 orders to leave to third-country nationals in the Union, an increase of 11% compared to July 2023-June 2024, mostly driven by more orders to leave being issued together with negative asylum decisions. Most orders were issued by France, Spain and Germany, while, relative to its GDP and population, Cyprus issued by far the most orders to leave, followed by Greece and Croatia. The nationalities of third-country nationals issued an order to leave differed significantly across Member States 58 .

Figure 6 – Number of return orders and third country nationals returned per Member State

Source: JRC elaboration on Eurostat data

115 000 illegally staying third-country nationals were effectively returned to a third country. Over half of the returns were implemented by only five Member States (Germany, France, Sweden, Cyprus and Poland). This represents a 20% increase compared to July 2023-June 2024. However, the overall return rate remains low, resulting in a backlog of persons with an order to leave remaining in the Union territory 59 . Most nationals ordered to leave were nationals of Algeria, Morocco, Syria, Türkiye and Afghanistan, with Syrians increasing by 14%. The main nationalities of those returned were nationals of Georgia, Türkiye, Albania, Moldova and Colombia. This shows that the countries ranking highest in terms of third-country nationals ordered to leave do not correspond to the countries with the highest number of implemented returns, with the exception of Türkiye. More than half of all returns were voluntary, following an increasing trend. While sustained efforts on readmission through the Article 25a Visa Code mechanism and the EU Return Coordinator’s targeted actions on priority third countries have already delivered results, notably with key third countries such as Bangladesh, Iraq and Ethiopia 60 , specific obstacles continue to hamper returns. It remains crucial that Member States follow up return orders with readmission requests to the relevant third countries and systematically request emergency travel documents for persons with confirmed nationality 61 . The 2024 thematic Schengen evaluation identified progress in developing national return systems, while inefficiencies remain in key stages of the process 62 , having an impact on unauthorised movements, as shown by the return alerts within the Schengen Information System (SIS) 63 .

Continued efforts are needed to create a common Union system for returns, combined with more effective cooperation with third countries. The proposed Return Regulation 64 will be instrumental in addressing these issues and in ensuring that returns can contribute to the overall objectives of the Union migration and asylum policy. The European Parliament and the Council are invited to proceed with the swift adoption of this reform.

b.Projection for the coming year and information on the level of preparedness in the Union

The Solidarity Pool proposed by the Commission aims to address the needs of Member States identified as being under migratory pressure in the Commission Decision. As per Article 12 of Regulation (EU) 2024/1351, in identifying those needs, the Commission should consider the main findings of this Report, including both the impact of past trends on the Member States concerned, and the projection for the coming year 65 . This strategic picture serves as an early warning tool for the Union, helps to anticipate possible developments in the migratory situation and determine how these could affect the needs of Member States under migratory pressure and the Union as a whole.

The projection builds on a methodology developed by the scientific service of the Commission – the Joint Research Centre (JRC) – and it was tested with the EU Migration Preparedness and Crisis Blueprint Network.

The projection suggests that, overall, irregular arrivals at Union level are expected to decrease across all the main migratory routes in 2026 compared to 2024 66 , in line with the downward trend already observed in the first half of 2025. The expected decrease results, among other factors, from strong Union engagement with key countries of origin and transit, reinforced asylum and border protection systems, and intensified action against migrant smuggling networks both within the Union and in third countries. The Central Mediterranean route is expected to remain the most active route, yet overall numbers are projected to stabilise or decline further compared to 2024. This trend reflects the impact of reinforced cooperation with partner countries in North Africa and the broader region. A similar dynamic is expected for the Western Mediterranean and Atlantic routes, where the strong efforts to monitor departure points and dismantle smuggling networks are delivering results. On the Eastern Mediterranean route, developments will largely depend on the evolving situation in the Middle East, including newly emerged sub-routes, yet the overall outlook points towards a continuation of the downward trend that started already in late 2024, shaped by shifting regional dynamics and a lower presence of certain nationalities. Along the Western Balkan route, arrivals are also expected to decrease, supported by more effective dismantling of smuggling networks and enhanced cooperation between the region and Member States and Union Agencies. On the Eastern Border route, Russia and Belarus are likely to continue their attempts to weaponise migration against the Union; however, strengthened border management is expected to further reduce illegal crossings. Finally, the situation of illegal exits across the Channel route is expected to remain challenging, although national measures in France and further engagement with the United Kingdom are expected to contain or decrease departures.

The downward trend for applications for international protection observed in 2024 and the first half of 2025 is expected to continue in 2026.

As regards temporary protection, Russia’s ongoing indiscriminate war of aggression against Ukraine will continue to generate protection needs for Ukrainian nationals in 2026. Registrations for temporary protection will persist, but at lower levels than in previous years.

As migration dynamics remain inherently uncertain, efforts to strengthen preparedness and contingency planning in the Member States and in the Union remain crucial. Adequate contingency planning is an important component of the well-prepared asylum, reception and migration system as it enhances the resilience and preparedness to respond quickly and effectively to changes in the migratory situation, while ensuring the respect of individual rights and needs.

Obligations on contingency planning are embedded into Union legislation 67 . While most Member States have contingency plans in place in different areas of migration management, gaps remain. Overall, the level of preparedness in the Union and in the Member States on migration management benefits from the implementation of the new provisions introduced in the Pact. Almost all Member States adopted and notified their national contingency plans on reception and asylum to the European Union Agency for Asylum (EUAA) 68 , albeit with different levels of completeness (more details in the Annex). Since 2019, Member States need to develop and adopt a national contingency plan for border management and return 69 . The results of the vulnerability assessment conducted by Frontex for 2024 show that most Member States report having relevant contingency plans in place on border management, although some gaps exist, as also underscored by the Schengen evaluations. In addition, the 2024 thematic evaluation on the effectiveness of returns revealed significant gaps in national contingency planning, with most Member States lacking dedicated contingency plans for return operations despite this requirement set out in Article 9(3) of Regulation (EU) 2019/1896 of the European Parliament and of the Council of 13 November 2019 on the European Border and Coast Guard.

At Union level, the Union Agencies are prepared to provide operational support to Member States in case of sudden increases in migratory flows. The EU Migration Preparedness and Crisis Blueprint Network, chaired by the Commission, continues to play a key role in providing a common situational picture, early warning and forecasting in support of better preparedness. The Network hosts a dedicated subgroup on contingency planning.

IV.Assessment of the overall migratory situation, migratory pressure, risk of migratory pressure or significant migratory situation

Based on the information presented in this Report, the Commission assessed which Member States faced disproportionate obligations, taking into account the overall migratory situation in the Union. At the same time, the Commission is proposing to the Council the total numbers of solidarity contributions for the Solidarity Pool at Union level necessary to address the migratory situation in the upcoming year in a balanced and effective manner.

Considering the trends outlined in this Report for the reference period from July 2024 to June 2025 and the methodology, the Commission Decision determined that, when all the relevant quantitative and qualitative data and information are aggregated and assessed in relation to the overall situation in the Union, Greece and Cyprus are under migratory pressure. In addition, the Commission Decision determined that Italy and Spain are under migratory pressure because of a large number of arrivals due to recurring disembarkations following search and rescue (‘SAR’) operations, that are of such a scale that they create disproportionate obligations in relation to the overall situation in the Union on even a well-prepared asylum, reception and migration system of the Member State concerned.

While trends remained overall stable compared to July 2023-June 2024, Greece faced disproportionate obligations in relation to the overall situation in the Union, in particular due to the number of IBCs (over 60 000) and applications for international protection (over 70 000). These were the highest recorded at Union level relative to GDP and population. Greece also recorded the highest number, relative to GDP and population, of decisions granting international protection, reaching nearly 32 000 between July 2024 and June 2025. Relative to its GDP and population, Greece was second for numbers of orders to leave (over 30 000), but only 5 400 third-country nationals were returned in the period under analysis.

While the migration and asylum situation improved compared to July 2023-June 2024, Cyprus still faced disproportionate obligations in relation to the overall situation in the Union, in particular due to IBCs, applications for international protection and registrations for temporary protection. While IBCs (nearly 3 000) decreased significantly, the number of arrivals still put a strain on Cyprus’ asylum and migration system as Cyprus ranked among the top three countries in the Union relative to GDP and population for IBCs. Cyprus also received the second highest number of applications for international protection (more than 5 000) in the Union relative to GDP and population. Similarly, Cyprus received a significant number of registrations for temporary protection (around 3 500) in relation to the country’s GDP and population. Furthermore, while the number of third-country nationals ordered to leave (close to 16 000) remained stable compared to July 2023-June 2024, twice as many third-country nationals were returned following an order to leave (close to 10 000) compared to July 2023-June 2024 (nearly 5 000).

In Italy and Spain, the share and absolute number of arrivals due to recurring disembarkations following SAR operations were of such a scale that they created disproportionate obligations on these countries compared to the overall situation in the Union, as over 80% of the almost 97 000 persons assisted in SAR operations were disembarked in these two Member States (around 40% each).

These four Member States will therefore have access to the Solidarity Pool when Regulation (EU) 2024/1351 enters into application.

In order to ensure the balance between solidarity and fair sharing of responsibility and to safeguard the functioning of the Regulation (EU) 2024/1351, Article 60(3) of that Regulation establishes that contributing Member States are not required to implement their solidarity pledges towards a benefitting Member State where the Commission has identified systemic shortcomings in that benefitting Member State with regard to the responsibility rules set out in Part III of Regulation (EU) 2024/1351 that could result in serious negative consequences for the functioning of that Regulation.

Part III of Regulation (EU) 2024/1351 sets out, inter alia, the obligations of the Member State responsible to take charge of and take back applicants and third-country nationals whose application for international protection was registered in another Member State or in relation to whom another Member State was indicated as responsible under Regulation (EU) 2024/1358, including to carry out the transfers of those persons, with full respect of the applicant’s fundamental rights within the meaning of the Charter. These rules are in continuity with the rules of the Dublin III Regulation and will replace them as of their entry into application.

The Commission will assess by 12 July 2026 and again by 15 October 2026 the application of the responsibility rules by the Member States and apply Article 60(3), fourth sub-paragraph of Regulation (EU) 2024/1351, if systemic shortcomings are identified in a Member State. In this assessment, particular attention will be paid to the level of cooperation among Member States, including the active engagement to facilitate transfers and progressive cooperation on practical and logistical matters.

Based on the findings of this Report and the methodology, having considered all the relevant quantitative and qualitative data and information and having assessed them in relation to the overall situation in the Union, the Decision also determined Belgium, Bulgaria, Germany, Estonia, Ireland, France, Croatia, Latvia, Lithuania, the Netherlands, Poland and Finland to be at risk of migratory pressure.

Between July 2024 and June 2025, Bulgaria and Croatia, as countries of first entry, continued to be particularly exposed to the fluctuations in migratory flows along the Western Balkans and Eastern Mediterranean routes. A significant increase of irregular arrivals during the year could lead to their already strained migration and asylum systems to be affected by disproportionate obligations. Although Bulgaria recorded a decrease in the number of applications for international protection compared to July 2023-June 2024, it still registered nearly 10 000 applications for international protection, a significant number relative to its GDP and population. One fifth of these applications were lodged by unaccompanied minors, making Bulgaria the second Member State receiving applications by unaccompanied minors at Union level relative to GDP and population. Bulgaria also registered a high and steady number of registrations for temporary protection relative to its share of GDP and population (among the top five Member States) with over 21 000 new registrations in July 2024-June 2025. Croatia, between July 2024 and June 2025, was impacted by IBCs and refusals of entry. Croatia recorded more than 12 000 IBCs, which represented 76% of the overall irregular arrivals along the Western Balkans route and the second highest number of IBCs in the Union relative to GDP and population. Croatia also accounted for a similar number of refusals of entry, the highest at Union level relative to GDP and population.

At the same time, a number of Member States recorded high numbers of unauthorised movements which put particular pressure on their asylum, migration and reception systems. The challenges associated with such unauthorised movements are addressed by acknowledging the possibility of applying responsibility offsets to these cases as part of the solidarity contributions.

Between July 2024 and June 2025, Germany received a significantly high number of unauthorised movements of applicants for international protection in the Union, resulting in a large number of applications for international protection, which impacted its asylum and reception system. This was further compounded not only by the hosting of the highest number of temporary protection beneficiaries in the EU but also due to a very high number of applications for international protection in the last ten years. France also received a high number of unauthorised movements of applicants for international protection within the Union and faced increasing illegal border crossings on exit towards the United Kingdom, which impacted the national asylum and reception system. The Netherlands and Belgium were also impacted by unauthorised movements of applicants for international protection, which put a strain on the reception systems. Ireland has also experienced a sustained high number of applications for international protection and a significant proportion enter the country irregularly, principally arriving across the land border of the United Kingdom. This, together with the significant arrivals of persons benefitting from temporary protection, had an impact on the national asylum and reception system.

As outlined in section III, actions by Russia and Belarus continue to influence migratory dynamics at the Union Eastern border, especially in Estonia, Latvia, Lithuania, Poland and Finland. Hybrid threats linked to the weaponisation of migration continue to raise serious migration and security risks, adding to occasional violent incidents and attempts to cross the border. In response to continued state-sponsored attempts to weaponise migration, Estonia strengthened border management measures at the border with Russia; Latvia and Lithuania strengthened surveillance measures at their border with Belarus; Poland established a buffer zone along its border and temporarily limits the right to apply for international protection at that border, except for vulnerable groups; Finland closed its crossing points with Russia in November 2023. Further attempts by Russia and Belarus to weaponise migration could put additional strain on national border protection systems, which may lead to disproportionate obligations.

These twelve Member States at risk of migratory pressure will have priority access to the Permanent EU Migration Support Toolbox. At the same time, should the situation in these Member States deteriorate, the Commission will be ready, in line with Regulation (EU) 2024/1351, to re-evaluate their situation in an expedited manner.

Based on the Report and the methodology, the Commission Decision also determined that Bulgaria, Czechia, Estonia, Croatia, Austria, and Poland are facing a significant migratory situation, due to the cumulative effect of the quantitative and qualitative data and information aggregated and assessed during the last five-year period (1 July 2020 to 30 June 2025).

In Bulgaria, for the last five years and especially since 2022, relative to its share of GDP and population, the inflow of registrations for temporary protection, together with a relative high number of applications for international protection, put a strain on the system, in particular as Bulgaria issued a significant number of positive decisions and rejections, in relative terms, that created a relative high burden on the return system. In Croatia, over the previous five years, the strain on the return system, relative to its share of GDP and population, had a major impact on the country’s capacities in addition to the obligations faced at its external border, notably as Croatia issued in relative terms a large number of refusals of entry and has experienced more recently a relative high number of IBCs due to increased migrant smuggling activities in the region.

Since the beginning of the Russian war of aggression against Ukraine, Poland and Czechia have recorded among the highest number of temporary protection registrations in the Union relative to their GDP and population. This has created integration challenges and has put a significant strain on the migration, asylum and border management systems of those Member States since 2022. Relative to its GDP and population, Estonia has recorded a high number of temporary protection registrations, combined with a significant number of applications for international protection that resulted in high number of positive decisions in the last five years.

During the last five-year period, Austria received a high number of applications for international protection. While this number has decreased between July 2024 and June 2025 compared to the previous 12-months period, the overall number of applications for international protection, and the resulting number of positive decisions, over the five-year period has had a cumulative effect on the capacity of its migration, reception and asylum system.

These Member States will have the possibility to request from the Council a full or partial deduction of their solidarity contributions for the upcoming year.

V.Conclusion

The steady progress in the implementation of all the components of the Pact at national and Union level, the downward trend of irregular arrivals and the projection for the coming year, together with the positive results of the continuous work with partner countries set a solid basis for an orderly, fair and firm management of migration and asylum.

By making full use of the new legal and operational framework of the Pact, further progress can be achieved to lower pressure on the Member States, reduce unauthorised movements, increase overall efficiency, reduce backlogs, and ease the burden on the administrative and operational structures of the Member States. At the same time, some challenges remain regarding the implementation of the Pact, and the Commission, together with the relevant Union Agencies, will continue to provide support to Member States.

A swift adoption of the Commission pending proposals, including on a Common European System for Returns and a Union list of safe countries of origin can support our efforts. The Commission will pursue its work to strengthen comprehensive partnerships with partner countries, engaging strategically at regional and global level and developing smart cross-policy leverages to promote better cooperation on migration.

In terms of implementation of the Pact, solidarity and fair sharing of responsibility need to continue advancing together and in a balanced way. The start of the first Annual Migration Management Cycle is an important step to prepare the ground for the operationalisation of the new solidarity mechanism. Based on the Report, the Commission Decision and the Commission proposal for a Council implementing Decision establishing the Annual Solidarity Pool, the Council should convene, within 15 days, the High-Level EU Solidarity Forum in view of agreeing on the size of the Solidarity Pool and on how each Member State will contribute. The Commission stands ready to support the Council throughout this process. The EU Solidarity Coordinator will also convene the Technical-Level EU Solidarity Forum to operationalise the solidarity mechanism between the Member States and address the solidarity needs with the contributions identified, ahead of the entry into application in mid-2026.

The Commission will report again in March 2026 on the progress in the implementation of the Pact ahead of the entry into application. The Commission will also develop a long-term European asylum and migration management strategy, setting out a high-level policy and operational roadmap for a common system that is robust and adaptable to the rapidly changing circumstances.

(1)

Article 9 of 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 and repealing Regulation (EU) No 604/2013 (OJ L, 2024/1351, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1351/oj ).

(2)

Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 2024 on asylum and migration management.

(3)

Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions State of play on the implementation of the Pact on Migration and Asylum, COM/2025/319 final ( EUR-Lex - 52025DC0319 - EN - EUR-Lex ).

(4)

Article 11 of Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 2024 on asylum and migration management.

(5)

Article 12 of Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 2024 on asylum and migration management.

(6)

Regulation (EU) 2024/1356 of the European Parliament and of the Council of 14 May 2024 introducing the screening of third-country nationals at the external borders and amending Regulations (EC) No 767/2008, (EU) 2017/2226, (EU) 2018/1240 and (EU) 2019/817; ELI: http://data.europa.eu/eli/reg/2024/1356/oj .

(7)

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; ELI: http://data.europa.eu/eli/reg/2024/1348/oj and Regulation (EU) 2024/1349 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 .

(8)

(9)

Regulation (EU) 2024/1358 of the European Parliament and of the Council of 14 May 2024 on the establishment of ‘Eurodac’ for the comparison of biometric data in order to effectively apply Regulations (EU) 2024/1351 and (EU) 2024/1350 of the European Parliament and of the Council and Council Directive 2001/55/EC and to identify illegally staying third-country nationals and stateless persons and on requests for the comparison with Eurodac data by Member States’ law enforcement authorities and Europol for law enforcement purposes, amending Regulations (EU) 2018/1240 and (EU) 2019/818 of the European Parliament and of the Council and repealing Regulation (EU) No 603/2013 of the European Parliament and of the Council; ELI: http://data.europa.eu/eli/reg/2024/1358/oj .

(10)

Directive (EU) 2024/1346 of the European Parliament and of the Council of 14 May 2024 laying down standards for the reception of applicants for international protection; ELI: http://data.europa.eu/eli/dir/2024/1346/oj .

(11)

SWD(2025) 792, Methodology for the purposes of Commission implementing decision pursuant to Article 11 of Regulation (EU) 2024/1351 of the European Parliament and of the Council.

(12)

Commission Implementing Regulation laying down rules for the application of Regulation (EU) 2024/1351 of the European Parliament and of the Council, as regards asylum and migration management and repealing Commission Regulation (EC) No 1560/2003.

(13)

The result of the monitoring undertaken by the Asylum Agency as well as the monitoring carried out in accordance with Article 10 of Regulation (EU) 2024/1356 referred in Article 9(e) of Regulation (EU) 2024/1351 are not available as these monitoring mechanisms are not yet operational.

(14)

The European Union Agency for Asylum (EUAA), the European Union Agency for Law Enforcement Cooperation (Europol), the European Border and Coast Guard Agency (Frontex), the European Union Agency for the Operational Management of Large-Scale IT Systems in the Area of Freedom, Security and Justice (eu-LISA), the European Union Agency for Fundamental Rights (FRA).

(15)

The Blueprint Network, an early deliverable of the Pact, is the operational framework bringing together relevant EU stakeholders to monitor and anticipate migration flows and situations. It was established by Commission Recommendation (EU) 2020/1366 of 23 September 2020 on an EU mechanism for preparedness and management of crises related to migration, EUR-Lex - 32020H1366 - EN - EUR-Lex .

(16)

SWD(2025) 790 Supporting the analysis of the asylum, reception and migration situation in the Union and in the Member States and SWD (2025) 793 Statistical breakdown supporting the analysis of the asylum, reception and migration situation in the Union and in the Member States are marked as sensitive as they contain data which shall not be disclosed to the public given the granularity of the information therein and the risk of hampering Union Agencies and Commission operational activities.

(17)

SWD(2025) 791, Projection pursuant to Article 9(3)(b) of Regulation (EU) 2024/1351 of the European Parliament and of the Council for the year 2026, classified as “RESTREINT UE/EU RESTRICTED”.

(18)

Since this Report covers the period 1 July 2024 to 30 June 2025, the year-to-year comparison (“previous reporting period”) refers to the 12-month period from 1 July 2023 to 30 June 2024.

(19)

The analysis in this section is based on Frontex data.

(20)

The number of illegal border crossings (IBCs) refers to the number of third-country or EU/Schengen Associated Country nationals detected by Member State authorities when entering or when attempting to exit illegally the territory between border crossing points (BCPs) at external borders. However, it is possible that a third country national is detected more than once entering/exiting illegally the territory of a Member State.

(21)

Routes with more than 500 IBCs are included in this map.

(22)

Calculated comparing the share of each Member State for this indicator with its share of GDP and population. The share of GDP and population for each Member States is calculated in accordance with the reference key set out in Article 66 of Regulation (EU) 2024/1351, using Eurostat data.

(23)

Memorandum of Understanding on a strategic and global partnership between the European Union and Tunisia, signed in July 2023.

(24)

Joint Declaration establishing a migration partnership between the Islamic Republic of Mauritania and the European Union launched in March 2024.

(25)

EU Action Plan on the Western Balkans of 5 December 2022 available at https://home-affairs.ec.europa.eu/eu-action-plan-western-balkans_en .

(26)

A new generation Status Agreement was signed with Bosnia and Herzegovina in June 2025, which enables Frontex SCOs to work alongside local Border Management authorities with executive powers - allowing the entire Western Balkan region (except Kosovo - designation without prejudice to positions on status, and is in line with UNSCR 1244/1999 and the ICJ Opinion on the Kosovo declaration of independence) to be covered with such Agreements and subsequent deployments.

(27)

This included cases where non-EU nationals overstayed the permitted 90 days within a 180-day period or lacked a valid visa or residence permit.

(28)

Ukrainians without valid permits or not covered by temporary protection.

(29)

Communication from the Commission to the European Parliament, the European Council, the Council, the European Economic and Social Committee and the Committee of the Regions 2025 State of Schengen Report, EUR-Lex - 52025DC0185 - EN - EUR-Lex .

(30)

As reported by Frontex, the total number of identified vulnerabilities concerning the capacities and preparedness of border control in the Member States show a relevant overall downward trend: The 2025 Vulnerability Assessment brings an encouraging outcome .

(31)

The analysis in this section is based on Frontex data.

(32)

2020 European Commission recommendation on SAR ( eur-lex.europa.eu/legal content/EN/TXT/PDF/?uri=CELEX:32020H1365 ), especially references under point (5) and (7); European Commission Guidance on the implementation of EU rules on definition and prevention of the facilitation of unauthorised entry, transit and residence ( eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52020XC1001(01) ), especially points 4 and 5.

(33)

Data | Missing Migrants Project , source: IOM.

(34)

The analysis on international protection and temporary protection are based on EUAA and Eurostat data, respectively.

(35)

Includes decisions at first instance and decisions in appeal or review granting Geneva Convention refugee status and subsidiary protection status.

(36)

The recognition rate at first instance for international protection decreased to 31%, mainly due to fewer positive decisions issued to Syrian, Afghan and Iraqi nationals.

(37)

(38)

Commission Staff Working Document Mid-term review of the Commission Action Plan on Integration and Inclusion 2021-2027 Accompanying the document Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee, and the Committee of the Regions State of play on the implementation of the Pact on Migration and Asylum, SWD(2025)162 final, EUR-Lex - 52025SC0162 - EN - EUR-Lex .

(39)

OECD/European Commission (2023), Indicators of Immigrant Integration 2023: Settling In, OECD Publishing, Paris, https://doi.org/10.1787/1d5020a6-en .

(40)

UNHCR , "A poverty assessment of Ukrainian refugees in neighbouring countries" countries , 17 March 2025, p. 14.

(41)

The analysis on unauthorised movements is based on EUAA and eu-LISA data.

(42)

Regulation (EU) No 604/2013 of the European Parliament and of the Council of 26 June 2013 establishing the criteria and mechanisms for determining the Member State responsible for examining an application for international protection lodged in one of the Member States by a third-country national or a stateless person (recast) (OJ L 180, 29.6.2013, ELI: http://data.europa.eu/eli/reg/2013/604/oj ).

(43)

Proxy indicators include data collected to monitor the functioning of Regulation (EU) 604/2013 (‘Dublin statistics’) and data stored in Eurodac – the EU’s fingerprint database (established by Regulation (EU) No 603/2013) that stores and compares fingerprints of individuals who have applied for asylum or been apprehended while illegally crossing the external borders of the Schengen area.

(44)

(45)

398 000 foreign Eurodac hits were reported (when both the country of departure and the country of destination are Member States), 27% less than in the July 2023-June 2024 period.

(46)

The map shows the main routes of unauthorised movements as indicated by Eurodac hits. The head of the arrows shows the direction of the movements while width of the arrows reflect the number of hits.

(47)

The number of outgoing take back requests and outgoing take charge requests based on irregular entry and stay was around 93 000 in the reporting period.

(48)

The ratio of transfers following accepted requests should be used with caution to assess a Member State’s capability to successfully implement transfers due to the lack of cohort data and given that there might be a substantial time lapse between an accepted transfer request and a physical transfer. This time lapse distorts the calculation of the rates if the number of acceptances is not stable over time.

(49)

Data collected to monitor the functioning of Regulation (EU) 604/2013 (‘Dublin statistics’) include the number of the requests sent and received by a Member State to/from another on take back and take charge procedures, the decisions made on such requests as well as the number of transfer decisions issued and implemented.

(50)

The analysis on reception is based on EUAA data.

(51)

The Commission and EUAA set forth an ‘incremental approach’ by which Member States are required to report reception data at least on two core indicators: persons in the reception system (total number of persons in the reception system, including breakdown per legal status of persons in reception and number of unaccompanied minors); and capacity of the reception system (total beds available at the end of the reporting period). As of 2027, Member States are to report on the whole set of reception indicators.

(52)

This data refers only to the reception system understood as the set of arrangements in place to accommodate applicants for international protection as per the recast Reception Conditions Directive.

(53)

In Ireland, a significant proportion of international protection applicants entered the country irregularly, principally arriving across the land border of the United Kingdom. This, alongside the significant arrivals of people benefitting from temporary protection, had an impact on the Irish asylum and reception system. During the reporting period, applications for international protection in Ireland stood at 14 000 compared to the unprecedented high numbers in the previous reporting period (18 000). This trend is visible since early 2022, alongside a high number of arrivals from Ukraine.

(54)

At the end of June 2025, it was possible to calculate the occupancy rate for 25 Member States. The data needed for the calculation of the occupancy rate were incomplete for Finland and Portugal.

(55)

This is the case for Belgium, Cyprus, Croatia, Latvia, Lithuania, and Greece.

(56)

The analysis on resettlement and humanitarian admission is based on EUAA data.

(57)

The analysis on return is based on Eurostat data.

(58)

France issued most orders to leave to nationals of Algeria, Tunisia and Morocco; Spain to nationals of Mali, Senegal and Algeria, and Germany to nationals of Syria, Türkiye and Afghanistan. Cyprus issued most orders to leave to nationals of Syria, the Democratic Republic of the Congo and Nigeria, Greece to nationals of Afghanistan, Syria and Albania, and Croatia to nationals of Türkiye, Nepal and Bosnia and Herzegovina.

(59)

The EU-wide return rate stood at 24% during the reporting period.

(60)

The mechanism of Article 25a Visa Code contributed to triggering favourable dynamics and concrete progress with third countries. The return rate for Bangladesh increased from 9% in 2023 to 17% in 2024, the one for Iraq from 14% to 31%. Also, in the case of Ethiopia where visa measures were adopted in April 2024, the return rate increased in 2024 (13%, compared to 11% in 2023), along with improved Member State activity in requesting Ethiopia to readmit its citizens (more than four times as many readmission requests in 2024 compared to 2023). Targeted return actions on priority third countries initiated by the EU Return Coordinator brought focus and coherence across EU level actions exceeding the 25% growth target with several third countries.

(61)

According to data reported by Frontex, Member States submitted less requests for identification and emergency travel documents (-6%, 68 908 compared to 73 449 in the previous reporting period).

(62)

This includes challenges in ensuring a smooth return process due to inefficiencies at key stages, including the appeals system, effective pre-return identification and sufficient monitoring of the compliance with an obligation to return. The 2024 thematic Schengen evaluation also showed that the operational implementation of return alerts within the Schengen Information System, by all national authorities, needs to be enhanced to achieve more effective decision-making in return procedures.

(63)

During the reporting period, nearly 54 600 people subject to SIS return alerts were identified in Member States other than the one that created the alert (“SIS hits”). Of these, around 33 600 were third-country nationals detected at checks within the territory, while about 16 500 were intercepted at border checks when leaving the EU through a Member State other than the one that had issued the alert.

(64)

COM (2025) 101 final.

(65)

SWD(2025) 791, "Projection pursuant to Article 9(3)(b) of Regulation (EU) 2024/1351 of the European Parliament and of the Council for the year 2026", classified as “RESTREINT UE/EU RESTRICTED”.

(66)

As the data for the full year 2025 is not available at the time of the adoption of the Report, the 2024 data is used as the most recent and complete annual reference point to contextualise the projection for the coming year 2026. The trend observed in 2025, however, has been fully taken into account in the analysis.

(67)

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 and repealing Regulation. (EU) No 604/2013; Directive (EU) 2024/1346 of the European Parliament and of the Council of 14 May 2024 laying down standards for the reception of applicants for international protection; Regulation (EU) 2024/1359 of the European Parliament and of the Council of 14 May 2024 addressing situations of crisis and force majeure in the field of migration and asylum and amending Regulation (EU) 2021/1147 (OJ L, 2024/1359, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1359/oj ); Regulation (EU) 2019/1896 of the European Parliament and of the Council of 13 November 2019 on the European Border and Coast Guard and repealing Regulations (EU) No 1052/2013 and (EU) 2016/1624 (OJ L 295, 14.11.2019, pp. 1–131, ELI: http://data.europa.eu/eli/reg/2019/1896/oj ); Regulation (EU) 2021/2303 of the European Parliament and of the Council of 15 December 2021 on the European Union Agency for Asylum and repealing Regulation (EU) No 439/2010 (OJ L 468, 30.12.2021, pp. 1–54, ELI: http://data.europa.eu/eli/reg/2021/2303/oj ).

(68)

Except for Hungary and Poland.

(69)

Regulation (EU) 2019/1896 of the European Parliament and of the Council of 13 November 2019 on the European Border and Coast Guard (OJ L 295, 14.11.2019, pp. 1–131; ELI: http://data.europa.eu/eli/reg/2019/1896/oj ).

Top

EUROPEAN COMMISSION

Brussels, 11.11.2025

COM(2025) 795 final

ANNEX

to the

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL ON THE EUROPEAN ANNUAL ASYLUM AND MIGRATION REPORT (2025)

ANNEX

to the

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL ON THE EUROPEAN ANNUAL ASYLUM AND MIGRATION REPORT (2025)

Second state of play on the implementation of the Pact on Migration and Asylum

Introduction

The Commission issued the last state of play of the implementation of the Pact on Migration and Asylum in June 2025 1 . This second state of play covers the period since then until early October 2025.

In this time, Member States, the Commission and the Union Agencies, together with different stakeholders and partners, continued to work across all building blocks, to ensure that implementation continues.

Further progress has been made, and important milestones have been met, including the development of national strategies and contingency plans, adaptions of national legal frameworks and the adoption of the Implementing Regulation of Regulation (EU) 2024/1351, as well as preparations to deliver on the first Annual Migration Management Cycle.

At the same time, challenges remain, particularly in relation to Eurodac and ensuring that systems are ready on time, regarding the border procedure and the need to implement necessary infrastructure, personnel requirements and administrative arrangements to keep timelines. Furthermore, across the Union, screening arrangements should be finalised and reception capacity aligned with actual needs and the new framework. Finally, arrangements relating to the fundamental rights monitoring as well as for legal counselling should be concluded.

In July 2025, the Commission has presented its proposal for a new Multiannual Financial Framework and has proposed to triple Union financial support for migration, security and border management in the next period, along with a significant increase of funding for the Home Affairs Agencies. In total, the proposed additional Union financial support for the area of home affairs and migration would then amount to EUR 81 billion.

Delivering at Union level

A first and essential planning phase started with the presentation of the Common Implementation Plan in June 2024, which provided a framework for the development of the Member States’ National Implementation Plans, and the establishment of the relevant governance arrangements 2 .

By now, the work on Pact implementation is fully focused on legislative adaptation, practical operationalisation, and resourcing of the necessary reforms. In this phase, the established coordination mechanisms continue to function well, be it at horizontal level within the framework of the Strategic Committee on Immigration, Frontiers and Asylum (hereinafter: SCIFA) or under the Commission’s purpose-built bilateral dialogue with the Member States. More general exchanges with the European Parliament continued in the framework of the regular meetings of the Working Group on Asylum – Implementation of the Pact/Common European Asylum System of the Committee on Civil Liberties, Justice and Home Affairs.

The different legislative proposals put forward by the Commission over the last seven months to complete and complement the Pact are taken forward in the framework of the legislative procedure. This includes the proposal for a new Return Regulation, the proposal relating to the ‘safe third country’ concept as well as the proposed Union list of safe countries of origin 3 . The European Parliament has appointed its respective rapporteurs and technical meetings have begun. On its side, the Council has begun work on its positions, with discussions ongoing in the relevant bodies. Meanwhile, work on the implementing acts stemming from the Pact legislation is advancing in the Commission Contact Committees (see by building block in the section below).

The different Union Agencies 4 have been working closely with the Commission and the Member States, providing support to the reforms according to their mandates. The agencies are generally on track to deliver the different guidance documents, templates and training material that are anticipated in the Common Implementation Plan. In addition, they are providing on-demand support to various Member States and responding to new and emerging challenges. Two EUAA pilot monitoring exercises, in preparation for the full roll-out of the EUAA multiannual monitoring programme (from 2026 onwards), took place with Estonia and the Netherlands. As part of the exercises, two Teams of Experts composed by EUAA, the Commission, and Member States, as well as UNHCR as observers, carried out on-site visits in June 2025. The final reports with the findings have been finalised and shared with the respective Member States. From June 2026 onwards, all Member States will be monitored in terms of their technical and operational implementation of the Pact in a five-year cycle.

The programming of the financial support to Pact implementation started through continuous engagement with the Member States (see section 3.1.). This covers the additional EUR 3 billion available to Member States to support the implementation of the Pact and hosting displaced persons from Ukraine. Most Member States also qualified to access additional funds available under the mid-term review of the Home Affairs Funds, amounting to a further EUR 1.6 billion.

Parallel support to Member States though the Technical Support Instrument managed by the Commission continues. Currently, the authorities of nine Member States 5 are receiving tailored support to carry out specific reforms stemming from their National Implementation Plans during the two-year transition period until 2026.

Engagement with civil society took place at Union level in various fora as well as bilateral outreach. A particular element of outreach in the last month included engagement with judiciary networks to foster cooperation and information exchange relating to the procedural changes introduced by the Pact, including related new deadlines for the conclusion of the different procedures 6 . The judiciary’s role is particularly important for the functioning of the asylum and return border procedures responsibility rules (Regulation (EU) 2024/1351), detention orders, reception capacities, the appointment of representatives for unaccompanied minors, and legal assistance and representation.

The wider significance of the reforms remains fully in sight: Following the legal deadline of 12 June 2025, 22 Member States finalised their national migration and asylum strategies 7 . These strategies reflect a comprehensive, whole-of-government, strategic approach to migration and asylum. They will in turn inform the first European Strategy on asylum and migration management, due by the end of the year.

Operationalisation of the building blocks – progress update

The number of National Implementation Plans for the Pact remains unchanged since June 2025. At Member State level, coordination and governance arrangements have further evolved, also based on the identification of – and further exchange with – important stakeholders to implement the reforms. This may for example include the need for greater involvement of departments or line ministries responsible for service provision such as education or health, as well as increased engagement with civil society organisations and implementing partners to move forward in the operationalisation of the necessary partnership agreements. Member States who have not done so, should increase engagement, especially with the judiciary, to anticipate related needs.

It will be increasingly important to ensure that remaining national-level milestones and intermediate targets are well-defined and tracked, to help identify and address any delays. This was a more general challenge already identified in the first report on Pact Implementation. Some Member States have established good practices and implementation processes in this regard 8 .

Legislative reforms relating to the alignment of national legal frameworks with the Pact and the transposition of Directive (EU) 2024/1346 are now fully underway. A small number of Member States have already adopted relevant national legislation, either fully or in part 9 . A growing number of Member States have either already completed the drafting of legislation or are in the final stages of preparing the proposals 10 . In most cases, this process includes different levels of consultation with civil society and key stakeholders 11 .

Member States who are still reviewing their legislative frameworks should complete this process as soon as possible to ensure drafting is completed and the adoption processes can start early next year 12 . Work in the Commission contact committees will develop further guidance and address emerging queries and questions.

Financial support: national programming

Since the last update, the Commission has worked closely with all Member States on the programming of the financial support dedicated to the Pact. The EUR 3 billion allocated for this exercise will help ensure that key elements of the new framework are sufficiently resourced, be it from Union or national funds 13 . All but one Member State 14 submitted forms with their proposals, which are the basis for the dialogue on the financing with the Commission services. This working method allows the Commission to examine the challenges that Member States face and to assist them in deciding on the most appropriate use of the Union funds, complementary to the national budget, in line with the National Implementation Plans.

Key challenges and next steps:

Currently, several Member States have concluded the dialogue on the programming of the additional funds and are on track to finalise the programme amendment process by the end of the year. Most Member States are in the last steps of the dialogue. This process needs to be concluded as soon as possible to move into the amendment stage that may take several months.

Overall, this working method has provided for a very constructive exchange between Member States and Commission services relating to national preparation, complementary to the National Implementation Plans and National Strategies, and established a good practice of regular contacts between Member States and the Commission services on operational matters. These discussions also provide a solid basis for cooperation and joint monitoring of the Pact implementation for the years to come. Continuing a regular dialogue with Member States, including on the progress in budget absorption, will help keep track of challenges and, where appropriate, provide additional tailor-made support, be it operational or financial. Part of the 2026-2027 budget of the AMIF Thematic Facility can be mobilised to further support Member States, based on needs identified during the continued exchange of information on the implementation of the Pact.

Building Block 1 – Eurodac

Member States continue to work closely with the Commission and eu-LISA to ensure the Eurodac system is operational on time in June 2026. At the most recent meeting of the Eurodac Advisory Group, Member States generally reported good progress: In most Member States, financial allocations have been specified for this objective, be it through national budgets or drawing on Union funds or a combination thereof. In several Member States, providers for relevant services have been selected or procurement procedures accelerated through framework contracts, whereas procurement has started in other Member States 15 .

As of September, eight Member States and Europol reported being fully on track 16 . 18 Member States reported to still face different challenges, though expect to be able to solve outstanding issues in time 17 . One Member State is at risk of not being ready in time 18 . Over the past months, eu-LISA has made it possible for Member States to test the operations, with more testing being made available to Member States over the next months.

At Union level, the Commission established the Eurodac regulatory committee and work progressed on the non-legislative acts related to Eurodac, notably on cross-system statistics and to ensure interoperability. The acts are on track to be adopted still this year 19 .

Key challenges and next steps:

The implementation of the Eurodac system across the Member States still varies, reflecting different stages of progress. Existing challenges need to be addressed as a matter of urgency, as we are entering the last phase before the entry into application of the Pact. In several cases, challenges include addressing remaining connectivity issues, setting clear targets to complete the testing, launching outstanding procurement procedures, and clarifying modalities related to the nomination of the access point 20 .

Member States are strongly encouraged to start testing as early as possible, because this allows both eu-LISA and the Member State to identify any issues early on, leaving sufficient time to address them. Five Member States and Switzerland have already initiated testing the actual operation and a good number are about to start over the coming months 21 . However, the majority of Member States have not yet engaged, which in some cases is because they have not yet completed their connectivity test, a prerequisite to test operations 22 . The Commission and eu-LISA remain in close technical dialogue with the Member States on this matter and eu-LISA will equally continue to support all Member States where needed.

Building Block 2 – A new system to manage migration at the Union’s external borders

Progress continues towards putting the mandatory asylum and return border procedures in place. Since the June Communication on the Pact implementation state of play, the number of Member States that either already have both the reception facilities and human resources in place to reach adequate capacity or that will do so soon, has further increased 23 . Several Member States are setting up and organising for the new mandatory screening, including preparing training schedules 24 .

Work has continued in the relevant committees, inter alia resulting in the preparation of dedicated Commission guidance on the asylum and return border procedures and regular updates to the guidance on screening, complementing the Practical Handbook for Border Guards. Recent topics addressed in committee meetings also included the use of large-scale IT systems for the purpose of the security and identity checks. Given that the return border procedure relies on the ability to ensure the return of rejected applicants, the 2025 Commission annual assessment under Article 25a of the Visa Code for the first time paid particular attention to countries of origin whose nationals would fall under the border procedure.

In close cooperation, the EUAA and Frontex have developed a harmonised training offer on screening. This preliminary module was made available to users at the end of September. A comprehensive training module on screening will be available from March 2026 onwards. The screening toolbox, developed jointly by Frontex, the EUAA and the Commission with the support of Europol and Member States’ experts is expected by the end of the year. The toolbox complements Commission guidance and comprises a set of user-friendly templates, guidance materials and practical resources 25 . Operational testing of the toolbox is expected to start in October 2025.

Key challenges and next steps:

Despite progress, several of the challenges identified in the previous report remain. The pending organisational questions include adjusting national legislation, revising or developing standard operating procedures and guidelines, ensuring sufficient staff, undertaking procurement procedures for building or refurbishing facilities, implementing efficient measures to mitigate the risks of absconding, or having to further integrate IT databases 26 . Where necessary, some temporary bridging measures would be needed 27 . At this stage, the full and timely implementation of adequate capacity remains at risk in some Member States 28 . Whereas the legal deadline for Member States to notify the locations for the border procedures is 11 April 2026, Member States are invited to indicate the locations as soon as possible to facilitate planning for their set-up.

On screening, a number of Member States still have to define more clearly the distribution of tasks within national structures and harmonise procedures and/or review interoperability requirements. Some Member States already have screening centres, as they already apply arrival processes 29 . For others, plans to have centralised locations will need to factor in that these may not be fully ready by June 2026. Other Member States opted for a decentralised approach – in particular for screening within the territory. In several cases, arrangements on health checks still need to be defined, including based on cooperation with medical services.

Building Block 3 - Rethinking reception

Many Member States are improving reception capacity, both in quantity and quality. They have taken further steps to address capacity gaps or ensuring that new provisions can be operationalised. This includes the construction of new and the reconstruction and/or upgrade of existing facilities. Many Member States have concretised their plans, with some focusing on the establishment of new multipurpose centres 30 . The models and blueprints developed by the EUAA and the Commission are useful in this regard, as centres are designed to provide a range of services, from identification and registration to reception facilities for different categories of people as well as access to social workers and legal advice services.

Some Member States are using simulation exercises to assess their reception system’s preparedness for the introduction of new procedures/activities by the Pact such as the border procedure and screening 31 .

The possibility to have different reception arrangements based on different types and groups of applicants that is outlined in Directive (EU) 2024/1346 has also been taken up. Member States are introducing or consolidating specific arrangements for the responsibility transfer cases 32 , but also working to better address the needs of people with vulnerabilities or families in reception centres 33 . Several Member States also advanced the case management systems and the digitalisation of processes to enhance access and exchange of data or adapt otherwise to Pact requirements 34 .

Overall, since the last update in June, Member States and EUAA have made significant efforts to fill gaps in the data collection on reception 35 . However, national reception systems are very complex and heterogeneous. More granular data is needed from all Member States, for the Commission to provide a more comprehensive and comparable picture of the reception capacity in the Union and in the Member States for the purposes of the annual migration management cycle. For the first two annual cycles (2025 and 2026), the Commission and EUAA set forth an incremental approach by which Member States are required to report reception data on core indicators 36 . As of 2027, Member States will report data to the EUAA on a complete set of reception indicators.

Member States and the Commission services continue to meet in the Reception Contact Committee to prepare the transposition of Directive (EU) 2024/1346 and clarify outstanding issues. Recent discussions addressed issues such as early integration measures, restriction of freedom of movement, detention and alternatives to detention, as well as more generally the interplay with other elements of the Pact. The EUAA Reception Network continues its work to identify operational challenges and share good practices. All these discussions also feed into the upcoming revised EUAA guidance on standards and indicators. The agency’s practical guide on setting up and managing an arrival and reception centre is also nearing completion.

Key challenges and next steps:

Some key challenges in national reception systems continue to persist. Any new construction should proceed in a timely fashion and, where necessary, intermediate measures must be put in place to ensure compliance with Directive (EU) 2024/1346 and to guarantee sufficient adequate capacities by the time the Pact enters into operation 37 . Challenges still exist in relation to vulnerable groups hosted within the reception systems, such as unaccompanied minors and victims of gender-based violence (section 3.10).

Member States that are in the early stages of planning for multipurpose centres and have not done so already should engage with the EUAA to consider the blueprint and models developed specifically to ensure alignment with the provisions and principles of the Pact.

Overall, challenges related to capacity and integration of management systems highlight continuous need for strategic resource allocation. This process is still ongoing for a number of Member States. The Commission continues to pay close attention to cases where Member States plan or are already starting a reduction in their reception capacity to ensure that any such measures are in line with the overall need to have well prepared systems. Member States are also advised to provide detention, in full alignment with the Pact legislation, where detention must be a measure of last resort.

Data reporting and granularity on national reception system need to be further improved to inform the assessment of the reception situation included in the European Annual Asylum and Migration Report 38 . Given the central role of reception, further work will be required to ensure reception statistics are sufficiently comparable and complete, thus allowing for a more complete assessment.

Building Block 4 - Fair, efficient and convergent asylum procedures

The reforms relating to the Pact legislation continue to be discussed in the relevant fora. EUAA updated the relevant guidance and operational standards and indicators on the asylum procedures that should be finalised by the end of the year, alongside the practical guide on registration and lodging of applications for international protection.

Various Member States are taking measures to tackle existing backlogs in asylum cases and improve their case management. This ranges from the hiring of additional staff to reforming processes through digitalisation and integrated case-management systems and harmonising workflows and procedures across different stakeholders 39 . Various Member States make use of the EUAA support e.g. to jointly develop procedures or request deployments or trainings or to direct operational support 40 . The ongoing decrease in asylum requests in the Union will further help Member States to reduce the backlogs in asylum cases.

Most Member States have ensured cooperation with judicial bodies in their implementation work 41 . This is crucial to ensure alignment between national judicial practices and Pact provisions, to enable efficient judicial systems to reduce the processing times of applications and expand capacities to process appeals.

As noted above, the legislative procedure for the Commission’s proposals relating to the Safe Third Country Concept and to the establishment of a list of Safe Countries of Origin, which will facilitate procedures, is ongoing 42 .

Key challenges and next steps:

Despite the measures taken, further efforts to reduce backlogs and avoid building up new ones are needed 43 . This may include the timely launch of recruitment procedures, be it for interim or long-term arrangements, and of the trainings necessary to familiarise staff with the new framework, in possible cooperation with the EUAA. Only by reducing their backlogs will Member States be able to limit as much as possible a situation of running two systems in parallel after June 2026 (one based on the then old acquis of the Directive 2013/32/EU, and another one based on Regulation (EU) 2024/1348 for cases received after 12 June 2026).

All Member States are encouraged to put further emphasis on the cooperation with the judiciary and address possible risks of overburdened judicial systems and staff shortages, also in view of the shortened deadlines under the new procedures.

As they adjust their systems, Member States also need to continue ensuring effective access to asylum procedures and the application of the principle of non-refoulement.

In line with Communication 2024/570 on countering hybrid threats from the weaponisation of migration and strengthening security at the Union’s external borders, measures taken to address such weaponisation of migration at the borders with Belarus and Russia that entail serious interferences with fundamental rights, such as the right to asylum and related guarantees, have to be temporary, proportional and limited to what is strictly necessary, and ensure that the essence of those rights is respected, while meeting objectives of general interest recognised by the Union.

Building Block 5 - More efficient and fair return procedures

As part of joint efforts to simplify and streamline administrative procedures, alongside with the issuing of negative asylum decisions together with return decisions 44 , Member States are upgrading their national return case management systems and taking steps to make the return process more effective.

Several Member States have made plans to increase their return counselling capacity. Other measures include reinforcing Assisted Voluntary Return Programmes, plans to increase human capacities for the authorities managing return procedures or to establish return offices to facilitate inter-institutional relations and increase the efficiency of return procedures 45 .

Frontex, as requested by Member States, will further strengthen its counselling support, specifically targeting third-country nationals whose appeal against negative asylum decisions has granted them the right to remain on the territory pending a first-instance review 46 . In addition, Frontex is working on a training for return specialists on cooperation with third countries, return IT systems, and on return and reintegration counselling. All Member States continue to actively use the Frontex EU Reintegration programme.

Key challenges and next steps:

The Commission continues to place priority on advancing the negotiations on the proposed Return Regulation 47 , resulting in a swift agreement between the European Parliament and the Council, in any event prior to the application of the Pact in June 2026. The Return Coordinator is working to develop a manual on effective workflows in the Return Border Procedure this year. In parallel, the Commission services, in close cooperation with the Member States, are exploring the possibility of setting up mechanisms to support those Member States that are not yet issuing return decisions at the same time as the negative asylum decisions to develop capacities and procedures to do so.

Frontex will continue to map Member States’ IT return case management systems by performing gap analyses and advising on further improvement, as well as seeking to establish interconnections between Frontex’ and Member States’ national IT return case management systems. More broadly, Frontex is currently evaluating how best to adapt its support to Member States in carrying out forced and voluntary returns within the framework of the Pact. This may entail the establishment of additional return routes, the facilitation of departures from peripheral airports, and the capacity to respond flexibly to short-notice requirements for charter flights. At the request of Member States, Frontex may also deploy Return Escort and Support Officers (FRESO) and return specialist joint mobile teams. The Agency will also expand the geographical coverage of the EU Reintegration Programme.

Building Block 6 - Making responsibility work

At horizontal level, the new implementing rules for Regulation (EU) 2024/1351 were finalised in July, and their final adoption is planned for October. The rules cover both responsibility rules as well as elements of the solidarity mechanism. They define the modalities of information exchange between Member States as well as the practical details for the effective implementation of the responsibility rules set out in that Regulation (the ‘Dublin rules’) and the solidarity mechanism, effectively delivering on several key milestones across building blocks six and seven of the Common Implementation Plan.

In support of the reforms of the responsibility rules under Regulation (EU) 2024/1351, the EUAA has published two templates for family tracing forms 48 , a Practical Guide on family tracing 49 and the Guidance on remote interviews in April 2025 50 . The Agency is also working on the revision of the EUAA “Guidance on the Dublin procedure: operational standards and indicators”, planned for 2026.

Member States continue to advance reforms, strengthening their staffing levels, providing training on the new responsibility rules, setting up dedicated facilities, refining procedures for vulnerable groups or families, and upgrading their IT infrastructure 51 . Member States are also taking action to reduce possibilities and incentives for unauthorised movements through reforms in their reception system (see section 3.4. above), such as the creation of Dublin centres, and through legislative changes that use the new provisions on the restriction of freedom of movement, but also through greater bilateral cooperation.

Key challenges and next steps:

At the level of Member States, systemic challenges persist, in particular shortages of personnel, the accumulation of backlogs, insufficient reception capacities for incoming transfers, and the absconding of applicants. To safeguard the full implementation of the new system, it is essential to send a clear signal that responsibility rules cannot be circumvented.

Since conditions are in place for transfers to function to and from all Member States, and in view of the applicable rules, these should take place towards all Member States. This is important for the effective transition to the new rules, and for the effective functioning of the annual solidarity cycle.

As underlined in both the European Annual Asylum and Migration Report and the previous Communication on the state of play on the implementation of the Pact, Member States must address any outstanding operational or capacity constraints. This extends to measures concerning other key building blocks, in particular reception conditions and opportunities for early integration. It is also closely linked to the effective implementation of Regulation (EU) 2024/1358.

Based on the new rules, eu-LISA is now developing the technical and operational measures for the communication between Member States via DubliNet. In addition, EUAA will publish the revision of the EUAA Guidance on the Dublin procedure: operational standards and indicators.

Building Block 7 – Making solidarity work

The launch of the first Annual Migration Management Cycle and the establishment of the first Solidarity Pool is a key deliverable of the Pact, intertwined with the responsibility strand of the reforms. The European Annual Asylum and Migration Report, which also includes projection of arrivals, provides the evidence-base for the Commission implementing decision and the Commission Proposal for a Council Implementing act 52 .

Preparatory work for the implementation of the solidarity mechanism continued within the framework of the Solidarity Platform, as did the preparation of the EUAA practical guide on the operational implementation of relocation and responsibility offsets expected for March 2026. The ongoing joint work between the Commission, the Union agencies and Member States within the framework of the Blueprint Network 53 led to a satisfactory outcome in the transmission and collection of data for the purpose of the Annual Migration Management Cycle, providing a solid and objective data foundation for the assessment of the migratory situation in the Union.

Key challenges and next steps:

The next steps are defined in the European Annual Asylum and Migration Report. Most importantly, Member States will need to agree on the overall level of solidarity and define their pledges at the High-Level Union Solidarity Forum, in view of finding an agreement on the Solidarity Pool. In parallel, preparations to operationalise the solidarity mechanism are underway within the Commission, notably by working towards setting up of the Technical-level Solidarity Forum, as well as in the Member States.

A common evidence-base and data sharing remain essential for the successful implementation of the Pact. Member States are encouraged to continue working together with the Union Agencies and Eurostat to collect and transmit accurate and timely data, respecting the set deadlines and the commonly agreed definition of the indicators. Streamlining of international protection data is ongoing to ensure a single set of official European statistics on international protection 54 . The improvement of data collection and quality will continue, also through the adoption of Regulation (EU) 2024/1358.

Building Block 8 - Preparedness and contingency planning

Most Member States adopted and notified their national contingency plans on reception and asylum to the EUAA 55 , after common and comparable standards were set in the template provided by the EUAA. In doing so, they met another important milestone set out in the legislation.

Most of the national contingency plans notified to the EUAA reflect the core elements of the template (asylum, reception and unaccompanied minors), albeit with different levels of completeness and clarity 56 . Most of the plans also included detailed scenarios with clear indicators and thresholds, as well as linkages between the scenarios and response measures. The majority of the plans explain the procedure for the activation/deactivation of the relevant scenarios 57 . The overview of governance arrangements also varied, with some Member States addressing in greater detail how different authorities were involved in formulating the plan and how they will be involved in its activation across different scenario and areas.

Key challenges and next steps:

The Commission and the EUAA are in contact with the Member States on how to strengthen the completeness and clarity of the plans. Some general areas of improvement relate to better identifying well-formulated and measurable indicators for each scenario. Furthermore, the plans should encompass clear response measures per area and scenario. This includes the possible use of EUAA’s support. Preparedness measures (e.g. logistics and procurement preparation, stockpiling, training or buffer reception capacity) should be taken to ensure capacities that can be mobilised in a flexible and efficient manner and articulate them in the contingency plan. While almost all Member States indicated linkages with other relevant contingency plans (e.g. borders, returns), not all included these references. Most plans do not explain the process and actors that would be involved to ensure the mandatory revisions foreseen in Directive (EU) 2024/1346.

As indicated by some Member States, ongoing legislative and administrative preparations for the entry into application of the Pact could still affect the content of their contingency plans. The Commission therefore invites the Member States to ensure their plans are updated, if necessary, and notified to the EUAA by the time of entry into application of the Pact. It would also be advisable to ensure capacity building and testing of the plans.

Building Block 9 - New safeguards for applicants for international protection and vulnerable persons, and increased monitoring of fundamental rights

Over the last few months, most Member States have clarified their arrangements relating to legal counselling. In some cases, Member States need to introduce legislative changes, which are currently being drafted 58 . At operational level, whereas several countries are continuing with existing arrangements, most are making changes, by expanding their existing arrangements or establishing new ones. A large majority of Member States plan to work with partners, independent agencies and/or lawyers/legal aid association 59 . Similarly, most Member States have by now identified partners or institutional arrangements to put in place the fundamental rights monitoring mechanism. In most cases, the task will be attributed to existing ombudspersons 60 .

Regarding safeguards, the EUAA finalised the information provision materials relating to the new procedures in September 2025 and issued a Practical Guide for free legal counselling in the administrative stage of the procedure 61 . For Member States, especially the introduction of screening has required renewed attention and training specifically relating to vulnerability identification and response 62 . As part of this effort, training sessions are being organised. To support early identification and adequate and harmonised responses, the above-mentioned new screening toolbox (section 3.3) also includes a practical annex on conducting preliminary vulnerability checks. In addition, tailor-made training has been made available 63 . The EUAA is also finalising the revision of the broader training module “Introduction to vulnerability” to reflect the Pact legislation. In relation to returns, Frontex, in collaboration with other stakeholders, is developing a mobile application on working with vulnerable groups, including also a vulnerability check. The Fundamental Rights Agency (hereinafter: FRA) continues to advise Union institutions and national governments on fundamental rights.

Member States also focused on actions related to children that include steps to ensure adequate reception, in some cases changes to age assessment procedures, as well as further engagement relating to guardianship appointments and their supervision 64 .

Key challenges and next steps:

Member States who have not yet defined arrangements related to legal counselling 65 or the independent fundamental rights mechanism 66 should do so. All Member States should address any outstanding issues relating to ensuring competence and adequate independence and define clear lines of responsibility and accountability. This implies avoiding splitting this role amongst different actors or, where composite arrangements are chosen, clearly defining a lead role. Building on its December 2024 guidance relating to the set-up of the Mechanism itself, the FRA is currently developing methodological guidance for the work of the future designated monitors.

Challenges must also still be tackled in relation to vulnerable groups hosted within the reception system, such as unaccompanied minors and victims of gender-based violence. Sufficient and adequate reception capacities should be in place for unaccompanied minors who in principle should not be housed together with adults. Member States should increase efforts to ensure timely and adequate representatives for minors throughout all steps of the asylum process and to ensure access to education and health services for children in accordance with the Pact. In federal systems, special attention is needed to align legislation and practice at all levels of government.

The next meeting of the Commission expert group on children in migration will focus primarily on guardianship reforms required by the Pact. In this regard, FRA is working to update the 2014 Handbook on guardianship for unaccompanied children in line with the provisions introduced by the Pact. Still this year, the EUAA will publish an update of the 2018 Guidance on Age Assessment (3rd edition).

Building Block 10 - Integration and legal pathways to protection

Resettlement and legal pathways: The Commission presented its proposal for the first two-year Union Resettlement and Humanitarian Admission Plan (hereinafter: the Union Plan). The proposal for the Union Plan aims to set out the total number of third-country nationals or stateless persons in need of protection that Member States aim to admit in the Union in 2026 and 2027. It reflects the discussion held at the High-Level Resettlement and Humanitarian Admission Committee meetings, the voluntary contributions made by the participating Member States, and the Projected Global Resettlement Needs identified by the UNHCR. The proposed Union Plan identifies the regions from where admission should occur, with the objective of providing viable safe alternatives to irregular journeys and further strengthen the role of resettlement and humanitarian admission in building partnerships with third countries.

The EUAA provides support to Member States with related needs and is finalising the update to its training modules on complementary pathways and on the selection phase in the context of resettlement and humanitarian admission ahead of schedule by the end of 2025.

Integration of beneficiaries of international protection: Most Member States have worked to include Pact provisions related to integration and early integration measures in their national processes of implementation and transposition. As noted in June, the need to invest more or support further integration measures, including by developing early integration measures and a more efficient process for the recognition of qualifications and the validation of skills, was addressed by several Member States in their National Implementation Plans. Some Member States have progressed with national integration strategies 67 or aim to expand integration efforts with new or earlier integration and language courses 68 .

Key challenges and next steps:

The Council will need to adopt the Union Resettlement and Humanitarian Plan, based on the Commission’s proposal, by the end of the year. The Commission stands ready to support Member States in its implementation.

A functioning and coherent integration policy, including early integration measures, remains a prerequisite to support the self-sufficiency of applicants, foster social cohesion and allow beneficiaries of international protection to contribute to the host societies as early on as possible 69 . It also contributes to reducing incentives for unauthorised movements.

Despite their critical importance, integration support measures still vary greatly, and several Member States still need to increase their efforts, particularly regarding support to access to adequate housing, support to labour market integration, recognition of qualifications and setting up early integration measures 70 . To increase the effectiveness of their support, Member States should make further efforts to provide adapted measures to specific needs and remove obstacles for target groups such as migrant women, children or persons with mental health related needs, as highlighted in the mid-term review of the Action plan on integration and inclusion.

The Commission continues to support Member States’ integration policies by providing funding (including for long-term integration under Union cohesion funds), developing guidance and fostering multi-level partnerships involving migrants, host communities, local and regional authorities, social and economic partners, civil society and the private sector.

Conclusion

Over the next eight months, sustained progress is needed to ensure the successful entry into application of the Pact reforms, providing a stable foundation for future Union action for migration and asylum management. This requires effort now and it will require collective work in the future.

Focus should be on the challenges outlined in this report, ensuring that solidarity and responsibility systems function, Eurodac systems are ready, arrangements for the border procedure are in place, and adequate reception capacities are ensured across all Member States. Further important elements of the Pact are the fundamental rights monitoring, legal counselling and new safeguards provisions for vulnerable groups.

The Commission remains fully engaged on this path and will continue its work both at horizonal and bilateral level through the work of the dedicated country teams.

With the launch of the Annual Migration Management Cycle, progress must be made in addressing existing weaknesses in the Dublin system and to prepare in full the application of the responsibility framework of Regulation (EU) 2024/1351. In parallel, work will advance to implement the Solidarity Pool.

At Union level, an important deliverable will be the adoption of a European Asylum and Migration Management Strategy in December 2025. This Strategy will build on the national strategies that Member States transmitted to the Commission in June, covering both the internal and external dimensions of migration in a comprehensive and integrated approach.

The Commission will present the next state of play on the implementation of the Pact to the European Parliament and the Council in March 2026.

(1)

See the first report on the state of play on the implementation of the Pact on Migration and Asylum, https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52025DC0319 .

(2)

Common Implementation Plan for the Pact on Migration and Asylum - European Commission .

(3)

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, COM(2025) 101 final EUR-Lex - 52025PC0101 - EN - EUR-Lex ; 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 COM(2025) 186 final EUR-Lex - 52025PC0186 - EN - EUR-Lex ; Proposal for a regulation of the European Parliament and of the Council amending Regulation (EU) 2024/1348 as regards the application of the ‘safe third country’ concept, COM(2025) 259 final EUR-Lex - 52025PC0259 - EN - EUR-Lex .

(4)

Especially the European Union Asylum Agency, eu-LISA, Frontex, Europol and the Fundamental Rights Agency.

(5)

Belgium, Czechia, Estonia, Ireland, Greece, Italy, Lithuania, Romania and Slovakia.

(6)

For example, the Working Group Asylum and Immigration of the Association of European Administrative Judges (AEAJ).

(7)

Croatia, Hungary, Luxemburg and Romania did not yet share their strategies. Romania shared a draft with the Commission pending final adoption, whereas Luxemburg and Croatia notified delays.

(8)

For example, Bulgarian authorities prepared a six-month report for the implementation of the NIP and updated their NIP, which considers the outcome of the Pact funding dialogue with the Commission and the progress made regarding practical implementation.

(9)

This includes Czechia, Greece.

(10)

Austria, Denmark, Cyprus, Estonia, Lithuania, the Netherlands, Portugal and Spain have finalised or are in the final stages of drafting. Germany submitted a proposal to the Parliament on 12 September. In Bulgaria, Croatia, Finland, France, Ireland, Italy, Malta, Slovakia, Slovenia and Sweden drafting is ongoing. Member States still to conclude the review of legislation for all or parts of the areas covered by the Pact include Belgium, Greece, Romania.

(11)

Such as in Austria, Bulgaria, Croatia, Cyprus, Denmark, Estonia, Finland, Germany, Ireland, Lithuania, the Netherlands, Portugal, Slovenia, Sweden.

(12)

Legislative review underway still in Belgium and Romania, partially outstanding in Greece, possible delays in Latvia and Poland.

(13)

For example, set up border procedures and screening (including where appropriate multi-purpose centres); adequate investment in Eurodac and other IT-related adjustments; ensuring adequate reception capacities, including in accordance with the legal obligations for each Member State’s adequate capacity at the external border; and the setup of the national independent and effective Fundamental Rights Monitoring Mechanisms and free legal counselling.

(14)

Hungary.

(15)

Belgium, Germany (use of framework contracts), Bulgaria and Croatia (started procurement).

(16)

Croatia, Czechia, Estonia, Greece, Netherlands, Romania, Spain, Sweden.

(17)

Austria, Belgium, Bulgaria, Cyprus, Denmark, Finland, France, Germany, Ireland, Italy, Latvia, Lithuania, Luxembourg, Malta, Poland, Portugal, Slovakia and Slovenia.

(18)

Hungary.

(19)

On 24 July the amendments to the following acts were voted and will be adopted soon: C(2021) 6176 & C(2021) 6174 Commission Implementing Decisions laying down the technical rules for creating links between data from different EU information systems pursuant to Article 28(7) of Regulation (EU) 2019/817 and Article 28(7) of Regulation (EU) 2019/818 of the European Parliament and of the Council; and C(2023) 645 & C(2023) 649 Commission Implementing Decisions laying down and developing the universal message format (UMF) standard pursuant to Regulation (EU) 2019/817 & Regulation (EU) 2019/818 of the European Parliament and of the Council. The amendment to the Delegated Decision supplementing Regulation (EC) No 767/2008 of the European Parliament and of the Council, as regards the manual of procedures and rules necessary for queries, verifications and assessments (for short-stay visas, long-stay visas and residence permits), prepared pursuant to Articles 9h and 22b, is delayed.

(20)

Member States concerned include Austria, Malta, Slovenia, Greece.

(21)

Member States who in September reported to eu-Lisa that they have already initiated testing are France, Ireland, Luxemburg, Romania, Sweden.

(22)

Belgium, Bulgaria, Cyprus, Denmark, Finland, Hungary, Latvia, Lithuania, Malta, Netherlands, Portugal, Slovenia, Spain.

(23)

In addition to Belgium, Finland, Luxembourg, Czechia, Cyprus, France, Malta and the Netherlands, who were mentioned in the first state of play on Pact implementation, Austria, Ireland, Portugal, Sweden and Lithuania have either reached the adequate capacity or progress well.

(24)

Austria, Belgium, Bulgaria, Croatia, Czechia, Cyprus, Estonia, France, Greece, Ireland, Lithuania, Netherlands and Poland and Spain are currently considered well on track to implementing screening.

(25)

The screening toolbox includes screening form templates and an annex outlining the consultation process for relevant databases; an information provision template based on Art. 11 of Regulation (EU) 2024/1356, a practical annex on conducting preliminary vulnerability checks. It also includes a detailed, step-by-step guiding document on conducting screening, providing practical assistance in using the templates and navigating the screening process as well as a description of training offers by Frontex and EUAA in relation to screening.

(26)

These include Denmark, Germany, Finland, Italy, Lithuania, Slovenia, Portugal who each face one or multiple of the listed challenges.

(27)

This may apply to Croatia, Ireland, Estonia, Italy, Latvia and Romania and relate to temporary facilities or arrangements relating to staffing. Greece and Bulgaria will reach the adequate capacity; however, the quality of facilities will need to be ensured.

(28)

Due to still pending selection of facilities or procurement procedures not yet started, Germany, Latvia, Romania, Slovakia, Slovenia may risk delays.

(29)

For example: Greece, Italy, Spain, Cyprus.

(30)

This includes Croatia, Latvia, Lithuania, Luxembourg, Portugal, Romania, Slovakia, Slovenia.

(31)

For example: Ireland, Romania. Sweden.

(32)

Belgium, Bulgaria, Czechia, Germany, Portugal, Slovakia, Slovenia and Sweden are considering this.

(33)

This includes Austria, Cyprus, Czechia, Italy, Lithuania, Portugal, Slovenia.

(34)

For example, Czechia, Estonia, Italy, Croatia, France, Bulgaria, Portugal, Spain.

(35)

Based on the available data, it is now possible to have an overview of the number of persons hosted in the formal national reception systems of the Member States, understood as the set of arrangements in place to accommodate asylum applicants as per Directive (EU) 2024/1346. However, current data do not capture the accommodation support provided to beneficiaries of temporary protection outside Directive (EU) 2024/1346, neither is granular enough to compare the reception situation in the different Member States.

(36)

Persons in the reception system (total number of persons in the reception system incl. breakdown per legal status of persons in reception and number of UAMs); and capacity of the reception system (total beds available at the end of the reporting period.

(37)

Concerns relate for instance to Belgium, where courts continue to identify a lack of adequate reception conditions. Other concerns also relate to Bulgaria, Cyprus, Croatia, Latvia, Greece and the Netherlands.

(38)

More broadly, the organisation of reception systems is different across the Union. Beneficiaries of temporary protection who are provided accommodation support outside this system are not counted in the data reporting of the Member States.

(39)

Member states currently engaged in these different reforms include Belgium, Cyprus, Finland, Germany, Ireland, Italy and Malta.

(40)

For example, Austria, Belgium, Cyprus, Estonia and Germany, Greece, Italy, Lithuania.

(41)

Various Member States put a focus on strengthening the judiciary, including Austria, Czechia, Lithuania, Luxembourg, Finland, Estonia. For example, in Austria, the Federal Administrative Court launched a court-internal project “Ready 4 GEAS”.

(42)

On the former, the European Parliament appointed its rapporteur, and a first technical meeting took place on 25 September. The Council has begun the work on its position, with discussions ongoing in the context of the Asylum Working Party. Regarding the proposal for a Union list of Safe Countries of Origin, the discussions are progressing in the Council, with the Danish Presidency advancing on a compromise proposal. The European Parliament has appointed its Rapporteur, and two technical meetings took place in September.

(43)

Member States who face related challenges include Belgium, Croatia, Estonia, Germany, Greece, Italy, Luxembourg, Netherlands, Poland, Portugal, and Spain. At the same time, in a number of Member States, including Austria, Bulgaria, Croatia, Cyprus, Finland, Germany, Lithuania, Malta, Slovakia and Sweden, pending cases reduced by between 24% to 50% in the period from June 2024-June 2025.

(44)

As per Art. 37 of Regulation (EU) 2024/1348.

(45)

This includes Austria, Italy, Romania, Slovenia (counselling); Cyprus, Bulgaria and Czechia (AVVR, on return offices: Bulgaria, Sweden.

(46)

See Articles 38 and 68 of Regulation (EU) 2024/1348.

(47)

(48)

Family Tracing Form – Child | European Union Agency for Asylum and Family Tracing Form – Adult | European Union Agency for Asylum .

(49)

Practical Guide on Family Tracing Part 1: https://euaa.europa.eu/publications/practical-guide-family-tracing-part-i-principles-practices ;; Practical Guide on Family Tracing Part II: https://euaa.europa.eu/publications/practical-guidefamily-tracing-part-ii-tracing-AMMR.

(50)

EUAA Guidance on Remote Interviews: https://euaa.europa.eu/publications/guidance-remote-interviews .

(51)

This includes Austria, Belgium, Bulgaria, Croatia, Cyprus, Czechia, Estonia, Germany, Ireland, Italy, Lithuania, Malta, Portugal.

(52)

See Articles 9, 11 and 12 of Regulation (EU) 2024/1351.

(53)

The Blueprint Network, an early deliverable of the Pact, is the operational framework bringing together relevant Union stakeholders to monitor and anticipate migration flows and situations. It was established by Commission Recommendation (EU) 2020/1366 of 23 September 2020 on an EU mechanism for preparedness and management of crises related to migration, EUR-Lex - 32020H1366 - EN - EUR-Lex .

(54)

A joint EUAA-EUROSTAT project is put in place to streamline statistics on international protection.

(55)

Poland and Hungary have yet to notify their contingency plans to EUAA.

(56)

For example, issues relate to the absence of asylum in the plan (France); absence or lack of clarity of response measures relating to UAMs (Cyprus, Estonia, the Netherlands, Portugal, and Spain), preparedness and response measures (Cyprus), lack of clarity on measures by scenarios (Estonia, Netherlands). Most of these Member States confirmed they intend to revise and complete the plans to better align them to the EUAA’s template. Cyprus, Estonia and the Netherlands are already revising their plans, with the support of the EUAA.

(57)

On 30 July 2025, joint indications to notify the Commission and the EUAA on the activation and deactivation of the plan in the cases foreseen in Directive (EU) 2024/1346 were circulated to the Member States.

(58)

This includes Cyprus, Austria, Finland, Spain, Bulgaria, Netherlands, Slovenia, Sweden.

(59)

Such as Austria, Bulgaria, Estonia, Croatia (though building on current system), Czechia, Ireland (legal aid board), Italy, Latvia, Lithuania, Portugal, Romania, Slovakia (expanding current arrangements), Slovenia, Spain, The Netherlands, Germany and Finland are relying on internal arrangements.

(60)

In most cases the task is or will be attributed to existing ombudsperson (Austria, Bulgaria, Cyprus, Czechia, Latvia, Lithuania, Estonia, Poland, Portugal, Romania, Slovakia, though there are exceptions such as Croatia, the Netherlands. In Romania, the ombudsperson has already formally taken up the task. Ireland proposes the establishment of an independent oversight mechanism through a Chief Inspector for Asylum and Border Procedures, supported by an advisory board.

(61)

By the end of the year the information provision materials will be translated in 23 Union languages and 20 non-Union languages.

(62)

Austria for example has launched an initiative to establish vulnerability officers and strengthen cooperation with the UNHCR.

(63)

“Vulnerability in the Pact on Migration and Asylum”, https://euaa.europa.eu/publications/euaa-tailor-made-training-plan-pact-migration-and-asylum .

(64)

Here the Pact contributes to wider reforms: following a period of overcrowding that has highlighted the need to expand and reform the reception system, Ireland’s strong child protection system will be reinforced through Pact implementation.

(65)

Greece, Hungary.

(66)

The latter include, for different reasons: Denmark, Finland, Greece, Hungary, Malta, Slovenia, Spain, Sweden.

(67)

Malta launched the Integration Strategy and Action Plan (2025-2030) in January 2025.

(68)

For example, Austria, Czechia, Estonia., Italy, Luxemburg, Slovenia.

(69)

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 2021-2027, COM(2020) 758 final, EUR-Lex - 52020DC0758 - EN - EUR-Lex .

(70)

Such as Bulgaria, Croatia, Cyprus, Greece, Hungary, Latvia, Slovakia, Romania.

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