EN EN

EUROPEAN COMMISSION

Brussels, 6.11.2026 COM(2026) 835 final

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT AND THE COUNCIL

The European Annual Asylum and Migration Report

(2026)

1

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN

PARLIAMENT AND THE COUNCIL

The European Annual Asylum and Migration Report

(2026)

The Pact on Migration and Asylum (‘the Pact’), fully applying since 12 June 2026, is

overhauling the EU’s migration and asylum legal framework. The Pact is a core element of the

EU’s common approach to asylum and migration, and its strength lies in the balance between

the principles of solidarity and a fair sharing of responsibility among Member States. It is an

essential part of a comprehensive and forward-looking approach to migration management.

Together with assertive migration diplomacy, technologically advanced border protection, new

rules for swifter and more effective returns, and stronger labour and talent mobility to boost

EU competitiveness, it is intended to deliver an effective, resilient and sustainable European

asylum and migration system, as outlined in the first-ever long-term European Asylum and

Migration Management Strategy1.

This second European Annual Asylum and Migration report (‘the Report’) shows that,

already before the entry into application of the Pact, the common European approach to

migration and asylum has started delivering strong results. For the second year in a row,

illegal border crossings, applications for international protection and unauthorised secondary

movements of third-country nationals have been decreasing significantly across the EU. Illegal

entries more than halved in the last two years and further dropped by more than a third in the

first half of 2026. In 2025, asylum applications decreased by 19%, with a further year-on-year

decrease of 17% in the first half of 2026. It is estimated that secondary movements decreased

by 22% in 2025. Effective returns increased by 22% in 2025, with additional 25 000 returns

compared with the previous year, bringing the EU return rate in 2025 to 29%2. The migratory

situation is improving overall, although further progress is still to be made, notably by fully

implementing the new rules of the Pact and further strengthening the cooperation with third

countries of origin and transit through migration diplomacy, in line with fundamental rights.

This year’s Report, the first one following the entry into application of the Pact, launches the

second annual migration management cycle3. The Report assesses the asylum, reception and

migratory situation over the previous 12-month period, provides a strategic situational picture

of the area of migration and asylum in the EU that also serves as an early warning and

awareness tool for the Union and includes a projection for the coming year. This Report informs

the Commission implementing Decision (the ‘Decision’) determining which Member States

are under migratory pressure, at risk of migratory pressure or facing a significant migratory

1 COM (2026) 45 final. 2 Other than for the figures in this paragraph, the reference period used in this Report is July 2025-June 2026, with

a comparison to the reference period of July 2024-June 2025, while relevant developments occurring outside the

reference period are also taken into due account. 3 The operationalisation of the 2025 cycle covered a period of six months.

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situation4, in line with Regulation (EU) 2024/13515. It also sets out the elements for identifying

the solidarity needs of Member States under migratory pressure, which are the basis for the

Commission proposal for a Council implementing Decision establishing the annual Solidarity

Pool. Together, these three components of the annual migration management cycle (‘the

cycle’) support the aim of managing migration sustainably and provide Member States with

the flexibility they need to effectively and fairly address the specific challenges they face.

Member States have already made significant progress in implementing the various strands

of the reform introduced by the Pact: strengthened border management and preparedness,

screening of all illegal arrivals and the border procedures, with more than a third of all

applications for international protection now being processed directly at the external borders,

the new Eurodac database, streamlined procedures for responsibility determination and for

assessing the applications for international protection, and further stepped up efforts on returns.

Moreover, the operationalisation of the first annual migration management cycle

launched in 2025 is progressing successfully, with the swift establishment of the first

Solidarity Pool by the Council in December 2025 and the progressive operationalisation of the

new mandatory and flexible solidarity mechanism. Fair sharing of responsibility and solidarity

should continue to advance hand in hand.

It is now important to maintain this momentum and that Member States continue to apply

sustained efforts. While significant progress has been achieved, important work remains to be

done to ensure that the new framework delivers fully and effectively in practice. With the

support of the Commission and of the EU agencies, Member States must continue working to

ensure that all components of the Pact are fully operational and that all remaining gaps

are addressed as soon as possible. This requires completing the legislative amendments,

implementing pending operational actions and ensuring close cooperation at all levels. In

particular, efforts need to continue to fully apply the new responsibility rules, including on

transfers. This is key for a well-functioning system.

Therefore, this Report presents an overview of the state of play of the implementation of the

Pact and an assessment of the application of the new responsibility rules as required by the

Commission implementing Decision (EU) 2025/2323.

At the same time, European borders are being continuously tested. The European Union’s

integrated border management has contributed greatly to strengthening the integrity and

security of our external borders in recent years. However, recent events have put EU’s borders

to the test, from the Eastern borders to the shores of the Mediterranean. This summer’s event

in Ceuta showed how quickly sudden, massive arrivals can build up at the EU’s external border

and lead to emergency situations. It is crucial to continue strengthening our external borders.

4 The assessment uses the methodology developed in 2025 by the Commission, in consultation with the Member

States, SWD (2025) 792, Methodology for the purposes of Commission implementing decision pursuant to Article

11 of Regulation (EU) 2024/1351 of the European Parliament and of the Council. The methodology will be further

fine-tuned once new and better data becomes available, including on attempted illegal border crossings. The new

Eurodac database became operational in mid-2026 and will provide new data that will lead to a better

understanding of secondary movements. Furthermore, more comparable data on reception are being collected,

which will complement the picture on pressure and allow the Commission to assess the level of preparedness of

a Member State’s asylum, reception and migration system. 5 Regulation (EU) 2024/1351 of the European Parliament and of the Council of 14 May 2024 on asylum and

migration management, amending Regulations (EU) 2021/1147 and (EU) 2021/1060 and repealing Regulation

(EU) No 604/2013 (OJ L, 2024/1351, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1351/oj).

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As President von der Leyen highlighted in the State of the Union address, the European solution

is in our comprehensive approach to migration, including the Pact on Migration and Asylum,

which needs to be fully implemented. Those events have also shown that our tools need to

evolve for emergency situations, to protect the borders at all times. To that end, the Commission

presented a proposal to strengthen the European Border and Coast Guard Agency (‘Frontex’)6

and a 5-point plan to prevent, anticipate and respond to sudden, mass illegal arrivals, with the

aim to strengthen the resilience and security of EU external borders7. Furthermore, the work

on a new European Emergency Response Framework is ongoing in view of reinforcing the

EU capacity to protect its borders at all times, especially in scenarios of engineered and

weaponised movements.

I. Delivering on the Pact: responsibility and solidarity in balance8

Implementing the Pact’s comprehensive set of reforms has required significant legal and

operational work over the past two years. Since the May 2026 state of play report9, remaining

infrastructure and procedures have progressively been put in place, which has facilitated the

successful entry into application of the new rules. Since the implementation of the Pact is an

ongoing and continuous process, sustained efforts are necessary from the Member States to

progress further. The Commission and EU agencies will continue providing the necessary

support.

a. EU-level action on the implementation of the Pact

Various strands of EU financial support have given Member States the means to improve the

implementation of the Pact. Following the allocation of EUR 3 billion for the implementation

of the Pact under MFF 2021-2027, the adoption of programme amendments for all 26 Member

States concerned has now been concluded10. In addition, preparations are ongoing for putting

the Permanent EU Migration Support Toolbox into operation. As part of the financial

component of the Permanent EU Migration Support Toolbox, the Commission launched a

Specific Action with an indicative amount of EUR 250 million under the 2023-2027 Asylum,

Migration and Integration Fund (AMIF) Thematic Facility work programme entitled

‘Implementation of the Migration and Asylum Pact under the Toolbox (IMPACT)’, aiming to

support the effective implementation of the Pact. In parallel, from April 2025 to June 2026, the

Commission, in cooperation with the International Centre for Migration Policy Development

(ICMPD) and the International Organization for Migration (IOM), supported eight Member

States to implement specific reforms outlined in their National Implementation Plans through

the Technical Support Instrument (TSI)11.

The first solidarity cycle has been successfully operationalised, and implementation is

progressing across all strands – relocations, responsibility offsets and financial contributions.

Member States are implementing relocations and responsibility offsets, and financial

contributions will be effectively distributed to the benefitting Member States at the beginning

6 COM (2026) 1030 final. 7 Staying the course on migration reform - Migration and Home Affairs. 8 This fourth update respond to the requirement of Article 84(3) of Regulation (EU) 2024/1351. 9 COM (2026) 196 final, Communication from the Commission to the European Parliament, the Council, the

European Economic and Social Committee and the Committee of the Regions State of play on the implementation

of the Pact on Migration and Asylum. 10 Denmark has an opt-out from the Pact on Migration and Asylum. 11 Belgium, Czechia, Estonia, Greece, Ireland, Italy, Romania, Slovakia.

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of 2027, in line with Regulation (EU) 2024/135112. Since the four Member States (Greece,

Spain, Italy and Cyprus) determined by the Commission in 2025 as being under migratory

pressure informed the Commission about their intention to make use of the Annual Solidarity

Pool for 2026, the EU Solidarity Coordinator has worked in close cooperation with the

contributing Member States to ensure a balanced distribution of the Poolamong the four

Member States13. Under the coordination of the Technical-Level Solidarity Forum, Member

States are now implementing relocations and responsibility offsets and have earmarked their

financial contributions within their national budgets. Member States should continue to

coordinate closely to ensure the swift and effective implementation of the first Solidarity Pool,

with a view to achieving the broader objective of ensuring balance between responsibility and

solidarity. Together with the European Union Agency for Asylum (EUAA), the EU Solidarity

Coordinator will continue supporting Member States in their implementation efforts and

monitoring progress closely.

EU agencies continue to support Member States in implementing the Pact. The EUAA has

developed or updated 77 Pact-related products, including 32 training modules, and recorded

over 48 000 training participants between January and August of this year alone. Frontex is

providing targeted support for screening and return border procedures, including dedicated

workshops, practical guidance and information materials. Building on its practical monitoring

tool, with a common methodology for national monitoring mechanisms, the European Union

Agency for Fundamental Rights (FRA) continues to provide training on fundamental rights

monitoring during screening. On 15 October 2026, the Agency published a new report on EU-

mandated migration-related fundamental rights monitoring and investigations14.

b. Implementation in Member States

Four months after the entry into application of the Pact, Member States have made significant

efforts and further progress in putting into operation its various components. Member States’

level of readiness varies, each of them facing different challenges and responding to different

needs. Member States must make full use of the new legal and operational tools under the Pact,

and for this work needs to continue. It is urgent that all Member States further step up their

efforts and take the measures that are necessary to deliver on all the Pact’s building blocks. The

Commission will continue monitoring the implementation and stands ready to continue

providing support to Member States to fill the remaining gaps to ensure that all components of

the Pact are operationalised.

Since the previous state of play report, there has been a steady increase in the adoption of

national legislative measures, which have now been taken at least partially in most Member

States. All remaining Member States should conclude the adoption of their national legislation

or put interim solutions in place as a matter of urgency15.

12 According to Article 63(3) of Regulation (EU) 2024/1351, Member States shall implement their pledged

solidarity contributions for a given year before the end of that year, without prejudice to Article 65(3) and Article

67(12) of Regulation (EU) 2024/1351, with the exception of financial contributions. 13 Commission Implementing Decision (EU) 2025/2323 of 11 November 2025 pursuant to Article 11 of

Regulation (EU) 2024/1351 of the European Parliament and of the Council C/2025/7099. 14 EU-mandated migration-related fundamental rights monitoring and investigations - 2026 Update. 15 Legislative adjustments are ongoing in Austria, Belgium, Bulgaria, France, Germany, Ireland, Italy, Lithuania,

Malta, Poland, Romania, Slovenia and Spain, while Hungary has yet to put forward the necessary legislative

changes.

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The new Eurodac16 databasehas been integrated into the national asylum and migration

workflows and is being implemented successfully across all Member States. National

authorities of all Member States have been registering applicants for international protection

and irregular migrants and conducting searches for registrations in Eurodac by other Member

States related to applications for international protection, illegal border crossings, search and

rescue (SAR) disembarkations and illegal stay to the extent expected, indicating that the new

Eurodac system is used as foreseen.

Screening17 of illegally arriving migrants is now being carried out at the external borders as a

rule, with the vast majority of Member States gradually expanding to operate at full capacity.

Through screening, all illegal arrivals at EU external borders are registered, identified and

subject to a health, security and vulnerability assessment, enhancing EU internal security. All

Member States have notified the Commission of their screening authorities and are taking the

necessary steps to reach full operational capacity. Member States should continue working in

view of reaching full capacity swiftly.

Similarly, the first months of implementation of the new border procedures led to overall

positive results. Since the Pact entered into application, according to preliminary data, one third

of applications for international protection (i.e. around 50 000) registered in the EU was

processed under accelerated or border procedure. The border procedures are being carried out

at the EU external borders, with most Member States having established their adequate capacity

or interim solutions. According to EUAA consolidated data, between 12 June and the end of

August 2026, around 7 000 asylum applications were subject to the asylum border procedure

alone. Most Member States have established their adequate capacity, while work is ongoing in

few others to achieve it. A key challenge is to put effective measures in place to prevent

absconding during screening and the border procedures. To support Member States on this, the

Commission has published guidance on the asylum and return border procedures18, as well as

guidance on the use of detention, alternatives to detention and restrictions of freedom of

movement. The documents further clarify the rules to prevent unauthorised entry into the EU

territory at the EU’s external borders during screening and the asylum border procedure19. The

EUAA also published a practical guide on the asylum border procedure20. In addition, the

Commission, together with the EUAA, Frontex and Member States, organised joint workshops

on screening and the border procedures for some of the Member States most concerned,

providing practical training and guidance, including to members of the judiciary. The

Commission will continue providing specific support to Member States that so request,

including by updating the relevant guidance as necessary.

16 Regulation (EU) 2024/1358 of the European Parliament and of the Council of 14 May 2024 on the establishment

of ‘Eurodac’ for the comparison of biometric data in order to effectively apply Regulations (EU) 2024/1351 and

(EU) 2024/1350 of the European Parliament and of the Council and Council Directive 2001/55/EC and to identify

illegally staying third-country nationals and stateless persons and on requests for the comparison with Eurodac

data by Member States’ law enforcement authorities and Europol for law enforcement purposes, OJ L, 2024/1358,

22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1358/oj. 17 Regulation (EU) 2024/1356 of the European Parliament and of the Council of 14 May 2024 introducing the

screening of third-country nationals at the external borders and amending Regulations (EC) No 767/2008, (EU)

2017/2226, (EU) 2018/1240 and (EU) 2019/817, https://eur-lex.europa.eu/eli/reg/2024/1356/oj/eng. 18 ARP-RBP Guidance on the asylum and return border procedures. 19 Guidance on the use of Detention, Alternatives to Detention and Restrictions of Freedom of Movement under

the 2024 Recast Reception Conditions Directive | Migration and Home Affairs. 20 EUAA, Practical Guide on the Asylum Border Procedure, March 2026.

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Member States have been adapting to the reformed responsibility system of the Pact. Overall,

good progress has been made across Member States in streamlining procedures and improving

efficiency. Several Member States have hired additional staff to ensure the effective application

of the new rules and are addressing challenges in adapting to new IT-systems. However,

significant challenges remain and further work is needed, notably in relation to the effective

implementation of rules on responsibility transfers by all Member States. Full and sustainable

implementation of the new responsibility rules, in parallel to the ongoing implementation of

the first Solidarity Pool, remains a priority. To that end, section III of this Report includes an

assessment of the application of the new responsibility rules as set out in Part III of Regulation

(EU) 2024/1351.

Member States are undertaking reforms of their reception systems21. As 16 Member States

had not notified the transposition of Directive (EU) 2024/1346 on reception by the deadline,

the Commission sent letters of formal notice to the Member States concerned in July 202622.

Since then, progress has been made, with several Member States notifying complete

transposition while others have only partially transposed the Directive or have yet to notify

transposition measures23. The Commission will continue following this matter with the

Member States concerned. Overall, Member States report sufficient reception capacity and are

adapting facilities and services to better address the needs of unaccompanied minors and

applicants with vulnerabilities. Early integration measures are available in most Member

States, while work is also ongoing to improve digitalisation, data exchange and connectivity

between relevant systems. Member States should ensure that any adjustments to their reception

capacity remain consistent with the need to maintain well-prepared and resilient asylum and

reception systems, in compliance with the new standards. Particular efforts are needed in

situations of high occupancy levels, uneven standards or continued reliance on temporary or

emergency accommodation. Account should be taken of the above-mentioned Commission

guidance on the use of detention, alternatives to detention and restrictions of freedom of

movement.

Swifter and more harmonised asylum procedures remain essential to safeguarding the

integrity of the system. Following the entry into force of the Pact, many Member States

reported no significant backlog of new asylum applications, supported also by an overall

decrease in asylum applications in the EU. At the same time, Member States are taking steps

to reduce existing backlogs and strengthen case-management capacity, including through the

recruitment of additional staff, procedural streamlining, digitalisation and the allocation of

additional resources. Furthermore, to close gaps between the asylum and return procedures,

negative asylum decisions and return decisions are issued jointly or in close succession in the

majority of Member States. The Return Regulation further strengthens the framework for a

faster and more effective EU return system.

21 Measures necessary to transpose into national law Directive (EU) 2024/1346 of the European Parliament and

of the Council of 14 May 2024 laying down standards for the reception of applicants for international protection

(recast), OJ L, 2024/1346, (ELI: https://eur-lex.europa.eu/eli/dir/2024/1346/oj/eng). 22 Commission takes action to ensure complete and timely transposition of EU directives. 23 Cyprus, Czechia, Estonia, Greece, Finland, France, Croatia, Italy, Luxembourg, Latvia, Malta, Netherlands,

Portugal, Sweden, Slovakia have notified complete transposition; transposition remains partial for Austria,

Belgium, Germany, Spain, Ireland, Lithuania and Romania, while Bulgaria, Hungary, Poland, and Slovenia have

yet to notify transposition.

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National judiciaries are key to making the Pact work, and Member States generally report very

good cooperation of the various authorities, including courts and Ministries of Justice, who

have invested in the implementation of the Pact with additional staff, adapted administrative

arrangements and trainings. All Member States need to continue maintaining a close dialogue

with the judiciary and to address any emerging needs swiftly, in particular to ensure that new

deadlines set in the Pact are met and any potential backlogs are limited. The Commission is

making available an indicative budget of EUR 90 million via the IMPACT Specific Action to

support the national judicial systems of Member States of first entry, which are most in need

of support in this effort.

Member States have put in place arrangements to provide free legal counselling, and some are

providing multidisciplinary age assessments for minors, involving trained professionals and

appropriate methodologies. Member States continue to put arrangements in place for the

independent fundamental rights monitoring mechanism, including through staff training, as

well as new methodologies, working methods and coordination mechanisms. To progress

further, appointing the independent monitoring authority is a key step, where this has not been

done yet, completing the necessary legal and operational adaptations, and ensuring adequate

staffing and arrangements24. In many Member States the systems for appointing representatives

for unaccompanied minors are functioning effectively. However, gaps persist in recruiting a

sufficient number of representatives.

Most Member States have started or continue to provide integration measures as provided for

in the Pact, including language courses, vocational training and access to information. Several

Member States also reported that work on resettlement is ongoing, at different stages of

progress.

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

The strategic situational picture provides (a) an analysis of the main developments in the area

of asylum, reception and migration in the Union and in the Member States over the 12-month

period between 1 July 2025 and 30 June 2026, and (b) a projection for 2027, which includes

information on the level of preparedness in the EU and the Member States to respond and adapt

to the expected trends. The overview in this Report also includes findings25 from the monitoring

undertaken by Frontex, and from the evaluation of the application of the Schengen acquis

carried out by the Commission in accordance with Regulation (EU) 2022/92226.

24 Belgium, Hungary, Italy, Lithuania, Malta, the Netherlands, Portugal, Sweden have yet to formally designate or

fully operationalise the national mechanism for monitoring compliance with fundamental rights in the context of

screening and the asylum border procedure, although work is ongoing. Poland has designated an interim body

while establishing the mechanism. 25 The result of the monitoring undertaken by the EUAA, as well as the monitoring carried out in accordance with

Article 10 of Regulation (EU) 2024/1356 referred to in Article 9(e) of Regulation (EU) 2024/1351 were not yet

available at the time of reporting. Under the EUAA monitoring mechanism, the Agency launched the first

monitoring exercises in July 2026. 26 Council Regulation (EU) 2022/922 of 9 June 2022 on the establishment and operation of an evaluation and

monitoring mechanism to verify the application of the Schengen acquis

(ELI: http://data.europa.eu/eli/reg/2022/922/oj).

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The strategic situational picture is based on quantitative and qualitative data and information

provided by Member States, Eurostat, relevant EU agencies27 and the European External

Action Service. Both the analysis and the projection also build on the results of regular

exchanges within the EU Migration Preparedness and Crisis Blueprint Network28.

The strategic situational picture is complemented by a statistical breakdown, detailed

information supporting the analysis29, and the projection for 202730.

a. Analysis of the asylum, reception and migration situation between 1 July 2025 and

30 June 2026

Overall, between 1 July 2025 and 30 June 2026, the migratory situation in the Union

continued to improve for the second year in a row. Illegal arrivals in the EU, applications

for international protection and unauthorised movements continued to decrease31. This was

thanks to a combination of factors, including (i) the joint efforts undertaken by the Commission

and Member States in stepping up cooperation with countries of origin and transit, and (ii) the

fact that Member States - with the full application of the Pact - have strengthened their asylum

and migration management systems, and the protection of their sections of the EU external

borders.

Illegal migration at the EU’s external borders32

Illegal border crossings (IBCs) at the EU’s external borders decreased by 32% between 1 July

2025 and 30 June 2026, compared with the previous reporting period. IBCs decreased along

most migratory routes, including those accounting for most IBCs.

The main countries of origin of migrants entering the EU illegally as IBCs were Bangladesh,

Sudan, Afghanistan, Algeria and Egypt. The main countries of origin of those involved in IBCs

and with a percentage of positive decisions on international protection in the EU of 20% or less

during the reporting period (i.e. an asylum recognition rate of 20% or less)33 were Bangladesh,

27 The European Union Agency for Asylum (EUAA), the European Union Agency for Law Enforcement

Cooperation (Europol), the European Border and Coast Guard Agency (Frontex), the European Union Agency for

the Operational Management of Large-Scale IT Systems in the Area of Freedom, Security and Justice (eu-LISA)

and the European Union Agency for Fundamental Rights (FRA). 28 The Blueprint Network, an early deliverable of the Pact, is the operational framework bringing together relevant

EU stakeholders to monitor and anticipate migration flows and situations. It was set up by Commission

Recommendation (EU) 2020/1366 of 23 September 2020 on an EU mechanism for preparedness and management

of crises related to migration (ELI: http://data.europa.eu/eli/reco/2020/1366/oj). 29 The Staff Working Document ‘Statistical breakdown supporting the analysis of the asylum, reception and

migration situation in the Union and in the Member States’ and the Staff Working Document ‘Supporting the

analysis of the asylum, reception and migration situation in the Union and in the Member States’ are marked as

sensitive as they contain data which may not be disclosed to the public given the granularity of the information

they contain and the risk of hampering EU agencies and Commission operational activities. 30 Staff Working Document ‘Projection pursuant to Article 9(3)(b) of Regulation (EU) 2024/1351 of the European

Parliament and of the Council for the year 2027’ classified as ‘RESTREINT UE/EU RESTRICTED’. 31 Since this Report covers the period 1 July 2025 to 30 June 2026, the year-to-year comparison (‘previous

reporting period’) refers to the 12-month period from 1 July 2024 to 30 June 2025. 32 The analysis in this section is based on Frontex data. 33 The recognition rate reflects the percentage of asylum applicants who receive decisions granting either refugee

status or subsidiary protection at first instance. Each year, Eurostat publishes the list of countries of citizenship

with a recognition rate of 20% or lower for the purposes of Regulation (EU) 2024/1348.

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Algeria, Egypt, Morocco and Senegal. In accordance with the rules in force34, applications

made by persons of such nationalities are to be mandatorily examined in the border procedure.

Figure 1 – Illegal border crossings 1 July 2025 – 30 June 2026 by migratory route35

Source: Joint Research Centre (JRC) elaboration on Frontex data

Looking more in-depth into the different routes, on the Eastern Mediterranean route, while

the number of IBCs to Greece decreased (-23%) compared with the previous reporting period,

Greece continues to have the highest number of IBCs in the Union36 relative to its Gross

Domestic Product (GDP) and population. The majority of IBCs that occurred through the

Eastern Mediterranean route were mostly from Libya and Türkiye. During the reporting period,

while arrivals along the Eastern Mediterranean route have overall decreased, arrivals along the

land border to Greece from Türkiye increased by 33% compared to the previous reporting

period. Overall, they represented 21% of all arrivals along this route. In addition, arrivals in

Crete increased by 105%. Close to half of all arrivals to Greece were recorded in Crete (around

21 000). In Cyprus, the number of IBCs decreased (-34%) compared with the previous

reporting period, mostly due to the significant decrease in the number of migrants from Syria

and the continued cooperation with the Lebanese authorities. However, relative to its GDP and

population, Cyprus still ranked third in the EU in terms of illegal arrivals.

On the Central Mediterranean route, in Italy, the number of IBCs decreased (-28%) although

Italy remained the Member State receiving the highest number of illegal arrivals in absolute

34 Regulation (EU) 2024/1348 of the European Parliament and of the Council of 14 May 2024 establishing a

common procedure for international protection in the Union and repealing Directive 2013/32/EU, (OJ L,

2024/1348, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1348/oj). 35 Only routes with more than 500 IBCs are included in this map. 36 Calculated comparing the share of each Member State for this indicator with its share of GDP and population.

The share of GDP and population for each Member States is calculated in accordance with the reference key set

out in Article 66 of Regulation (EU) 2024/1351.

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terms in the EU. This decrease was due to the consolidated cooperation with the Tunisian

authorities37 and tighter controls on maritime departures from the Turkish coast. Departures

from Libya to Italy remained stable, as migrant smuggling networks exploited the continued

instability in Libya and neighbouring countries.

On the Western Mediterranean and Atlantic routes combined, IBCs to Spain almost halved

(-46%) during the reporting period compared with the previous reporting period, due to fewer

arrivals along the Atlantic route to the Canary Islands. This was thanks to a continued

cooperation with key third countries in Northern and Western Africa, particularly on prevention

of departures. At the same time, on the Western Mediterranean route, the number of IBCs

increased, with Algeria as the main country of departure.

In addition, on 30-31 July 2026, according to the data communicated by the Spanish

authorities, approximately 72 000 persons, including 3 560 unaccompanied minors, entered

illegally the Spanish autonomous city of Ceuta from Morocco. The incident shows the

particular exposure as regards large-scale illegal arrivals of Ceuta as well as Melilla, the only

external land borders of the EU in Africa. Spain reacted to this emergency situation and most

of the third-country nationals arriving illegally (more than 90% according to Spain) returned

to Morocco in the days following the incident. At the same time, due to the specific situation

of Ceuta and Melilla in the Schengen area, as provided for by Article 41 of Regulation (EU)

2016/39938, checks are carried between Ceuta and Melilla, and the Spanish mainland, thereby

preventing onward movements and preserving the integrity of the Schengen area.

In the weeks following the events, Spanish authorities continued to face challenges in carrying

out the necessary operations and in providing reception and assistance to those remaining

illegally in Ceuta, particularly to unaccompanied minors. In response to this emergency

situation, following Spain’s request, the Commission swiftly provided EUR 114.7 million in

emergency funding to Spain, and Frontex, the EUAA and Europol enhanced their operational

support. Ceuta and Melilla’s exposure to sudden increases in illegal arrivals and the

extraordinary challenges caused by the incident in Ceuta show the need for continued

preparedness in effective border protection and migration management.

In the Western Balkans region, IBCs decreased (-30%) compared with the previous reporting

period, continuing the declining trend seen in previous years. Action taken in the framework

of the European Multidisciplinary Platform Against Criminal Threats (EMPACT)39 and the

implementation of the EU Action Plan on the Western Balkans40 contributed to this decrease.

Furthermore, enhanced police controls disrupted migrant smuggling activities, and fewer

people arrived along the Eastern Mediterranean route (which is the main entry point of migrants

moving illegally along the Western Balkans route). The Bosnia and Herzegovina-Croatia

corridor remained the most active, although IBCs also decreased along this route. During the

37 Memorandum of Understanding on a strategic and global partnership between the European Union and Tunisia,

signed in July 2023. 38 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) (codification) OJ L 77,

23.3.2016. 39 EMPACT is the EU's flagship security initiative to fight serious, cross-border organised crime. 40 EU Action Plan on the Western Balkans of 5 December 2022 available at https://home-affairs.ec.europa.eu/eu-

action-plan-western-balkans_en.

11

reporting period, Croatia accounted for 78% of the arrivals along the route and therefore for

the second highest number of IBCs at EU level relative to GDP and population.

At the EU’s Eastern border, the number of IBCs remained low, and decreased (-34%)

compared with the previous reporting period. Actions by Russia and Belarus continued to

influence migratory dynamics, especially inPoland, Latvia, Lithuania, Finland and Estonia. In

response to continued state-sponsored attempts of weaponisation of migration by Belarus,

Poland, Latvia and Lithuania strengthened their border controls. In addition, Poland extended

the existence of a buffer zone along its border with Belarus to maintain operational vigilance

and ensure the effectiveness of border protection. Latvia and Lithuania enhanced surveillance

measures at their borders with Belarus. This helped reduce the number of IBCs from Belarus

(259 IBCs in total, of which 56% to Latvia). Latvia and Estonia strengthened border

management measures at its border with Russia. Finland extended the national special regime

at its crossing points with Russia, in response to Russia’s attempts to weaponise migration. As

a result of these initiatives, migratory movements at the border with Russia further decreased

and remained very low in absolute numbers (-31%, 54 IBCs). Nevertheless, the risk of

weaponisation of migration remains a serious challenge, adding to occasional violent incidents

and attempts to cross the border illegally.

In relation to IBC on exit from the EU, along the Channel route migrants continued trying to

illegally cross the border from the EU towards the United Kingdom. Along this route,

departures from France to the United Kingdom decreased by 30% compared with the previous

reporting period. Border management efforts in France prevented many attempted crossings

from France to the United Kingdom. Successful crossings (arrivals in the United Kingdom)

decreased by 20% compared with the previous period. On 16 June, the Commission presented

an EU action plan for the Channel migratory route41.

At the EU’s external borders, between 1 July 2025 and 30 June 2026, over 110 000 people were

refused entry between 1 July 2025 and 30 June 2026, mainly at land (51%) and air (45%)

borders. Most refusals of entry were due to missing or invalid documentation42. Poland, Spain

and France recorded the highest numbers in absolute terms, while Croatia, Latvia and Estonia

issued most refusals relative to their GDP and population. Most refusals of entry involved

Ukrainians43, Albanians, and Moldovans. The Entry/Exit System, which has been fully

operational since 10 April 2026, has played an important role in this context.

Arrivals by sea following search and rescue operations44

The number of third-country nationals disembarked in EU territory following search and rescue

operations (SAR) decreased by 34% in July 2025-June 2026, compared with the previous

reporting period. From 1 July 2025 to 30 June 2026, over 64 000 persons were disembarked in

the EU following SAR operations. Italy accounted for almost half (42%)of all migrants

disembarked in the EU, followed by Greece, Spain and France.

41 https://home-affairs.ec.europa.eu/eu-action-plan-channel-migratory-route_en. 42 This included cases where non-EU nationals overstayed the permitted 90 days within a 180-day period or lacked

a valid visa or residence permit, or where they were subject to alerts created for security reasons. 43 Ukrainians without valid permits or not covered by temporary protection. 44 The analysis in this section is based on Frontex data.

12

Figure 2 – Persons disembarked in search and rescue operations

Source: JRC elaboration on Frontex data

Migrant smugglers continue to put migrants’ lives at risk by organising dangerous crossings to

reach the European Union on unseaworthy vessels. During the reporting period, 3 758 people

were reported dead or missing at sea, an increase of 12% compared with July 2024-June 2025.

The Central Mediterranean and the Atlantic route continued to be the deadliest sea routes to

the EU45.

Sea crossings in small boats from France to the United Kingdom across the Channel facilitated

by smuggling networks also led to SAR operations. Smuggling networks continued to organise

simultaneous departures in order to overwhelm authorities, with increasingly overcrowded

boats, thereby increasing the risks for migrants’ lives.

International protection and temporary protection in the EU46

Applications for international protection in the EU decreased by 16% between July 2025 and

June 2026, compared with the previous reporting period. However, applications still remained

high in absolute numbers, with 730 800 applications lodged. The decrease was driven mainly

by fewer illegal arrivals and the decrease of applications by Syrian nationals.

45 Data | Missing Migrants Project, source: IOM. 46 The analysis on international protection and temporary protection is based on EUAA and Eurostat data,

respectively.

13

Figure 3 – Applications for international protection by Member States in absolute

values, and per capita and GDP47

Source: JRC elaboration on EUAA data

Greece and Cyprus received the highest number of applications relative to their GDP and

population combined. In absolute numbers, Germany received the highest number of

applications for international protection – despite a 20% decrease compared with July 2024 -

June 2025 – followed by France, Italy and Spain. During the reporting period, there was an

increase in the number of applications lodged by Afghan nationals, who lodged the highest

number of applications for international protection.

Applications by unaccompanied minors accounted for 2% of the total number of applications

lodged; they decreased for a second consecutive year (by 42% compared with the previous

reporting period). Relative to GDP and population, Greece and Cyprus received the highest

number of applications by unaccompanied minors at Union level. In absolute terms,

unaccompanied minors lodged the highest numbers of applications in the Netherlands, Greece

and Germany.

In the reporting period, 390 000 applications (53% of the total) were lodged by nationals of

countries with a recognition rate of 20% or lower48: Venezuela, Bangladesh, Türkiye, Egypt

and Pakistan were the main countries of origin of those applicants. From 12 June 2026, these

nationals are among those to be treated in the mandatory border procedures.

47 Calculated comparing the share of each Member State for this indicator with its share of GDP and population.

The share of GDP and population for each Member States is calculated in accordance with the reference key set

out in Article 66 of Regulation (EU) 2024/1351. 48 Based on the recognition rate in the reporting period.

14

EU Member States issued 280 000 decisions granting international protection status49, a 3%

increase compared with the previous reporting period50. Relative to their GDP and population,

Greece, Austria and France were the Member States that granted the highest proportion of

positive international protection decisions. In absolute terms, Germany, France and Greece

issued most positive decisions on international protection applications, while Spain was the top

country granting national humanitarian status, mostly to Venezuelans. By the end of 2025, most

Member States had resumed processing applications for international protection lodged by

Syrian applicants, following several months during which their processing was postponed due

to the uncertain situation in Syria. During the reporting period, Syria was the fourth largest

country of origin in terms of number of third country nationals applying for international

protection in the EU, half of them in Germany.

As a result of Russia’s ongoing war of aggression and escalation of attacks against Ukraine,

4.4 million persons were benefitting from temporary protection in the EU at the end of

June 2026.Most of them continue to be hosted in Germany and Poland, which together account

for 51% of all beneficiaries in the EU. Relative to GDP and population, Czechia hosted the

highest number of temporary protection beneficiaries at the end of June 2026, followed by

Poland, Slovakia and Estonia. Ukrainians continued to arrive in the EU, not only to request

temporary protection, but also on a temporary basis for family visits or seasonal work. Between

July 2025 and June 2026, temporary protection status in the Union was granted to nearly

700 000 beneficiaries. Relative to GDP and population, Czechia granted temporary protection

status to the highest number of beneficiaries, followed by Slovakia, Poland, Bulgaria, Cyprus,

Lithuania, Latvia and Estonia. Between July 2025 and June 2026, the number of Ukrainian

nationals applying for international protection decreased by 44% compared with the previous

reporting period. Most of them applied in France and Poland.

On 16 September 2025, following a Commission proposal, the Council adopted a

Recommendation on a coordinated approach to transitioning out of temporary protection for

displaced persons from Ukraine51, including recommendations on moving to other legal

statuses. Since the adoption of this Recommendation, displaced persons from Ukraine have

been able to transition from temporary protection to other legal statuses, while more progress

is needed. Some Member States have also put in place specific pathways to dedicated national

residence permits. While the conditions in Ukraine are still not conducive to a safe and durable

return, the Commission is working on a pilot project supporting informed and voluntary return,

linked to reintegration and Ukraine’s recovery, in preparation for the eventual end of temporary

protection. On 30 July 2026, the Council adopted a Decision extending temporary protection

for people fleeing Ukraine until 4 March 202852. According to this Decision, as of 5 August

2026, temporary protection should not, in principle, be granted by the Member States to newly

49 Includes decisions at first instance and decisions in appeal or review on Geneva Convention refugee status and

subsidiary protection status. 50 The recognition rate at first instance for international protection decreased to 31%, mainly on account of there

being fewer positive decisions issued to Syrian, Afghan and Iraqi nationals. 51 Council Recommendation of 16 September 2025 on a coordinated approach to the transition out of temporary

protection for displaced persons from Ukraine (OJ C, C/2025/5129, 23.9.2025, ELI:

http://data.europa.eu/eli/C/2025/5129/oj). 52 Council Implementing Decision (EU) 2026/1912 of 30 July 2026 extending the temporary protection introduced

by Implementing Decision (EU) 2022/382 (OJ L, 2026/1912, 4.8.2026, ELI:

http://data.europa.eu/eli/dec_impl/2026/1912/oj).

15

arriving persons who are not authorised by the Ukrainian authorities to leave Ukraine in view

of their military obligations.

Figure 4A – Beneficiaries of temporary protection in the Member States

Source: JRC elaboration on Eurostat data

Figure 4B – Distribution of beneficiaries of temporary protection in EU Member States per

1 000 inhabitants

Source: JRC elaboration on Eurostat data.

Unauthorised movements within the EU53

Available data suggest that during the reporting period unauthorised movements of migrants

and applicants for international protection within the EU decreased. However, this

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

Member State June 2026

Belgium 96 180 Bulgaria 74 035 Czechia 390 810 Denmark 51 195 Germany 1 286 230 Estonia 30 405 Ireland 120 165 Greece 40 980 Spain 269 690 France 49 340 Croatia 30 000 Italy 51 105 Cyprus 26 750 Latvia 31 690 Lithuania 50 230 Luxembourg 3 835 Hungary 44 965 Malta 2 660 Netherlands 142 210 Austria 90 570 Poland 961 170 Portugal 68 310 Romania 215 300 Slovenia 11 570 Slovakia 147 320 Finland 72 240 Sweden 48 725 Total 4 407 675

16

phenomenon, as well as the deficiencies in implementing the rules determining which Member

State is responsible for the examination of an application for international protection54,

continued to pose challenges to the already strained capacities of several Member States.

Following the implementation of the new Eurodac Regulation which entered into application

on 12 June 2026, there are more granular data capturing unauthorised movements. For most of

the reporting period, however, such data were not available. Instead, the analysis relies on

indicators that give an indication by proxy of the scale and direction of these movements within

the EU55. Data from Eurodacsuggestthat unauthorised movements within the EU decreased

by around 13% in the reporting period compared with the previous one56. Even though

unauthorised movements typically took place from countries of first entry into the EU towards

Member States in the north-west, there were also circular movements of migrants going back

to the countries of first entry, in particular to Italy.In absolute terms, Greece, Germany, France,

Croatia and Italy were the main countries of departure, while Germany, Italy, France, Belgium,

and the Netherlands were the countries of destination for most unauthorised movements. The

routes with most unauthorised movements were Greece to Germany, Greece to France, Greece

to the Netherlands and Italy to France.

Data collected to monitor the functioning of Regulation (EU) No 604/201357 (decisions on

requests to transfer applicants for international protection to the country responsible for the

examination of the application) can also be used to track unauthorised movements; it should

be recalled that, as of June 2026, this Regulation has been replaced by Regulation (EU)

2024/1351. Based on the number of decisions on requests to transfer back applicants for

international protection to the country of first entry issued by the other Member States, Croatia,

Slovenia, Belgium, Luxembourg, France and the Netherlands were the countries most affected

by incoming unauthorised movements from other Member States, relative to their GDP and

population.

In the reporting period, around 13 000 transfers were implemented among Member States.

When compared with the over 58 000 decisions accepting incoming requests, this results in an

implementation rate of 22%, up from 19% in the previous reporting period.

In absolute numbers, France, Germany and the Netherlands carried out the highest number of

transfers, while Germany, Spain and France were the Member States receiving most transfers.

54 Regulation (EU) No 604/2013 of the European Parliament and of the Council of 26 June 2013 establishing the

criteria and mechanisms for determining the Member State responsible for examining an application for

international protection lodged in one of the Member States by a third-country national or a stateless person

(recast) (OJ L 180, 29.6.2013, ELI: http://data.europa.eu/eli/reg/2013/604/oj); repealed with effect from 12 June

2026 and replaced with Regulation (EU) 2024/1351 of the European Parliament and of the Council. 55 Proxy indicators include data collected to monitor the functioning of Regulation (EU) 604/2013 (‘Dublin data’)

and data stored in the Eurodac database – the EU’s fingerprint database (set up by Regulation (EU) No 603/2013)

that stores and compares fingerprints of individuals who have applied for asylum or been apprehended while

illegally crossing the external borders of the Schengen area. 56 344 532 foreign Eurodac hits were reported (when both the country of departure and the country of destination

are Member States), 13% less than in the July 2024-June 2025 period. With the new Eurodac Regulation, from

12 June 2026 there have been changes to the way fingerprints are recorded and stored in Eurodac, likely to impact

year-on-year comparison of Eurodac data. 57 Regulation (EU) No 604/2013 of the European Parliament and of the Council of 26 June 2013 establishing the

criteria and mechanisms for determining the Member State responsible for examining an application for

international protection lodged in one of the Member States by a third-country national or a stateless person

(recast), OJ L 180, 29.6.2013, https://eur-lex.europa.eu/eli/reg/2013/604/oj/eng.

17

Croatia received by far the highest number of transfers from other Member States relative to

its GDP and population. Greece and Italy received a very low number of transfers compared

with the number of positive decisions following requests from other Member States.

The new Eurodac Regulation58 will help to provide a clearer understanding of unauthorised

movements from 2027 onwards and enable authorities to determine more efficiently which

Member State is responsible for an asylum application.

Increasing the overall number and efficiency of transfers is key for the well-functioning of the

Pact, notably by ensuring that transfers towards the Member States that have not been accepting

them over the last years are fully resumed in a sustainable manner, and by establishing the

necessary operational cooperation between the Member States. In addition, addressing existing

challenges in the national reception systems is crucial to reduce incentives for unauthorised

movements, ensuring effective functioning of the system, and maintaining the balance between

responsibility and solidarity.

Reception59

Despite considerable efforts to improve the collection of data on reception, the statistics are not

yet fully comparable between Member States and remain incomplete. There is still a

fragmented picture preventing a conclusive assessment of the reception situation in the Union

and in the Member States60. Addressing the remaining gaps in the next cycle should improve

the situational picture and allow for a better assessment of the reception capacity in the Union61.

Based on the available data, Member States hosted around 1 315 000 people in their national

reception systems, mostly in Germany, Italy, France, the Netherlands and Austria. Relative to

their GDP and population, Germany, Luxembourg, Austria, the Netherlands and Ireland62 had

the highest number of persons hosted in their reception systems. Some Member States provided

58 Regulation (EU) 2024/1358 of the European Parliament and of the Council of 14 May 2024 on the establishment

of ‘Eurodac’ for the comparison of biometric data in order to effectively apply Regulations (EU) 2024/1351 and

(EU) 2024/1350 of the European Parliament and of the Council and Council Directive 2001/55/EC and to identify

illegally staying third-country nationals and stateless persons and on requests for the comparison with Eurodac

data by Member States’ law enforcement authorities and Europol for law enforcement purposes, amending

Regulations (EU) 2018/1240 and (EU) 2019/818 of the European Parliament and of the Council and repealing

Regulation (EU) No 603/2013 of the European Parliament and of the Council. According to this Regulation,

Member States will furthermore register in Eurodac additional data and information, such as new categories of

migrants, including those illegally staying in a Member State (Category 3). 59 The analysis on reception is based on EUAA data.

60 For the first two annual cycles (2026 and 2027), the Commission and EUAA set out an ‘incremental approach’

by which Member States are required to report reception data at least on two core indicators: persons in the

reception system (total number of persons in the reception system including breakdown per legal status of persons

in reception and number of unaccompanied minors); and capacity of the reception system (total beds available at

the end of the reporting period). As of 2027, Member States are to report on the whole set of reception indicators. 61 From 1 July 2026, Member States are required to report to EUAA the full set of reception indicators, which can

be found in the revised EPS Technical Guide for data exchange. 62 In Ireland, a significant proportion of international protection applicants enter the country irregularly, principally

arriving across the land border with Northern Ireland. This, alongside the significant arrivals from Ukraine, put a

strain on the Irish reception system. During the reporting period, applications for international protection in Ireland

stood at 14 000 compared with the unprecedented high numbers in the previous reporting period (18 000), this

trend has been visible since early 2022, alongside a high number of arrivals from Ukraine.

18

financial allowances as alternatives to in-kind housing63. The overall occupancy rate in the

national reception systems in the EU was around 80% at the end of June 202664.

The organisation of reception systems varies across the EU. In particular, Member States have

adopted different approaches to the accommodation of beneficiaries of temporary protection.

Some Member States also accommodate temporary protection beneficiaries in their reception

systems, together with persons with other legal statuses, such as rejected asylum applicants or

persons who have received a return order. Temporary protection beneficiaries accounted for

over 50% of the population hosted in the asylum reception systems of Finland, Sweden,

Austria, Portugal and Slovenia. At the same time, a large number of temporary protection

beneficiaries receive accommodation support outside the reception system, notably in Czechia,

Poland, Hungary and Romania. Beneficiaries of temporary protection who are provided

accommodation support outside the reception system are not counted in Member States’

reporting.

Some Member States have increased their accommodation capacity, including Portugal,

Croatia and Denmark while at the same time, other Member States, in view of the decreasing

number of applicants, have decreased their accommodation capacity, including Finland,

Austria and Bulgaria. Ensuring sufficient capacity and adequate reception conditions is a key

element of a well-prepared asylum, reception and migration system and the well-functioning

of the responsibility rules.

Resettlement and humanitarian admission65

Fourteen Member States66 made pledges under the ad hoc Union resettlement and humanitarian

admission scheme for 2024-2025 and ten Member States made pledges for 2026-202767.

Eleven of those Member States had transferred more than 7 000 persons to the EU through

resettlement or humanitarian admission during the reporting period. More than half of the

beneficiaries were transferred to France, Germany and Italy, while Finland and Sweden

resettled the highest number of beneficiaries relative to their GDP and population. Afghanistan,

the Democratic Republic of Congo, Sudan and Syria were the countries of origin of more than

two thirds of the persons who arrived through resettlement or humanitarian admission during

the reporting period.

Return68

Between July 2025 and June 2026, Member States issued 463 000 return orders to third-country

nationals with no right to stay in the EU69. This represents a decrease of 5% in return orders

issued, compared with the previous reporting period, which is also linked to the overall

decrease of the number of illegal arrivals to the Union. France, Germany and Spain issued the

most return orders in absolute terms. Relative to GDP and population, Cyprus issued by far the

63 https://emn.ie/wp-content/uploads/2026/06/2025_EMN_inform_alternatives_to_housing_in_kind.pdf. 64 At the end of June 2026, it was possible to calculate the occupancy rate for 26 Member States. 65 The analysis on resettlement and humanitarian admission is based on EUAA data. 66 Belgium, Bulgaria, Croatia, Finland, France, Germany, Ireland, Italy, Luxembourg, the Netherlands, Portugal,

Romania, Spain and Sweden. 67 Under the 2026-2027 Union Plan or under a national resettlement scheme. These Member States are Bulgaria,

Finland, France, Ireland, Italy, Malta, the Netherlands, Romania, Spain and Sweden. 68 The analysis on return is based on Eurostat data. 69 The number of return orders should be treated with caution, as some decisions may be counted twice or

suspended, and this is not reflected in the figure.

19

most return orders, followed by CroatiaandPortugal. The nationalities of third-country

nationals issued with a return order differed significantly across Member States70.

At the same time, 142 000 illegally staying third-country nationals were effectively returned to

a third country, which represents an 11% increase compared with the previous reporting

period. Over half of the returns were implemented by only five Member States: Germany,

France, Poland, Sweden, and Cyprus. Relative to GDP and population, most returns were

implemented by Cyprus, Croatia and Malta. The overall return rate during the reporting

period increased from 26% to 31%, but still remains too low, resulting in a backlog of cases

of persons with an order to leave still remaining in EU territory71. Most nationals ordered to

leave were nationals of Algeria, Morocco, Türkiye, Syria and Tunisia. The number of return

orders issued to Algerians increased by 9%. Those returned were mainly nationals of Türkiye,

Georgia, Syria, Albania, and Colombia. With the exception of Türkiye and Syria, third

countries that rank highest in terms of third-country nationals ordered to leave do not

correspond to the third countries with the highest number of implemented returns. Voluntary

returns also further increased with more than 60% of all returns being voluntary. Sustained

efforts on readmission through the Article 25a Visa Code mechanism and the Visa Suspension

Mechanism have delivered results. It remains crucial that Member States follow up return

orders with readmission requests to the relevant third countries and systematically request

emergency travel documents for persons with confirmed nationality72. Schengen evaluations

and monitoring identified progress in strengthening national return systems through gradual

modernisation73 and development of operational tools for returns in several Member States. At

the same time, additional efforts are needed on issuing return orders in a timely manner and

effectively enforcing them, streamlining the applicable procedures, implementing measures to

prevent absconding and unauthorised secondary movements and consolidating the use of the

Schengen Information System (SIS). All these improvements are particularly relevant to ensure

the effectiveness of the return border procedure. Furthermore, the efforts to enhance

readmission cooperation must increase for all nationalities, with a particular focus on the

nationalities subject to the border procedures. The entry into application of the new Return

Regulation74, the proposal for a renewed mandate of Frontex and the proposal on the

digitalisation of returns, readmission and reintegration75 will further contribute to the overall

aim to increase the efficiency of the return procedure across the EU.

70 France issued most orders to nationals of Algeria, Tunisia and Morocco; Germany to nationals of Türkiye, Syria

and Afghanistan, and Spain to nationals of Algeria, Morocco and Senegal. Cyprus issued most orders to leave to

nationals of Syria, India and the Democratic Republic of the Congo, Croatia to nationals of Türkiye, Bangladesh

and Nepal, Portugal to nationals of Brazil, India and Angola. 71 The EU-wide return rate increased to 31% during the reporting period (in the previous reporting period it was

26%). Due to the time lag between the administrative procedures related to the issuance of the return order and

the effective implementation of the return, the resulting calculation of the return rate based on such statistics for

a specific reporting period should be treated with caution. 72 According to data reported by Frontex, Member States submitted fewer requests for identification and

emergency travel documents (6%, 68 908 compared with 73 449 in the previous reporting period). 73 The Commission is working on a legislative proposal on the digitalisation of case management in the area of

return, readmission and reintegration. 74 Regulation (EU) 2026/2280 of the European Parliament and of the Council of 7 October 2026 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 of the Council, Council Directive 2001/40/EC and Council Decision

2004/191/EC, OJ L, 2026/2280, 15.10.2026 (ELI: http://data.europa.eu/eli/reg/2026/2280/oj). 75 COM (2026) 1037 final.

20

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

EU

The Commission proposal for a Solidarity Pool is intended to address the needs of Member

States identified as being under migratory pressure. In identifying those needs, the Commission

considers the main findings of this Report, including both the impact of past trends on the

Member States concerned and the projection for the coming year.

The projection suggests that, overall, illegal arrivals at EU level are expected to continue

decreasing across all the main migratory routes in 202776, in line with the downward trend

already observed in the first half of 2026. The expected decrease results, among other factors,

from strong EU engagement with key countries of origin and transit, intensified action against

migrant smuggling networks both within the EU and in third countries, the effective

implementation of the reinforced EU asylum and migration management system following the

full application of the Pact as well as the reinforced external borders protection. This is also

expected to further reduce illegal arrivals and unauthorised secondary movements in the

medium to long term, provided that no major external events occur.

Illegal arrivals along the Central Mediterranean route are projected to decrease further,

supported by continued engagement with key countries of origin and transit. Developments

along the Eastern Mediterranean route will remain dependent on the evolving situation in

the Middle East and the Gulf. While the overall downward trend observed on this route since

late 2025 might continue, recent increase in illegal arrivals from eastern Libya to Crete could

maintain through 2027. Illegal arrivals along the Atlantic route are expected to decrease

further, continuing the downward trend observed in 2025 and the first half of 2026, mainly

thanks to strengthened border management measures by countries of departure along the

Atlantic coast. The Western Mediterranean route is expected to remain broadly stable, with

numbers comparable to 2025 and the first half of 2026, supported by continued cooperation

with the third countries concerned to contain illegal crossing attempts. Along the Western

Balkans route, illegal arrivals are also expected to decrease further, supported by closer

regional cooperation and action against smuggling networks. At the Eastern Borders, attempts

by Russia and Belarus to weaponise migration are expected to continue, but reinforced border

management measures are expected to keep illegal crossings at low levels. Finally, when it

comes to IBCs on exit, the continued implementation of measures under the EU Action Plan

for the Channel migratory route and cooperation with the United Kingdom are expected to

contribute to containing and reducing departures along the Channel route.

The downward trend for applications for international protection observed in 2025 and in

the first half of 2026 is expected to continue in 2027. In addition, the application of the new

Pact rules is also expected to decrease unauthorised movements within the EU.

As regards temporary protection, Russia’s war of aggression against Ukraine will likely

continue to generate protection needs for persons fleeing Ukraine in 2027. New registrations

for temporary protection will persist at levels dependent on the overall situation in the country.

76 As the data for the full year 2026 is not available at the time of the adoption of this Report, the 2025 data are

used as the most recent and complete annual reference point to contextualise the projection for the coming year

2027. The trend observed in 2026, however, has been fully taken into account in the analysis.

21

The comprehensive approach to migration should be coupled with sustained investments in

strengthening preparedness and contingency planning in the Member States and in the EU

as an important component of awell-prepared asylum, reception and migration system. Efforts

in this area are ongoing. Obligations oncontingency planning are embedded into EU

legislation77. Almost all Member States have national contingency plans for reception and

asylum in place78 and three Member States79 have reviewed their plans following exchanges

and feedback provided by the EUAA. Most of the contingency plans are broadly aligned with

the EUAA’s template and obligations within Directive (EU) 2024/1346 and they also integrate

interlinkages with other contingency or crisis management frameworks. In connection with the

regular review of the contingency plans80, areas to be further strengthened include the

identification of pressure scenarios and related response measures, as well as of the necessary

operational arrangements to ensure such measures can be activated in a timely manner if

needed. The results of the vulnerability assessment conducted by Frontex for 2025 show that

all Member States report having relevant contingency plans in place for border management,

although some gaps exist, as underscored by Schengen evaluations. Some Member States face

issues related to the content of the plans and lack of relevant procedures, such as developing

the contingency plans based on comprehensive risk assessments and scenarios.

The 2026 State of Schengen Report81 emphasised in particular the need to ensure that national

contingency plans provide for the use of European support, where relevant, as well as

coordination with Frontex and neighbouring Member States. Despite the requirement set out

in Article 9(3) of Regulation (EU) 2019/1896, most Schengen Member States still need to fully

integrate return operations based on risk analyses in their contingency plans.

Regular testing and updating of the contingency plans and prompt activation of the plans, when

necessary, are key to remaining prepared for and responding effectively to any sudden increases

in migratory flows. Equally, at EU level, the Commission and the EU agencies will continue

providing financial and operational support to Member States facing such situations. Learning

from the incident in Ceuta this summer, the Union and its Member States should develop more

capacity to better prevent, anticipate and respond to such events, as put forward by the 5-point

plan proposed by the Commission on 29 September 2026. The plan introduces measures aiming

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

migration management, amending Regulations (EU) 2021/1147 and (EU) 2021/1060 and repealing Regulation.

(EU) No 604/2013; Directive (EU) 2024/1346 of the European Parliament and of the Council of 14 May 2024

laying down standards for the reception of applicants for international protection; Regulation (EU) 2024/1359 of

the European Parliament and of the Council of 14 May 2024 addressing situations of crisis and force majeure in

the field of migration and asylum and amending Regulation (EU) 2021/1147 (OJ L, 2024/1359, 22.5.2024,

ELI: http://data.europa.eu/eli/reg/2024/1359/oj); Regulation (EU) 2019/1896 of the European Parliament and of

the Council of 13 November 2019 on the European Border and Coast Guard and repealing Regulations (EU)

No 1052/2013 and (EU) 2016/1624 (OJ L 295, 14.11.2019, pp. 1–131,

ELI: http://data.europa.eu/eli/reg/2019/1896/oj); Regulation (EU) 2021/2303 of the European Parliament and of

the Council of 15 December 2021 on the European Union Agency for Asylum and repealing Regulation (EU)

No 439/2010 (OJ L 468, 30.12.2021, pp. 1–54, ELI: http://data.europa.eu/eli/reg/2021/2303/oj). 78 Except Hungary. 79 Cyprus, Estonia, the Netherlands. 80 The contingency plans on asylum and reception should be reviewed when needed due to changed circumstances

and at least every three years, Article 32 of Directive (EU) 2024/1346 of the European Parliament and of the

Council of 14 May 2024 laying down standards for the reception of applicants for international protection. 81 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 2026 State of Schengen Report,

COM (2026) 150 final, 18 May 2026.

22

at increasing cooperation with partner countries to prevent illegal migration, strengthening

further EU external borders, improving monitoring, situational awareness and early warning

systems, dismantling migrant smuggling and trafficking networks and increasing returns.

In addition, it will also require improving existing tools, including the EU Migration

Preparedness and Crisis Blueprint Network, which plays a key role in providing a common

situational picture and early warning and forecasting in support of better preparedness. The

Network hosts a dedicated subgroup on contingency planning to help Member States prepare

for situations of increased migratory pressure. In addition, the Blueprint Network has initiated

work to further consolidate and integrate new sources of information, while producing regular

forecasting products as well as setting up early warning systems, in line with President von der

Leyen’s State of the Union address 2026.

III. Assessment of the overall migratory situation, migratory pressure, risk of

migratory pressure or significant migratory situation

Despite the overall improvement in the migration and asylum situation in the Union, some

Member States remain under migratory pressure, within the meaning of Regulation (EU)

2024/1351, as they face disproportionate obligations in the context of the overall situation in

the EU. The solidarity mechanism aims at addressing these disproportionate obligations for

the Member States concerned.

Every year, the Commission is required to determine whether there are Member States under

migratory pressure, at risk of migratory pressure, or facing a significant migratory situation.

While all Member States are required to pledge their preferred solidarity contribution, the

Member States considered by the Commission as being under migratory pressure have access

to the Solidarity Pool and, once they decide to access it, are not obliged to implement their

pledged solidarity contribution. Member States facing a significant migratory situation are

entitled to receive, upon their request and following the assessment of the Commission, by the

decision of the Council, a full or partial deduction of their solidarity contributions. Member

States at risk of migratory pressure can benefit from priority access to the Permanent EU

Migration Support Toolbox.

To ensure fair sharing of responsibility and solidarity, Member States need to cooperate among

themselves and with the Commission to ensure an effective and efficient distribution and

operationalisation of the solidarity contributions of the Annual Solidarity Pool, in a balanced

and timely manner. The operationalisation should be based on the needs of the benefitting

Member States, as identified and communicated to the Commission, and on the solidarity

contributions available. This ensures that the operationalisation of the Annual Solidarity Pool

is tailor-made to the needs of the Member States under pressure, is flexible to swiftly adapt to

the evolving nature of the migratory challenges and takes into due account the pledges as well

as the migratory situation of the contributing Member States. The type and amount of the

pledged solidarity contributions should be taken into due account when distributing the

Solidarity Pool to the Member States under migratory pressure.

Based on the information presented in this Report, the Commission has assessed and

determined which Member States faced disproportionate obligations, taking into account the

overall migratory situation in the Union. At the same time, the Commission is proposing to the

23

Council the total number of solidarity contributions for the Solidarity Pool at Union level for

2027 necessary to address the migratory situation in a balanced and effective manner.

Member States under migratory pressure

Considering the situational overview outlined in this Report for the reference period from July

2025 to June 2026 and the methodology, the Commission Decision determined that, when all

the relevant quantitative and qualitative data and information are aggregated and assessed in

relation to the overall situation in the Union, Greece and Cyprus are under migratory pressure.

In addition, the Commission Decision determined that Italy is under migratory pressure

because of a large number of arrivals due to recurring disembarkations following search and

rescue (‘SAR’) operations, that are of such a scale that they create disproportionate obligations

in relation to the overall situation in the Union on even a well-prepared asylum, reception and

migration system of the Member State concerned. Furthermore, following the request by Spain

to take into account developments outside the reporting period, a possibility foreseen by Article

9(1) of Regulation (EU) 2024/1351, and notably the incident that took place on 30-31 July

2026 leading to large-scale illegal arrivals to the autonomous city of Ceuta, the assessment also

concludes that Spain is under migratory pressure.

While trends continue decreasing compared to the previous 12-month period, Greece faced

disproportionate obligations in relation to the overall situation in the Union, in particular due

to the number of illegal border crossings, applications for international protection and a high

number of positive decisions. Although illegal border crossings decreased by 23%, the country

recorded the highest number of illegal border crossings relative to its Gross Domestic Product

(GDP) and population and recorded a significant increase in arrivals following SAR operations.

Furthermore, while the applications for international protection registered in Greece decreased

by 19% compared to the previous reporting period, Greece continued receiving the highest

number of applications for international protection relative to its GDP and population. More

than half of all arrivals to Greece along the Eastern Mediterranean route were recorded in Crete.

Spain continued being particularly exposed to the fluctuations of illegal arrivals along the

Western Mediterranean and Atlantic routes during the reporting period. Spain accounted for

approximately 20% of all illegal border crossings at Union level and is the third Member State

in terms of arrivals due to search and rescue operations. While applications for international

protection decreased by 22%, Spain was the third highest receiver of such applications relative

to GDP and population in the Union and the fourth in absolute numbers. Spain is also among

the Member States with most temporary protection registrations ranking fourth in the Union in

absolute numbers. When the relevant quantitative and qualitative data and information are

considered and assessed in relation to the overall situation in the Union for the reporting period

from 1 July 2025 to 30 June 2026, Spain would be at risk of migratory pressure. However,

following the incident that took place on 30-31 July 2026 leading to large-scale illegal arrivals

to the autonomous city of Ceuta, Spain requested the Commission to take these developments

into account in the context of the current Annual Migration Management Cycle. After assessing

the quantitative and qualitative data and information in relation to the reporting period and,

pursuant to Article 9(1) of Regulation (EU) 2024/1351, the additional data and information

transmitted by the Spanish authorities in relation to the incident that took place on 30-31 July

2026 leading to large-scale illegal arrivals to the autonomous city of Ceuta, it is concluded that

Spain faced disproportionate obligations in relation to the overall situation in the Union.

24

The migration and asylum situation in Cyprus improved compared to the previous reporting

period, but it still faced disproportionate obligations in relation to the overall situation in the

Union, in particular due to registrations for temporary protection, illegal border crossings,

applications for international protection and a strained return system. Despite illegal border

crossings continued to decrease, by 34% compared to the previous reporting period, the number

of arrivals, relative to its GDP and population, put a strain on the asylum and migration system

of Cyprus. Cyprus was in relative terms the second highest receiver of applications for

international protection in the period under analysis.

During the reporting period from 1 July 2025 to 30 June 2026, a high number of persons were

disembarked in Italy following SAR operations. Although the total number of persons

disembarked in Italy decreased by 33% compared to the previous reporting period, the share

and absolute number of arrivals due to recurring disembarkations following SAR operations

were of such a scale that they created disproportionate obligations on Italy compared to the

overall situation in the Union. Italy accounted for 42% of the total number of persons

disembarked in the Union.

It should be recalled that, in order to ensure the balance between solidarity and fair sharing of

responsibility and to safeguard the functioning of Regulation (EU) 2024/1351, Article 60(3)

of that Regulation establishes that contributing Member States are not required to implement

their solidarity pledges towards a benefitting Member State where the Commission has

identified systemic shortcomings in that benefitting Member State with regard to the

responsibility rules set out in Part III of Regulation (EU) 2024/1351 that could result in serious

negative consequences for the functioning of that Regulation.

For that purpose, Article 4 of Commission Implementing Decision (EU) 2025/2323 asks the

Commission to assess by 12 July 2026 and again by 15 October 2026 whether the practices

referred to in that Implementing Decision with regard to Regulation (EU) 604/2013 have not

been remedied and thereby constitute systemic shortcomings that could result in serious

negative consequences for the functioning of Regulation (EU) 2024/1351, in which case Article

60(3), fourth subparagraph, of that Regulation applies. The Commission presented its first

assessment in July 202682.

In that first assessment, the Commission concluded that the measures taken by Greece,

including their active engagement and cooperation with other Member States, constituted

positive indications of progress and demonstrated Greece’s readiness to ensure the effective

and correct implementation of Part III of Regulation (EU) 2024/1351. However, the

Commission considered that it was too early to conclude whether the practices previously

identified had been fully remedied. Based on the information provided by Member States since

12 June 2026, the progress observed in the Commission’s assessment of July 2026 has been

further consolidated. Effective cooperation between Greece and all Member States has been

established. Greece has continued providing positive replies to take-charge requests and take-

back notifications. The change in the practices observed in the application of Regulation (EU)

No 604/2013 has led to the first successful transfers to Greece. The Commission should

continue monitoring the progress made by Greece towards the continuous and sustained

effective implementation of Part III of Regulation (EU) 2024/1351.

82 COM(2026) 387 final.

25

In that same first assessment, the Commission concluded that, following the entry into

application of Regulation (EU) 2024/1351, Italy has made significant efforts to prepare for the

implementation of Part III of Regulation (EU) 2024/1351 while observing that responsibility

transfers had not yet resumed and that further efforts were necessary to remove the remaining

impediments to ensure that transfers are effectively carried out.

Based on the information provided by the Member States between 12 June and 30 September

2026, transfers requested by other Member States continued to be rejected by the Italian

authorities and operational cooperation to facilitate the transfer of persons for whom requests

and notifications have been accepted or confirmed by Italy in accordance with Article 40 and

Article 41 of Regulation (EU) 2024/1351 need to be further developed. Furthermore, according

to information received, there have been cases in which the Italian authorities returned persons

to the transferring Member States, despite Italy having been determined as the Member State

responsible. Italy has also modified the default locations for transfers, which according to

Italian authorities was needed for internal organisational reasons and with a view to ensure a

better management of the large migration caseload Italy is confronted with, including

preventing the risk of absconding.

At the same time, some positive developments have been observed as Italy took steps to

establish bilateral contacts with the Member States with the biggest caseload under Regulation

(EU) 2024/1351 towards Italy, which have resulted in a limited number of transfers, in addition

to transfers of unaccompanied minors for the purpose of family reunification. In addition, Italy

adopted a new administrative letter on 29 October 2026 which specifies that Italy has resumed

transfers since 12 June 2026, subject to a case-by-case assessment of whether the relevant

conditions are effectively met.

Despite these new encouraging developments, at the time of adoption of this Report, it is not

possible to determine whether the transfers of persons for whom Italy is responsible in

accordance with Regulation (EU) 2024/1351 have been effectively and sustainably resumed.

To that end, close and continuous monitoring will be necessary for determining so. To that end,

Italy should continue taking determined steps to address the existing shortcomings. In

particular, it should ensure that the administrative letter of 29 October 2026 is implemented

fully line with Regulation (EU) 2024/1351 and establish effective and sustainable operational

cooperation with all Member States, in particular regarding the implementation of Chapter V

of Commission Implementing Regulation (EU) 2025/2055. In this context, it is important that

the forms submitted to Italy in accordance with that Implementing Regulation are processed

effectively and the necessary practical and logistical information is provided accordingly. As

part of this cooperation, Italy should ensure that the default locations for transfers allow for

effective transfers by other Member States without undue operational obstacles. At the same

time, Italy should actively communicate about the preferred modalities for transfers and close

cooperation between the Member States of transfer and Italy should be ensured with a view to

reducing the use of default locations.

For the purpose of the monitoring, Italy will regularly report to the Commission on the

measures taken to remedy the identified practices and the Commission will consult the Member

States and inform the Technical-Level EU Solidarity Forum accordingly. Meanwhile, the

solidarity contributions to the benefit of Italy should be operationalised pursuant to Article 60

of Regulation (EU) 2024/1351 only after the Commission has informed the Technical-level EU

26

Solidarity Forum of the outcomes of the monitoring. On that basis, and provided positive

progress is observed, the Technical-Level EU Solidarity Forum should operationalise the share

of the Solidarity Pool allocated to Italy accordingly. If the monitoring shows that the practices

previously observed are not being effectively remedied, the Commission should bring the

matter to the attention of the High-Level Solidarity Forum for discussion; in case the situation

persists, the Commission should bring the matter to the attention of the Council accordingly.

Where on the basis of the information obtained as well as the monitoring, and at the latest in

the context of the 2027 Report, the Commission establishes that the identified practices have

not been remedied and their continued existence thereby constitutes systemic shortcomings

that could result in serious negative consequences for the functioning of Regulation (EU)

2024/1351, Article 60(3) fourth subparagraph of that Regulation applies.

Member States at risk of migratory pressure

Based on the findings of this Report and the methodology, having considered all the relevant

quantitative and qualitative data and information and having assessed them in relation to the

overall situation in the Union, the Decision also determined Croatia, Czechia, Germany,

France, the Netherlands, Belgium, Luxembourg, Slovenia, Ireland, Romania, Estonia,

Latvia, Lithuania, Poland and Finland have been identified as at risk of migratory pressure.

Croatia, as a Member State of first entry into the Union, continued being particularly exposed

to the fluctuations of illegal arrivals via the Western Balkans and Eastern Mediterranean routes.

Significant increase of illegal arrivals during the year could lead the Croatian migration and

asylum system, already strained, to be affected by disproportionate obligations. During the

reporting period from 1 July 2025 to 30 June 2026, Croatia was impacted by illegal border

crossings and refusals of entry, registering 78% of all arrivals along the Western Balkans route,

the second highest number of illegal border crossing at Union level relative to GDP and

population, and accounting for the highest number of refusals of entry in the Union in relative

terms. Furthermore, Croatia received the highest number of transfers in accordance with

Regulation (EU) 604/2013 in relative terms. In parallel, Croatia also received the highest

number of decisions relative to its GDP and population on requests submitted by Croatia to

other Member States to take the responsibility for persons who have reached Croatia in

unauthorised manner and whose applications should be examined by another Member State in

accordance with Regulation (EU) 604/2013. In addition, Croatia recorded an increase of 109%

in absolute numbers regarding the number of decisions received in reply to such requests

submitted to other Member States compared to the previous reporting period.

The continued scale of temporary protection registrations placed sustained pressure on the

national reception system of Czechia. During the reporting period from 1 July 2025 to 30 June

2026, the country registered the highest number of registrations for temporary protection in the

Union relative to GDP and population – at a level significantly exceeding the levels recorded

by other Member States.

A number of Member States recorded high numbers of unauthorised movements of applicants

for international protection within the Union, which put particular pressure on their asylum,

migration and reception systems. The challenges associated with such unauthorised movements

are addressed by acknowledging the possibility of applying responsibility offsets to these cases

27

as part of the solidarity contributions, in line with Regulation (EU) 2024/1351 and Council

implementing decision establishing the Annual Solidarity Pool for 202683.

Germany registered a significant decrease, by almost 56%, in outgoing take back requests and

take charge requests related to irregular entry and stay submitted to other Member States for

persons who have reached Germany in an unauthorised manner (19 782 compared with 45 419

in the previous reporting period) Despite that decrease, Germany received the second highest

number of decisions on such requests among all Member States in absolute numbers.

Furthermore, while Germany registered almost 20% decrease in received applications of

international protection compared to the previous reporting period, it continued to receive the

highest number of applications in the Union in absolute terms during the reporting period,

which impacted its asylum and reception systems. This was further compounded by the hosting

of the highest number of temporary protection beneficiaries in the Union in absolute terms and

a very high share of applications for international protection in the last ten years.

France also received a very high number of unauthorised movements of applicants for

international protection compared to other Member States and faced illegal border crossings at

exit towards the United Kingdom, which impacted its national asylum and reception systems.

France received the second highest number of applications in absolute numbers and sixth in

relative terms, although the number of applications for international protection decreased by

8% compared to the previous reporting period.

Belgium, Luxembourg and the Netherlands were also impacted by unauthorised movements

of applicants for international protection, which put a strain on their reception systems; relative

to the GDP and population, they ranked respectively eight, seventh and eleventh among

Member States. Slovenia was also impacted by a significant number of unauthorised

movements which impacted its national asylum and reception systems; it registered the highest

number of decisions received on take-back requests sent during the reporting period in relative

terms compared to its GDP and population. Ireland has also experienced a sustained high

number of applications for international protection in relative terms, and a significant

proportion of applicants enter the country illegally principally arriving across the land border

of the United Kingdom. This, together with the significant number of persons benefitting from

temporary protection in Ireland, had an impact on its national asylum and reception system.

Ranking fifth among Member States in temporary protection registrations, Romania faces

growing challenges with its reception capacity, which could intensify with further arrivals

driven by Russia’s ongoing war against Ukraine.

Actions by Russia and Belarus continued to influence migratory dynamics, especially in

Estonia, Latvia, Lithuania, Poland and Finland. All of them had introduced various border

and migration management measures in response to continued state-sponsored attempts to

weaponise migration and to maintain public order and security. The risk of weaponisation of

migration remains a serious challenge, adding to occasional violent incidents and attempts to

cross the border illegally.

The Member States at risk of migratory pressure will have priority access to the Permanent EU

Migration Support Toolbox. At the same time, should the situation in these Member States

83 Council Implementing Decision (EU) 2025/2642 of 22 December 2025 on the establishment of the Annual

Solidarity Pool for 2026, OJ L, 2025/2642, 23.12.2025.

28

deteriorate, the Commission will be ready, in line with Regulation (EU) 2024/1351, to re-

evaluate their situation in an expedited manner.

Member States facing a significant migratory situation

Based on the Report and the methodology, the Commission Decision also determined that

Bulgaria, Czechia, Estonia, Croatia, Austria, and Poland are facing a significant migratory

situation, due to the cumulative effect of the quantitative and qualitative data and information

aggregated and assessed during the last five-year period (1 July 2021 to 30 June 2026).

In Bulgaria, for the last five years, relative to the share of GDP and population, notably the

inflow of registrations for temporary protection since 2022, together with a relative high

number of international protection applications, put a strain on its system, in particular as

Bulgaria issued a significant number of positive decisions on applications for international

protection, as well as of rejections of applications for international protection, which created

a high burden on its return system.

When assessing the situation in Croatia over the previous five years, and in relation to the

overall situation in the Union, the strain on its return system relative to its share of GDP and

population, in addition to the obligations at its external border, had a major impact on its

migration and border management capacities. Croatia issued in relative terms a large number

of refusals of entry and has experienced a sustained relative high number of illegal border

crossings due to migrant smuggling activities in the region.

Following Russia’s ongoing war of aggression and escalation of attacks against Ukraine, 4.4

million persons are benefitting from temporary protection in the Union as of 30 June 2026.

Since the beginning of the war, Poland and Czechia have recorded among the highest number

of temporary protection registrations in the Union relative to their GDP and population. This

has put a significant strain on the migration, asylum and border management systems of those

Member States over the last years since 2022 and created integration challenges. Estonia has

recorded a high number of temporary protection registrations relative to its GDP and population

combined with a relative significant number of applications for international protection that

resulted in a high number of positive decisions in the last five years.

During the five-year period 1 July 2021 to 30 June 2026, Austria received high numbers of

applications for international protection (242 100). While between 1 July 2025 and 30 June

2026 this number has decreased, compared to the previous reporting period, the overall number

of applications for international protection, and the resulting number of positive decisions, over

the five-year period has had a cumulative effect on the capacity of the migration, reception and

asylum systems in Austria.

These Member States will have the possibility to request from the Council a full or partial

deduction of their solidarity contributions for the upcoming year.

Although Portugal, Malta, Slovakia, Sweden and Hungary do not fall under any category

based on the methodology applied for this report, they also face specific situations that should

be acknowledged. Relative to the GDP and the population combined, Portugal had the second-

highest number of hits on return alerts as country of destination. Relative to the GDP and the

population combined, Malta reported the second highest number of third-country nationals

illegally staying. Slovakia ranked second in granting temporary protection and hosting

29

beneficiaries of temporary protection relative to its GDP and population combined. In the

context of EU resettlement and humanitarian admission efforts, Sweden ranked second relative

to the GDP and the population combined. Hungary registered low numbers of IBCs during the

reporting period, further decreasing compared to the previous 12 months.

The Commission and the EU Agencies will continue supporting all Member States in

addressing the particular challenges they face as well as in managing migration and asylum

effectively and sustainably.

IV. Conclusion

This year’s Report confirms that our common European approach to asylum, migration and

border management delivers substantial and consistent results. It also shows that the EU and

the Member States are better prepared and equipped to manage migration and asylum. At the

same time, challenges remain: the events over the summer show that our Union’s resilience

will continue to be tested, as will our ability to closely cooperate to manage migration and

protect our borders, upholding the integrity of the Schengen area.

To remain successful, we must continue to act together. The Member States must put all efforts

into implementing all the components of the Pact and address all remaining challenges,

including the full application of the responsibility rules and transfers. Together with solidarity,

this is key for the well-functioning of the system. The Commission, together with the EU

agencies, will continue supporting Member States in implementing the Pact and tackling

emerging challenges. The experience gained with the implementation of the new asylum and

migration rules during the first months will be key for the review planned for 2027 and to

identify whether targeted adjustments may be necessary, while preserving the overall balance

and structure of the Pact.

At the same time, effective migration management starts well beyond our borders. The

Commission will therefore continue pursuing a robust and assertive migration diplomacy,

building partnerships with both countries of origin and transit, based on shared interests, mutual

responsibility and tangible results. For this, the Commission will continue the work to bring

together all available instruments and leverage across migration, trade, development,

investments, visa and mobility, backed by adequate financial resources.

As in the previous cycle, following the publication of this Report, the Commission Decision

and the Commission proposal for a Council implementing Decision establishing the Annual

Solidarity Pool, the Council should convene, within 15 days, the High-Level EU Solidarity

Forum in view of agreeing on the size of the Solidarity Pool and on how each Member State

will contribute. The Commission stands ready to support the Council throughout this process.

The EU Solidarity Coordinator will then convene the Technical-Level EU Solidarity Forum to

operationalise the Solidarity Pool for 2027 and to monitor its implementation.