The Schengen area without internal border controls relies on the effective and efficient application of the Schengen rules by the Member States. These rules include measures to secure external borders, measures to compensate for the absence of controls at internal borders and a strong monitoring framework. These measures strengthen free movement and ensure a high level of security, justice and protection of fundamental rights, including the protection of personal data.
The Schengen evaluation and monitoring mechanism is the key safeguard to ensure that the Schengen area functions well. This mechanism works through a peer-to-peer approach. A team composed of Member State and Commission experts, supported by EU agencies and bodies, evaluates every Member State and Schengen Associated Country fully applying the Schengen rules at least once every seven years.
Commission report and recommendation
An evaluation is followed by a Commission report which includes recommendations for remedial action that the evaluated country should undertake, and the priorities for implementing them and deadlines for the implementation.
Within two months of the report’s adoption, the concerned Member State is required to submit an action plan setting out how it intends to fix identified weaknesses.
The Commission, Frontex or other EU bodies, agencies or offices can assist Member States in fulfilling the recommendations through practical and financial support.
Remedy of serious deficiencies
The mechanism ensures that in case deficiencies, which have a negative impact on the functioning of Schengen (‘serious deficiency’), are identified, the evaluated Member State takes prompt action.
In this case, the follow-up to the evaluation activity will be quicker. Furthermore, a revision of the implementation of corrective actions must be done within one year after the evaluation. The Commission will immediately inform the Council and the European Parliament about a serious deficiency.
In exceptional circumstances if persistent serious deficiencies in a Member State’s external borders control have been identified and the actions taken by the Member State are not sufficient, border controls may be reintroduced temporarily.
Third generation of Schengen evaluations
In 2022, a new framework for the Schengen evaluations was adopted, leading to more streamlined and comprehensive country recommendations. It initiated a third generation of Schengen evaluations, moving away from fragmented, policy area-based compliance evaluations and leading to thorough assessments of Member States’ overall performance. The provisional time schedule for verifying the application of the Schengen rules in each EU country is established by the multiannual evaluation programme 2023-2029 and its amendment. Complementing and confirming this planning, annual evaluation programmes are adopted, providing detailed schedules for the evaluations to be conducted in a given year.
In line with the annual evaluation programmes, the overall performance of the following countries was assessed in 2023 and 2024:
Croatia
A team composed of Commission and Member State experts, accompanied by observers from Agencies carried out the Schengen evaluation of Croatia in December 2023 - February 2024.
The first Schengen evaluation of Croatia after becoming a full member of the Schengen area without internal frontiers on 1 January 2023 showed that despite an increase in responsibilities to manage cross-border crime and migratory pressure, the overall implementation of the Schengen rulebook by Croatia is adequate. While Croatia is actively contributing to the well-functioning of the Schengen area, improvement is necessary to strengthening the land border surveillance system, and to use large-scale IT systems and cross-border cooperation instruments with neighbouring countries more effectively. The evaluation identified several best practices that contribute to the overall good functioning of the Schengen area.
Following the adoption of the evaluation report, Croatia has two months to submit an Action Plan and its implementation will be monitored by the Commission.
Croatia country report - executive summary
Estonia
A team composed of Commission and Member State experts, supported by observers from relevant EU Agencies carried out the Schengen evaluation of Estonia between November-December 2023
Estonia’s implementation of the Schengen acquis is influenced by the European security environment as a result of the Russian war of aggression against Ukraine. Since Estonia shares significant land and sea borders with Russia, the country faces hybrid challenges and evolving threats that require constant readiness and sufficient response capacities. Despite the challenges, Estonia has maintained a solid functioning of the Schengen area, in large part due to a strong implementation of the European integrated border management.
The improvement is necessary in the effective use of large-scale IT systems, and uniform implementation of border checks. Furthermore, law enforcement information exchange and cross-border police cooperation with neighbouring countries could also be enhanced. The different evaluation missions identified several best practices that contribute to the overall good functioning of the Schengen area.
Following the adoption of the evaluation report, Estonia has two months to submit an Action Plan, which will be monitored by the Commission.
Estonia country report - executive summary
Finland
A Schengen evaluation team composed of Commission and Member State experts, accompanied by observers from Agencies carried out the Schengen evaluation of Finland in May-June 2023.
The evaluation assessed Finland’s implementation of the Schengen rules, considering their geographical position, responsible for securing the longest EU land border with Russia on behalf of all Schengen countries. The report concludes that Finland is implementing effectively European integrated border management measures. However, further efforts are needed to strengthen the land border surveillance and to close gaps in the law enforcement cooperation. The evaluation also identifies good operational solutions addressing common challenges.
Finland will submit an Action Plan within two months of the evaluation report’s adoption which will be monitored by the Commission to ensure its swift implementation.
Finland country report - executive summary
Latvia
A team composed of Commission and Member State experts, accompanied by observers from Agencies carried out the Schengen evaluation of Latvia in October-November 2023.
The evaluation showed that despite migratory challenges, deriving from hybrid threats and military conflicts, the overall implementation of the Schengen acquis by Latvia is adequate, with a good cooperation. Nevertheless, further implementation and consolidation is still required in the field of large-scale information system, alongside the need to overcome some additional gaps in return and internal security. The different evaluation missions have also identified some best practices, which contribute to the overall functioning of the Schengen area.
Following the adoption of the evaluation’s report, Latvia has two months to submit an Action Plan, which will be monitored by the Commission.
Latvia country report - executive summary
Lithuania
A Schengen evaluation team composed of Commission and Member State experts, accompanied by observers from Agencies carried out the Schengen evaluation of Lithuania in May-June 2023.
The evaluation revealed that despite the migratory and security challenges at the eastern land border with Belarus, Lithuania is effectively implementing the Schengen acquis. However, some measures to swiftly deal with crisis situations have an important impact on the protection of fundamental rights. The report identifies several best practices supporting the effective implementation of the Schengen rules.
In accordance with the requirements of the Schengen evaluation mechanism, Lithuania has submitted an Action Plan, which is monitored by the Commission.
Lithuania country report - executive summary
Poland
A team composed of Commission and Member State experts, accompanied by observers from Agencies, carried out the Schengen evaluation of Poland in March – April 2024.
Despite the complex environment and notwithstanding the recent challenges, the evaluation showed that Poland is overall effectively implementing the Schengen rules and ensures a strong contribution to the good functioning of the Schengen area. Priority areas for improvement include respecting fundamental rights in connection to border-policing measures and procedural safeguards throughout the return procedure, strengthening the exchange of information between law enforcement authorities, and fully integrating the Schengen Information System into border, migration and law enforcement processes.
The evaluation identified several best practices that contribute to a well-functioning Schengen area.
Following the adoption of the evaluation report in December 2024, Poland has two months to submit an Action Plan and its implementation will be monitored by the Commission.
Poland country report - executive summary
The 2025 evaluation programme has been established and will cover the application of the Schengen rules in Austria, Slovenia and Switzerland.
Thematic Schengen evaluation on return
Effective return of individuals with no right to stay is necessary to sustain a well-functioning Schengen area of freedom, security, and justice without internal frontiers. Following the call from the October 2023 Schengen Council, a thematic evaluation was carried out to identify operational solutions that enhance the effective and swift return of third-country nationals with no right to stay.
The thematic evaluation was conducted by experts from the Commission and 15 Member States, with observers from Frontex and the Fundamental Rights Agency. It had two objectives: first, to identify the key common obstacles limiting authorities’ ability to carry out the return of third-county nationals without a legal right to stay and, second, to build on common issues where common EU solutions and best practices would bring added value. This will reinforce the capacities of Member States and Schengen Associated Countries in ensuring effectiveness of their return systems and thereby contribute to a coherent and credible Schengen framework.
In the context of the thematic Schengen evaluation, on-site visits took place in Italy, Norway and the Netherlands.
The Commission is also putting forward recommendations to address the common, identified challenges, and invites the Council to swiftly adopt them.