The Justice and Home Affairs (JHA) Council is made up of the justice and interior ministers of EU member states. It has responsibility for approving negotiating positions and legislation related to the EU's Area of Freedom, Security and Justice. It is one of the EU's two official co-legislators, alongside the European Parliament. The JHA Council, like other Council configurations, also adopts conclusions. These can be considered a form of "soft law": they are not legally binding on EU member states, but are used to signal political agreement on an issue and can enable (and legitimate) cooperation between two or more member states.
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"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.
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.
"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 Informal Meeting of European Ministers of Justice and Home Affairs will be held on 22-23 July 2025 in Copenhagen. The meeting day on 22 July will be dedicated to home affairs and 23 July will be dedicated to justice affairs.
The Danish EU Presidency is hosting an informal meeting of justice and home affairs ministers and is honored to invite representatives from EU member states and institutions responsible for EU cooperation on border control, immigration, asylum, civil law, police and criminal justice for this meeting.
Additionally, the Schengen-associated countries and relevant EU institutions and agencies will be invited to the informal ministerial meeting of EU justice and home affairs ministers.
"Temporary protection for Ukrainian refugees"
The Council reached a political agreement on extending temporary protection for people displaced from Ukraine by a further year until March 2027. The final adoption of the decision will happen in the coming weeks.
The EU activated the temporary protection mechanism for refugees from Ukraine in March 2022. This mechanism, based on an EU law adopted in 2021, was established to deal with exceptional circumstances of mass influx. Temporary protection for people displaced from Ukraine has already been extended three times and would have expired in March 2026.
Ministers also discussed a Council recommendation to prepare for a coordinated transition out of temporary protection. The recommendation will address matters such as switching to other residence statuses, paving the way for a gradual return to Ukraine and stepping up the provision of information about available options.
"IT infrastructure for border management and law enforcement"
Ministers were updated on the development of the EU’s border management and law enforcement IT infrastructure.
The presidency briefed ministers on how things stand with the Entry/Exit System (EES), with a particular focus on its phased rollout. On 19 May the Council and the European Parliament agreed to allow member states to progressively start operation of the EES. According to the roadmap, which the Council endorsed in March 2025, this phased approach should start in October 2025.
The EES will register entry, exit and refusal of entry of non-EU nationals who cross the EU’s external borders for a short-term stay. The new system will capture facial images and fingerprints of those crossing the border for the first time and record this information in a digital file.
"Schengen"
40 years after the signing of the Schengen agreement on 14 June 1985, ministers approved a Schengen declaration. With the declaration, the Council renews its commitment to the Schengen area and underlines the importance of Schengen for European cooperation and integration.
Ministers also exchanged views on the priorities for the Schengen area for the next 12 months. The priority areas and operational actions endorsed by the Council for the period 2025-2026 are:
-accelerating the digitalisation of procedures and systems and enhancing the preparedness of large-scale IT systems
-strengthening the resilience of external borders and the effectiveness of returns
-increasing internal security while striving for free movement in an area without internal border controls
"Migration"
With regard to migration, during their working lunch, ministers focused on returns, in particular on increasing readmission cooperation with non-EU countries. By leveraging its visa policy the EU has been able to improve readmission cooperation with a number of countries of origin.
The Commission also presented the state of play in the implementation of the common European asylum system (CEAS). This year the Commission will for the first time formally assess the migration situation in member states. This will trigger the process of member states pledging solidarity contributions.
When discussing the external dimension of migration, ministers also touched upon the situation in Libya and its consequences for migratory flows towards Europe.
"Internal security"
The Council exchanged views on the European internal security strategy, ProtectEU, on the basis of the Commission communication presented on 1 April this year. Member states broadly welcomed ProtectEU as an important contribution to strengthening the EU’s internal security. They supported the broad vision presented by the Commission – combining a focus on security with preparedness – and agreed on the importance of boosting cooperation with non-EU countries.
Ministers also discussed the topic of access to data for law enforcement – an important element of ProtectEU – and in particular concrete short-term measures that could be implemented to facilitate access to data and support law enforcement’s efforts to fight crime. Many member states asked the Commission to urgently present its announced roadmap on access to data. This roadmap is expected to set out legal and practical measures to ensure lawful and effective access to data.
Ministers also discussed the impact of the current geopolitical environment on the EU’s internal security, with a special focus on Ukraine, Moldova and Syria. Deputy Prime Minister of Ukraine – Minister of National Unity of Ukraine as well as Minister of Interior of Moldova participated in these discussions.
"EU border management"
At their meeting today, home affairs ministers agreed on a joint position (general approach) on a regulation allowing for the progressive start of operations of the Entry/Exit System, an IT system for registering the entry and exit into the Schengen area of non-EU nationals who are travelling to the EU for a short stay. This law will make it possible for member states to start the EES progressively during a six month transition period before fully launching the new system.
Once members of the European Parliament (EP) reached their position, the Council and EP can start negotiations to settle on the final law.
Ministers also approved a revised roadmap for the roll-out of the so-called interoperability architecture, an interconnected system of IT tools used for border management and law enforcement. According to the roadmap, which was adopted by the management board of eu-LISA, the EU agency in charge of building the IT infrastructure, the EES will start in a progressive manner in October 2025. The revised Eurodac, an EU biometric database that assists with the identification of asylum seekers, will enter into operation in June 2026. And the European Travel and Authorisation System (ETIAS) finally will be launched in the last quarter of 2026.
"Migration"
Ministers examined the impact of the regime change in Syria on migration. They, on the one hand, discussed how member states can assist those Syrians who express a firm wish to go home. On the other hand, ministers addressed the enforcement of return decisions for Syrian nationals who pose a security threat or are convicted criminals.
As regards the voluntary returns, many member states expressed their support for go-and-see-visits which would allow Syrians living in the EU to assess the situation in their home country on the ground without losing their protection status. Several ministers supported also the establishment of an EU framework for such visits.
There was also broad agreement that solutions should be found to return Syrian nationals who pose a security threat or are convicted criminals.
According to UNHCR, as of February 2025 over 12 million Syrians remain forcibly displaced. 7,4 million Syrians are internally displaced including some 650 000 newly displaced Syrians since 8 December 2024. 4,7 million Syrians have sought refuge outside Syria mainly in neighbouring countries. Around 1,2 million Syrians are benefitting from refugee status or subsidiary protection in the EU and another 130.000 applied for asylum and are waiting for a decision.
"Schengen"
Ministers exchanged views on the implementation of the priorities of the Schengen Council cycle and in particular how to increase the effectiveness of return systems. Ministers addressed challenges such as a lack of resources, a lack of cooperation by countries of origin and transit and the insufficient use by member states of information exchange tools (e.g. SIS) . They also debated how the EU can support member states in addressing them.
The Council also adopted a decision setting out recommendations based on the 2024 thematic Schengen evaluation on returns. These recommendations propose solutions to address the main bottlenecks identified in the thematic evaluations, focusing on the key stage of the return process. They emphasise the importance of adequate and proactive planning of resources, efficient coordination and coherence of actors and procedures at both national and European levels.
The Commission presented the Schengen Barometer, a situational update on the state of the Schengen area.
"Other business"
The Commission gave an overview of the state of play of the implementation process of the Pact on Migration and Asylum. The Pact entered into force more than 9 months ago and will become applicable in less than 16 months.
On the first day, Home Affairs Ministers will discuss strengthening EU security in the areas of migration and civil protection and the prevention of organised crime.
"Combating migrant smuggling"
The Council reached a general approach (member states position) on a proposed directive which lays down minimum rules to prevent migrant smuggling. The law would replace the current EU legal framework which dates back to 2002. The objective of the proposal is to bring member states criminal law on issues such as the definition and sanctioning of migrant smuggling closer together.
In 2023, approximately 380 000 irregular border crossings were detected at the EU's external borders. Europol estimates that more than 90% of irregular migrants who reach the EU make use of the services of smugglers.
"Entry/Exit System (EES) and interoperability between EU law enforcement IT systems"
The Commission and eu-LISA (the EU agency overseeing IT systems in the area of security and justice) briefed ministers on the way forward for starting EES operations. The Commission provided information about its proposal, published on 4 December 2024, for a progressive entry into operation.
Member states supported the presidency’s proposal on the need to draw up a new roadmap which will minimise the expected consequences.
The EES is an automated IT system for registering non-EU nationals who are travelling to the EU for a short stay. Under the new system, border officers will scan the fingerprints or take a photo of those crossing the border for the first time. This information will be recorded in a digital file.
The EES is part of a wider range of crime-fighting and border security IT systems that the EU is due to deploy in the next few years. These include the ETIAS travel authorisation system – a system that will check the security, migration and health risks posed by non-EU nationals who do not need a visa to enter the Schengen area.
"Asylum and migration"
The Commission gave an update on the implementation of the migration and asylum reforms, a set of EU laws that was adopted in May of this year. Member states and the Commission are currently taking preparatory steps for these laws to apply from June 2026. On the basis of guidelines from the Commission, member states have prepared national implementation plans setting out the actions and timeline for the implementation of the laws.
At the ministerial working lunch, ministers discussed the external dimension of migration. The Hungarian presidency initiated a number of discussions on this subject. Furthermore, in October 2024, the European Council called for ‘new ways to prevent and counter irregular migration, in line with EU and international law’.
"Internal security"
Home affairs ministers received the six-monthly update on the current threat landscape. The presidency also provided information on the progress made on its priorities in the fight against drug trafficking and organised crime: operational cooperation between customs authorities and police, the European Ports Alliance and unlocking the potential of the Schengen Information System.
"Asylum and migration
The returns of irregular migrants and rejected asylum seekers was the subject of the ministerial working lunch. In particular, ministers discussed the use of various approaches to increase the efficiency of the EU’s return system and the supportive role of Frontex in this respect. They tasked experts to start exploring innovative ideas related to returns. Ministers also agreed on the need to start working towards potential EU level solutions for the effective returns of criminals and persons posing a security threat who come from sensitive third countries."
"Migration
On 14 May the Council adopted the pact on asylum and migration. Member states now have two years to put the set of rules into practice.
Today the European Commission presented to ministers its Common Implementation Plan which was adopted yesterday. The plan is based on 10 building blocks which focus on preparing the common information system, making solidarity work and ensuring return procedures are fair and efficient, among other things. The Commission also provided information on the financial and operational support that member states can make use of.
In their reaction to the presentation of the implementation plan many ministers highlighted that the Council should continue playing a strong role in offering political guidance during the implementation phase."
"External dimension of migration
Ministers discussed the state of play and further development of strategic partnerships with countries of origin and transit of irregular migration. In July 2023, the EU concluded a memorandum of understanding with Tunisia which included an important migration pillar. Now the EU is in the process of negotiating comprehensive partnerships with Egypt and Mauritania in which migration figures as one priority area of cooperation among others.
The Council also exchanged views on the EU’s action plan for the Eastern Mediterranean migration route. This being a route along which many irregular migrants make their way to the EU, ministers discussed how best to manage these flows."
"Ministers from EU Member States, Schengen associated countries, European partners and institutions met on Thursday the 25th of January for the informal Justice and Home Affairs Council, which focused on Home Affairs and Migration.
State Secretary for asylum and migration, Nicole de Moor, stressed that her key priority is to finalize the legal texts of the new European Asylum and Migration Pact and to start the process on its implementation and operationalization.
Nicole De Moor, State Secretary for Asylum and Migration: “It is of utmost importance that this historical reform is not only agreed upon on paper, but that it will also fundamentally change the way in which we deal with migration and asylum on the ground. The agreement will not change the situation on the ground from day 1 after its adoption. But we are fully committed to implement what we have decided, and we need to start taking concrete steps in that direction. The reforms we are realizing today, ultimately, will lead to a better management of migration. European citizens deserve this as well as people seeking protection in Europe.”
Since January, technical discussions on the Pact’s texts have continued with high intensity by both co-legislators and the Commission, and the negotiation teams are working hard in order to translate the political agreement into a formal agreement. At the end of April, from the 28 to 30th and a ministerial conference will be organized specifically in order to put this operationalization of the Pact on track."
"The Pact on asylum and migration and the external dimension in this field
The presidency provided ministers with a progress report on all the legislative files of the Pact on asylum and migration. The Council and European Parliament are currently engaged in so-called trilogue negotiations on five legislative files. Together they will reform the common European asylum system and result in a common EU framework dealing with all aspects of asylum and migration management. Both institutions wish to end negotiations and formally adopt the different legislative proposals before the end of this legislative period.
Ministers also received a state of play of the external dimension of migration. This concerns EU policies to face the migratory challenges the EU shares with other continents and countries. The Commission provided an update of the progress that has been achieved in the cooperation with third partner countries."
"Migration: The Pact on migration and asylum & and external dimension of migration
The Spanish presidency provided ministers with an update on the ongoing negotiations on the different legislative proposals that are part of the Pact on migration and asylum.
The Council and the European Parliament are currently engaged in so-called trilogue negotiations on the asylum procedure regulation, the screening regulation, the Eurodac regulation, the asylum and migration management regulation and, following agreement within the Council on 4 October 2023 on a negotiating mandate, the regulation addressing situations of crisis and force majeure.
The Council and the European Parliament are committed to reach a political agreement as soon as possible in order to conclude the negotiations during the current legislative term in accordance with the joint roadmap agreed by both co-legislators.
Ministers also exchanged views on the EU’s approach to the external dimension of migration. The current migratory situation underlines the need to engage with third countries of origin and transit to prevent dangerous departures across the sea or over land. Ministers supported the need to work towards mutually beneficial partnerships with third countries. They also agreed that the EU should efficiently use all the tools at its disposal – ranging from diplomatic outreach and internal coordination to operational support by EU agencies and reinforced and sustainable funding – to develop a preventive model i.e. a model which would hinder irregular departures, as well as to foster the effectiveness of returns."
"Asylum and migration: external dimension
Against the backdrop of high numbers of irregular arrivals of migrants and asylum seekers across the entire EU, the Council discussed ways to build a close and permanent collaboration with key migratory transit and origin countries.
Ministers supported the need to strengthen the external dimension of EU migration policy in order to face the migratory challenges the EU shares with other continents and countries. They emphasised that a coordinated combination of development assistance to fight against the root causes of migration, the fight against migrant smuggling, the development of more legal pathways as an alternative to illegal migration and a sustainable readmission and return policy would be essential to prevent irregular migration.
The discussion evolved around developing a preventive model which, based on solid funding, would hinder irregular departures. It would be rooted in cooperation with countries of origin and transit and include elements such as joint patrols, joint operational centres, sustained cooperation over time and the development of orderly, regular and safe migration pathways."
"Pact on Migration and Asylum
The presidency provided ministers with an update on the different legislative files of the Pact on Migration and Asylum. The presidency also reiterated its commitment to comply with the goal set in the Roadmap agreed between the 5 Rotating Presidencies, the European Parliament and the European Commission in September 2022, to reach an agreement on the Pact files before the end of the current legislative term.
The presidency also expressed its satisfaction with the wide support shown by delegations regarding the latest compromise text on the crisis regulation and expressed its confidence that a negotiating mandate could be reached shortly within the Council.
After the 2015 migration crisis, member states have negotiated a number of EU laws to reform the common European asylum system. Once adopted, these various EU laws currently under negotiation will result in a common framework dealing with all aspects of asylum and migration management. There will be more solidarity for member states where most migrants arrive, more sharing of responsibility and there will be clearer rules for the management of persons seeking international protection. At the same time, the Pact will establish more efficient and fairer procedures for those persons in need of international protection, as well as for those who are not in need of such protection.
Overall, the Spanish presidency highlighted the significant progress made so far, but also the important work still to be carried out in the interinstitutional negotiations between the Council and the European Parliament on the different files of the Pact on Migration and Asylum."
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