Luxembourg, 14 October 2025
EU migration policy
Ministers of home affairs discussed a proposal on the establishment of a common system for the return of third-country nationals staying illegally in the EU. The proposed legislation, which is currently being examined at expert level, includes a number of novel elements that should make the returns swifter, including among other things obligations for returnees to cooperate with national authorities and stricter rules for return of those posing a security threat.
Ministers agreed that more effective EU-wide procedures are instrumental in speeding up returns and in increasing actual returns of migrants illegally staying in the EU.
Ministers in particular discussed the mandatory mutual recognition of return decisions issued by other member states. Mutual recognition means that member states recognise and enforce a return decision issued by another EU country. A number of member states highlighted the fact that mutual recognition would be a strong signal that illegally staying migrants cannot circumvent a return decision by moving to another EU country. Other member states pointed to the need for flexibility in applying mutual recognition, noting that different legal, practical and operational issues may make it faster and more effective to issue a national return decision in some cases.
Across the EU we are currently only returning a small share of the third-country nationals illegally staying here. I believe this is a completely unacceptable situation. And it threatens not only the security of our Union, but also the social cohesion and the credibility of the European institutions in the eyes of the European citizens. That is why we are working on new rules that make returns more efficient and numerous.
Rasmus Stoklund, Minister for Immigration and Integration of Denmark
During their working lunch ministers discussed the external dimension of migration and in particular returns to Syria – voluntary returns of Syrians who have been issued a return decision as well as forced returns of Syrians posing a security risk and convicted criminals. Ministers shared their experience on their contacts with the Syrian authorities on migration.
Civil protection and health preparedness
Ministers held a debate on a draft legislation to reform the Union Civil Protection Mechanism (UCPM) and to integrate Union support to Health Emergency Preparedness and Response. The proposal, which covers EU financial support and cooperation for civil protection as well as health emergency preparedness, sets aside EUR 10.7 billion for the financing of this regulation under the next multi-annual EU budget.
Ministers discussed among other things the proposed changes to the civil protection mechanism itself – such as enhancing the joint disaster and crises response capacities – as well as the proposed Crisis Coordination Hub and strengthened civil-military EU-level cooperation.
The UCPM is the EU’s tool to coordinate the response to natural and man-made disasters. When a country (European or not) is hit by a disaster it can request emergency assistance from the UCPM.
Europe is facing disasters and crises of unprecedented scale and complexity. Enhancing our preparedness and resilience is a key task both at national and EU level.
Torsten Schack Pedersen, Minister for Resilience and Preparedness of Denmark
Schengen
As is usual for a meeting of interior ministers, the Council took stock of the overall state of the Schengen area. The Commission presented the Schengen Barometer – addressing key challenges and developments within the Schengen area.
The Council discussed the future of the European Border and Coast Guard Agency, Frontex. The European Commission is planning to present a proposal to review the European Border and Coast Guard regulation in 2026. Today’s debate gave input to this announced revision. For member states, the starting point when it comes to revising the legislation underpinning Frontex are their operational needs. They also want the focus of a forthcoming revision to remain on the agency’s core functions relating to external borders and return. Also, cooperation with third countries, for instance on returns, is a key issue.
Ministers received a state of play regarding the development of the EU’s border management and law enforcement IT infrastructure. A key feature of this IT environment, the Entry/Exit System (EES), entered into force on 12 October 2025. The EES registers entry, exit and refusal of entry of third-country nationals who cross the EU’s external borders for a short-term stay.
At the Council meeting the presidency highlighted the importance of delivering the new Eurodac, a fingerprint database for registering asylum seekers, and ETIAS, a travel authorisation system for travellers from visa-free countries, in the course of 2026. The Council will revert to the roll-out of the remaining elements of the common border and security IT architecture, such as an updated Visa Information System, beyond 2026 at a forthcoming Council meeting.
- The Schengen area explained (background information)
- IT systems to fight crime and secure EU borders (background information)
Internal security
The presidency provided a short update on the work undertaken in Council preparatory bodies to discuss, coordinate and monitor the implementation of the roadmap for lawful and effective access to data for law enforcement. This roadmap was presented by the Commission in June 2025.
In this context the Commission gave a state of play of the preparation of a technology roadmap on encryption which is expected to be finalised in 2026. The purpose of this technology roadmap is to identify and assess technological solutions that can enable law enforcement authorities to lawfully access encrypted data in criminal cases, while fully safeguarding cybersecurity and fundamental rights.
Law enforcement authorities must have the necessary tools, including adequate access to data to combat and prosecute crime effectively. This applies to both online offences and serious crime planned or carried out by organised criminals using modern technology and digital infrastructure. We must make sure that existing loopholes are closed.
Peter Hummelgaard, Danish Minister of Justice
- Fighting crime (background information)
- Council conclusions on access to data for effective law enforcement, 12 December 2024
- European Council conclusions, 26 June 2025
- Commission presents Roadmap for effective and lawful access to data for law enforcement (European Commission)
At a working breakfast, ministers discussed the longer-term challenges that the situation in the Middle East, in particular Gaza, may pose to the EU’s internal security.
Other business
As was the case during the meeting of justice ministers, the European Commission presented its first annual progress report on simplification, implementation and enforcement.
The presidency and the European Commission also gave an update about the state of play of the implementation of the Pact on Migration and Asylum. They also informed about the upcoming proposals and process that will lead to the establishment, before the end of the year, of the first annual solidarity pool (the new mechanism that will lead to a fairer sharing of responsibility in the asylum area).
Czechia provided information on the Salzburg Forum Ministerial Conference which took place in Valtice in September 2025.
In view of recent violations of the European airspace by drones, potentially for espionage and sabotage against critical infrastructure, Germany raised the challenges this development entails at national and European level.
Preparatory documents
- List of A items, non-legislative activities
- List of A items, legislative deliberations
- Provisional list of A items
- Provisional agenda
- Background brief
Outcome documents
Source – EU Council