On Wednesday, October 16, the first summit between the EU and the Gulf Cooperation Council took place, aimed at strengthening the strategic partnership between the EU and Gulf countries in terms of regional security and prosperity. Meanwhile, on October 17 and 18, the leaders of EU member states convened at the European Council. Central topics: Ukraine, the Middle East, and above all, migration, along with other agenda items concerning competitiveness, the European semester, climate change and biodiversity, and finally, foreign affairs.
The Background
Several European countries have recently adopted more restrictive border policies. Following an incident involving a Syrian citizen, Germany introduced new border controls, despite being within the Schengen area. Other countries, including Italy, Austria, and France, have followed this example in order to more effectively control the entry of unauthorized migrants. Discussions also focused on the Meloni-Rama Protocol – inaugurated the same week with the opening of new centers in Albania – and Poland’s new policy aimed at countering the politicization of migrants by Russia. In light of these experimental policies by some EU countries, migration was undoubtedly the most contentious topic of this summit.
The 10 key points by Von der Leyen
On October 14, in anticipation of the European Council meeting, Commission President Von der Leyen sent a letter to European leaders outlining her vision for the evolution of the Union’s migration policies in 10 key points.
Firstly, Von der Leyen urged European leaders to promote an accelerated implementation of the new Asylum and Migration Pact, for which there was originally planned a two-year implementation period. Secondly, the Commission President highlighted that the reduction in arrivals in 2024 could be attributed to the effectiveness of cooperation agreements with third countries of origin and transit, such as Libya, Tunisia, and Türkiye. On behalf of the Commission, Von der Leyen reiterated her commitment to continuing this approach, encouraging new partnerships with other states, including Mauritania, Senegal, and Mali.
The Commission President also emphasized the need for more efficient repatriation procedures, advocating for the harmonization of return policies among EU member states through the establishment of a common framework regarding safe countries. The letter stresses that cooperation with third countries should also be strengthened in relation to visa policies. Additionally, it highlights the central role of Europol in the fight against human traffickers.
In this communication, Von der Leyen also focused on the growing phenomenon of the instrumentalization of migrants as a hybrid conflict tool to destabilize Europe’s external borders. The letter also addressed the situation of refugees resulting from ongoing wars, including Ukrainians – whose temporary protection permits have been extended until March 2026 – as well as those fleeing Syria in response to Israeli attacks in Palestine and Lebanon.
Finally, the point that sparked the most debate during the European Council meeting on October 17 was the promise to review the concept of a “safe country of origin,” fueled by the Commission President’s enthusiasm for potential “return hubs” outside the EU, modeled after the Italy-Albania Protocol.
Hybrid War for Tusk
Polish Prime Minister Donald Tusk accused Russia and Belarus of exploiting migrants crossing the Polish border seeking asylum as a military tool to threaten the stability of Poland and the European Union. In response, the Polish Council of Ministers passed a plan to be implemented from 2025 to 2030 to contain – or counter – migrations from the eastern border. Specifically, the document allows for the suspension of the right to asylum in Poland and outlines the introduction of a citizenship test for foreigners wishing to submit an application.
The launch of the Rome-Tirana Protocol
A few days before the European Council, Italy inaugurated the facilities built in Albanian territory under the Meloni-Rama Protocol, signed in November 2023. On October 14, the first operation of the military vessel Libra took place, which was used as a hub for initial screening. Sixteen individuals of Egyptian and Bangladeshi nationality were selected and transferred to the first-reception center in Shengjin, Albania. Following a second screening, four of these individuals were returned to Italy due to being minors or having vulnerabilities – conditions that preclude deportation to Albania aimed at undergoing an accelerated procedure. While Prime Minister Meloni was attending the European Council in Brussels, the Questura of Rome ordered the transfer of the remaining 12 migrants to the Gjader repatriation center (CPR), pending validation within 48 hours by the Rome Tribunal.
Pre-summit
Prior to the start of the European Council summit, Italy hosted an informal meeting, also promoted by Denmark and the Netherlands, with the participation of leaders from Austria, Cyprus, Poland, the Czech Republic, Greece, Hungary, Malta, Slovakia, and the European Commission. Migration was the key topic uniting these countries. Meloni presented the Italy-Albania plan, and shared objectives were discussed to “prevent irregular immigration, combat human trafficking, and enhance the effectiveness of the EU’s return policy.”
Closed Doors
In light of these developments, migration took center stage on the first day of the European Council on October 17. Thanks to live coverage by Politico.eu, European leaders’ statements were reviewed, and insights into some of the discussions from the closed-door meeting chaired by European Council President Charles Michel were reconstructed.
This first day of the European Council summit revealed that many leaders – particularly those of Greece, Denmark, and the Netherlands – agreed on the need for a stricter migration policy to ensure border security. Most member state leaders also showed strong solidarity with Polish Prime Minister Donald Tusk’s decision to suspend asylum rights for migrants coming from Belarus and Russia to “counter the instrumentalization of migrants for political purposes.” Cypriot President Nikos Christodoulides even proposed imposing sanctions on airlines that sell one-way tickets to Eastern European countries to Middle Eastern citizens, as a measure to prevent unauthorized entry via Belarus.
Von der Leyen’s idea of strengthening repatriations by introducing “return hubs” following the Italy-Albania model received particular support from Bulgaria and the Netherlands, which are considering Uganda as a potential location for externalizing migration management toward their borders. However, Chancellor Olaf Scholz expressed strong reservations about expanding the Meloni-Rama project to other EU countries, highlighting the importance of conducting repatriations in compliance with European laws. Leaders from Finland, Austria, and Italy also addressed this issue. Austrian Chancellor Karl Nehammer argued that to demonstrate the EU’s capacity to defend its external borders, individuals from Afghanistan and Syria should be repatriated, deeming these countries as currently safer than Lebanon. Meloni similarly announced her intent to establish diplomatic relations with Syria to enable safe returns.
Overall, a strong trend toward strengthening a “Fortress Europe” emerged, with only the Spanish Prime Minister resisting this approach. Pedro Sánchez expressed a dissenting view, completely rejecting the proposal of return hubs proposed by Von der Leyen and supported by other leaders. Instead, he advocated a more positive narrative focused on the demographic benefits of migration.
The conclusions
In the conclusions unanimously agreed upon on the first day of the summit, reference was made to the joint document developed during the extraordinary session in February 2023, as well as to Von der Leyen’s letter. Reflecting the ten-point action plan set out by the Commission President, leaders emphasized the need for increased cooperation with transit and origin countries and reiterated a political commitment to legislate for improved repatriation processes to third countries, alongside exploring new solutions to prevent and counter irregular migration. Additionally, the Commission’s offer to present a new legislative proposal to standardize return systems across all EU countries was welcomed. European leaders also expressed solidarity with Poland against the threats from Russia and Belarus to the Union’s internal security through the political manipulation of migrants. Lastly, the possibility of exploring new policies to prevent and counter unauthorized access by third-country nationals into the Union was accepted.
Back to reality
Considering the European Council’s discussions on migration, there is a need to deal with the reality behind some of the policies endorsed by European leaders. Michele LeVoy, Director of the Platform for International Cooperation on Undocumented Migrants (PICUM), stated: “The Italy-Albania agreement, now praised by many EU countries, is an inhumane, absurd, and costly system that violates international human rights obligations. We expect, and demand, better from a Union supposedly grounded in the values of human dignity and human rights.” She continued: “We are dismayed by the growing support from many Member States and even the Commission for the idea of sending people to centers outside the Union, only to deport them from there. Beyond being a logistical and financial absurdity, it is a cruel system that violates international and European law and puts people at risk of abuse without clear options for justice and remedy.”
The “Italy-Albania model”, which European leaders are eager to replicate, demonstrated its flaws within a week of its inauguration. While Giorgia Meloni was in Brussels, the Rome Tribunal, based on a recent European Court of Justice ruling, overturned the fate of the 12 adult male migrants to be detained at the Gjader center. The Meloni executive promptly criticized the judiciary and enacted an ad hoc decree law aiming to overturn the judgment, seeking to save the externalization project in Albania. However, this may prove ineffective against the rulings of the Rome Tribunal judges, who are committed to upholding EU law to prevent the detention of migrants in Albania.
Regarding Donald Tusk’s plan to counter the instrumentalization of migrants from Belarus, Polish President Andrzej Duda himself expressed serious doubts about the measure’s effectiveness in controlling irregular migration flows and expressed significant concern over its impact on Belarusian opposition activists. His reasons echoed criticisms from various NGOs involved in migrant support within Europe, calling on Poland to respect international asylum obligations.
It is also essential to note that attributing the recent decrease in the number of migrants arriving to Europe to cooperation agreements with transit or origin countries is accurate, but partial. Behind the pride European leaders take in the effectiveness of these agreements lie alarming reports from various international organizations documenting severe human rights abuses resulting from these externalization policies, which include forced returns to control migration flows.
The new patriots
On October 17, alongside the European Council, the inaugural summit of the new political group “Patriots for Europe” took place. This group unites far-right European politicians with radical views on migration policies, making it the third-largest political group. Among its members are Matteo Salvini, Marine Le Pen, and Viktor Orbán. During the summit, leaders of this new political group agreed on the necessity of an opt-out clause for Union member states from EU obligations if these compromise national security or sovereignty. At the conclusion of the summit, Dutch Party for Freedom leader Geert Wilders expressed pride in Italy as an example to follow, stating: “a new wind is blowing in Europe.” In contrast, considering the 8 million migrants who have arrived in Europe over the past decade, Le Pen stated that she does not believe the European Union is in any way a suitable solution for managing migration flows. The creation of this new, explicitly nationalist and sovereigntist political group – within the context of an increasingly right-leaning European Parliament – suggests a growing shift toward stricter migration policies, justified by security and national sovereignty concerns.
Fortress Europe
In light of the outcomes of this European Council, there are significant concerns regarding the possible evolution of the Union’s migration policies, especially with the impending implementation of the new Asylum and Migration Pact. The increasingly restrictive stance supported by member state leaders and promoted by the Commission – as just announced by Von der Leyen – will likely find great support in the European Parliament, whose new right-leaning configuration reflects this shift, as further evidenced by the formation of the new nationalist and sovereigntist political group. This context suggests a growing openness to progressively stricter migration policies in the name of security and national sovereignty.
European leaders have shown unity in further strengthening the so-called “Fortress Europe,” characterized by Schengen border controls, forced returns, externalized migration management mechanisms in non-EU territories, and illegal pushbacks through cooperation with third ad transit countries. All of this is happening at the expense of migrants and to the detriment of the right to asylum, ignoring evidence of the inefficacy of these policies and their documented consequences in terms of human rights violations.
