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Questions and answers on the First Annual Migration Management Cycle under the Pact on Migration and Asylum
What is the Commission putting forward today?
Today the Commission is delivering on a number of steps towards the implementation of the Pact on Asylum and Migration in June 2026. Whilst Member States continue to make further progress putting into place national strategies, contingency plans, and adaptations of national legal frameworks, the Commission is launching the first Annual Migration Management Cycle, as foreseen in the Pact legislation.
This includes:
- The European Annual Asylum and Migration Report on the asylum and migration situation in the EU, including the second state of play on the implementation of the Pact;
- a Commission Implementing Decision determining which Member States are under migratory pressure, at risk of migratory pressure or facing a significant migratory situation based on the findings of the Report;
- a Commission proposal for a Council Implementing Decision to establish the Annual Solidarity Pool, to be adopted by the Council.
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 EU High-Level Solidarity Forum, where each Member State will pledge their contributions according to their fair-share as established by the Pact. Member States are free to choose the form of their solidarity contributions: people solidarity (relocation or responsibility offsets if applicable), financial support, alternative solidarity measures or a combination of these.
The High-Level Solidarity Forum, bringing together Member States' representatives, will identify the overall amount of solidarity of the Pool and how each Member State will contribute to it. On this basis, the Council will establish the overall amount of solidarity for the next year and formally adopt the Solidarity Pool. Each Member States' contribution will be public and mandatory only once the Council adopts the Solidarity Pool.
The Commission stands ready to support the Council throughout this process and the EU Solidarity Coordinator, appointed by the Commission, will support its implementation through the Technical-Level Solidarity Forum.
The Commission will assess the overall migratory situation in the EU every year. This ensures that the permanent solidarity mechanism of the Pact is always able to respond to new challenges and balances the responsibilities placed on Member States.
This first cycle is particular in that the Pact enters into application midway through the year, in June 2026. The Commission's proposal for the Annual Solidarity Pool covers a full year. However, the reduced period of implementation is an element the Council may consider in the process leading up to the adoption of the Solidarity Pool, keeping the balance between solidarity and responsibility.
What are the main findings of the Annual Report?
The Annual Report analyses the main developments in asylum, reception and migration in the Union and its Member States over the period July 2024 – June 2025 and provides a projection of the expected migratory trends for the coming year. It is based on the latest date transmitted by Member States to EU Agencies and Eurostat.
The Report shows decreases in illegal arrivals, asylum applications, and secondary movements, also thanks to improved cooperation with countries of origin and transit and strengthened border controls. Temporary protection needs and the continued hosting of displaced persons from Ukraine, due to the ongoing Russian war of aggression and escalation of attacks against Ukraine, remained significant. Unauthorised movements within the EU also decreased but continued to pose challenges to the already strained capacities of several Member States. Challenges also remain regarding arrivals by sea, the weaponisation of migration by Russia and Belarus, and in carrying out effective returns.
Projections for 2026 anticipate further decreases in illegal arrivals, in line with the downward trend already observed in the first half of 2025. The further decrease is expected as a result of the EU's engagement with key countries of origin and transit, ongoing efforts to reinforce asylum and border systems, increased returns, as well as intensified actions against migrant smuggling networks.
What is the migratory situation of the Member States?
Based on the findings of the Annual Report, the Commission finds that across the Union, Member States face various migratory situations and pressures. Based on the quantitative and qualitative criteria set out in the Pact legislation, the Commission in particular finds that:
- Greece and Cyprus are under migratory pressure due to the disproportionate level of arrivals over the last year. Spain and Italy are also under migratory pressure because of a disproportionate number of arrivals following search and rescue at sea in the same period. These four Member States will therefore be eligible to access the Solidarity Pool when the Pact enters into application in mid-2026.
- Belgium, Bulgaria, Germany, Estonia, Ireland, France, Croatia, Latvia, Lithuania, the Netherlands, Poland and Finland are at risk of migratory pressure, either because of high numbers of arrivals in the preceding year, ongoing strains on their reception systems or the threat of weaponisation of migration that could create disproportionate obligations in the upcoming year. They will have priority access to the EU Migration Support Toolbox and their situation will be re-evaluated in an expedited manner should the situation deteriorate.
- Bulgaria, Czechia, Estonia, Croatia, Austria and Poland face a significant migratory situation because of the cumulative pressures of the last five years. They will thus have the possibility to request the Council 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?
The assessment relies on the data and information of the Annual Report, analysed on the basis of a methodology developed by the Commission in consultation with the Member States. 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.
What support is available to Member States?
Member States are facing different migratory situations and the support available to them varies depending on their specific circumstances:
- Member States under migratory pressure: they will have access to the Solidarity Pool set by the Council, once the Pact enters into application.
- Member States at risk of migratory pressure: they will have priority access to operational and financial support under a new EU Migration Support Toolbox established under the Pact. Should the situation deteriorate, the Commission will be ready to re-evaluate their situation.
- Member States facing a significant migratory situation: they can request the Council grant a full or partial deduction from their contributions to the Solidarity Pool for the upcoming year.
What is the EU Migration Support Toolbox?
In addition to the Solidarity Pool, the Pact establishes an EU Migration Support Toolbox that brings together the operational, technical and financial assistance available to Member States, in particular those at risk of migratory pressure that will have 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.
Are Member States obliged to accept relocations?
No. The solidarity mechanism is mandatory and flexible at the same time. 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 and alternative measures (e.g. staff and in-kind support). They are designed to balance the needs of the Member States under pressure.
‘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 can provide funding to the EU budget to help other Member States facing migratory pressures, 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 are the conditions for Member States to benefit from the Solidarity Pool?
Member States identified as under migratory pressure will be eligible to access the Solidarity Pool when the Pact enters into application in mid-2026.
These Member States will need to confirm their desire to access the Pool as well as provide an overview of their needs.
To ensure the balance between solidarity and responsibility, all Member States must comply with the responsibility obligations of the Pact. 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 State. The Commission will assess the functioning of the responsibility rules of the Pact in July 2026, and again in October 2026.
Why is the Commission proposal for a Solidarity Pool not public?
The Asylum and Migration Management Regulation provides that the Commission proposal will not be public until the Council Implementing Act is adopted by the Council.
The proposal only gives an indication of the fair share of the contributions that each Member State could make to the Annual Solidarity Pool at EU level. The actual contributions will reflect what is asked for by Member States under pressure, what is offered by contributing Member States, and it will also take 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.
What is the role of the Solidarity Forum?
The High-Level Solidarity Forum, bringing together Member States' representatives, is tasked to carry out the pledging of solidarity contributions by Member States, to identify the overall amount of solidarity of the Pool and how each Member State will contribute to it.
The results of the pledging will be reflected in the Council Implementing Decision on the establishment of the Solidarity Pool.
The Technical-Level Solidarity Forum, chaired by the Commission's EU Solidarity Coordinator, is tasked with coordinating the use of the Pool and to facilitate the provision of solidarity to Member States under migratory pressure throughout the year.
What is the state of play of the Pact implementation?
The implementation of the Pact is ongoing, to ensure Member States' national asylum, reception and migration systems are ready by June 2026 when the Pact will start applying in full.
Overall, since the last report on the implementation of the Pact, Member States have made good progress, including on the development of national strategies and contingency plans, and adapting their national legal frameworks.
Steady progress in the implementation of all the components of the Pact, the downward trend of illegal arrivals and the projection for the coming year, together with the positive results of the continuous work with partner countries, set a solid basis for an orderly, fair and firm management of migration and asylum. There is, at the same time, a general need to speed up the pace of the reforms and address remaining challenges, for example, in relation to the Eurodac system, the setting up of the border procedure, the necessary infrastructure, staffing needs and administrative arrangements.
The Commission continues to support Member States to ensure that challenges are addressed. The Commission will report again on progress in the implementation of the Pact ahead of the entry into application.
How is the Commission supporting Member States in the implementation of the Pact?
The Commission is working closely with the Member States to support them and make sure that all of them are ready by June 2026, when the Pact will become applicable. The EU Agencies provide additional operational and technical support.
The Commission's direct bilateral support to Member States remains a key priority. This offers tailored, purpose-fit assistance that reflects each Member State's specific context and institutional setup. To facilitate this, the Commission established dedicated country teams and senior-level liaison channels to engage with each Member State.
The Commission has provided €3 billion under AMIF and BMVI for the years 2025 to 2027 to support Member States to address the needs related to the Pact and the hosting beneficiaries of temporary protection.
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