Commission Implementing Decision (EU) 2025/503 of 18 March 2025 laying down rules for the application of Regulation (EU) 2024/1351 of the European Parliament and of the Council, as regards the template to be used by Member States to ensure that their national asylum and migration management strategies are comparable on specific core elements

ANNEXTEMPLATE TO BE USED BY MEMBER STATES TO ENSURE THAT THEIR NATIONAL ASYLUM AND MIGRATION MANAGEMENT STRATEGIES ARE COMPARABLE ON SPECIFIC CORE ELEMENTS
ANNEX
TEMPLATE TO BE USED BY MEMBER STATES TO ENSURE THAT THEIR NATIONAL ASYLUM AND MIGRATION MANAGEMENT STRATEGIES ARE COMPARABLE ON SPECIFIC CORE ELEMENTS
1.    NATIONAL ASYLUM AND MIGRATION MANAGEMENT CONTEXT
Provide detailed summary of the current national asylum and migration situation, based, inter alia, on the results of risk analyses and assessments of the operational situation. Provide key elements of a strategic outlook, highlighting possible existing and future migratory risks, challenges, needs and opportunities taking into account Member States’ specific situation, in particular their geographical locations.
2.    STRATEGIC OBJECTIVES AND KEY MEASURES IN THE FIELD OF ASYLUM AND MIGRATION MANAGEMENT
Establish under each of the following areas the strategic policy objectives and related key measures to effectively implement your asylum and migration management system, in accordance with the principle of solidarity and fair sharing of responsibility, the principle of integrated policy making and in full compliance with Union and international law and on the basis of full respect of fundamental rights. While designing these objectives, consider all identified current and future challenges, needs and opportunities for each heading. When describing the measures, consider which of them are relevant for achieving your current and future strategic objectives in the area concerned over the next five years. Include information on how the results of the monitoring undertaken by the EU Asylum Agency (EUAA) and the European Border and Coast Guard Agency (Frontex), as well as how other relevant evaluations and monitoring results
( 1 )
are being taken into account. In addition, include, as necessary, references to other strategies and plans, including the national Strategy for Integrated Border Management and other relevant national contingency plans, in order to ensure synergies, consistency and complementarity.
2.1.    Effective management of the asylum and migration system aiming at the reduction of migratory pressure on the basis of the comprehensive approach
2.1.1.
External dimension elements:
Considering your national context and geographic location and identified current and future challenges, as well as identified needs, describe how the strategic policy objectives will address the relevant migratory routes, in full compliance with Union and international law and in full respect for fundamental rights.
Describe which of the following key elements and measures are relevant for achieving your current and future strategic objectives in this area. In addition, include any other measures that you consider the most relevant for achieving the strategic objectives.
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How to best promote and build tailor-made and mutually beneficial partnerships with third countries of origin and transit and how to foster cooperation with relevant third countries at bilateral, regional and multilateral level, including on effective return.
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How to promote legal migration and legal pathways for third country nationals in need of international protection as well as for those otherwise admitted to legally reside in the Member State, including, where relevant, participation in EU Talent Partnership  ( 2 ) and in the Union Resettlement Framework  ( 3 ) .
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Other measures that could facilitate your strategic objectives in this area, such as: measures to support third countries that host large numbers of migrants and refugees, measures to support third countries’ operational capacities in migration, asylum and border management in full respect of human rights, measures to address root causes of irregular migration and forced displacement and to prevent and reduce irregular migration to the territories of the Member States, while ensuring the right to apply for international protection, measures to prevent and combat migrant smuggling and measures countering trafficking in human beings, while reducing the vulnerabilities caused by them, and to protect the rights of smuggled and trafficked human beings. Consider measures to address the root causes and drivers of irregular migration and forced displacement.
2.1.2.
Internal dimension elements:
Considering your national context and geographic location and identified current and future challenges, as well as identified needs, describe the strategic policy objectives aiming notably to reduce incentives for and to prevent absconding and unauthorised movements of third country nationals or stateless persons between Member States.
Describe which of the following key elements and measures are relevant for achieving your current and future strategic objectives in this area. In addition, include any other measures that you consider the most relevant for achieving the strategic objectives.
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How to best ensure the correct and expeditious application of the rules on the determination of the Member State responsible for examining an application for international protection, and where necessary, carry out the transfer to the Member State responsible. Furthermore, indicate measures aiming at an effective implementation of the take-back-and take-charge procedures, measures limiting abuses of the national asylum system, including through absconding and unauthorised movements, and how the results of the monitoring carried out in accordance with Article 14 of Regulation (EU) 2021/2303 of the European Parliament and of the Council  ( 4 ) have been or will be taken into account, as relevant.
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Measures to fight exploitation and reduce illegal employment, in accordance with Directive 2009/52/EC of the European Parliament and of the Council  ( 5 ) , including measures to ensure the correct application of sanctions and to effectively prevent the exploitation of migrants in the labour market.
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Regarding the effective management of return, describe your strategic policy approach ensuring effective management of the return of illegally staying third country nationals, including their effective and dignified return, in accordance with Directive 2008/115/EC of the European Parliament and of the Council  ( 6 ) .
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Other measures that could facilitate your strategic objectives in the area of return management, such as: establishing cooperation between relevant actors and authorities, strategic planning of capacities, using relevant Frontex tools or developing reintegration support measures. Moreover, consider how the results of the monitoring undertaken by the EUAA and Frontex and the evaluation carried out in accordance with Regulation (EU) 2022/922  ( 7 ) are being or will be taken into account, as relevant.
2.1.3.
Measures to provide effective support to other Member States:
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Describe your strategic approach to ensure the Member State capacity to provide effective support to other Member States in the form of solidarity contributions and under the Permanent EU Migration Support Toolbox referred to in Article 6(3) of Regulation (EU) 2024/1351 of the European Parliament and of the Council  ( 8 ) .
2.2.    Effective management of the EU external borders
Considering your national context and geographic location and identified current and future challenges, as well as identified needs, describe the strategic policy objectives to ensure an effective integrated management of the external borders.
Describe which of the following key elements and measures are relevant for achieving your current and future strategic objectives in this area. In addition, include any other measures that you consider the most relevant for achieving the strategic objectives.
2.2.1.
Effective management of the EU external borders and access to international protection:
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How to achieve a high level of complementarity between this strategy and the national strategy for European Integrated Border Management as set out in Article 3 of Regulation (EU) 2019/1896 of the European Parliament and of the Council  ( 9 ) . If relevant, consider measures ensuring full respect for the obligations laid down in international and Union law with regard to persons rescued at sea.
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How to ensure full implementation of the common visa policy at national level, including how to best organise the appropriate migration and security checks ahead of timely issuance of visa and how to prevent abuse of visa free schemes.
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How the main results of the monitoring undertaken by the EUAA and Frontex, and the evaluation carried out in accordance with Regulation (EU) 2022/922 of the European Parliament and of the Council as well as of the monitoring carried out in accordance with Article 10 of Regulation (EU) 2024/1356 of the European Parliament and of the Council  ( 10 ) are being or will be taken into account, as relevant.
2.2.2.
Effective access to international protection at the EU external borders:
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How to best ensure timely and effective access to a fair and efficient procedure for international protection at the EU external borders, transit zones and the territorial seas.
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In relation to the need for a continuous and effective implementation of the border procedure set out in Regulations (EU) 2024/1348  ( 11 ) and (EU) 2024/1349 of the European Parliament and of the Council  ( 12 ) in the future, describe any relevant measures that will ensure, among other, its correct application at the borders and will preserve the right of asylum. Moreover, consider and describe how to best streamline the asylum and return procedure in case of a rejection of the application for international protection, including at the stage of the judicial review.
2.3.    A fair asylum and integration system
Considering your national context and geographic location and identified current and future challenges, as well as already identified needs, describe the strategic policy objectives ensuring that the asylum management system provides an effective access to the international protection procedure that provides applicants with an adequate standard of living and grants international protection to applicants who are in need, ensuring their adequate integration.
Describe which of the following key elements and measures are relevant for achieving your current and future strategic objectives in this area. In addition, include any other measures that you consider the most relevant for achieving the strategic objectives.
2.3.1.
Ensuring timely and effective access to fair and efficient asylum procedures in the territory of a Member State:
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Your strategic approach to ensure, at administrative and judicial level (courts and tribunals), in full respect of the principle of judicial independence, high quality and consistency of the administrative and judicial decision-making processes in timely manner in the Member State, including through measures aiming at convergence of asylum decisions and reducing the risk of abuse of the national asylum system.
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Measures aiming at strategic planning, ensuring necessary capacities at administrative and judicial level (courts and tribunals), in full respect of the principle of judicial independence, to correctly comply with the obligations laid down in Regulation (EU) 2024/1348 and (EU) 2024/1347 of the European Parliament and of the Council  ( 13 ) , regarding access to procedure and review of applications for international protection.
2.3.2.
Procedural safeguards and fundamental rights:
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How the strategic policy approach, accompanied by relevant key measures ensuring respect for fundamental rights and safeguards, including those enshrined in the Charter of Fundamental Rights of the EU, including procedural safeguards and conditions of detention, is ensured, and monitored with due regard to national, Union and international case law. Take into account specific needs of unaccompanied minors and vulnerable applicants.
2.3.3.
A robust reception system:
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Your strategic approach to best ensure that the reception system has the capacity to provide access for applicants to adequate reception conditions in accordance with Directive (EU) 2024/1346 of the European Parliament and of the Council  ( 14 ) .
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Other measures that could facilitate your strategic objectives in this area, such as: measures to ensure a sustainable, resilient and adequate reception system, measures to ensure the monitoring of adequate reception conditions (and basic needs, if applicable), measures to reduce the risk of abuses of the reception system, measures to cater for specific needs of unaccompanied minors and vulnerable persons; add measures related to integration, in accordance with Directive (EU) 2024/1346 of the European Parliament and of the Council.
2.3.4.
Creating conditions for a successful and early integration:
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Your strategic approach to ensure successful integration of beneficiaries of international protection and beneficiaries of other national protection schemes, including the respect of the rights under Regulation (EU) 2024/1347 (education, including language courses, employment, healthcare, housing, social security and social assistance).
2.4.    Preparedness and contingency planning
Consider how, in relation to the current and future identified challenges, as well as identified needs, contingency planning and preparedness for crises are embedded in the strategic approach to asylum and migration.
Consider and describe key elements and measures that are relevant for achieving your current and future strategic objectives in this area. Consider that Regulation (EU) 2024/1351 and (EU) 2024/1359 of the European Parliament and of the Council
( 15 )
stipulate that the elements listed below are to be covered in the strategy. In addition, include any other measures that you consider the most relevant for achieving the strategic objectives.
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How to best ensure that the obligations in Regulation (EU) 2024/1359, Regulation (EU) 2019/1896, Directive (EU) 2024/1346 and Regulation (EU) 2021/2303 of the European Parliament and of the Council are taken into account and reflected when implementing the national strategy.
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How to achieve, on a strategic level, and based on continuous analysis of emerging challenges and possible future risks, the relevance of your contingency plans on asylum and migration, while also ensuring the obligations laid down in Directive (EU) 2024/1346 of the European Parliament and of the Council are met. Moreover, consider how to ensure that the national strategy is consistent with and strategically complements other relevant national contingency and preparedness strategies, such as in the area of security.
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How to make use of reports issued by the Commission within the framework of the Migration Preparedness and Crisis Blueprint  ( 16 ) , so that they support your contingency planning needs.
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How to ensure that your national system is equipped with necessary measures to prepare for, respond to and resolve exceptional situations of mass arrivals of third-country nationals or stateless persons in your Member State by land, air or sea, including of persons that have been disembarked, where relevant. Including through measures to protect the fundamental rights of applicants and beneficiaries of international protection and of other forms of protection.
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How to ensure that your national system is equipped with necessary measures providing for overall readiness to prepare for, respond to and resolve situations of instrumentalisation in the field of migration and asylum, where a third country or a hostile non-state actor encourages or facilitates the movement of third-country nationals or stateless persons to the external borders or to your Member State, with the aim of destabilising the Union or a Member State, and where such actions are liable to put at risk essential functions of a Member State, including measures to protect the fundamental rights of applicants and beneficiaries of international protection and other forms of protection.
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How to ensure that your national system is equipped with necessary measures to prepare for, respond to and resolve situations of force majeure , including measures to protect the rights of applicants and beneficiaries of international protection and other forms of protection.
2.5.    Delivering on the integrated approach – measures to implement the principle of integrated policymaking
Consider how the implementation of the principle of integrated policy making on the basis of a comprehensive approach to the asylum and migration management policies is ensured and further developed on a strategical level, including the consistency between the internal and external components of those policies and the necessity for close inter-institutional collaboration at national level.
Consider and describe which of the following key elements and measures are relevant for achieving your current and future strategic objectives in this area. In addition, include any other measures that you consider the most relevant for achieving the strategic objectives.
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How to best set up institutional arrangements for migration and asylum governance based on the comprehensive approach to migration and asylum management at the national level, including coordination structures between various government departments (relevant ministries and agencies) to deliver on the internal and external components of the comprehensive approach to migration and asylum and their mutual coherence.
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How to ensure effective arrangements aiming at efficient coordination and cooperation between the government and the judiciary (courts and tribunals), in full respect of the principle of judicial independence, and between different State levels (national, regional, local), as appropriate and in accordance with national law.
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How other stakeholders, including international and non-governmental organisations, economic and social partners and migration organisations, can be meaningfully involved.
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How the overall cooperation with other Member States is ensured (including exchange of information required under Union law) and how the consistency with the actions by other Member States and Union institutions is ensured.
2.6.    Ensuring sufficient capacity and capability for an effective implementation of the national strategy
Considering the identified current and future challenges, as well as identified needs, describe your strategic policy objectives to ensure sufficient human resources, material and financial capacity to implement the different components of the strategy.
Describe which of the following key elements and measures are relevant for achieving your current and future strategic objectives in this area. In addition, include any other measures that you consider the most relevant for achieving the strategic objectives.
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How the availability of the necessary human, material and financial resources and infrastructure to effectively implement this strategy is best ensured, considering that the strategy will be implemented over a period of five years.
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How modern digital data management and communication tools are used for an effective asylum and migration management system at national level, including the large-scale IT systems and tools of the Union, managed by eu-LISA.
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How the available operational support tools set up at Union level are or could be used for an effective asylum and migration management system, such as those provided by the EUAA and Frontex or the Permanent EU Migration Support Toolbox.
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How to best ensure that available financial support by the Union can efficiently contribute to support the implementation of the strategy, while complementing national funds, and to ensure effective functioning of the asylum and migration management system.
( 1 )   The evaluation carried out in accordance with Regulation (EU) 2022/922 as well as of the monitoring carried out in accordance with Article 10 of Regulation (EU) 2024/1356.
( 2 )   Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions on Attracting skills and talent to the EU COM(2022) 657 final (ELI: https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX:52022DC0657 ).
( 3 )   Regulation (EU) 2024/1350 of the European Parliament and of the Council of 14 May 2024 establishing a Union Resettlement and Humanitarian Admission Framework, and amending Regulation (EU) 2021/1147 ( OJ L, 2024/1350, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1350/oj ).
( 4 )   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, p. 1 ELI: http://data.europa.eu/eli/reg/2021/2303/oj ).
( 5 )   Directive 2009/52/EC of the European Parliament and of the Council of 18 June 2009 providing for minimum standards on sanctions and measures against employers of illegally staying third-country nationals ( OJ L 168, 30.6.2009, p. 24 , ELI: http://data.europa.eu/eli/dir/2009/52/oj ).
( 6 )   Directive 2008/115/EC of the European Parliament and of the Council of 16 December 2008 on common standards and procedures in Member States for returning illegally staying third-country nationals ( OJ L 348, 24.12.2008, p. 98 , ELI: http://data.europa.eu/eli/dir/2008/115/oj ).
( 7 )   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 , and repealing Regulation (EU) No 1053/2013 ( OJ L 160, 15.6.2022, p. 1 , ELI: http://data.europa.eu/eli/reg/2022/922/oj ).
( 8 )   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 ).
( 9 )   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, p. 1 , ELI: http://data.europa.eu/eli/reg/2019/1896/oj ).
( 10 )   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 ( OJ L, 2024/1356, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1356/oj ).
( 11 )   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 ).
( 12 )   Regulation (EU) 2024/1349 of the European Parliament and of the Council of 14 May 2024 establishing a return border procedure, and amending Regulation (EU) 2021/1148 ( OJ L, 2024/1349, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1349/oj ).
( 13 )   Regulation (EU) 2024/1347 of the European Parliament and of the Council of 14 May 2024 on standards for the qualification of third-country nationals or stateless persons as beneficiaries of international protection, for a uniform status for refugees or for persons eligible for subsidiary protection and for the content of the protection granted, amending Council Directive 2003/109/EC and repealing Directive 2011/95/EU of the European Parliament and of the Council ( OJ L, 2024/1347, 22.5.2024, ELI: http://data.europa.eu/eli/reg/2024/1347/oj ).
( 14 )   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 ( OJ L, 2024/1346, 22.5.2024, ELI: http://data.europa.eu/eli/dir/2024/1346/oj ).
( 15 )   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 ).
( 16 )   Commission Recommendation (EU) 2020/1366 of 23 September 2020 on an EU mechanism for preparedness and management of crises related to migration (Migration Preparedness and Crisis Blueprint) (
OJ L 317, 1.10.2020, p. 26 , ELI: http://data.europa.eu/eli/reco/2020/1366/oj ).
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