Asylum

Asylum, migration and borders

The increase in migration has presented opportunities and challenges across Europe. FRA encourages rights-compliant responses.

We provide practical expertise on this complex issue. This includes regular updates, focus papers and toolkits. We also outline policy alternatives and best practices.

Highlights

  • Handbook / Guide / Manual
    8
    October
    2025
    The Entry/Exit System (EES), launching in 2025, will register non-EU nationals crossing the EU’s external borders. This FRA guidance helps border guards apply the new rules in line with EU fundamental rights. It offers practical tips on informing people, collecting biometric data and supporting people with specific needs. Based on fieldwork at 10 border crossing points in 6 Member States, the guidance will ensure rights are respected under the new system. A separate guidance publication for managers accompanies this publication.
  • Opinion / Position Paper
    23
    July
    2025
    This position paper examines how the EU can counter the instrumentalisation of migrants while also upholding fundamental rights. Instrumentalisation refers to countries outside the EU using migration to exert political pressure. This position paper defines the phenomenon, provides examples, and outlines legal obligations under EU law. It provides legal analysis and warns that some responses risk undermining fundamental rights at the EU’s external borders, including the right to asylum. To counter instrumentalisation and uphold fundamental rights, the position paper proposes practical measures for Member States to take, such as sanctions, border controls, and cooperation with private operators.
  • Periodic updates / Series
    20
    June
    2025
    The EU Agency for Fundamental Rights regularly collects data on the operations of NGO vessels involved in search and rescue in the Mediterranean. This includes any legal proceedings against them, as well as any difficulties in disembarking migrants in safe ports. This paper provides an overview of criminal investigations and other legal proceedings initiated by European Union (EU) Member States against civil society organisations deploying search and rescue vessels and aircraft in the Mediterranean and/or against individual crew members. The latest update covers the period from 2018 up until 1 June 2025.
  • Page
    This page describes the activities of the EU Agency for Fundamental Rights (FRA) on migration and asylum. It also explains how these activities can help the European Union (EU) and its Member States to implement the Pact on Migration and Asylum in a fundamental rights-compliant manner.
    Publications and data
    31
    January
    2024
    Children’s rights exist to ensure the safety and wellbeing of every child. Improved child protection systems ensure that these rights are met. In recent years, the EU has taken significant steps to improve child protection systems. This mapping of child protection systems gives an overview of the state of such systems at national level and developments since 2015. It promotes the improvement of integrated child protection systems. It is an update of FRA’s mapping of child protection systems in 2015, based on data collected in 2023 in the 27 EU Member States. By publishing this, FRA aims to support securing the sustainable well-being, safety and rights of all children living in the EU.
    18
    December
    2023
    Council of Europe (CoE) and European Union (EU) Member States have an undeniable sovereign right to control the entry of non-nationals into their territory. While carrying out border control, states have a duty to protect fundamental rights of all people under their jurisdiction, regardless of their nationality, status, or age. Children as a category
    of vulnerable persons with special needs require heightened protection.
    12
    December
    2023
    Russia’s invasion of Ukraine forced millions of people to flee. Arriving in EU countries, they received protection in EU law under the Temporary Protection Directive. Many have begun to build a new life in their host country and enrich our societies in new ways. Local authorities took the lead in ensuring access to fundamental rights under temporary protection. This report explores the measures to ensure access to housing, education, employment and healthcare in 26 cities and regional authorities across 12 EU Member States. Despite unprecedented coordination and cooperation to overcome challenges, many uncertainties remain. Longer-term solutions will be needed after the directive expires in March 2025. Based on the information collected, the report identifies 12 priority actions and builds on FRA’s bulletins and survey findings on experiences of people displaced from Ukraine.
    22
    November
    2023
    FRA publishes annual updates on the forced return monitoring systems that EU Member States have set up under Article 8 (6) of the EU’s Return Directive (2008/115/EC). This latest update covers the period until the end of 2022.
    31
    October
    2023
    Fundamental rights are an important consideration in European border management. Virtually all activities can have an impact on rights – from risk analysis to training, border checks and border surveillance. Safeguards in laws regulating European border management aim to protect rights. This report is a contribution to the first review of the European Border and Coast Guard Regulation (EU) 2019/1896 that offers an opportunity to reflect on how best to improve the fundamental rights situation at the external borders of the EU.
    20
    October
    2023
    FRA’s strategic priorities and objectives are based on the agency’s role and mission as defined in its amended founding regulation. They build on FRA’s 2018–2022 strategy as well as how it performed, its experience and its vision. Their design takes into account future fundamental rights challenges facing Europe, the agency’s mandate, the broader operational context and the resources available.
    12
    October
    2023
    This tool introduces newly appointed guardians to the concept of international protection, possible forms of protection recognised through the asylum procedure, the relevant legal framework and the related rights of the child. It is part of a series of four practical tools for guardians of unaccompanied children with international protection needs. The objective is to support guardians in their daily tasks and responsibilities during the asylum procedure, including the procedure under the Regulation (EU) No 604/2013 (Dublin III regulation) and temporary protection. The tools have been developed by the European Union Agency for Asylum (EUAA) and the European Union Agency for Fundamental Rights (FRA).
    12
    October
    2023
    This booklet aims to support guardians assigned to children in the asylum procedure. It includes an overview of the asylum procedure with a specific focus on children, the guarantees in the asylum procedure and your role as a guardian in the different phases of the asylum process. There is also a section on what to do if something unexpected may happen, or if the age of the applicant is disputed. It is part of a series of four practical tools for guardians of unaccompanied children with international protection needs. The objective is to support guardians in their daily tasks and responsibilities during the asylum procedure, including the procedure under the Regulation (EU) No 604/2013 (Dublin III regulation) and temporary protection. The tools have been developed by the European Union Agency for Asylum (EUAA) and the European Union Agency for Fundamental Rights (FRA).
    11
    October
    2023
    Since October 2018, FRA has been publishing regular updates on NGO ships involved in search and rescue (SAR) operations in the Mediterranean, and the status of legal proceedings against them. This latest update covers until the end of June 2023.
    29
    September
    2023
    Russia’s invasion of Ukraine posed new challenges for the EU. Millions were forced to flee the war. As a result of the scale of people’s displacement, the EU activated for the first time the Temporary Protection Directive (TPD). More than 1.3 million children sought international protection in the EU. This bulletin explores the respect, protection and fulfilment of the fundamental rights of displaced children and ways to safeguard their rights. The third in a series, this bulletin builds on the evidence in FRA’s Bulletin #1 and #2 on the experiences of displaced people seeking safety in the EU.
    6
    September
    2023
    Integration and social inclusion are important aspects of EU migration and asylum policy. The fundamental rights of long-term residents in the EU are explored through this report, focussing on the Long-Term Residence Directive. EU long-term resident status includes rights to move and reside in other EU Member States. This report examines the reasons behind the low uptake of EU long-term resident permits, despite them typically giving more rights than national long-term resident permits.
    Report / Paper / Summary
    6
    July
    2023
    Following yet another recent tragic shipwreck and loss of life in the Mediterranean, this short report sets out examples of actions the EU could take to meet its obligations to protect the right to life and prevent more deaths at sea. As part of the work that the EU Agency for Fundamental Rights (FRA) does on upholding fundamental rights in asylum and return procedures, this report calls for better protection for shipwreck survivors, and prompt and independent investigations. It sets out measures that EU Member States should take to improve search and rescue efforts and provide legal pathways to safety to prevent deaths at sea.
    14
    June
    2023
    In responding to Russia’s war against Ukraine, the EU activated its Temporary Protection Directive (TPD) for people who fled the country, allowing them to settle in the EU and to access basic public services and the labour market. By spring 2023, more than 4.5 million people had made use of the TPD or similar national protection schemes in the EU. In 2022, the European Union Agency for Fundamental Rights conducted an online survey among people displaced from Ukraine. Eurofound has analysed the survey results on their experiences when seeking to access employment. This paper highlights the main barriers that displaced people encountered and suggests ways to facilitate their inclusion.
    8
    June
    2023
    Russia’s unprovoked war of aggression against Ukraine has resulted in massive internal and external population displacement. The European Union (EU) rapidly activated its Temporary Protection Directive for the first time since it was adopted in 2001. This entitled nearly 4 million people to legal residence and access to work, housing and legal assistance, education and healthcare.
    8
    June
    2023
    FRA’s Fundamental Rights Report 2023 reviews major developments in the field in 2022, identifying both achievements and areas of concern. It also presents FRA’s opinions on these developments, including a synopsis of the evidence supporting these opinions.
    8
    June
    2023
    The year 2022 brought both progress and setbacks in terms of fundamental rights protection. FRA’s Fundamental Rights Report 2023 reviews major developments in the field, identifying both achievements and remaining areas of concern. This publication presents FRA’s opinions on the main developments in the thematic areas covered, and a synopsis of the evidence supporting these opinions.
    30
    May
    2023
    Over the span of nearly eight years, there have been developments in showing respect for the human rights of those who arrive at the EU’s borders. Russia’s war of aggression against Ukraine has shown how a large and sudden influx of people can be managed effectively and respectfully. Notwithstanding the improvements, the growing number of people crossing or attempting to enter the EU pose a wide range of fundamental rights challenges.

    In this bulletin, FRA takes stock of concerns and improvements regarding the fundamental rights of migrants, asylum seekers and refugees. It highlights the EU Member States’ legal and practical responses. It identifies key trends, promising practices, long-standing and emerging patterns, and persistent concerns.
    1
    March
    2023
    This manual is designed to help institutions, organisations and individuals to train guardians of unaccompanied children or to deliver ‘train-the-trainers’ courses. It can be used in a range of training contexts, such as professional and academic training, on-the-job training and continuing training. The manual is based on human and fundamental rights principles and ethical standards and recognises that the child and the guardian have their own personal stories, resources and capacities. It enhances guardians’ confidence to promote the child’s rights and best interests. It also enhances their confidence to act independently and impartially in relation to different state
    officials, service providers and other community members.
    28
    February
    2023
    12 new language versions available
    17 December 2024
    Russia’s military aggression against Ukraine triggered scenes not seen in Europe for decades. It has since caused death, immense destruction, and unspeakable suffering. It also set in motion a mass movement of people not seen since World War II. To protect them, the EU activated the Temporary Protection Directive for the first time. In doing so, all EU Member States must offer protection to those displaced from Ukraine.
    2
    February
    2023
    Many cities throughout the European Union hosted people fleeing Russia’s war of aggression against Ukraine. The EU currently faces the largest displacement of people in Europe since World War II. Since February 2022, over seven million people came to the EU. The arrival of such large numbers of people thrust cities and local governments to the forefront of the EU and its Member States’ relief work. This short publication provides a snapshot of cities’ initiatives to address this humanitarian crisis.
    For the past two years, FRA has been visiting reception centres for migrants across the EU.
    This infographic illustrates the main experiences immigrants and ethnic minorities across the EU have when it comes to discrimination. It draws from the findings from FRA's EU-MIDIS II survey.
    This infographic illustrates the main experiences immigrants and ethnic minorities across the EU have when it comes to victimisation. It draws from the findings from FRA's EU-MIDIS II survey.
    This infographic illustrates the main experiences immigrants and ethnic minorities across the EU have when it comes to inclusion. It draws from the findings from FRA's EU-MIDIS II survey.
    The Agency, in close cooperation with the Maltese Presidency of the EU Council, held a high-level symposium where the fundamental rights issues that are currently high on the EU’s political agenda were discussed.
    Listen to what children say about the situation of people, particularly children, residing in the European Union, who needed to flee from their home country or left their country of birth for any other reason and what they suggest to implement change.
    Miltos Pavlou, Senior Programme Manager at the EU Agency for Fundamental Rights, talks about the participation of migrants and their descendants in the EU.
    This infographic illustrates some of the main issues when it comes to integrating migrants and their descendants in the EU.
    The Agency’s Director, Michael O’Flaherty, took part in a meeting of the European Parliament’s Committee on Civil Liberties, Justice and Home Affairs (LIBE) on 9 February.
    The Agency’s Director, Michael O’Flaherty, took part in a meeting of the European Parliament Employment Committee on 8 November.
    The Agency shared its view on protecting child rights in the Dublin Procedure, particularly for unaccompanied children at a hearing organised by the European Parliament’s Civil Liberties, Justice and Home Affairs Committee in Brussels on 10 October.
    The Fundamental Rights Forum (FRF) is organised by the EU Agency for Fundamental Rights (FRA) in cooperation with various partners. Refugee Protection is one of the three themes for the FRF which will take place in Vienna from 20-23 June 2016.
    This infographic outlines FRA's work along a simplified version of the EU migration flow. Each item is hyperlinked so you can find out more on each topic.
    This video message by UN Special Rapporteur Francois Crépeau was produced for the Fundamental Rights Conference 2014 (FRC) on Migration.
    This video message by UN High Commissioner Prince Zeid Ra'ad Al Hussein was produced for the Fundamental Rights Conference 2014 (FRC) on Migration.
    This video introduces the topics of the Fundamental Rights Conference 2011.
    FRA supported training of the European Travel Information and Authorisation System (ETIAS) national units at the Europol premises in The Hague between 4 and 6 November.
    On 4 November, FRA took part in a meeting of the European Platform tackling undeclared work devoted to third-country national workers. The platform brings together Member State representatives, mostly labour inspectorate and related enforcement authorities.
    The European Guardianship Network met in Copenhagen 23 and 24 October to discuss the challenges and implementation of the Pact on Migration and Asylum in the area of guardianship for unaccompanied children.
    FRA spoke during the Academy of European Law (ERA) annual conference on European asylum and migration law. It gave a presentation on how to enhance compliance with fundamental rights under the EU Pact on Migration and Asylum.
    FRA attended the General Assembly of the EU Asylum Agency’s Consultative Forum on 15 October. The Forum also had a session with the EUAA Fundamental Rights Officer.
    FRA provided fundamental rights input to the EU Asylum Agency’s (EUAA) conference on key elements of legal assistance and information sharing in the context of the EU Pact on Migration and Asylum. The event focused on the pivotal role of accessible legal aid and transparent information-sharing arrangements in the asylum context to ensure the fair and effective implementation of the Pact.
    On 7 October, FRA contributed to a panel discussion on instrumentalisation of migrants along the EU’s Eastern border. It was organised as part of the Senior Officials’ Meeting of the Prague Process.
    On 3 October, the Danish Presidency of the Council of the EU, together with the Danish Institute for Human Rights, held a seminar on safeguarding human rights in migration management in EU policy.
    FRA, in cooperation with the UN Refugee Agency and the Frontex Fundamental Rights Office, raised awareness on monitoring obligations and effective investigations regarding allegations of fundamental rights breaches at the EU’s external borders.
    FRA took part in a meeting of the ETIAS Fundamental Rights Guidance Board. The European Travel Information and Authorisation System (ETIAS) is the new travel authorisation for visa-exempt travellers to enter 30 European countries.
    To promote lawful and effective use of the new EU Entry/Exit System (EES) for registering non-EU nationals at external borders, national authorities must implement effective data protection safeguards, provide accurate and accessible information to non-EU nationals, and treat them with dignity and respect. The latest guides from the EU Agency for Fundamental Rights (FRA) will support authorities in implementing the EES in full respect of fundamental rights.
    The EU Agency for Fundamental Rights (FRA) and the European Labour Authority (ELA) have jointly launched a new practical guide to help workplace inspectors to identify and address labour exploitation. The guide will also help workers to claim and enjoy their rights across the European Union.
    FRA attended a meeting organised by the European Commission with EU Member States and relevant EU agencies to discuss the European Annual Asylum and Migration Report. This report is an important element of the European annual asylum and migration cycle, as established under the EU Pact for Migration and Asylum. 
    On 24 September, FRA attended a European Parliament Shadow meeting on the proposed Return Regulation.
    FRA took part in the launch of the Migrant Integration Policy Index (MIPEX) 2025 results. The index is about enabling participation and inclusive policy in the area of migrant integration in the EU.
    FRA has organised a webinar on its migration and asylum work which took place on 18 September.
    FRA took part in the European Law Enforcement Communicators Conference (ELEC), hosted by Europol on 17–18 September 2025.
    On 9 September, FRA gave online training on fundamental rights in connection with the use of biometrics at an event on vulnerabilities in automated border crossings at Rome Fiumicino airport.
    Allegations of ill-treatment and abuse against migrants and refugees at EU borders continue. Even though more incidents are now raised with judicial authorities, there have been no structural changes to improve the effectiveness of national investigations, finds the latest update from the European Union Agency for Fundamental Rights (FRA). The findings underline the need to ensure more effective investigations of rights violations at borders.
    Some non-EU countries increasingly use migrants and refugees to put pressure on the EU and its external borders. As EU countries react by building fences and restricting asylum procedures, a new position paper from the EU Agency for Fundamental Rights (FRA) underlines how countries can deal with such pressures in a legal and legitimate way. It highlights that the EU must respond by punishing the actors responsible for instrumentalisation, rather than migrants and refugees who are often unaware that they are being used.
    On 18 January, FRA will speak about the fundamental rights implications of the large-scale EU IT systems used in migration.
    The Frontex Consultative Forum on Fundamental Rights meeting will take place on 20 October.
    FRA will present its study on role of the Employers Sanctions Directive on protecting irregular migrants from labour exploitation to the European Parliament.
    The European Guardianship Network will discuss on 22 June the training materials for guardians that FRA and its contractor Defence for Children International Italy are developing. The draft manual targets trainers of guardians. The content covers ten modules.
    FRA will speak to law enforcement officers about data quality in EU migration and security IT systems.