Questions and answers on the second Annual Migration Management Cycle

Questions and answers on the second Annual Migration Management Cycle

What is the Annual Migration Management Report?

Under the Pact on Migration and Asylum, the EU has a permanent mandatory solidarity mechanism in place to ensure that Member States facing migratory pressure receive support. Each Member State contributes to solidarity efforts in a flexible way and chooses the type of solidarity they provide. The solidarity mechanism is set out in the Asylum and Migration Management Regulation, which also includes rules to ensure asylum applications are processed by the Member State responsible and to prevent unauthorised movements of asylum applicants.

Today, the Commission is launching the second Annual Migration Management Cycle, building on the positive results achieved in the previous year. It includes:

• the European Annual Asylum and Migration Report, which provides an overview of the asylum and migration situation in the EU, looking at the previous 12-month period and any relevant developments as well as projected trends for the upcoming year. It also includes a state of play on the implementation of the Pact on Migration and Asylum;
• a Commission Implementing Decision determining which Member States are under migratory pressure, at risk of migratory pressure or facing a significant migratory situation; this is based on the findings of the Report and an evidence-based methodology;
• a Commission proposal for a Council Implementing Decision to establish the Annual Solidarity Pool [not public], to be adopted by the Council.

What is meant by the different designations regarding migratory pressure and significant migratory situation?

Member States are deemed as being under migratory pressure where they faced a large number of arrivals of migrants and asylum applicants, including through search and rescue operations, of such a scale that this creates disproportionate obligations in relation to the overall situation in the EU on even a well-prepared asylum, reception and migration system of the Member State concerned. Member States designated as being under migratory pressure can have access to the Solidarity Pool.

Member States are deemed as being at risk of migratory pressure either due to a significant number of arrivals of asylum applicants and migrants, or due to factors such as the risk of weaponisation of migration or strained capacity linked to unauthorised movements of asylum applicants within the EU. These Member States have priority access to the Permanent EU Migration Support Toolbox.

Member States are deemed to be facing a significant migratory situation due to the cumulative effect of migration on their asylum, migration and reception systems over the previous five years. These Member States have the possibility to request the Council to grant a full or partial deduction of their solidarity contributions for the upcoming year.

As there are different criteria on which these calculations are based, a Member State may be deemed as being both at risk of migration pressure (covered by the reporting period over the previous year) and facing a significant migratory situation (due to the cumulative effect of the previous five years).

What are the Commission's findings?

This is the second report under the Annual Migration Management Cycle (following the first report last year). Based on the findings of the Annual Report, the Commission establishes the migratory situations and pressure facing each Member State by applying quantitative and qualitative criteria set out in the applicable legislation. For the current reporting period, the Commission finds that:

• Greece and Cyprus are under migratory pressure due to the disproportionate level of arrivals over the past year. Italy is also under migratory pressure because of a disproportionate number of arrivals following search and rescue operations at sea in the same period. Taking into account the overall migratory situation and the incident in Ceuta, Spain is also under migratory pressure. These Member States are eligible for access to the Solidarity Pool.
• Belgium, Czechia, Germany, Estonia, Ireland, France, Croatia, Latvia, Lithuania, Luxembourg, the Netherlands, Poland, Romania, Slovenia and Finland are at risk of migratory pressure. This is either due to secondary movements, which put a significant strain on Member States' asylum and reception system, or due to the high number of arrivals in the preceding year, including asylum applications and potential arrivals from Ukraine, or to risks linked to the weaponisation of migrants that could create disproportionate obligations in the coming year. These Member States will have priority access to the Permanent EU Migration Support Toolbox, their situation will be monitored and can be reevaluated in an expedited manner depending on changes.
• Bulgaria, Czechia, Estonia, Croatia, Austria and Poland face a significant migratory situation because of the cumulative pressure of the last five years. They will have the possibility to request the Council to grant a full or partial deduction from their contributions to the Solidarity Pool for the upcoming year.

On what basis is the Commission making this assessment?

Based on the overview of the asylum and migration situation set out in the Annual Report, and using a methodology developed by the Commission in consultation with the Member States, the Commission makes its assessment of the situation in each Member State. The assessment considers the overall migratory pressure, based on the number of arrivals and asylum applications, taking into account the country's GDP and population, as well as migratory pressure resulting from large numbers of arrivals following search and rescue operations.

The methodology is based on quantitative and qualitative elements listed in the Asylum and Migration Management Regulation and builds on the information provided by Member States, the statistical department of the EU (Eurostat), EU agencies and the European External Action Service. The methodology is set out in a dedicated Staff Working Document.

What is the Solidarity Pool?

Every year, the Commission proposes a ‘Solidarity Pool', setting out the needs of Member States under migratory pressure for the year in absolute terms, covering: the total number for relocations of asylum applicants and the corresponding total number for financial contributions.

It is the Council, based on a proposal from the Commission, that ultimately defines the total contributions in the Solidarity Pool for the year to come.

What are the conditions for Member States to benefit from the Solidarity Pool?

Member States identified as under migratory pressure are eligible to access the Solidarity Pool.

These Member States need to confirm their intention to access the Pool and provide information on the type and level of solidarity measures needed to address their situation.

To ensure the balance between responsibility and solidarity, all Member States must comply with the responsibility obligations of the Pact. According to these obligations, a Member State in charge of processing an asylum applicant, who has moved illegally to another Member State, must ensure that the person can be transferred back to their territory by the second Member State.

If the Commission identifies systemic shortcomings in a Member State under pressure with regard to the responsibility rules, the contributing Member States would no longer be required to implement their solidarity pledges towards that Member State. This year's Annual Report also includes an assessment of the functioning of the responsibility rules.

What is the state of play as regards Italy?

The Commission determines that Italy is under migratory pressure as a result of a large numbers of arrivals stemming from recurring disembarkations following search and rescue operations. Italy will therefore be eligible for access to the Solidarity Pool.

Italy has demonstrated sustained commitment and taken important steps in implementing the new rules of the Pact, including the screening, border procedures and Eurodac. Italy has made significant efforts to implement the new responsibility rules of the Pact, establishing bilateral contacts with other Member States, in particular those with the biggest caseload towards Italy. However, it is not yet possible to determine whether responsibility transfers have resumed effectively and sustainably.

The Commission will continue monitoring the developments, based on the information provided by the Member States, and inform the Technical-Level Solidarity Forum accordingly. Where needed, the Commission may bring this matter to the attention of the High-Level Solidarity Forum and of the Council. This will be taken into account in the operationalisation of the Solidarity Pool for 2027.

What is the state of play as regards Greece?

The Commission determines that Greece is under migratory pressure due to the disproportionate level of arrivals over the past year. Greece will therefore be eligible for access to the Solidarity Pool.

Greece has demonstrated sustained commitment and taken important steps in implementing the new rules of the Pact, including the screening, border procedures and Eurodac. Already in July 2026, the Commission had noted positive indication of progress as regards the implementation of the responsibility rules by Greece. The report today further confirms and consolidates the Commission's earlier assessment.

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.

In addition, Greece is focussing on implementing the new border procedure, with a high number of asylum border procedure cases being carried out within the applicable timeframes.

What are the results of the first annual migration management cycle?

The first Solidarity Pool is being successfully put into operation.

Member States adopted the Solidarity Pool for 2026 in December 2025. The reference number of relocations for the Solidarity Pool agreed for 2026 is 21 000 and the reference number of financial contributions is €420 000 000.

Following the entry into application of the Pact on 12 June 2026, the Technical-Level EU Solidarity Forum started the operationalisation of the 2026 Solidarity Pool, taking into account the needs expressed by benefiting Member States and the contributions available.

Since then, the Technical-Level EU Solidarity Forum has been convened twice: on 15 June 2026 and on 14 September 2026. The EU Solidarity Coordinator continues to work closely with Member States on the implementation of the first Solidarity Pool, with a third meeting expected to take place in December 2026.

Overall, significant progress has been made with the implementation of the solidarity measures, both as regards relocations and the implementation of responsibility offsets. Member States have also already earmarked their financial contributions within their national budgets for payment early next year.

Technical support and guidance for the practical implementation of relocations, financial contributions and offsets is being provided, with the support of the EU Agency for Asylum (EUAA). eu-LISA and the International Organization for Migration also continue to provide operational and technical support to Member States where needed.

What are the next steps?

It is now for the Council to adopt the Implementing Decision establishing the Solidarity Pool. To do so, the Council will first convene the High-Level EU Solidarity Forum, where each Member State will pledge their contributions according to their fair share as established by the Asylum and Migration Management Regulation. Member States are free to choose the form of their solidarity contributions: financial contributions, alternative solidarity measures (i.e. staff and in-kind support), relocation or responsibility offsets of asylum applicants or beneficiaries, or a combination of these.

The High-Level Solidarity Forum, bringing together Member States' representatives, will identify the overall EU needs and how each Member State will contribute. On this basis, the Council will establish and formally adopt the Solidarity Pool before the end of the year. Each Member State's contribution will be mandatory only once the Council adopts the Solidarity Pool. The respective Council Decision will then become public.

The Commission stands ready to support the Council throughout this process. The EU Solidarity Coordinator, appointed by the Commission, supports the implementation of the Solidarity Pool through the Technical-Level EU Solidarity Forum.

The Commission will continue to assess the overall migratory situation in the EU every year and, when requested by a Member State, also during the year. This ensures that the permanent solidarity mechanism is always able to respond to new challenges and balances the responsibilities placed on Member States.

Why is the Commission proposal for a Solidarity Pool not public?

The Asylum and Migration Management Regulation states that the Commission proposal will not be public until the Council Implementing Act is adopted by the Council.

The proposal gives an indication of the fair share of the contributions that each Member State should make to the Annual Solidarity Pool at EU level. The actual contributions will reflect what Member States under pressure request and what contributing Member States offer, taking into account any deductions or exemptions in contributions. On this basis, it will be then for the Council to adopt an Implementing Act establishing the Pool.

Are Member States obliged to accept relocations?

No. The solidarity mechanism is mandatory and flexible at the same time. This means that Member States can choose in which form they contribute to the Solidarity Pool. It does not impose mandatory relocation and no Member State is obliged to carry out relocations.

Solidarity can take the form of ‘people solidarity' (relocations or responsibility offsets), financial contributions or alternative measures (e.g. staff and in-kind support). It is designed to address the needs of the Member States under pressure in a flexible manner.

‘People solidarity' can be provided either through relocations or through responsibility offsets. With responsibility offsets, a Member State agrees to take responsibility for asylum applicants already on its territory who would otherwise be the responsibility of a Member State facing migratory pressure.

Financial contributions: Member States provide funding to the EU budget to help other Member States facing migratory pressure, for example, to strengthen asylum and reception capacities, improve border management, or support external actions aimed at reducing illegal arrivals and increasing returns.

Alternative solidarity measures: This can include, for example, material or technical in-kind assistance, including for border management. If a Member State opts to provide alternative solidarity measures, their value should be expressed in financial terms to ensure that the Member State contributes according to its fair share.

What form do financial contributions take?

Member States can support other Member States under migratory pressure through financial contributions, which are implemented through the EU budget. This means that financial contributions from contributing Member States are made to the EU budget under the Asylum, Migration and Integration Fund (AMIF) and the Border Management and Visa Policy Instrument (BMVI). These additional financial resources will subsequently be channelled by the Commission to the benefitting Member States through the modification of their respective national programmes. Financial contributions are implemented shortly after each cycle is finalised (i.e. early 2027 for the first cycle; early 2028 for the second cycle).

The benefiting Member States can use financial contributions for relevant actions in their territory, in line with the Asylum Migration Management Regulation and within the scope of the AMIF or BMVI Regulation. In the case of the AMIF, financial contributions can also support actions in third countries.

What are ‘responsibility offsets'?

If a Member State is under migratory pressure, an important measure to alleviate this pressure is reducing the number of asylum applications that the Member State concerned is required to examine (i.e. the Member State under migratory pressure is alleviated of the responsibility for a given number of asylum applicants). There are two possibilities for reducing the responsibility of the Member State under migratory pressure for a given number of asylum applicants:

1. Relocation of applicants for international protection to other Member States. In this case, an applicant is transferred to another Member State.
2. ‘Responsibility offsets'. This measure covers people whose asylum applications should have been examined by the Member State under migratory pressure but who moved to another Member State in an unauthorised way. Under the responsibility rules, these applicants should be sent back to the Member State under migratory pressure. However, the Member State where the applicant is physically present can take the responsibility to examine the asylum application instead of transferring the applicant back to the Member State under migratory pressure. This is counted as a form of solidarity.

What are the key results on the Pact implementation?

Member States have made significant progress in implementing the various strands of the reform introduced by the Pact, which has required significant legal and operational work since its adoption in 2024.

National legislation has been adopted in most Member States, and Member States are putting all available measures in place where legislation is not yet fully adapted, including interim arrangements.

The new Eurodac database has been integrated into the national asylum and migration workflows and is being implemented successfully across all Member States, strengthening the identification and tracking of asylum applicants and irregular migrants, facilitating responsibility determination and helping detect unauthorised secondary movements.

Border management and preparedness have been strengthened and the screening of illegally arriving migrants is now being carried out at the external borders as a rule, with more than a third of all applications for international protection now being processed directly under the asylum border procedure. According to preliminary data, between 12 June and the second week of October 2026, almost 16 000 asylum applications were subject to the asylum border procedure.

The procedures for responsibility determination and for assessing the applications for international protection have been streamlined and Member States are also stepping up efforts on returns.

Member States are undertaking reforms of the reception system, with most reporting sufficient reception capacity and adapting facilities and services to better address the needs of unaccompanied minors and applicants with vulnerabilities. Member States are also strengthening fundamental rights safeguards, including through free legal counselling, and the establishment of independent fundamental rights monitoring mechanisms.

While significant progress has been achieved, challenges remain and continuous efforts are needed to ensure that the new framework delivers fully and effectively in practice.

This requires completing all 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.

The implementation of the Pact is a continuous process. The Commission and EU agencies continue providing support to Member States, both through operational and financial assistance to ensure that all components of the Pact are fully operational and that all remaining gaps are addressed.

How is the Commission supporting Member States in the implementation of the Pact?

The Commission is working closely, together with EU agencies, to support all Member States in implementing the Pact and ensuring they apply the new system fully.

The Commission has provided €3 billion under the Asylum, Migration and Integration Fund (AMIF) and the Border Management and Visa Instrument (BMVI) for the years 2025 to 2027 to support Member States to address the needs related to the Pact, as well as hosting beneficiaries temporary protection.

As part of the financial component of the Permanent EU Migration Support Toolbox, the Commission has also launched a Specific Action with an indicative amount of €250 million under the 2023-2027 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. Through the Technical Support Instrument (TSI), the Commission, together with ICMPD and IOM, has supported several Member States in implementing key reforms under their National Implementation Plans.

Have the events in Ceuta been taken into account?

Spain, which was found to be under migratory pressure in 2025, accounted for approximately 20% of all illegal border crossings at Union level and was the third Member States 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 applications relative to GDP and population in the Union and the fourth in absolute numbers. Spain is also among the Member States with the most temporary protection registrations, ranking fourth in the Union in absolute numbers. Taking all these elements into account, the assessment concluded that Spain was at risk of migratory pressure.

At the same time, the Asylum and Migration Management Regulation foresees the possibility to take into account developments outside the reporting period that could influence the results of the assessment.

Taking into account the information transmitted by Spain on the incident that took place on 30-31 July 2026 leading to large-scale illegal arrivals to the autonomous city of Ceuta, the Commission's assessment concludes that Spain is under migratory pressure.

What is the EU Migration Support Toolbox?

The EU Migration Support Toolbox brings together the operational, technical and financial assistance available to Member States, in particular those at risk of migratory pressure, which get priority access.

The Toolbox offers tailor-made support to Member States that includes operational and technical support by EU bodies, offices and agencies, financial support, including additional funding made available from the AMIF Thematic Facility. It can also provide support to facilitate return and reintegration activities, strengthen actions in the external dimension of migration, enhance diplomatic and political outreach towards partner countries, and promote talent mobility.

For more information

Press release

Second Annual Migration Management Cycle

Questions and answers on the Pact on Migration and Asylum