The challenges and needs of public and private actors involved in migration management
- Author(s):
- Parliamentary Assembly
- Origin
- Assembly
debate on 26 June 2025 (25th sitting) (see Doc. 16192, report of the Committee on Migration, Refugees and
Displaced Persons, rapporteur: Ms Sandra Zampa). Text adopted by the Assembly on
26 June 2025 (25th sitting).
1. The Parliamentary Assembly is convinced
that co-operation between public and private actors is one of the
most crucial aspects for successfully managing migration in Europe
and responding to the challenges faced by Council of Europe member
States, in particular regarding first assistance, reception and
integration of migrants, refugees and asylum seekers.
2. Such challenges emerge in particular at the borders of some
Council of Europe member States, as well as at congestion points,
which are places where migrants are cared for under formal reception
systems or live in informal settings.
3. The Assembly underlines the importance of international and
regional treaties as well as customary international humanitarian
law protecting migrants, refugees and asylum seekers, in particular:
the European Convention on Human Rights (ETS No. 5), the 1951 United
Nations Convention Relating to the Status of Refugees, the Geneva
Conventions, the United Nations Convention on the Rights of the
Child, the European Convention on the Exercise of Children’s Rights
(ETS No. 160) and the Council of Europe Convention on the Protection
of Children against Sexual Exploitation and Sexual Abuse (CETS No. 201).
4. Celebrating the 20th anniversary of the Council of Europe
Convention on Action against Trafficking in Human Beings (CETS No. 197),
the Assembly draws the attention of member States to the importance
of this convention and to the Council of Europe’s expertise in combating
trafficking in human beings, with migrant populations being particularly
targeted by this phenomenon.
5. The Assembly invites member States to make use of the Council
of Europe’s standards and expertise on migration issues, including:
the thematic work on migration of the Council of Europe Commissioner
for Human Rights; the standards developed by the European Committee
for the Prevention of Torture and Inhuman or Degrading Treatment
or Punishment (CPT) “Safeguards for irregular migrants deprived
of their liberty”; General Policy Recommendation No. 16 on safeguarding
irregularly present migrants from discrimination issued by the European
Commission against Racism and Intolerance (ECRI), as well as its
2024 factsheet “Integration and inclusion of migrants”; and the
European Programme for Human Rights Education for Legal Professionals
(HELP).
6. The Assembly recalls the Reykjavik Declaration, adopted during
the 4th Summit of Heads of State and Government of the Council of
Europe held on 16 and 17 May 2023, during which the heads of State
and government reiterated “the necessity to fight against trafficking
and smuggling of migrants”, “while continuing to protect the victims
and respect the human rights of migrants and refugees”.
7. With regard to civil society, the Assembly refers to Recommendation CM/Rec(2018)11
of the Committee of Ministers to member States on the need to strengthen
the protection and promotion of civil society space in Europe. It
also refers to Appendix III of the Reykjavik Declaration, the “Reykjavik
Principles for Democracy”, which reaffirms that “civil society is
a prerequisite for a functioning democracy”.
8. On age assessment in the context of migration, the Assembly
refers to its
Resolution 2195 (2017) “Child-friendly
age assessment for unaccompanied migrant children”, promoting the
development of a child-sensitive, comprehensive model of age assessment
that would enable member States to meet the needs of unaccompanied
or separated children. The Assembly also refers to Recommendation
CM/Rec(2022)22 of the Committee of Ministers to member States on
human rights principles and guidelines on age assessment in the context
of migration, underlining the importance of the principle of presumption
of minority for persons undergoing age assessment, and the requirement
for member States to implement multidisciplinary and evidence-based
age-assessment procedures.
9. The Assembly underlines the responsibility of its members,
in their capacity as both national lawmakers and members of the
Assembly, to act at European and domestic levels to promote the
Council of Europe’s instruments, standards and expertise, and to
align national legislation and practice with the recommendations made
hereafter, in particular regarding the arrival, reception and integration
of migrants, refugees and asylum seekers.
10. To ensure that the public and private actors involved in migration
management fulfil their tasks with respect for the human rights
of migrants, refugees and asylum seekers at first arrival at borders
and at congestion points, the Assembly invites the Council of Europe
member States to:
10.1 ensure that
minimal standards are established for dignified assistance, with
particular attention to vulnerable persons, especially women, children,
unaccompanied minors and victims of trafficking, ensuring their
safety in transit and reception facilities, as well as separate
and safe spaces;
10.2 ensure adequate medical assistance, both at first arrival
and in the long term, including access to psychological and psychiatric
support;
10.3 establish clear procedures for the identification of persons
with specific needs, including safe and child-sensitive age assessment
for unaccompanied minors, in line with Recommendation CM/Rec(2022)22
of the Committee of Ministers of the Council of Europe;
10.4 ensure that there are enough staff and adequate resources
for the authorities involved, and sufficient staff rotation in order
to avoid risks of trauma and burnout;
10.5 train civil servants on legal information and assistance
to be provided to migrants, refugees and asylum seekers to overcome
legal and administrative obstacles and on up-to-date country-of-origin information;
10.6 provide financial support to municipalities, and local
government bodies in general, affected by recurrent arrivals of
migrants on their territory;
10.7 ensure that full and clear information is given to migrants,
refugees and asylum seekers on current legislation on immigration
and asylum, and facilitate their access to international protection procedures;
10.8 ensure effective and timely access to the national reception
system for migrants claiming international protection;
10.9 support closer co-operation between these actors and European
agencies, such as the European Union Agency for Asylum, the European
Border and Coast Guard Agency (Frontex) and the European Union Agency
for Law Enforcement Cooperation (Europol), as well as international
organisations, such as the International Organization for Migration
and the United Nations High Commissioner for Refugees;
10.10 establish independent human rights monitoring mechanisms
at European and domestic borders, where they do not exist already.
11. To respond to the challenges and needs of public and private
actors involved in the reception and integration of refugees and
asylum seekers, the Assembly encourages member States to promote
integration and further social cohesion within host communities
and invites them to:
11.1 strengthen
the co-operation between public and private actors supporting refugees
and asylum seekers, including local government bodies, local communities
and civil society organisations;
11.2 favour decentralised decision making by empowering local
government bodies and local communities to design and implement
integration programmes, encouraging participation in community life;
11.3 establish coherent, locally driven inclusion policies
and ensure assistance to refugees and asylum seekers in overcoming
legal and administrative obstacles;
11.4 support public and private actors involved in reception
in the provision of medical care, legal aid, language courses, vocational
training and access to public services, in co-operation with local government
bodies, local communities and civil society actors;
11.5 ensure predetermined and reasonable time frames for examining
applications for international protection to avoid prolonging the
over-reliance on reception centres;
11.6 support the transition from reception to community inclusion,
with specific accompanying measures to favour autonomy and independence.
12. To facilitate the way in which public and private actors contribute
to the inclusion of refugees and asylum seekers, the Assembly calls
on member States to:
12.1 end reliance
on large-scale reception facilities and prioritise smaller reception
facilities, such as houses and apartment units, by investing in
dignified small-scale community accommodation, disseminated throughout
the national territory;
12.2 adopt the model of “integrated reception” going beyond
the mere distribution of food and accommodation, and providing individual
programmes designed to enable refugees and asylum seekers to regain
a sense of independence and effective involvement in community life,
in terms of employment, housing and access to local services and
social interaction, through the development of solid relationships
with local government bodies, local communities and local networks;
12.3 ensure that there are dedicated reception facilities for
unaccompanied minors, victims of trafficking and persons with special
needs;
12.4 ensure that there is an independent monitoring mechanism
for the different reception facilities, including by offering accessible
complaint procedures.
13. The Assembly also encourages public-private co-operation in
informal settings where the humanitarian conditions are very concerning.
National authorities and local government bodies should put in place
specific measures to assist those living in informal settlements,
to respond to their basic needs and orient them to local services,
including the provision of suitable reception facilities and protective
measures for minors, women, victims of trafficking and other vulnerable
persons.
