Artificial intelligence and migration

1The Parliamentary Assembly acknowledges the transformative potential of artificial intelligence (AI) across a range of sectors, including migration management. AI systems – capable of autonomous decision making and complex data analysis – are increasingly used in border surveillance, visa processing, biometric identification, natural language processing and integration support. These applications promise enhanced efficiency and service accessibility for migrants, refugees and asylum seekers.

2The Assembly emphasises, however, that technological innovation must not come at the expense of fundamental rights. If wrongly used, AI can reinforce structural inequalities, infringe on privacy and undermine asylum protection. The Assembly therefore reiterates its call for all Council of Europe member States to sign and ratify the Council of Europe Framework Convention on Artificial Intelligence and Human Rights, Democracy and the Rule of Law (CETS No. 225, hereinafter the “Framework Convention on AI”), which aims to ensure the development and deployment of AI in line with human rights standards and explicitly prohibits AI applications that violate the right to seek asylum, as stated in Article 5.

3AI-driven modernisation must be carried out in a way that minimises dangerous effects and risks for migrants, refugees and asylum seekers, such as discrimination and bias, and that does not unintentionally reinforce existing stereotypes or prejudice. States should rather harness the potential of AI to foster a more inclusive, secure and humane migration system.

4Recognising the profound impact that AI can have on individual rights and liberties, the Assembly stresses that AI should support – not replace – human decision making in migration and asylum processes, even if in some cases, AI may offer greater security and effectiveness than human decision making alone, by reducing the scope for human error. All AI tools must be transparent, accountable and subject to oversight, and be deployed in alignment with key international instruments, including the European Convention on Human Rights (ETS No. 5, hereinafter the “Convention”), the 1951 United Nations (UN) Convention relating to the Status of Refugees as amended by the 1967 Protocol (“Refugee Convention”) and the Charter of Fundamental Rights of the European Union (EU).

5Noting that the EU Artificial Intelligence Act classifies migration-related AI as high-risk technology, the Assembly underscores the need for additional safeguards. The use of AI in migration, asylum and border control management must not allow for the bypassing of international obligations, in particular under the Refugee Convention. Nor should they be used to in any way infringe on the principle of non-refoulement, or to deny safe and effective legal avenues into States’ territory, including the right to international protection.

6It is important therefore that AI systems in migration and asylum procedures undergo human rights, democracy, and rule of law impact assessments before their deployment. The Assembly recommends the use of the Council of Europe HUDERIA methodology to identify and mitigate risks, including algorithmic bias and privacy violations. Oversight must be embedded throughout the life cycle of AI systems with independent evaluations and mandatory human review.

7The Assembly calls for a prohibition on the use of AI tools such as automated credibility assessments, emotion recognition and risk profiling based on nationality or ethnicity. These technologies lack scientific validity and are incompatible with Articles 3 and 14 of the Convention.

8Noting the critical importance of data protection, privacy and security in the use of AI for asylum procedures, the Assembly emphasises that sensitive data, including biometrics, interview transcripts and country-of-origin information, must be end-to-end encrypted and must not be shared with the country of origin in case of risk of persecution, in accordance with the Data Protection Policy of the Office of the United Nations High Commissioner for Refugees (UNHCR).

9Artificial intelligence applications in migration management must thus balance efficiency gains with rigorous protection of human rights at all stages of the migration journey. The specific issues related to the use of AI in the field of migration must be addressed for each distinct stage of the process, from pre-departure activities to transit, arrival, stay, circulation, temporary or permanent return and sustainable (re)integration. Priority should be given to safeguards against bias and human oversight and to ensure the dignity of migrants, refugees and asylum seekers, as follows.

10At the pre-departure stage, AI tools used in visa and asylum screening should undergo human rights impact assessments before deployment. Systems like the European Travel Information and Authorisation System (ETIAS) should provide for manual review in cases flagged as high risk. All screening tools must be transparent and free from discriminatory outcomes. AI-powered chatbots can provide real-time multilingual information to migrants, refugees and asylum seekers, provided they disclose their automated nature and comply with ethical standards to avoid spreading misinformation.

11As regards labour migration via the appropriate channels, AI tools may be used to streamline, in a fair and accessible manner, the application process for employment and residence permits. AI may further support the detection of exploitative recruitment practices by identifying predatory employers and alerting the relevant authorities. AI tools such as visa checkers should be bias-audited and provide transparent outcomes that can be contested.

12The Assembly encourages the ethical use of AI in climate migration forecasting through the analysis of environmental and socio-economic data to improve humanitarian planning in accordance with its Resolution 2401 (2021) “Climate and migration”. AI tools such as those developed by the International Organization for Migration (IOM) can provide policy makers with a clearer predictive picture of climate-driven displacement patterns. Such predictive models can inform proactive support measures.

13AI may also be used to identify and disrupt smuggling networks through responsible data analysis.

14During the transit stage, the Assembly stresses the need for strict regulation of AI surveillance technologies. Predictive policing and biometric identification must be limited to strictly necessary and proportionate use, and all biometric data must be encrypted and restricted to authorised personnel. The Council of Europe Framework Convention on AI limits biometric categorisation to strictly necessary and proportionate cases. AI systems like the European Union’s European Border Surveillance System (EUROSUR) that monitor border movements must comply with the IOM’s 2023 Data Protection Principles.

15Surveillance technologies for migrants, refugees and asylum seekers in transit must be regulated with a view to protecting their rights, and AI-driven mass surveillance, such as drones and facial recognition, should be prohibited. AI may be used in a positive sense to support humanitarian corridors by using conflict mapping to identify safer transit routes.

16The Assembly recognises the essential role of eu-LISA (the European Union Agency for the Operational Management of Large-Scale IT Systems in the Area of Freedom, Security and Justice) and other EU bodies in managing migration-related databases such as the Schengen Information System (SIS), the Visa Information System (VIS), and Eurodac (the European Union’s centralised biometric database). Co-operation between EU and non-EU Council of Europe member States is important to ensure consistent data protection standards and respect for humanitarian obligations.

17The Assembly expresses once more its deep concern and sorrow over the deaths at sea of migrants, refugees and asylum seekers. It calls on member States to employ AI technologies to enhance search and rescue capabilities, and to uphold the dignity of deceased individuals, in accordance with the principles laid down in its Resolution 2569 (2024) “Missing migrants, refugees and asylum seekers – A call to clarify their fate” and Resolution 2612 (2025) “Saving the lives of migrants at sea and protecting their human rights”.

18At the arrival stage, AI can be used to support individualised, fair and rights-compliant asylum procedures, while never replacing the role of human caseworkers in interactions and decision making. AI-generated documents should be accessible in applicants’ languages and in plain language formats.

19Biometric systems and language recognition tools should be subject to routine bias audits to ensure equitable treatment, while facial recognition tools, such as those used in smart border tunnels, should undergo demographic testing to ensure compliance with non-discrimination requirements and adhere to EU-wide audit standards.

20AI systems in asylum processing should be verified and corrected for skewed datasets to avoid discriminatory proxies, and AI-generated evidence must be verified by humans, with access to judicial review. The use of tools such as emotion recognition or lie detectors should not be included, and predictive tools assessing the likelihood of absconding must not be used to justify detention, especially of minors. Impact assessments such as HUDERIA should be carried out prior to any roll-out of new systems.

21During the stay period, inclusive integration policies, in accordance with Assembly Resolution 2502 (2023) “Integration of migrants and refugees: benefits for all parties involved”, can be supported by the ethical use of AI, which can play a key role in accelerating the self-reliance of migrants, refugees and asylum seekers and boosting the resilience of host communities. Tools may be co-developed with refugee communities and NGOs and made accessible offline (telephone hotlines without internet access for example) and through voice interfaces to bridge digital divides.

22AI labour-matching tools should prioritise ethical criteria such as family unity and cultural fit. Gender-sensitive design is essential to avoid reinforcing labour market segregation that directs women into low-wage sectors. Continuous feedback loops should help address misplacements. Annual audits of AI systems used in welfare and housing are essential to detect and correct bias. Predictive analytics can support equitable urban planning, helping to prevent segregation and foster innovation and safety in diverse communities.

23The Assembly calls for the creation of independent oversight bodies such as the EU Artificial Intelligence Board, which should include civil society and legal and technological experts and should monitor the implementation of AI-powered systems in migration, asylum and border control management based on the guidelines of the Office of the United Nations High Commissioner for Refugees (UNHCR), on the Council of Europe Framework Convention on AI and on relevant EU regulations.

24Robust redress and compensation mechanisms must also be available to allow for the contesting of AI-generated evidence through expedited legal channels. Legal aid should be expanded to cover algorithmic disputes.

25For circular migration and return stages, AI chatbots used in return support programmes should comply with fairness standards, avoid nudging techniques and provide unbiased information. Migrants, refugees and asylum seekers should retain control over their data, with the ability to delete or transfer information upon exiting programmes and a guarantee against the sharing of biometric information with the country of origin. The sharing of biometric data with countries of origin must be banned if there is any risk of persecution. AI-based assessments of environmental conditions may assist in determining the safety of return destinations.

26Sustainable reintegration requires robust post-return monitoring. States should implement community-informed impact assessments and ethical AI tools to track outcomes related to employment, housing, and well-being. Offline-accessible AI assistants must support migrants to navigate reintegration services.

27In line with its Resolution 2343 (2020) “Preventing discrimination caused by the use of artificial intelligence”, the Assembly underscores the importance of specific action to prevent discrimination and disproportionate negative impact on groups such as women, minorities and the most vulnerable and marginalised individuals, including migrants, refugees and asylum seekers.

28Such potential discrimination in AI should be addressed at the design phase, which can usefully benefit from the participation of civil society organisations representing migrants, refugees and asylum seekers to increase trust and reliability. Awareness raising and training for asylum officers, NGOs and AI developers will strengthen ethical AI deployment.

29Member States must safeguard against the misuse of AI for disinformation, manipulation or cyberattacks that exploit migration vulnerabilities. Geopolitical threats, including those linked to the Russian Federation’s aggression against Ukraine, demand increased vigilance and resilience in migration policy frameworks to avoid a negative impact on the protection offered.

30As regards the general climate of opinion around migration issues, States should ensure that AI-powered chatbots are used ethically to provide accessible, accurate and multilingual migration information, and ensure that these tools are not used to manipulate narratives or asylum decisions. Here too, participatory design in chatbot development is to be favoured.

31To support the above measures, awareness raising and capacity building among all public and private stakeholders – particularly public authorities and officials, developers, small and medium-sized enterprises and start-up AI enterprises – on the use of AI in migration management is essential, based on the relevant regulatory frameworks and practical implementation.

1Noting the rapid advancement of artificial intelligence (AI) in migration management as in other areas, the Parliamentary Assembly recommends that the Committee of Ministers encourages the signature, ratification and implementation of the Council of Europe Framework Convention on Artificial Intelligence and Human Rights, Democracy and the Rule of Law (CETS No. 225) by all member States and other States.

2In light of Resolution … (2025) “Artificial intelligence and migration”, the Assembly urges the Committee of Ministers to prepare a recommendation guiding member States on the use of AI in migration management, followed by concrete actions that prioritise transparency, accountability and human rights protection.

3The Assembly urges the Committee of Ministers to ensure that migration-related policy instruments incorporate strong and enforceable safeguards and calls for the establishment of a code of good practice on the use of AI in migration management and in procedures affecting the rights of migrants, refugees and asylum seekers, which could form part of the above recommendation.

4The Assembly recommends that the Committee of Ministers plans – within the Council of Europe – awareness-raising programmes on the implications of AI in migration management for ombudsman institutions and equality bodies. These activities should strengthen their capacity to safeguard human rights. Similar awareness raising and training should be rolled out for migration officers, caseworkers and NGOs; the Council of Europe HELP programme (Human Rights Education for Legal Professionals) and the EU Digital Europe Programme may be useful instruments in this respect.

5The Assembly recommends strengthening co-operation with all the relevant bodies and agencies of the European Union and the United Nations on the application of AI in migration management. It emphasises also the importance of co-operation between the Council of Europe and civil society on this question, which would be particularly valuable in the design of any forthcoming instruments.