EUROPEAN COMMISSION

Brussels, 23.4.2025

COM(2025) 185 final

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

2025 State of Schengen report

Schengen’s 40-year anniversary

1.Schengen as a strategic asset

Signed on 14 June 1985, the Schengen Agreement marked the beginning of a new era of strategic cooperation and deeper integration centred on the freedom and security of its people. The vision was simple yet profound: to build a Europe where citizens could move across internal borders without facing barriers, thereby fostering economic growth, cultural exchange and social cohesion, all while enhancing collective security.

The creation of the Schengen area was a decisive moment in the process to build a united Europe – a Europe for its people 1 . The Schengen Agreement delivered tangible benefits first at the border regions, which lie at the heart of Europe’s integration process, and then extending these benefits across the continent. As the Schengen project evolved, it expanded beyond a mere agreement to abolish border controls. Over the years, Schengen has become a resilient and multifaceted system, grounded in effective external border management, common rules on visas, returns and police cooperation, close coordination between national authorities and closer international cooperation. Fully integrated into the EU’s framework, it has grown both in membership and ambition, symbolising Europe’s commitment to unity, freedom and security.

Four decades after its creation, Schengen is far beyond a mere symbol of mobility: it is a vehicle to improve the lives of citizens, facilitate business and a means of enhancing global standing. Today, Schengen is at the heart of a stronger and safer Europe, facilitating daily lives of more than 450 million Europeans. Schengen remains a project designed for the benefit of the people and has also evolved into a strategic asset of the Union, in three ways.

First, as an essential enabler of the Single Market, the Schengen area is a crucial driver of economic growth, competitiveness and Europe’s economic sovereignty. In an increasingly volatile global landscape with the re-emergence of geopolitical tensions and geoeconomic competition, the European economy requires a barrier-free environment to flourish and less exposure to external dependencies. The Schengen area strengthens our collective resilience by supporting the free movement of goods, services and people. It plays a critical role in maintaining and strengthening supply chains across Europe and consolidating the Single Market, as underscored in the Letta report 2 .

Second, Schengen is the EU’s strongest response to the challenges of a world where threats are no longer confined to national borders. It enables us to harness our collective expertise and resources, forging a security framework that is far stronger and more effective than the sum of individual national systems. Schengen provides a set of tools, collective resources and capabilities needed to tackle today’s complex, transnational threats to freedom and security. These threats, whether from organised criminal networks or hostile state or non-state actors, cannot be effectively addressed by individual nations. In today’s geopolitical and security landscape, Schengen is no longer merely a benefit, it is a necessity.

Third, when hostile actors seek to weaken and fragment Europe, Schengen is a force for unity, bringing Europeans closer together. Schengen fosters unity and contributes to a shared tangible European identity. It is a deeply embedded political defence against attempts to sow division and distrust among Europeans.

For people to fully enjoy the rights and freedoms which derive from the Schengen acquis, mutual trust between Member States is key, and that in turn relies on an effective implementation of the agreed rules. Common standards to tackle illegal migration, to combat organised crime and counter terrorism, and to fight smuggling need to be strictly adhered to, while ensuring adequate protection of fundamental rights. Effective enforcement mechanisms, and a coordinated effort at all levels are essential for sustainable cooperation among Member States.

Today, just as in 1985, it is time to once again reconfirm our trust in this project, recognising that we are at another decisive moment in our ongoing effort to maintain and consolidate a strong and united Europe. A strategic asset requires continued renewal and investment, including at the political, policy and regulatory, as well as operational levels.

The global political landscape is undergoing significant transformation, presenting both operational challenges and opportunities. Deepening and widening the Schengen area would bolster our collective strength to tackle these challenges. A strategic recalibration of implementation of the rules and increased investment in areas with the greatest long-term impact is needed, starting externally with a strong visa policy and closer engagement with third countries. At the same time, we must manage our external borders effectively and focus our resources, equipment and technology on increasing security. This will create the space for deeper cooperation within the Schengen area to boost collective action while fostering greater integration among people. Ultimately, the Schengen area is not a collection of isolated parts, but a cohesive system where all the parts work together to support our shared goals and boost our collective resilience.

The monitoring role of the Commission has been reinforced. Building on the progress made in recent years, the Commission will continue making full use of verification visits, revisits, unannounced visits and other enforcement tools at its disposal. Member States must also prioritise EU funding to tackle the vulnerabilities identified in Schengen evaluations and Frontex’s vulnerability assessments. Therefore, a priority is to ensure that EU funds are strategically linked to the reforms needed.

2.The political backbone of Schengen: a strong common governance framework

Navigating the geopolitical changes and the implications for freedom and security starts with a re-commitment to two foundational principles: shared responsibility and mutual trust. Shared responsibility to uphold the rights and security of all people across the Schengen area. Mutual trust among Schengen countries that every part of the Schengen system is managed competently and effectively in line with high common standards.

The 2024 Schengen Scoreboard highlights asymmetries in the implementation of key Schengen requirements. Around 65% of the recommendations issued under the Schengen evaluation and monitoring mechanism have not yet been implemented. There are important operational consequences to persistent deficiencies.

Political action to renew the commitment to shared responsibility and mutual trust must be backed up by decisive action at both political and operational levels to ensure that the Schengen rules are implemented swiftly and effectively. This requires a robust Schengen governance framework with strong political oversight, coordination and accountability.

Over the last year, progress has been made to consolidate the governance framework, which was a key priority of the 2024-2025 Schengen Cycle. In particular, the Commission’s enhanced tools, including the Schengen Barometer+ and the Schengen Scoreboard helped foster, among Schengen countries a shared understanding of key issues that require joint action, identify any gaps in implementation and bridge the gap between technical and political levels. This allowed for a more strategic approach to implementing and following up on Schengen evaluation and monitoring activities.

There can be new opportunities to fully leverage political coordination and monitoring. The Schengen Council, modelled on the Mixed Committee established under the Schengen Associated Agreements, is responsible for providing strategic guidance on the policies that have an impact on the functioning of Schengen. Complementing the Home Affairs Council formation, the aim of the Schengen Council is to create an open environment for close policy dialogue between the Schengen area decision-makers.

To ensure that the governance framework really delivers, there is a need to foster a deep understanding of the difficulties on the ground, enhance scrutiny of persistent vulnerabilities and deficiencies and take greater collective responsibility for effective solutions. Cooperation, decisive action and specific measures are needed to overcome persistent shortcomings and uphold the integrity of the commonly agreed rules.

Work in the 2025-2026 Schengen cycle should also include action to strengthen national Schengen governance systems both in Schengen countries and candidate countries for EU accession. The Commission will organise a series of workshops to agree on minimum standards so that Schengen States can fully implement the Schengen system through effective political and administrative structures. This work will build on the extensive developments and the governance structures established under European Integrated Border Management. This approach will bring together all relevant authorities.

As reported in Schengen evaluations, and building on its own experience, the Commission invites all Schengen countries to nominate a national coordinator to oversee all issues that have an impact on the functioning of Schengen, ensuring clear allocation of responsibilities among all authorities concerned.

According to the follow-up on the 2019-2020 thematic evaluation of Member States’ national strategies for integrated border management 4 , all Schengen countries have initiated national processes to revise their strategies. As of the end of 2024, 12 Schengen countries have formally adopted the revised strategies and eight were in the process of adoption. The results show notable improvements, including stronger governance frameworks and better integration of return procedures in national strategies. Most Schengen countries demonstrated progress in aligning their strategies with EU priorities, reflecting advancements in risk analysis, situational awareness and cooperation with the EU.

However, significant gaps persist in human resource planning, interagency coordination and financial arrangements. Only a few Schengen countries successfully link their strategies to action plans, needs analyses and funding frameworks. The national strategies still do not fully integrate specific provisions on fundamental rights safeguards and training. At the same time, the obligations related to the screening procedure established in the Pact on Migration and Asylum, need to be effectively integrated and aligned with the broader integrated border management system. Investing in the governance system for European Integrated Border Management will provide a solid foundation for building robust national Schengen governance frameworks.

3.The policy and regulatory backbone: a wider and deeper Schengen

3.1.A wider Schengen area

Over 40 years, Schengen has evolved from a regional initiative among a few EU Member States into a truly European project 5 . The Schengen area has been expanded nine times to create what is today the world’s largest area of free movement without internal border controls.

Bulgaria and Romania became fully integrated into the Schengen area on 1 January 2025. The decision of the Council of 12 December 2024 6 , following its decision of 30 December 2023 7 on the same matter, marked the completion of an 18-year process since both countries became Schengen States following their accession to the EU. By fully joining the Schengen area, Bulgaria and Romania are expected to save billions of euros considering that with internal borders still in place, companies operating in these two countries were estimated to pay billions, annually as a result of increased logistics costs, delays impacting deliveries of goods and equipment, and increased costs for fuel and drivers 8 .

Cyprus is working to implement the Schengen recommendations 9 and its first Schengen evaluation is ongoing. The Commission supports Cyprus in its process to a deeper integration into the Schengen system.

Ireland is uniquely exempt from participating in all provisions of the Schengen rulebook 10 . Given the benefits for Ireland and the Schengen area as a whole, and after being authorised by the Council to participate in certain areas 11 such as the Schengen Information System, as well as police cooperation and judicial cooperation in criminal matters, a follow-up to its Schengen evaluation is currently underway 12 . The Commission intends to issue the Schengen evaluation report 13 for Ireland in 2025. If positive, this will enable the Council to put into effect these provisions 14 in Ireland, leading to increased Schengen cooperation.

As the EU prepares for further enlargement, with several candidate countries advancing in their accession negotiations, the Schengen area is also set to expand to those countries as they are required to accept and implement the Schengen rulebook as of the day of their accession to the EU. A new transparent, efficient and effective framework for the admission into the Schengen area will be necessary to tackle the complexities of expanding that area and to ensure a well-prepared integration process. Building on the lessons from the last Schengen enlargement, the framework needs to provide a predictable and fair process allowing new countries to progressively benefit from Schengen participation, and, ultimately, to remove internal border controls as the final milestone.

This process requires rigorous monitoring at all stages to ensure that new Schengen countries continuously meet the high standards applied by existing countries in all areas needed to ultimately abolish internal border controls. As the first step, during the accession negotiations, these countries must continue working to put in place the legal, governance and operational standards needed to anchor the Schengen system in a fully functioning national governance framework by the time they join the EU. This requires robust preparation, including implementation of a Schengen action plan, as set out in the 2024 Communication on EU enlargement policy 15 .

3.2.Deepening Schengen to be fit for the digital age

The EU is currently transforming the way border management is operated, shifting away from mainly physical border checks towards a more modern and digital border system. It is necessary to accelerate the digitalisation of the Schengen framework to enhance security for citizens, strengthen external borders, law enforcement cooperation, and facilitate bona fide travel to and freedom to travel freely within the Schengen area, all while ensuring the protection of fundamental rights and security standards.

As part of efforts to make the Schengen area the reference standard worldwide in facilitating seamless and secure travel, the new rules 16 governing the efficient use of travel information (‘advanced passenger information’) by border and law enforcement authorities came into force in January 2025. This is an important step towards increasing security without compromising the travel experience, while respecting data protection and privacy rights. In 2025, the Commission intends to launch an evaluation of the rules governing the use of passenger name record data to analyse its effectiveness and efficiency.

The digitalisation of procedures at the EU’s external border is a key element of addressing security risks. In December 2024, the Commission presented a proposal establishing the progressive start of operations of the Entry/Exit System. This proposal enables Schengen countries to gradually deploy the Entry/Exit System across their external borders over a period of six months, thus providing them and eu-LISA with flexibility and tools to address remaining challenges before the full roll out of the system. The Commission calls on the co-legislators to ensure swift negotiations and a rapid adoption of the proposal. Preparations to roll out the European Travel Information and Authorisation System must be swiftly concluded as a number of Schengen countries face difficulties in implementing the required measures.

The Commission calls on the European Parliament and the Council, as well as on Member State authorities and eu-LISA, to ensure the that these major innovations are fully operational and follow the new timeline 17 agreed by the Schengen Council in March 2025.

While these systems will significantly enhance the security and efficiency of travel, the Commission’s proposal on the digitalisation of travel documents, presented in October 2024 18 , is part of a broader commitment to digital innovation for the benefit of travellers. The aim of this initiative is to set a common standard for digital travel documents and to bring in an EU-wide mobile application to help streamline border checks and result in a seamless travel experience for all travellers. Negotiations with the European Parliament and the Council are underway to make this ambition a reality. Work is also ongoing to modernise visa procedures to ensure that third-country nationals also benefit from a more efficient and secure visa procedure. Following the proposal from the Commission on digital visas, the legislative procedures concluded with adoption in 2023. The related implementing acts are currently under review and the aim is to start developing the EU visa application platform in 2026 for a start of operation of the platform and introduction of the digital visa in 2028.

As social and technological changes are moving at an unprecedented pace – unimaginable when Schengen was first created – the Schengen area must adapt to stay ahead. Emerging technologies and digital solutions will be crucial in transforming border management and enabling the early detection of threats. Investments in research and development for future European border management and security technologies should continue to protect the Schengen area using state-of-the-art European solutions in the future. This requires forging closer partnerships, including with Schengen associated countries and with public and private stakeholders, such as researchers, entrepreneurs, innovative companies or research and technology organisations. This work must be complemented with heightened preparedness through advanced threat detection systems, continuous monitoring of critical infrastructure and by putting in place real-time response protocols. These measures are needed to manage the increasing threat of cybersecurity breaches, including in EU agencies and border-related data systems.

3.3.Deepening Schengen to adapt to the evolving security landscape

On 1 April 2025, the Commission adopted ProtectEU: a new European Internal Security Strategy, which sets out the work to enhance the EU’s security apparatus in the coming years and to mainstream security considerations in all EU legislation, policies and programmes. Similar efforts need to be made at national level as the 2024 Schengen evaluations have revealed a persistent gap in the strategic approach to internal security. National authorities still operate in silos, implementing ad hoc measures and lacking a comprehensive European approach. This hinders Schengen countries from identifying national priorities, from having strategic planning of capabilities and from designing cross-border and complementary measures at all levels (national, regional and local). Guaranteeing internal security in an area without internal border controls therefore requires an approach that fosters deeper and more structured cooperation across national law enforcement authorities and at European level, including as regards governance. 

As announced in the Internal Security Strategy, to support the discussions with Member States in the Council on the evolving internal security challenges and exchange on key policy priorities, the Commission will develop and present regular threat analyses for EU internal security challenges. To support the wider work on improved situational awareness, it is essential that Member States enhance intelligence sharing with Single Intelligence Analysis Capacity (SIAC) and ensure better information sharing with EU agencies and bodies.

To address the evolving security challenges in a more coordinated, coherent and effective manner, cross-border operational law enforcement cooperation is crucial. The persistent legal and jurisdictional constraints, identified in the Commission’s 2024 assessment of the Council Recommendations on operational law enforcement cooperation 19 , continue to hinder effective operational cooperation among law enforcement authorities. As announced in the European Internal Security Strategy 20 , the Commission will work towards creating a High-Level Group on the future of operational law enforcement cooperation to develop a shared strategic vision and propose tangible solutions to bridge legal gaps, improve information exchange, and ensure a high level of internal security throughout the Schengen area.

One of the challenges faced by law enforcement authorities is to ensure lawful access to data. Striking a balance between security and privacy is essential to safeguard both freedom and safety. Building on the recommendations adopted by the High-Level Group on Access to Data for Law Enforcement in May 2024 and as announced in the European Internal Security Strategy, the Commission will present in the first half of 2025 a roadmap setting out the legal and practical measures it proposes to take to ensure lawful and effective access to data.

Finally, there is a need to update the legal framework to combat migrant smuggling. The Commission urges the European Parliament and the Council to swiftly finalise the negotiations to strengthen Europol’s role in combating migrant smuggling 21 . In the meantime, work will continue to upgrade the already available tools. In January 2025, the Commission supported the launch of a professional network of investigators of online migrant smuggling, managed by Europol’s European Migrant Smuggling Centre and the EU Internet Referral Unit. This network will help disrupt criminal groups operating online. The second International Conference on Migrant Smuggling will assess progress and drive further action supporting the consolidation of the work of the Global Alliance to Counter Migrant Smuggling.

Similar initiatives have been implemented in response to drug trafficking, focusing on raising awareness of the factors driving this growing threat. Cooperation between public and private stakeholders has been key to tackling the misuse of commercial transport, as promoted through the European Ports Alliance. The initiative will feed into the upcoming EU Ports Strategy that the Commission plans to adopt in 2025, and as announced in the European Internal Security Strategy, it will be extended to include smaller and inland ports.

4.The operational backbone of Schengen: implementation

The true success of Schengen depends fundamentally on the system being implemented effectively by the thousands of authorities operating on the ground, including multiple EU agencies. It is only through consistent, high-quality and coordinated action that policy commitments can be translated into a practical reality. The operational framework of Schengen is supported by border guards, law enforcement officials and immigration authorities and is essential to make Schengen’s ambitious vision a real strategic asset. The 2024 Schengen evaluation and monitoring activities revealed that, while the foundations of Schengen remain robust, certain persistent gaps remain in critical areas. They require targeted follow-up action to prevent those deficiencies from undermining the integrity and overall security of the Schengen area.

4.1.Strengthening preparedness well beyond our borders

Schengen primarily benefits European citizens and residents by facilitating the freedom to move across the Schengen area without internal border controls. These benefits also extend to all third-country nationals living legally in the territory of a Schengen country.

In 2024, the total number of regular bona fide travellers – meaning that they entered either with a Schengen visa or were eligible for visa-free travel – exceeded half a billion 22 . For short stays, third-country nationals can access the Schengen area through a unified Schengen visa system, unless they are eligible for visa-free travel 23 . This system, alongside the European Travel Information and Authorisation System to be implemented in 2026, ensures standardised border control, security and entry procedures for short stays across all Schengen countries, enhancing consistency and efficiency in managing both internal mobility and external entry and exit. It is our first line of defence. 

The level of implementation of the common visa rules is high as assessed in the 2024 Schengen evaluation and monitoring activities. Several Schengen countries swiftly tackled deficiencies related to the efficiency of the workflow at consulates processing Schengen visas or related to their visa processing IT system. However, certain improvements are still needed in the countries that process the highest volumes of short-stay Schengen visas with a view to effectively manage high numbers of applications.

Countries worldwide recognise the substantial benefits of the rights and freedoms associated with Schengen, which are central to global connectivity and cooperation. The EU must continue to promote high global standards on border management, law enforcement cooperation and information exchange, with strong protection of fundamental rights.

Moving forward, deepening relations with partner countries in our neighbourhood and beyond must come with an unequivocal commitment to meeting our high standards and shared values. Third countries that are eligible for visa-free access or privileged Schengen relations must not only reap the benefits but also uphold these fundamental commitments. This requires stronger monitoring and accountability. The Commission’s new visa strategy, due to be adopted later in 2025, will explore the role of visa policy as a driver for competitiveness, as a leverage to enhance the internal security of the EU and to improve cooperation with third countries, including on readmission. The strategy will also consider measures to facilitate the arrival of top students, researchers and trained workers from third countries in support of the Union of Skills 24 .

Fostering greater cohesion and integration with EU candidate countries, is an opportunity to share experiences and extend core values and standards to our neighbours. In recent years, Frontex has reinforced its support to candidate countries. The EU has negotiated status agreements with Albania, Bosnia and Herzegovina, Moldova, Montenegro, North Macedonia and Serbia 25 . In 2024, Frontex presence was extended to the Montenegro-Albania border. These agreements extend a critically important line of border management beyond the EU’s own external borders, helping to address potential risks before they reach the EU.

In 2024, candidate countries took steps to align with the Schengen requirements, including action to safeguard high border management standards, align visa policies, combat organised crime, terrorism and hybrid threats, and to forge cooperation on law enforcement. The EU action plan on the Western Balkans 26 has delivered concrete progress on migration management. However, progress remains uneven and further action is needed on visa alignment and on building up a national Schengen governance framework. Montenegro and Serbia have taken positive steps working towards establishing a Schengen action plan. The Commission is closely monitoring all EU candidate countries. The authorities in candidate countries will be progressively integrated into the Schengen-related activities, including involving them in training and monitoring activities.

Enlargement also means preparing for new geopolitical challenges for border management and security threats. The Commission will prioritise this work in its policy review, focusing on building a dynamic system that is fully equipped to face future needs and configurations.

Partner countries seek to deepen their ties with Member States in the Schengen area with the aim of forging a privileged relationship on border management and security, with tangible benefits for their citizens and closer people-to-people contacts through facilitated bona fide travel and legal migration. Frontex is currently negotiating working arrangements with nearly 20 third countries 27 , which could cover information sharing via EUROSUR and risk analysis arrangements. To further strengthen the security of the Schengen area, Europol and EU Member States have stepped up work in recent years to improve the transmission and processing of information from key third countries 28 . This approach ensures that relevant data, particularly on terrorist suspects, is processed and shared efficiently to help detect and prevent security threats at the EU’s external borders.

The Commission welcomes the successful finalisation of negotiations for agreements between the EU and, respectively Iceland and Norway covering the use of passenger name record data. The rules are not formally part of the Schengen legal framework, but once entered into forced, they will enable these Schengen countries to transfer and process this type of data, thus significantly improving the Schengen area’s ability to combat terrorism and serious crime.

4.2.Stronger security for people through robust border management and more effective returns

High-quality European integrated border management is a cornerstone of the Schengen area’s success. In 2024, the Schengen area was once again the world’s most visited destination, with 40% of global international travel at its external borders. This significant volume of passengers was managed effectively through the daily work of over 120 000 European border and coast guard personnel, although the heavy workload poses major challenges for authorities.

At the same time, geopolitical and security conflicts were a driver of migration flows, further complicating the management of Schengen’s external border, including tactics to weaponise migration for political purposes. Intensified EU efforts, for example through strengthened partnerships with third countries, resulted in a significant reduction in irregular border crossings. Around 240 000 detections were recorded in 2024, the lowest level since 2021 30 .

Irregular border crossings into the EU (Frontex)

In addition to the issue of a high flow of passengers, including those attempting to circumvent entry conditions, the EU’s external borders are exposed to growing and more complex security threats. Ongoing violence in the Sahel is driving displacement and creating fertile ground for terrorist groups to strengthen their networks, with Russian mercenaries potentially exacerbating the spiral of violence and facilitating jihadists’ recruitment efforts 31 . Similarly, regional crises outside the EU create a ripple effect, providing new motivation for terrorist actors across the entire ideological spectrum to recruit, mobilise or build up their capacities 32 . While these threats currently appear to be more local or regional in nature, they still require close vigilance at external borders to prevent the return to the EU of foreign terrorist fighters and mitigate the risk of terrorism. External borders also remain vulnerable to the smuggling of illicit goods such as drugs and firearms, which can fuel organised crime.

The management of EU external borders is a shared responsibility of the Schengen countries and the EU. In line with its mandate, Frontex continues to provide key support for border management with more than 2 600 standing corps officers and technical assets deployed in Schengen States and third countries. In 2024, Frontex started to roll out its new operational concept and command structure, which will ensure that deployments can respond more swiftly and flexibly to the operational situation. Building on the substantial progress made in recent years and to meet the continuous needs, the Commission will work to strengthen the Agency, including by providing it with state-of-the-art technologies for surveillance and situational awareness. In this context, it is crucial that Schengen countries continue contributing to the European Border and Coast Guard in due time, in particular in terms of staff and assets. In addition, to further enhance border security and strengthen EU cooperation in the face of evolving threats, the Commission will propose next year to reinforce Frontex.

In addition to ensuring Frontex is equipped with the resources it needs to support joint operations on the ground, it is crucial that Schengen countries intensify their efforts, as significant gaps remain in the implementation of border management practices.

Border checks are particularly affected by these implementation gaps. Schengen evaluations show that almost half of all Schengen countries face shortcomings related to human resources, training, implementation of border check procedures and technical issues that affect the functionality of IT equipment, particularly when using the Schengen Information System. The persistence of these deficiencies represents a security gap for the Schengen area and therefore the Commission will work with Schengen countries to examine the reasons for the lack of progress. The Commission will report on progress on this front to the Schengen Council during the 2025-2026 Schengen cycle.

In terms of border surveillance, some Schengen countries exposed to heightened security threats due to the high risk of drug trafficking from third countries and increased migration, present major shortcomings. These vulnerabilities primarily affect sea border surveillance. Over the last year, the EU allocated additional funds amounting to EUR 378 million, under the Border Management and Visa Instrument to support Schengen countries in strengthening their border surveillance infrastructure and capabilities. The Commission calls on the Schengen countries to accelerate action to ensure that funds are directed towards areas with the most pressing needs and to optimise the use of available technology.

A more effective management of the external borders needs to be accompanied by effective measures to return those with no legal right to stay in Member States. Travellers entering either for short or for long stays must meet all security requirements and diligently meet the requirement to exit the Schengen area within the set timeframe. If they do not, the Schengen area has a set of common minimum rules governing the return of people with no right to stay, including people who circumvent legal entry procedures. Once the Entry/Exit System is operational, it will enhance enforcement by improving the detection of visa overstayers, as they represent a significant share of travellers with no right to stay and who should return.

In 2024, the number of effective returns increased by nearly 12% compared to 2023, reaching almost 123 400 returns, a substantial contribution due to the significant rise in Frontex support. In that year, Frontex assisted Schengen countries in returning more than 56 000 people, a 43% increase on the previous year. Voluntary returns also continued to rise, rising from 54% in 2023 to 64% of returns in 2024.

Despite this positive trend, the effectiveness of national return systems remains a significant challenge across the Schengen area, with only 1 in 5 people required to return being effectively returned. At least half of all Schengen countries are still grappling with severe difficulties in carrying out returns, difficulties that are particularly pronounced in countries with higher return caseload.

The use of common alerts in the Schengen Information System for third-country nationals required to leave the Schengen area has contributed to more effective returns, with notable improvements in coordination and information sharing. However, the system is still underutilised as a joint tool to identify people and support return efforts, since in a number of Schengen countries the number of return alerts created is 60% below the number of return decisions issued. This means that there may be returnees who have absconded, but there is no information in the system to ensure their return. Furthermore, in 2024, some Schengen countries did not include fingerprints in any return alert, and many failed to include identity documents and photographs, even when available. This requires urgent action at national level.

To tackle the specific challenges of third-country nationals who present a security threat, the EU Return Coordinator provided guidance on the use of Schengen Information System return alerts and the ‘security flag’, drawing on Member State practices.

The status quo is no longer an option. The Commission has therefore proposed a new legal framework for returns 33 and calls on the co-legislators to make swift progress in the negotiations. It is time to move beyond fragmented solutions and make progress in recognising and enforcing each other’s decisions, alongside pooling the national and European resources needed in a way that benefits all, recognising each other’s strengths in contributing to the general European interest. Pending an agreement and application of the new legislative framework on returns, the Commission calls on the Schengen countries to implement the recommendations issued in the thematic evaluation without delay to make optimum use of the existing frameworks and to deliver better and faster results.

4.3.A high level of coordinated action within the Schengen area 

A high level of situational awareness particularly at the external borders is a fundamental prerequisite for preparedness in an evolving security landscape. The EU framework already offers robust tools for situational awareness and risk analysis, such as EUROSUR designed to improve external border management by integrating information at national and EU levels, including satellite imagery, information systems and reporting applications to enhance awareness at EU borders. However, around 50% of Schengen countries still face major deficiencies, often linked to a lack of trained personnel and insufficient interagency cooperation, reducing the potential of these tools. To tackle the identified shortcomings and provide Schengen countries and Frontex with practical guidance on the implementation and management of EUROSUR, the Commission adopted in January 2025 a Recommendation establishing the EUROSUR Handbook 34 .

In the 2025-2026 Schengen Cycle, it is necessary to build on the existing efforts and stay ahead of emerging threats by maintaining a clear understanding of developments on the ground. This requires maximising the use of available tools such as EUROSUR, and implementing a more robust and integrated analytical approach, with the active involvement of EU agencies.

Rapid and effective information exchange between law enforcement authorities remains one of the most powerful tools in preventing and combating crime. By the end of 2024, all Schengen countries were required to transpose the new rules of the Directive on Information Exchange 35 into their national systems to ensure seamless and coordinated communication. Eleven Schengen countries have not yet notified the transposition of this Directive 36  and seven have only notified partial transposition. Several countries have not yet created a functioning single point of contact connected to an interoperable case management system. These delays put everyone at risk. There is an urgent need for all countries to complete the legal and technical implementation so that law enforcement authorities can swiftly exchange information.

The enhanced functionalities of large-scale IT systems, particularly the Schengen Information System, have yet to achieve their full potential in enhancing security. In addition, many Schengen countries States continue to face challenges in implementing critical functionalities at the external border such as fingerprint searches when using the Visa Information System. These difficulties, largely due to a lack of sufficient resources, mean that these tools are significantly underutilised and critical security gaps remain. Without targeted investments and a firm commitment to fully operationalise the Schengen and Visa Information Systems, their potential to serve as a robust and reliable pillar of security remains untapped.

Together with making seamless information exchange a reality, and to complement our external border measures, there is a need for structured and effective cooperation on cross-border operational law enforcement.

Discussions held by the Schengen Coordinator in the 2023-2024 Schengen Cycle as well as recent Schengen evaluation visits to some Schengen countries (Czechia, Croatia, Hungary and Slovakia) have highlighted that cross-border cooperation, particularly at the regional and border areas, has improved significantly over the past year. In 2024, several bilateral and multilateral agreements were renewed to help authorities translate these aims of cooperation into action on the ground, including provisions on exercising police and other public powers in border regions, as provided for in the revised Schengen Borders Code.

Over the last year, there was also a growing focus on implementing more strategic tools that adopt a ‘whole-of-route approach’, going beyond addressing immediate risks that materialise at the internal border regions to tackle the threats at the external borders. In 2024, the Schengen regional initiative between Austria, Bulgaria, Greece, Hungary, Romania and Slovakia was further strengthened. It now includes measures at the Bulgarian-Türkiye border to more effectively prevent threats before they reach the Schengen area. Similarly, Croatia, Italy and Slovenia are set to implement joint patrols along their border with Bosnia and Herzegovina, enhancing regional cooperation.

These positive developments confirm the potential of Council Recommendation (EU) 2022/915 of 9 June 2022 on operational law enforcement cooperation 37 and Commission recommendations of 23 November 2023 on alternative measures to controls at the internal borders 38 . Schengen countries have jointly developed many new practices, including joint police stations and regular cross-border joint risk analyses to better tailor joint operations. In addition, several countries are putting in place the transfer procedure brought in by the revised Schengen Borders Code 39 , that aims to facilitate the direct transfer of irregular migrants at the internal borders, with arrangements underway to ensure its practical application. The Commission calls upon the Schengen countries to work closely together with their neighbours, especially where controls have been reintroduced along the internal border, to develop new cooperation initiatives and to enable travellers to cross internal borders seamlessly. 

At the same time, there is still untapped potential to operational law enforcement cooperation as national approaches vary significantly and are not always considered and implemented in a strategic manner. While new initiatives and practices have been developed, these are not uniformly replicated throughout the Schengen area and in many cases are not considered as part of the wider Schengen security toolkit. There is a shared interest to strengthen national efforts and fully leverage the benefits of closer cooperation. This will also help address disruption at the internal borders and ensure the correct functioning of border crossings along the Trans-European Transport Network (TEN-T).

Schengen evaluations in 2024 confirmed that many Schengen countries still lack the legal framework to implement effective cross-border cooperation, as several agreements are still outdated. There are also operational obstacles in some countries, such as limitations to carry out sufficient mobile monitoring or legal limitations for the police to receive passenger data from ferry operators. These have resulted in some cases in the reintroduction of internal border control, when in many instances, the same results could be achieved, often more effectively and efficiently, using national policing powers.

Remedial measures are particularly urgent for the Schengen countries that have notified the reintroduction of controls at the internal borders, as they constitute a derogation from the principles underlying Schengen cooperation. As of April 2025, ten Schengen countries have reintroduced or extended internal border controls.

On 10 July 2024, the revised Schengen Borders Code entered into force. It contains an updated framework for the reintroduction of internal border controls, with clearer deadlines and stricter monitoring and reporting obligations for the Schengen countries and the Commission. The entry into force of the revised Schengen Borders Code is considered as the start of the new legal framework, meaning that deadlines and obligations under the new Code will be calculated from the time of the first notification since its entry into force. The Commission has adopted templates for the notifications and reports to be submitted by the Member States when reintroducing internal border control.

The Commission is closely monitoring Schengen countries’ actions, engaging in a structured dialogue with all Member States concerned to identify any gaps or inconsistencies in the application of the new rules, including transfer practices at the internal borders. The ongoing assessments has as its objective to ensure that any measure implemented is both proportionate and necessary; and second, to guarantee that notifications for reintroducing internal border controls are strictly confined to genuine and justified cases, particularly in situations where measures in question merely reinforce police cooperation efforts.

The Commission welcomes the increase in operational cooperation, including at regional level, and fosters further initiatives, such as exercise of police powers in border areas that are powerful tools to address Member States legitimate concerns on migration and security. The Commission remains committed to upholding the principles of free movement and security across the Schengen area and will follow-up as necessary in the upcoming Schengen cycle, including with the issuance of opinions as set out in the revised Schengen Borders Code.

5.Priorities in the 2025-2026 Schengen cycle

The benefits that the Schengen area has brought to people in the EU could have hardly been imagined when the five founding Member States signed the Schengen Agreement 40 years ago. Over time, Schengen has evolved into a robust and comprehensive system, effectively managing external borders, security and migration in a coordinated manner in full respect of European values and fundamental rights.

To maintain and build on these achievements, the Schengen area requires continuous attention and commitment. Forty years after Schengen was set up, it is essential to acknowledge that the geopolitical and security landscape has shifted and to take the steps needed to ensure that Schengen’s foundations are resilient enough to meet future challenges. With the ongoing EU enlargement process, this is a priority for the Commission.

In the 2025-2026 Schengen cycle, there is a need to strengthen action across three main areas. First, it is essential to consolidate the governance framework to enhance policy coordination. This provides significant opportunities to adopt a more structured approach, prioritising effective implementation, shared responsibility and clear accountability across all levels.

Second, a structured and coherent approach to security is needed, requiring closer police cooperation. Given the persistent legal and operational limitations, more work will need to be pursued at European and national level to step up cooperation among law enforcement authorities. A comprehensive approach that covers the full range of security threats must become a central pillar of the Schengen system.

Third, efforts must be accelerated to fulfil the promises of digitalisation with key milestones to be achieved in the coming months to ensure that the Entry/Exit System and the European Travel Information and Authorisation System are fully on track to meet the new timeline. It is essential to avoid any further delays as this would give rise to significant costs, including prolonged security vulnerabilities, inefficiencies in border management and missed opportunities to streamline migration procedures.

The Commission invites the Schengen Council to endorse these priorities at its next meeting in June 2025. The priorities and considerations put forward for this new Schengen cycle should also form the basis for increased political dialogue at both national and European levels, including in both the European Parliament and the Council.

(1)      European Council meeting at Fontainebleau Conclusions of the presidency, June 1984,  1984_June_-_fontainebleau__eng_.pdf .

(2)      ‘Much more than a market – Speed, Security, Solidarity. Empowering the Single Market to deliver a sustainable future and prosperity for all EU Citizens’, Enrico Letta – April 2024.  Enrico Letta - Much more than a market (April 2024) .

(3)      COM/2024/173 final.

(4)      Commission Implementing Decision of 17.12.2020 establishing the report of 2019 - 2020 thematic evaluation of Member States` national strategies for integrated border management. C(2020) 8000 final.

(5)      Protocol 19 to the Treaty on the Functioning of the European Union on the Schengen acquis integrated into the framework of the European Union applies to 30 countries. Internal border controls have been lifted between 29 participating countries.

(6)      Council Decision (EU) 2024/3212 of 12 December 2024 setting the date for the lifting of checks on persons at internal land borders with and between the Republic of Bulgaria and Romania (OJ L 3212, 23.12.2024).

(7)      Council Decision (EU) 2024/210 of 30 December 2023 on the full application of the provisions of the Schengen acquis in the Republic of Bulgaria and Romania (OJ L 120, 4.1.2024).

(8)      The cost of non-Schengen for the single market – impact on Bulgaria and Romania, own initiative report, European Economic and Social Committee, INT 1046, 4 December 2024.

(9)      Council documents: 5535/21, 10403/22, 12636/21, 12638/21, 12639/21, 11237/24.

(10)      Articles 4 and 5 of Protocol 19 to the Treaty on the Functioning of the European Union on the Schengen acquis integrated into the framework of the European Union.

(11)    Council Decision 2002/192/EC of 28 February 2002 concerning Ireland’s request to take part in some of the provisions of the Schengen acquis.

(12)      Pursuant to Article 2 of Council Implementing Decision (EU) 2020/1745, evaluation visits related to police cooperation and the Schengen Information System were carried out in 2021 under the first-time Schengen evaluation of Ireland. In view of assessing the progress made by Ireland, a verification visit was carried out between 25 and 29 November 2024 in accordance with Article 21(3) of Regulation (EU) 2022/922. While progress was observed, Ireland still needs to take further measures to implement the pending remedial measures. The Commission will continue monitoring the implementation of the action plan.

(13)      Covering the assessment by the evaluation team of the implementation by Ireland of the requirements on judicial cooperation in criminal matters, drugs cooperation and Article 26 of the Schengen Convention. 

(14)      Council Decision 2002/192/EC of 28 February 2002 concerning Ireland’s request to take part in some of the provisions of the Schengen acquis.

(15)      2024 Commission’s Communication on EU enlargement policy of 30.10.2024. COM(2024) 690 final.

(16)      Regulation (EU) 2025/12 and Regulation (EU) 2025/13.

(17)      According to the revised timeline, the roll out of the Entry/Exit System will be progressive, starting in October 2025. The European Travel and Authorisation System will be launched in the last quarter of 2026.

(18)      Proposal for a Regulation of the European Parliament and of the Council establishing an application for the electronic submission of travel data (“EU Digital Travel application”) and amending Regulations (EU) 2016/399 and (EU) 2018/1726 of the European Parliament and of the Council and Council Regulation (EC) No 2252/2004, as regards the use of digital travel credentials (COM/2024/670 final); Proposal for a Council Decision on the issuance of digital travel credentials based on identity cards (COM(2024) 671 final).

(19)      Commission Staff Working Document, assessment of the effect given by the Member States to Council Recommendation (EU) 2022/915 of 9 June 2022 on operational law enforcement cooperation. SWD(2025) 36 final of 31.1.2025.

(20)      COM(2025) 148 final.

(21)      Proposal for a Regulation of the European Parliament and of the Council on enhancing police cooperation in relation to the prevention, detection and investigation of migrant smuggling and trafficking in human beings, and on enhancing Europol’s support to preventing and combating such crimes and amending Regulation (EU) 2016/794 (COM/2023/754 final); Proposal for a Directive of the European Parliament and of the Council laying down minimum rules to prevent and counter the facilitation of unauthorised entry, transit and stay in the Union, and replacing Council Directive 2002/90/EC and Council Framework Decision 2002/946 JHA (COM/2023/755 final).

(22)      March 2025 Schengen Barometer+.

(23)      Following a case-by-case assessment to determine whether third countries meet the high Schengen standards, the EU currently has a visa-free regime in place with 61 non-EU countries, two special administrative regions of China (Hong Kong and Macao) and one territorial authority that is not recognised as a state by at least one EU Member State (Taiwan). Under this regime, non-EU citizens with a biometric passport can enter the Schengen area for short stays without needing a visa. The principle of visa reciprocity applies enabling EU citizens to travel to those non-EU countries.

(24)      Communication from the Commission to the European Parliament, the European Council, the Council, the European Economic and Social Committee and the Committee of Regions on the Union of Skills. COM(2025) 90 final of 5 March 2025.

(25)      While the status agreement with Bosnia and Herzegovina is being finalised, the agreements with Albania, Moldova, Montenegro, North Macedonia and Serbia have all been signed and joint operations are ongoing.

(26)       EU Action Plan on the Western Balkans - European Commission .

(27)      Albania, Armenia, Bosnia and Herzegovina, Cabo Verde, Canada, The Gambia, Jordan, Kosovo, Lebanon, Mauritania, Moldova, Montenegro, Morocco, Niger, Nigeria, North Macedonia, Senegal, Serbia, USA, and Ukraine.

(28)      For instance, in March 2025 the EU and Brazil signed an agreement that strengthens the partnership between Europol and Brazilian law enforcement, enabling the exchange of operational information.

(29)      Communication from the Commission 1. Updating guidelines on general visa issuance in relation to Russian applicants following Council Decision (EU) 2022/1500 of 9 September 2022 on the suspension in whole of the application of the Agreement between the European Community and the Russian Federation on the facilitation of the issuance of visas to the citizens of the European Union and the Russian Federation; and 2. Providing guidelines on controls of Russian citizens at the external borders (C(2022) 7111 final).

(30)      Frontex data (14 January 2025). Irregular border crossings into EU drop sharply in 2024 .

(31)      Frontex 2024 strategic risk analysis.  Strategic_Risk_Analysis_2024_Report.pdf

(32)      COM(2025) 148 final.

(33)      COM/2025/101 final.

(34)      Commission Recommendation of 17.1.2025 establishing the practical handbook for the implementation and management of EUROSUR (‘EUROSUR Handbook’), C(2025) 117 final.

(35)      Directive (EU) 2023/977 of the European Parliament and of the Council of 10 May 2023 on the exchange of information between the law enforcement authorities of Member States and repealing Council Framework Decision 2006/960/JHA. OJ L 134, 22.5.2023, p. 1–24.

(36)      On 31 January 2025, the Commission opened infringement procedures by sending a letter of formal notice to 18 Member States (Belgium, Bulgaria, Czechia, Denmark, Germany, Estonia, Greece, Spain, France, Croatia, Cyprus, Luxembourg, Malta, Netherlands, Poland, Portugal, Romania, and Slovenia).

(37)      OJ L 158, 13.6.2022, p. 53–64.

(38)      Commission Recommendation of 23.11.2023 on cooperation between the Member States with regard to serious threats to internal security and public policy in the area without internal border controls. OJ L, 2024/268, 17.01.2024.

(39)      Regulation (EU) 2024/1717 of the European Parliament and of the Council of 13 June 2024 amending Regulation (EU) 2016/399 on a Union Code on the rules governing the movement of persons across borders (OJ L, 2024/1717, 20.6.2024).

EUROPEAN COMMISSION

Brussels, 23.4.2025

COM(2025) 185 final

ANNEX

to the

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

ANNEX 1

Implementation of the Schengen system: a horizontal and country-specific overview of Schengen evaluation and monitoring activities, including the situation at internal borders

Schengen is the world’s largest area of freedom, security and justice without internal frontiers. It benefits more than 450 million EU citizens, along with non-EU nationals living in the EU or visiting the EU as tourists, students or for business purposes. For the past four decades, Schengen has provided this freedom and security thanks to a robust framework that underpins its daily operations. The Schengen system sets harmonised, high-standard rules for entry, ensures rigorous and effective management of the external border, and promotes effective cooperation on law enforcement and immigration matters. The system does not operate in isolation; it is grounded in a governance framework that prioritises effective implementation of the Schengen rules and coordinated responses.

Against this background, the Schengen evaluation and monitoring mechanism plays a key role in promoting the conditions for a well-functioning area without controls at the internal borders. Through this peer-to-peer mechanism, teams of national experts, coordinated by the Commission and supported by observers from EU agencies and bodies, conduct evaluations of each Schengen country to identify deficiencies and ensure their prompt resolution, thus preventing any spillover effects that could jeopardise the integrity and stability of Schengen. The mechanism is also the tool used to assess new countries’ readiness to apply all Schengen rules, with the ultimate goal of abolishing control at the internal borders as part of the Schengen accession process.

In 2024, the Commission and the Schengen countries, with strong support from EU agencies and bodies, made continued progress on the third generation of Schengen evaluations. The application of the new Schengen Evaluation Regulation has involved a major simplification and reduction of administrative burden (the new Schengen Country reports resulted in six times fewer reports, leading to fewer recommendations), with more strategic focus and streamlining, and more transparency about the results. This was also supported by strengthening the involvement of national country coordinators. In addition, a comprehensive training strategy was developed to create a unified Schengen evaluation training framework. The Commission will continue to consolidate this new approach with shorter reports and fewer recommendations, while focusing on greater implementation of the most important structural reforms.

Schengen evaluations were carried out in 2024 in Croatia, Poland, Hungary, Slovakia and Czechia, shedding particular light on the situation at the EU’s eastern borders. These evaluations highlighted the challenges stemming from the current geopolitical environment, including Russia’s hybrid threats, which have significant implications for the internal security of Schengen. Overall, evaluations revealed that these countries are participating effectively in the Schengen architecture and implementing the established rules. However, in the light of evolving security challenges, there is a need for greater preparedness. While ensuring full respect of fundamental rights at the border was a common challenge, Hungary’s evaluation revealed serious deficiencies in the respect of fundamental rights during border and return procedures. Evaluations were also conducted at the consulates of Denmark, Norway and Sweden, related to their 2022 Schengen evaluations on visa policy, helping to finally close the backlog of evaluations that had been postponed due to the COVID-19 pandemic. In addition, one unannounced visit took place in Mumbai, India, on the application of the common visa policy by the consulates of Germany, Poland and Spain.

As part of the evaluation activities, particular focus was also paid to the situation at the internal borders. Although none of the Schengen countries evaluated had reintroduced controls at their internal borders during the evaluation visits, such controls affected some of those evaluated (i.e. Croatia, Poland, Hungary, Slovakia and Czechia) because of reintroductions of such controls by neighbouring countries. The Schengen Coordinator also emphasised this important issue during regular bilateral and multilateral meetings with Schengen countries. Within the framework of this structured dialogue, 15 meetings took place between countries that had reintroduced internal border control and countries affected by such controls. These discussions reaffirmed the targeted nature of internal border controls and provided opportunities to further strengthen cross-border cooperation, taking into account the enhanced tools introduced by the Schengen Borders Code, which came into force last year.

As part of the strengthened monitoring efforts under the Schengen evaluation and monitoring mechanism, revisits and verification visits were carried out in Greece (due to serious deficiencies identified in 2021), Ireland (as part of the ongoing first-time Schengen evaluation) and Denmark. The results of all monitoring activities were included in the 2024 Schengen Scoreboard, which was presented to the Schengen countries during the December Schengen Council.

2024 was also the year to deliver on a key strategic priority, as identified by the European Council, with implementation of the thematic evaluation on more effective returns. The adoption of the report in December 2024 paved the way for concrete improvements to return systems, identifying shortcomings in the return process that limit the system’s effectiveness, together with best practices implemented by some Schengen countries that provide solutions to common challenges. The thematic evaluation results have also fed into the Commission’s proposal for a new legislative framework on returns, adopted on 11 March 2025, and provide a roadmap for action until the new rules take effect.

Looking ahead in this important year in which we celebrate the 40th anniversary of the Schengen Agreement, one of the key achievements of EU integration, the Schengen evaluation and monitoring mechanism remains central to the work on the ground to implement the Schengen architecture. To reflect the new regulatory framework, the evaluation questionnaire will be updated, and the Commission will sharpen the strategic focus by refining (in close cooperation with the national country coordinators) the scope of evaluation to prioritise areas with the greatest impact. This, in turn, needs to be accompanied by stronger political oversight, as persistent deficiencies in implementing Schengen rules continue to undermine its proper functioning. Addressing these shortcomings urgently requires tangible remedial action.

1.Evaluation and monitoring activities in 2024

Evaluation activities in 2024 1

Over the past year, experts from both the Commission and the Schengen countries, supported by observers from EU agencies, offices and bodies 2 , implemented the 2024 annual programme for Schengen evaluations. The countries evaluated were Croatia, Poland, Hungary, Slovakia and Czechia. Following these evaluations, the Commission adopted Schengen country reports for Croatia 3 and Poland 4 , as well as an evaluation report on the serious deficiencies identified in Hungary. Evaluations of Denmark, Norway and Sweden (which had been postponed owing to the restrictions stemming from the COVID-19 pandemic) were also concluded.

Considering the regional dynamics affecting these countries, particularly those exposed to hybrid threats from Russia and the weaponisation of migration by Belarus, high migratory pressure and cross-border crime, specific attention was given to the following priorities:

·solid national Schengen governance as a precondition for Schengen countries to participate effectively in and implement fully the Schengen system, through efficient political and administrative capacities;

·strengthened border management capacities to control external borders effectively, both under normal circumstances and during crises, including robust contingency planning together with full respect of fundamental rights under the European integrated border management;

·fit-for-purpose security initiatives with neighbouring Schengen countries, adopting a comprehensive whole-of-route approach that emphasises proactive cooperation among police forces and the seamless exchange of information;

·rigorous checks of entry conditions of third countries as part of visa procedures, and implementation of efficient processes to return individuals who are not authorised to remain in the Schengen area;

·harnessing of large-scale IT systems to support every stage of the Schengen process, ensuring that their enhanced functionalities deliver tangible outcomes in strengthening security, managing external borders and facilitating information exchange, while respecting data protection requirements.

In February 2024, the Commission carried out an unannounced visit to the German, Polish and Spanish consulates in Mumbai, India, to assess the common visa policy. The objective was to assess potential vulnerabilities in this key pre-Schengen entry hub, which is one of the locations that issue the highest volume of short-stay visas, and which faces an ever-growing demand. The evaluation made possible to assess some of the complaints that the Commission receives regularly about excessive waiting times for appointments, which can lead, among other things, to visa shopping. In this context, the evaluation team assessed both cooperation with external service providers and country-specific issues (e.g. for Germany, centralisation of operations in Mumbai). The unannounced evaluation concluded that there were no serious deficiencies in the application of the visa requirements by the three Schengen countries in their respective consulates and that decisions on visa applications were generally well-founded. Recurrent issues still requiring attention and improvements include cooperation with external service providers and the use of IT systems supporting visa procedures.

Monitoring activities in 2024

Continuous monitoring is at the heart of governance efforts to identify challenges and respond with real, measurable results. Therefore, the success of the Schengen evaluation and monitoring mechanism – and, by extension, the stability of Schengen itself – depends on the effective implementation of the recommended remedial measures. The measures are tailored to the specific situation in each Schengen country and are designed to both enhance the application of the Schengen rules and ensure that every Member State contributes positively to collective freedom and security.

In its efforts to strengthen the monitoring dimension of Schengen evaluations, the Commission has stepped up scrutiny of the follow-up reports submitted by Schengen countries to identify promptly any gaps and delays in implementation. While the Schengen Scoreboard has made reporting by Schengen countries more consistent and regular, the follow-up reports still need to be submitted on time. In 2024, seven Schengen countries were late in submitting their follow-up reports. Efforts must also focus on improving the quality of reporting to ensure that the information provided is relevant. This will enable the Commission to fulfil its monitoring role effectively and ensure that there is a meaningful exchange, leading to tangible solutions while identifying both progress and remaining gaps.

As part of the enhanced monitoring efforts, the Commission carried out targeted monitoring visits, including one revisit to assess serious deficiencies that had been identified previously and three verification visits to evaluate progress in implementing action plans.

Revisit in 2024

·Greece (November 2024). Given the serious deficiencies identified in 2021 concerning processes and safeguards in the return of third-country nationals with no legal right to stay, the aim of the visit was to assess the implementation of the remedial measures. Considering the limited progress made by Greece, the evaluation team concluded that the serious deficiencies persist.

Verification visits in 2024

·Greece – management of the external borders (September 2024). The reason for this visit was the limited progress reported by Greece following the evaluation in 2021. The visit highlighted low progress at the strategic level and at the land borders, requiring urgent remedial measures.

·Denmark – management of the external borders (December 2024). The objective was to evaluate the developments reported by the Danish authorities in strengthening the overall governance and coordination of border management. The visit confirmed that notable improvements had been made; however, further efforts are needed to speed up full implementation of the reinforced border governance structure, supported by a comprehensive human resources strategy with sufficient staffing and proper training.

·Ireland – internal security as a follow-up to the ongoing first-time evaluation (November 2024). The visit confirmed that significant progress had been made to boost the EU’s internal security by implementing the Schengen Information System, including the new functionalities; however, improvements in police cooperation remained limited. Further efforts are required to push forward work under the first-time Schengen evaluation, which would benefit from stronger Schengen governance to ensure the swift implementation of remedial measures.

Currently, three Schengen countries still have serious deficiencies in implementing the Schengen rules 5 . The Schengen Coordinator is following up closely with the relevant national authorities and the Commission is actively monitoring the situation.

Following the latest assessments of follow-up reports submitted by Member States, the Commission hereby closes the action plans 6  of Liechtenstein in the fields of the Schengen Information System 7 and police cooperation 8 , and the action plan of Slovenia 9 related to compliance with data protection requirements in implementation of the Schengen architecture, in accordance with Article 21(3) of the Schengen Evaluation Regulation. Considering the results of the evaluation activities carried out in 2024, the Commission has technically closed the action plans of Poland that were still open at the time of the evaluation 10 .

2.2024 Schengen Scoreboard

During the Schengen Council meeting in December 2024, the Commission provided ministers of the Schengen area with the 2024 Schengen Scoreboard. The Scoreboard was accompanied by tailored strategic priorities, highlighting the progress made while also urging greater efforts in key areas.

2024 Schengen Scoreboard (aggregation): overall state of implementation by specific dimension

An analysis of the evaluation and monitoring activities conducted in 2024 revealed progress in several important areas, with some Schengen countries making rapid progress in implementing their respective action plans. On Schengen visa policy, for example, several countries reported horizontal improvements in addressing deficiencies in the practices of external service providers. Norway and Sweden, in particular, despite being evaluated in the visa field in 2024, have made substantial progress and are close to completing their action plans. Similarly, Cyprus has undertaken significant efforts to implement the remedial measures required, with notable improvements in the return process and the Schengen Information System. Meanwhile, the evaluations of Poland and Hungary, while leading to new recommendations, also highlighted significant progress in implementing the remedial measures from the previous evaluation cycle.

However, the 2024 Schengen Scoreboard also confirmed a persistent trend observed in recent years, namely the uneven pace of implementation of recommendations at national level following a Schengen evaluation. While the Schengen Scoreboard provides a snapshot of the implementation status at a given time 11 , Schengen countries evaluated in the same year, and therefore expected to be at similar stages of implementation, still show significantly different levels of progress. For instance, whereas two of the Schengen countries that are being evaluated in 2025 have almost fully implemented all recommendations, this is not true for the third country.

State of play in implementing the Schengen evaluation recommendations as of April 2025 

Moreover, a significant number of longstanding deficiencies persist in several Schengen countries years after their evaluations took place; many of these deficiencies relate to core aspects of the Schengen framework. This undermines the effectiveness of the Schengen evaluation and monitoring mechanism in supporting fully the functioning, security and integrity of the Schengen area. This, in turn, creates critical vulnerabilities that, if not addressed swiftly, could have a substantial negative impact on the overall functioning of Schengen.

A horizontal element requiring urgent remedial action concerns implementation of the large-scale IT systems that underpin the Schengen architecture – a vulnerability with far-reaching security implications for border management, migration and law enforcement. This was identified as a major shortcoming in at least half of the countries evaluated. Despite the enhanced functionalities of the Schengen Information System – designed to reinforce security and streamline procedures – their full potential remains unrealised, as Schengen countries are not using the system to its required standards and capabilities. For example, five countries still fail to issue alerts on vulnerable people, such as children at risk of abduction, while one country is responsible for issuing 75% of such alerts. Only 16 countries have created alerts for inquiry checks, leaving critical gaps in the system: these checks make it possible to obtain information on people or related objects for the purposes of prosecuting criminal offences and preventing threats to public or national security. These gaps affect the security of Schengen as a whole.

At the same time, Schengen countries are not adequately putting essential data into the system, even when such information is readily available at the national level. At the beginning of 2025, there were around 1.7 million alerts on individuals, of which only around 900 000 (52%) included photographs and only around 600 000 (35%) contained fingerprints. These severe gaps significantly hamper countries’ ability to identify individuals, particularly those posing security threats. Furthermore, Member States at times need to improve a number of data protection requirements of the large-scale IT systems and to enhance the monitoring of those requirements. Addressing these shortcomings is not just a technical necessity but a fundamental requirement for safeguarding the integrity and security of the Schengen area.

The Commission calls on all Schengen countries to pursue effective follow-up to the results of the 2024 Schengen Scoreboards and to actively engage, as appropriate, with the Schengen Coordinator. Where recommendations have financial implications for the Schengen countries, the Commission invites those countries to prioritise their implementation within the national programmes of EU funds 12 . Although significant financial resources are available, EU funding is often not directed where it is most needed. Stronger links need to be made between Schengen evaluation recommendations, vulnerability assessments and funding under the new multiannual financial framework.

3.Thematic Schengen evaluations for 2024

Thematic Schengen evaluations provide a unique opportunity to assess the state of implementation of the Schengen rules across Schengen countries at a specific point in time and to compare practices among those facing similar challenges.

Thematic evaluation on more effective returns

Over the past year, the European Council has called for determined action at all levels to facilitate, increase and speed up returns from the EU, using all applicable EU policies, instruments and tools. More effective implementation of current legislation on return, coupled with further work on a common approach to return, also supports a faster and more efficient implementation of the Pact on Migration and Asylum.

In response to this call for action, the thematic Schengen evaluation on more effective returns was carried out and finalised in 2024. The report was adopted in December 2024 and includes a cross-cutting analysis of current instruments that can contribute to this goal, including the European Border and Coast Guard Regulation, the Return Directive, the Schengen Borders Code and the Schengen Information System.

The evaluation team was made up of 15 experts from Schengen countries, two Commission experts, one observer from Frontex, and one observer from the Agency for Fundamental Rights. The team worked throughout 2024 to perform a thorough analysis and carried out visits to Italy, Norway and the Netherlands to evaluate practices that, owing to their specific nature, could not be assessed effectively remotely.

The evaluation highlighted the complexity of return processes, which apply to a diverse range of third-country nationals, including:

·people entering the Schengen area legally but overstaying their permit or legal stay (e.g. visa-free nationals); 

·people entering illegally and being apprehended at the external borders; and

·people apprehended within the territory of a Schengen country due to illegal stay following either legal or illegal entry.

As such, effective return measures are among the most sustainable tools for safeguarding the area of freedom, security and justice without internal frontiers.

Given the multiple stakeholders, processes and mechanisms involved, the thematic Schengen evaluation report emphasised the importance of return as a key part of European integrated border management. To achieve this, effective interagency cooperation at national and European levels is crucial, together with a sufficient level of preparedness and better exchange of information. This is necessary both for efficient and informed decision-making and for the enforcement of return decisions. All this can be facilitated through the Schengen Information System. The report identifies common challenges related to key phases of the return process, including its initiation, identification of third-country nationals, voluntary and forced returns, as well as the cooperation structures and mechanisms that support these processes.

Based on the evaluation report, the Council adopted recommendations to tackle the common challenges identified 13 . The evaluation report also identifies best practices from some Schengen countries that can help implement remedial measures.

The results of the thematic evaluation fed into the proposal for a new common approach on returns, as presented by the Commission in March 2025 14 . They form a roadmap for improving national return systems until the new legislative framework is fully in place.

Follow-up to the thematic evaluation on European Integrated Border Management (EIBM)

Integrated border management is a key objective of the EU, as established by Article 77(2)(d) of the Treaty on the Functioning of the European Union. It aims to facilitate border crossings and ensure a uniform, high level of border control at the EU’s external borders, thereby contributing to the EU’s internal security and efficient migration management, while respecting fundamental rights. It is based on the four-tier access control model, comprising measures in third countries, such as under the common visa policy, measures with neighbouring third countries, border control measures at the external borders, risk analysis and measures within the Schengen area and return.

A thematic evaluation of the Schengen countries’ national strategies for integrated border management was carried out in 2019-2020. Following the thematic evaluation, the Council adopted a Decision setting out a Recommendation on addressing the deficiencies identified in the 2019-2020 thematic evaluation of Member States’ national strategies for integrated border management 15 . The Recommendation identified the most important aspects for countries to consider when revising their national strategies.

In the second half of 2024, the Commission and Schengen country experts 16 , together with an observer from Frontex, the European Border and Coast Guard Agency, looked into what progress had been made so far. They looked at the extent to which the revised national strategies were aligned with EU policy priorities, focusing on governance mechanisms, resource planning and strategic objectives. Using 140 indicators, the evaluation assessed the extent to which recommendations from the previous evaluation had been implemented and identified areas still requiring further attention.

This comprehensive analysis is a key tool for enhancing the coherence and operational effectiveness of Schengen governance and strengthening the implementation of European integrated border management at both EU and national levels.

Results of the assessment

The results show notable improvements, a sign that countries are highly committed to making progress in line with the European multiannual strategic policy cycle. Key improvements since the 2019-2020 evaluation include stronger governance mechanisms at both national and EU levels, a more coherent risk-based approach to border control, and better strategic planning for financial resources. In particular, the return component has become central to national strategies, reinforcing the integrated approach by also integrating migration management, though further harmonisation is still needed. Another major step forward is the enhanced focus on internal security, which is now a core pillar of integrated border management across Schengen countries.

However, gaps remain. National strategies often lack alignment with capability planning, particularly in human resources, training and investment in infrastructure and equipment. Additionally, interagency cooperation remains fragmented, limiting the effectiveness of governance structures. These persistent shortcomings, already identified in the previous evaluation, highlight the need for further integration and strategic coordination to ensure a truly unified and resilient European integrated border management system.

Follow-up to the thematic evaluation on drug trafficking into the Schengen area

Considering the significant increase in drug trafficking into the EU, as evidenced by record-breaking cocaine seizures 17 , a thematic evaluation was carried out from February to November 2023 to identify best practices in countries’ national capabilities in combating drug trafficking into the EU. As a result, in March 2024, the Council adopted an Implementing Decision 18 setting out a recommendation for the implementation of the best practices identified in the 2023 thematic Schengen evaluation.

Given that the primary aim of this thematic Schengen evaluation was to identify best practices, Schengen countries were encouraged to assess the added value and feasibility of incorporating these practices into their national frameworks, consulting, where relevant, with countries that had already implemented them.

Of the 27 Member States and associated countries evaluated, all but one country submitted action plans to the Commission and the Council. The Commission received action plans from Austria, Belgium, Croatia, Czechia, Denmark, Estonia, Finland, Germany, Greece, Hungary, Iceland, Italy, Latvia, Liechtenstein, Lithuania, Luxembourg, Malta, Netherlands, Norway, Poland, Portugal, Slovakia, Slovenia, Spain, Sweden and Switzerland.

In 2024 the Commission reviewed 19 the action plans submitted to check for implementation of the Council recommendation requiring countries to analyse and consider the implementation of best practices identified during the thematic evaluation in their respective national systems.

Based on the action plans submitted, the Member States that intend to implement, or have already implemented, the highest number of best practices are Austria, Belgium, Croatia, Czechia, Denmark, Estonia, Greece, Malta and the Netherlands. Furthermore, best practices in mapping illicit drug flows demonstrate the highest total implementation rate, showing a strong collective commitment and significant progress in identifying illicit drug flows to the Schengen area. By contrast, best practices for creating barriers and increasing the resilience of logistical hubs demonstrate a notably low overall implementation rate, emphasising the considerable challenges that may arise from resource limitations, operational complexities, or divergent national priorities. The lack of substantial progress in this area is particularly concerning given the strategic importance of logistical hubs, which represent critical points of vulnerability in the fight against drug trafficking. Addressing these challenges will require greater coordination, targeted funding, and more technical support for countries that are struggling in this area.

Based on the information provided in the action plans, the Commission considers all the action plans submitted to be closed, with one exception. The implementation of best practices will continue to be monitored through periodic Schengen evaluations, in accordance with the multiannual evaluation programme and set out in the Council Implementing Decision.

4.Situation at the internal borders

On 1 January 2025, internal border control at the internal land borders with Romania and Bulgaria was lifted, leaving only one EU Member State, Cyprus, awaiting the lifting of internal border controls.

On 10 July 2024, the revised Schengen Borders Code 20 entered into force, setting out a new framework for the reintroduction of internal border control, with revised deadlines and stronger requirements for monitoring and reporting. Based on these new rules, the Commission has adopted implementing decisions creating a template for countries to notify the reintroduction or prolongation of internal border control, together with a uniform format for reporting on the reintroduction or extension of internal border control 21 .

Since the entry into force of the amended Schengen Borders Code, 10 Schengen countries have reintroduced border control at their internal borders 22 . Six Member States (i.e. Austria, Denmark, France, Germany, Norway and Sweden) already had border controls in place for extended periods prior to the entry into force of the amended Schengen Borders Code. Germany has subsequently extended the geographical scope of these controls to all its internal borders. The Netherlands notified the reintroduction of border control for the first time at all its land and air borders. Bulgaria temporarily reintroduced internal border control at its land borders, as a preventative measure, following the lifting of controls at the internal borders.

The Commission applies the new deadlines and reporting obligations to all reintroductions and prolongations that have been notified since the entry into force of the amended Code.

As part of its ongoing dialogue on internal border control, the Commission has been in close contact with the countries that have reintroduced internal border control, as well as with countries affected by the reintroduction of such measures. These discussions have fostered an exchange of information between the country concerned, as well as between the Commission and the Schengen countries. The Commission has emphasised that countries are obliged to adopt mitigating measures to limit, as much as possible, the impact of a border control on cross-border travel, freight operations 23 and the functioning of cross-border regions. Discussions have also focused on the continued progress in following up on the Commission’s Recommendations of November 2023 on alternative measures to address serious threats to public policy and national security 24 .

At the same time, the Schengen evaluations carried out in 2024 visited police and customs cooperation centres and police stations in the internal border regions. These visits aimed to verify whether structures and procedures ensure timely exchange of information and effective joint operations, addressing cross-border crime, irregular migration and threats to public safety. The overall purpose of these assessments was to (a) ensure efficient information sharing and operational cooperation among law enforcement authorities, thereby enhancing internal security, and (b) identify areas needing improvement or corrective actions. These monitoring activities and discussions revealed the non-systematic nature of checks.

The Commission is also working to ensure that no Schengen country or cross-border region is particularly affected by the reintroduction of internal border controls, notably those with a unique geographical situation. Relevant steps are being taken to address instances where the reintroduction of internal border control causes serious inconvenience to the daily lives of individuals and businesses.

The Commission has also promoted operational cooperation between Schengen countries to address the security and migration concerns of the Member States in a more effective and efficient manner. The Commission has also fostered the development of regional cooperation along migration routes, actively engaging with third countries as well. To ensure the fast, but also orderly, turning back of irregular migrants at the internal borders, Schengen countries must apply their pre-existing bilateral readmission agreements, or alternatively conclude operational arrangements to put into effect the transfer procedure introduced under the amended Schengen Borders Code.

So far, one Member State, Germany has prolonged internal border control since the entry into force of the amended Schengen Borders Code. At the request of Luxembourg, the Commission has already launched a consultation 25 . This has resulted in meetings at operational and ministerial levels aimed at addressing practical impediments to cross-border flows and increasing cooperation on alternative operational measures. The Commission remains committed to upholding the principles of free movement and security across the Schengen area and will follow-up as necessary in the upcoming Schengen cycle, including with the issuance of opinions as set out in the revised Schengen Borders Code.

5.Schengen evaluation and monitoring tools

In November 2024, the Commission established the 2025 pool of Schengen evaluators. In line with the requirements of the Schengen evaluation and monitoring mechanism, nearly all Schengen countries designated at least one expert. Only one country refrained on the grounds that the designation would substantially affect the discharge of national tasks 26 , and was therefore unable to nominate at least one expert for each field of the Schengen system 27 .

In total, 545 national experts were designated, out of which 525 national experts were selected for the 2025 pool, taking into account the general and specific criteria laid down in Regulation (EU) 922/2022 and in the relevant invitation to the Schengen countries 28 .

Number of experts selected per Schengen country (2025)

To ensure a high-quality pool of experts for evaluation and monitoring activities, a Schengen evaluation training strategy was drawn up in 2024. The strategy sets out the core aspects of the Schengen evaluation training activities, based on short and medium-term objectives, with a view to implementing a coherent methodology for a common and integrated Schengen evaluation training framework. It aims to deliver, among other things, a common curriculum for all training activities, strengthened governance for training implementation and a streamlined selection of trainees, thereby improving synergies with the pool of Schengen evaluators. In 2024, 90 experts were trained and certified as Schengen evaluators in initial training activities under this common framework.

The third country coordinator and lead expert workshop took place in January 2025, bringing together Schengen countries and Commission country coordinators along with the designated lead experts for the 2024 and 2025 evaluations. More than 40 senior experts from Schengen countries, representing a community of more than 500 Schengen evaluators, had a strategic exchange about the future of the Schengen area and, in particular, about how to reinforce the governance framework at both European and national levels. The workshop also aimed to prepare national country coordinators and lead experts for the 2025 Schengen evaluation activities.

6.Looking ahead: evaluation and monitoring activities in 2025

2025 marks the 40th anniversary of the signing of the Schengen Agreement on 14 June 1985. This milestone will shape the agenda for Schengen governance throughout the year, reaffirming Schengen as a symbol of our collective achievement, namely a secure and united Europe benefiting European citizens and businesses alike. As we celebrate this important achievement, Schengen will remain at the core of the Commission’s priorities and an essential strategic asset for navigating the evolving geopolitical landscape.

The Schengen evaluation and monitoring mechanism will continue to reflect the dynamic and evolving nature of the Schengen project, ensuring its resilience and effectiveness in a changing environment. New legal requirements have been adopted, in particular those stemming from the Pact on Migration and Asylum (e.g. Screening Regulation, Return Border Regulation) and those connected to the new digital architecture supporting border management and the internal security of the Schengen area (e.g. Interoperability regulations, ETIAS procedures, law enforcement access to EES, ETIAS, Interoperability, Exchange of information Directive).

On the back of this, the Commission, in consultation with the Schengen countries and relevant EU bodies, will revise 29  the standard Schengen questionnaire in 2025. The updated questionnaire will also strengthen the strategic aspects underpinning the well-functioning of the Schengen area, such as Schengen governance and the use of related EU financial instruments.

In line with the multiannual evaluation programme for 2023-2029, the 2025 annual evaluation programme 30 will be implemented. This includes the periodic evaluations of Switzerland, Slovenia and Austria, together with evaluations of Bulgaria and Romania following their full integration into the Schengen area without controls at the internal borders. As regards monitoring activities for 2025, the Commission is planning to carry out visits to France (which has already taken place in March 2025), Greece (September 2025) and Portugal.

Given the specific role of thematic evaluations in identifying and addressing cross-cutting challenges for the Schengen area, such as drugs trafficking and return in the two previous years, following consultations with Schengen countries, the Commission considers 2026 to be an opportune moment to launch another thematic evaluation. With the ongoing war in Ukraine and the continuing increased security risks, this evaluation would aim to identify gaps and vulnerabilities in the Schengen border and security architecture, with a view to reinforcing its coherence and increasing the overall level of internal security.

Furthermore, in 2025, the Commission will continue to monitor the follow-up to the ongoing first-time Schengen evaluations to push forward the technical readiness of both countries concerned. For Cyprus, the necessary visits 31 could still take place in 2025, provided that the required remedial measures have been implemented by the Cypriot authorities. For Ireland, the Commission intends to issue the Schengen report covering judicial cooperation in criminal matters, drugs cooperation and Article 26 of the Schengen Convention in the first half of 2025. If the outcome is positive and remedial measures in other relevant areas, notably police cooperation, are implemented swiftly, it will enable the Council to put these provisions into effect in Ireland and will lead to increased Schengen cooperation.

The Commission will also intensify its efforts in 2025 to support the seamless integration of Schengen requirements for countries aspiring to join the EU. As EU candidate countries are Schengen candidates, the EU enlargement process has significant implications for Schengen. EU candidate countries must meet all Schengen requirements by the time they join the EU, even if some Schengen rights, such as full active access to all information systems, the right to issue Schengen visas and the right to abolish controls at the internal borders, will only apply at a later stage. The Commission will work closely with candidate countries so that, by the time they join the EU, the Schengen system is anchored in a fully functioning national Schengen governance framework. This requires robust preparation, including the implementation of Schengen action plans, as set out in the 2024 Communication on EU enlargement policy 32 .

Finally, concerning training, implementation of a common curriculum in the initial training courses in 2024 has created a solid foundation for designing future training. The next initial training activities are scheduled for spring, summer and autumn 2025.

(1)

     For an overview of the 2024 evaluation activities see: Schengen Evaluation and Monitoring Mechanism - European Commission .

(2)

     European Border and Coast Guard Agency (Frontex); European Data Protection Supervisor (EDPS); European Union Agency for Fundamental Rights (FRA); European Union Agency for Law Enforcement Cooperation (Europol) and European Union Agency for the Operational Management of Large-Scale IT Systems in the Area of Freedom Security and Justice (eu-LISA).

(3)

     Schengen Evaluation of Croatia – Executive summary and recommendations available at: Schengen evaluation of Croatia .

(4)

     Schengen Evaluation of Poland – Executive summary and recommendations available at: Schengen evaluation of Poland .

(5)

Greece, France and Hungary.

(6)

     The action plans that were not yet closed prior to the 2024 periodic evaluations of Czechia, Hungary and Slovakia will be closed through the Schengen country reports to be adopted in 2025.

(7)

     Closed on 16 October 2024.

(8)

     Closed on 1 November 2024.

(9)

     Closed on 8 November 2024.

(10)

     C(2024) 8110 final of 17 December 2024.

(11)

     In line with the methodology for the Schengen Scoreboard, the 2024 Schengen Scoreboard does not include scores for Czechia, Hungary, Poland and Slovakia, as the country reports with the respective recommendations following the 2024 periodic evaluations had not yet been adopted. Bulgaria and Romania were also not included, as their first periodic evaluation will only take place in the second half of 2025. Schengen countries recently evaluated in 2023 and early 2024 (i.e. Croatia, Estonia, Finland, Latvia and Lithuania) have not yet had the opportunity to submit either their action plans, which include the planned remedial measures to be taken, or their first follow-up reports, as the deadlines have not yet expired.

(12)

     The Integrated Border Management Fund – Border Management and Visa Instrument, the Asylum, Migration and Integration Fund and the Internal Security Fund.

(13)

     Council Implementing Decision of 6 March 2025 setting out recommendations addressing identified common areas for improvement resulting from the 2024 thematic Schengen evaluation ‘Bridging national gaps: towards an effective EU return system through common solutions and innovative practices’.

(14)

     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.

(15)

     Council document 6755/21 of 8 March 2021.

(16)

     Belgium, Germany, Greece, France, Hungary, Italy, Netherlands, Portugal and Romania, led by Norway.

(17)

     The fourth comprehensive overview of illicit drug markets in the European Union, conducted by Europol and the European Monitoring Centre for Drugs and Drug Addiction (EMCDDA ‑ renamed the European Union Drugs Agency (EUDA) as of July 2024).

(18)

     Council Implementing Decision of 5 March 2024 setting out a recommendation on the implementation of the best practices identified in the 2023 thematic Schengen evaluation of Member States’ capabilities in the areas of police cooperation, protection of the external borders, and management of IT systems to fight against drug trafficking into the Union.

(19)

     In line with Article 21(2), first subparagraph of Regulation (EU) 2022/922.

(20)

     Regulation (EU) 2016/399 of the European Parliament and of the Council of 9 March 2016 on a Union Code on the rules governing the movement of persons across borders (Schengen Borders Code).

(21)

     Commission Implementing Decision (EU) 2025/315 of 14 February 2025 establishing a template for the notification of the temporary reintroduction or prolongation of border control at internal borders. C/2025/902; Commission Implementing Decision (EU) 2025/308 of 14 February 2025 establishing a uniform format for the report on the reintroduction or prolongation of border control at internal borders in accordance with Article 33 of Regulation (EU) 2016/399 of the European Parliament and of the Council. C/2025/905.

(22)

     For an overview see: Temporary Reintroduction of Border Control - European Commission .

(23)

     According to the Commission’s Green Lanes Communication, freight vehicles should not face more than 15 minutes total delay in crossing internal borders of the Trans-European Transport Network (TEN-T) network irrespective of the goods they carry. The Commission has continued to organise meetings with the Network of National Transport Contact Points whenever potential issues have been identified that could negatively affect the flow of road carrier transport within the internal market.

(24)

     Commission Recommendation of 23.11.2023 on cooperation between the Member States with regard to serious threats to internal security and public policy in the area without internal border controls. C(2023) 8139 final.

(25)

     In line with Article 27a of Regulation (EU) 2016/399.

(26)

     In line with Article 17(2) of Regulation (EU) 2022/922.

(27)

Denmark did not nominate an expert on police cooperation.

(28)

     Article 15(1) of Regulation (EU) 2022/922.

(29)

     In line with Article 14 of Regulation (EU) 2022/922. 

(30)

     The 2025 annual evaluation programme available at Annual evaluation .

(31)

     Article 23 of Regulation (EU) 2022/922.

(32)

     Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the regions 2024. Communication on EU enlargement policy. COM(2024) 690 final.

EUROPEAN COMMISSION

Brussels, 23.4.2025

COM(2025) 185 final

ANNEX

to the

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

ANNEX 2

Compendium of best practices identified in the framework of the Schengen evaluation and monitoring mechanism

The well-functioning of the Schengen area relies on Member States’ effective and efficient application of the Schengen rules. The Schengen Evaluation and Monitoring Mechanism is a key safeguard to ensure the adequate implementation of the Schengen acquis, which allows not only for the timely detection of vulnerabilities, but also allows for the identification of best practices and innovative solutions put in place by Member States.

The compendium of best practices accompanying the 2025 State of Schengen Report marks its third edition since the new Schengen Evaluation and Monitoring Regulation came into force. As a living document, it encompasses both the best practices identified in the previous iteration of the compendium, as well as new and innovative measures identified in the evaluations that took place in 2024, which significantly improve the implementation of common rules and that could be put into practice by other Member States.

The compendium of best practices brings together a wide range of best practices covering several aspects of the Schengen acquis, including national Schengen governance, management of the external borders, visa policy, returns, as well as measures within the Schengen area, such as internal borders and internal security. The aim is to provide insights into innovative strategies, tools, and measures that can support Member State authorities in the implementation of the Schengen acquis and to facilitate peer-to-peer knowledge sharing. Further exchange of knowledge and experience should be fostered within the relevant Council bodies to reinforce this collaborative effort. The compendium serves to complement existing best practices outlined in applicable Commission or Council Recommendations or handbooks with new insights.

This compendium is explanatory and has no legally binding status. It is intended as a valuable resource for policymakers, law enforcement officials, and other stakeholders involved in ensuring the smooth and efficient functioning of the Schengen area but also to support possible solutions for remedial actions addressing future recommendations proposed by evaluation teams. It is part of the annual report referred to in Article 25 of Council Regulation (EU) 2022/922.

NATIONAL SCHENGEN GOVERNANCE

1.National strategies

2.National capabilities

3.Large-scale IT systems

4.Fundamental Rights aspects

5.Data protection supervision

EXTERNAL DIMENSION

MANAGEMENT OF THE EXTERNAL BORDERS

RETURN

INTERNAL BORDERS

INTERNAL SECURITY