Today, the Commission is adopting a Communication to support Member States to counter hybrid threats from the weaponisation of migration by Russia and Belarus and to strengthen security at the EU's external borders.
The serious and persistent nature of the hybrid threats at the Eastern EU border by Russia and Belarus, pose new challenges for the EU. To guarantee security and territorial integrity in this exceptional context, Member States bordering Russia and Belarus must be able to act decisively. This calls for a strengthened EU response, in full respect of EU and international law.
President von der Leyen said: "We have taken another decisive step to support our frontline Member States in countering hybrid threats from Russia's and Belarus' unacceptable weaponisation of migration. Especially countries bordering Russia and Belarus, such as Finland with its 1.340-kilometre-long border with Russia, are facing the heavy challenge to guarantee the security of the Union and territorial integrity of Member States. Today we offer these countries further support, including an additional 170 million in funding to upgrade electronic surveillance equipment, improve telecommunication networks, deploy mobile detection equipment and counter drone intrusion. Autocrats must never be allowed to use our European values against us.''
Today's Communication supports Member States, by setting the framework for actions that should prevent Russia and Belarus from using the EU's principles and values against the EU.
- Identifying the challenges at the EU's external land borders with Russia and Belarus and the threat to the Union's security: Russia and Belarus take advantage of people, using human beings in an act of hostility, disregarding their vulnerability. They use this hybrid warfare as a political tool to destabilise our societies, to undermine the unity of the EU and to jeopardise the safety and integrity of the Schengen area and the security of the Union as a whole. In line with the European Council's position, with today's Communication, the Commission is supporting Member States to prevent Russia and Belarus from using European principles and values, including the right to asylum, against the EU.
- Strengthening the EU policy response and operational support: The EU has already taken several steps to counter the instrumentalisation of migrants by Belarus in Latvia, Lithuania and Poland in 2021 and by Russia at its border with Finland. Financial, operational and diplomatic efforts, including with the countries of origin and transit, were promptly stepped up.
To further enhance border surveillance at the borders with Russia and Belarus, the Commission is now making available additional funding totalling €170 million: 150 million through the Border Management and Visa Instrument (BMVI), and an additional 20 million from the BMVI Thematic Facility for a more extensive geographical distribution. These funds will support Estonia with €19.4 million, Finland with €50 million, Latvia with €17 million, Lithuania with €15.4 million, Poland with €52 million and Norway with €16.4 million to upgrade electronic surveillance equipment, improve telecommunication networks, deploy mobile detection equipment and counter drone intrusions thereby ensuring real-time situational awareness and enhance the mobility of border patrols.
- Setting the legal context: Member States have an obligation to protect the EU external borders. At the same time, they must respect fundamental rights and the principle of non-refoulement. In view of the serious nature and persistence of the threat to the security of the EU and the territorial integrity of Member States at the EU external borders with Russia and Belarus, Member States may invoke Treaty provisions to exceptionally and under stringent conditions go further than what is provided for by EU secondary legislation under the control of the Court of Justice. This could include measures that may entail serious interferences with fundamental rights such as the right to asylum and related guarantees subject to the requirements under the Charter. Today's Communication outlines the conditions for such measures which have to be proportionate, limited to what is strictly necessary in clearly defined cases, and temporary.
- Increasing cooperation with the Union and other Member States: The Commission encourages Member States to carefully weigh all the interests at stake and make use of all the possibilities afforded by the Union's legal order when taking exceptional measures to tackle hybrid attacks from weaponisation of migration. In light of the principle of sincere cooperation, Member States are invited to cooperate closely with the Union and other Member States. Coordination among neighbouring Member States is also necessary to ensure consistency and effectiveness of any action.
Next Steps
The Commission will always stand by Member States in their efforts to ensure a safe and secure Union with a fully functioning Schengen area, for the benefit of all EU citizens and in full respect of fundamental rights. Member States are encouraged to make use of all the possibilities covered by EU legislation. The Commission is ready to engage with Member States taking exceptional measures, to help ensure that all relevant considerations are taken into account.
Background
In 2024, irregular arrivals at the EU-Belarusian border - especially the Polish-Belarusian border - increased significantly by 66% compared to 2023. 90% of migrants illegally crossing the Polish-Belarusian border have a Russian student or tourist visa.
The EU has already offered significant support to the most concerned Member States and taken a wide range of actions to step-up the EU preparedness to counter this threat. This included financial and operational support and diplomatic and outreach efforts (including with countries of origin and transit).
The Commission also proposed in 2021 measures against transport operators who facilitate smuggling of migrants , and in 2023 the Directive laying down minimum rules to prevent and counter the facilitation of unauthorised entry, transit and stay in the EU . The Commission stands ready to work with the European Parliament and Council to progress swiftly on adopting these proposals.
