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“Visa liberalisation is conditional upon: significant improvements in the level of document security, including biometrics; strengthening of border and migration management and asylum policy; reforms and cooperation in the area of public order and security; addressing external relations issues (including human rights and fundamental freedoms) linked to the movement of persons. These reforms and improvements should result in a high level of effectiveness corresponding to relevant European and international standards.” (EU-Ukraine visa dialogue, Action plan on visa liberalisation) 

Ukraine (candidate status since 2022 – accession talks 2024) 

 

Background 

On 29 October 2008, the Commission launched a dialogue on visa liberalisation with Ukraine with the aim of examining all the relevant conditions necessary for EU visa-free travel. On 18 December 2015¹, the Commission adopted its sixth and final progress report on the implementation by Ukraine of its Visa Liberalisation Action Plan (VLAP). In the Report the Commission concluded that Ukraine had implemented all the measures identified in the third progress report and that all the benchmarks of the VLAP had been met. 

Following the positive assessment of the progress report and taking into account overall EU-Ukrainian relations; the Commission presented on 20 April 2016 a legislative proposal to lift visa requirements for Ukrainian citizens holding a biometric passport, by amending the Regulation on Visa requirements for nationals of Non-EU countries. While it allows Ukrainian nationals who hold biometric passports to travel without a visa to the Schengen area for short stays up to 90 days, it should be clear that visa liberalisation does not give a right to work or reside in the EU. 

The decision to transfer Ukraine to the list of third countries whose nationals are exempt from visa requirement entered into force on 11 June 2017. From this date, the visa obligation for citizens of Ukraine who hold a biometric passport and want to travel to the Schengen area for a short stay was abolished. 

Ukrainian citizens with biometric passports will no longer require visas when travelling for short stays of up to 90 days to all EU Member States except for Ireland and the UK, as well as the four Schengen associated countries. 

Chronology  

• The EU-Ukraine Visa Liberalisation Dialogue was launched on 29 October 2008 and the Visa Liberalisation Action Plan  was presented to Ukraine on 22 November 2010. 

• The First Progress Report on Ukraine was issued in September 2011. 

• The Second Progress Report on Ukraine was issued in February 2012. 

• The Third Progress Report on Ukraine was issued in November 2013. 

• The Fourth Progress Report on Ukraine was issued in May 2014. 

• The Fifth Progress Report on Ukraine was issued in May 2015. 

• The Sixth Progress Report (final report) on Ukraine was issued in December 2015. 

• The last Press release of the assessment by the European Commission of the VLAP with Ukraine was published in May 2015. 

•  The European Commission proposed on 20 April 2016 to allow visa-free travel to the Schengen area for Ukrainian citizens holding a biometric passport. This proposal builds on the successful implementation by Ukraine of all the benchmarks set in its Visa Liberalisation Action Plan. 

•  The decision to transfer Ukraine to the list of third countries whose nationals are exempt from visa requirement entered into force on 11 June 2017. From this date, the visa obligation for citizens of Ukraine who hold a biometric passport and want to travel to the Schengen area for a short stay was abolished. 

1. The Transition to Biometric Passports: Legal Framework and Implementation  

Visa liberalisation Action Plan (2010) 

Document security, including biometrics; 1st phase (legislative and policy framework): 

• Adoption of a legal framework for the issuing of machine readable biometric international passports in full compliance with the highest International Civil Aviation Organization standards on the basis of secure identity management (civil registry and breeder documents) and taking into account adequate protection of personal data.  

• Adoption of an Action Plan containing a timeframe for the complete roll-out of ICAO-compliant biometric international passports, including at Ukrainian consulates abroad, and the complete phasing out of non-ICAO compliant passports 

• High level of integrity and security of the application, personalisation and distribution process for international passports, as well as domestic passports and other breeder documents. 

•  Adoption of an action plan with a clear timetable for introducing biometric passports and phasing out non-compliant passports. 

Operational implementation: 

• Gradual roll-out of biometric international passports in compliance with ICAO standards, including at Ukrainian consulates abroad, and phase-out of non- ICAO compliant passports; 

• Complete phase-out of non-ICAO compliant passports. 

• Ensuring the security and integrity of the application, personalisation and distribution process for passports and other identity documents. 

• Systematic reporting of lost and stolen passports to international databases (Interpol) and cooperation with EU states on document security. 

Third Progress Report 2013 

The report highlights progress and remaining gaps in document security and biometric passports. 

• Ukraine adopted legislation introducing biometric passports compliant with international standards, including the use of biometric identifiers such as fingerprints. 

• However, the Commission noted that the use of fingerprints as a mandatory biometric feature still needed clarification in national legislation. 

• The reforms also required strengthening the legal and institutional framework governing the issuance of passports and identity documents. 

• The objective was to ensure secure issuance procedures and compliance with international document security standards, particularly those set by ICAO.  

The Fourth Progress Report 2014 

In the area of document security, the Commission requested Ukraine to complete the framework law with explicit reference to fingerprints and to adopt implementing regulations to ensure that the legislative framework is ready for the issue in due course of biometric passports. 

The Ukrainian government has drafted and adopted the required implementing regulations to prepare for the issue of biometric passports. The government has proposed to adopt an action plan for 2014-17 defining the responsibilities of the various authorities. The Ukrainian government was similarly finalising its proposal to amend the framework registry law (Law on Single Demographic Registry and Identity Documents) to make fingerprints an obligatory biometric feature. 

In the area of migration and asylum management, the Commission requested modification of the asylum law, in particular to widen the definition of complementary protection and temporary protection and to ensure free medical care for asylum seekers. 

The European Commission required Ukraine to complete the legislative framework governing identity documents, including explicit provisions on the use of fingerprints as biometric identifiers. 

Ukraine adopted implementing regulations and by-laws to operationalise the system for issuing biometric passports. 

The government prepared an action plan for 2014–2017 specifying the responsibilities of the different authorities involved in the introduction of biometric travel documents.  

The Fifth Progress Report (May 2015) 

A major institutional development occurred as of 12 January 2015 with the issuance of biometric ordinary passports that comply with requirements of the International Civil Aviation Organisation. There have been very substantial improvements and significant progress has been made regarding the high level of integrity and security of the application, personalisation and distribution process for international passports. The same goes for domestic passports and other breeder documents. Prompt and systematic reporting to the Interpol database on lost and stolen passports has started and this benchmark can be considered as being met.  

The document security benchmark is deemed to be almost achieved.  It is recommended that the Ukrainian authorities:  

• Ensure that the border checkpoints are equipped to carry out second-line controls using fingerprints.  

• Concerning the application process and establishing the identity of the applicant, the connection of the former State Migration Service database to the operational part of the Unified State Demographic Register for the issuance of biometric passports should be implemented as soon as possible. There should be an automatic link with the relevant database in order to check the situation of the applicant in relation to criminal records.  

• Implement measures effectively to address possible side effects of name changing.  

The Sixth Progress Report (December 2015) 

• The launch of biometric passports containing electronic chips and biometric identifiers, including fingerprints. 

• Establishment of secure procedures for the production, personalisation and distribution of travel documents. 

• Strengthening document security standards in line with international ICAO requirements. 

• Development of systems allowing authorities to verify identity data and detect fraudulent or stolen documents. 

These measures ensured that Ukrainian travel documents met EU and international security standards, allowing the EU to trust the reliability of Ukrainian passports for visa-free travel. 

 

The Last Press release (May 2015) 

The press release confirms that Ukraine successfully introduced biometric passports as required by the VLAP. The biometric passport system complies with international document security standards and strengthens the reliability of Ukrainian travel documents. 

2. Registration of New Citizens and Management of Population Registers: Document Security Systems 

 Visa Liberalisation Action Plan (2010) 

The Action Plan required the establishment of secure population registration systems linked to identity documents. 

• Creation or reform of the civil registry system to ensure reliable identity data (birth registration, citizenship confirmation). 

• Management of breeder documents (documents used to obtain passports) through a secure administrative authority such as the State Registration Service. 

• Integration of identity registries with passport systems to guarantee accurate identification of citizens. 

• Ensuring data protection standards and secure management of personal information. 

Security aspects 

• Prevention of identity fraud through secure documentation procedures. 

• Verification systems linking identity records with biometric passport issuance. 

• Monitoring and reporting mechanisms to maintain the integrity of identity databases. 

• Prompt and systematic reporting to Interpol/LASP data base on lost and stolen passports. 

•  Regular exchange of passport specimens and cooperation on document security with the EU. 

• Establishment of secure identity management, including reliable civil registries and breeder documents (birth certificates, identity documents). 

The Third Progress Report 2013 

The importance of secure population registration and identity management systems is stressed: 

• Ukraine needed to improve the civil registration and identity documentation system, including the management of “breeder documents” (birth certificates and civil registration documents) 

• Authorities had to ensure reliable databases and administrative procedures for identity registration. 

• The system had to guarantee secure storage, management and verification of personal data to reduce risks of identity fraud. 

• These reforms were linked to the broader goal of strengthening document security and administrative integrity in the issuance of passports and identity cards. 

The Fourth Progress Report 2014 

The Ukrainian government has followed up on these recommendations. The required amendments to the asylum law on the scope of complementary and temporary protection were adopted by Ukraine’s parliament, Verkhovna Rada, on 13 May. Additional amendments were introduced and have already been adopted by the parliament to ease access to employment for asylum seekers by making the work permit free of charge. As regards medical care, a by-law was adopted to ensure that medical care is provided. 

• Ukraine strengthened the administrative system responsible for issuing identity documents, including procedures for verifying civil status records. 

• Measures were adopted to ensure secure management of personal data and population registers used to produce passports. 

• Authorities worked on improving the integrity of breeder documents to prevent identity fraud. 

• While the legislation is now largely in place, increased efforts will be needed in the implementation phase to ensure an efficient asylum system, especially with regard to the asylum procedure and the integration of recognised refugees. 

The Fifth Progress Report (May 2015)/ the Sixth Progress Report (December 2015) 

The reforms ensured that biometric passports were issued on the basis of reliable and secure identity data. The Ukrainian authorities demonstrated progress in ensuring that the free movement within Ukraine of Ukrainian citizens and legally staying foreigners or stateless people is not subject to unjustified restrictions. The authorities are implementing the legal framework concerning freedom of movement and have taken steps to extend its provisions by making them applicable to citizens residing in territories not under the effective control of Ukrainian authorities. Information on the registration requirements of foreigners is provided publicly and is available online.  

 Progress in identity management and population registration systems was confirmed: 

• Establishment and improvement of the State Migration Service and population register systems responsible for identity documentation. 

• Strengthening of the population register and migration management systems, particularly those managed by the State Migration Service. 

• Improved management of civil status records and breeder documents (such as birth certificates used to obtain identity documents). 

• Development of administrative procedures for storing and verifying personal data. 

• Development of secure electronic databases used for identity verification and passport issuance. 

• Better coordination between institutions responsible for civil registration, migration services and border control. 

The Last Press Release (May 2015) 

The population registration and identity management systems have been strengthened and used to issue passports and identity documents. They succeeded in developing secure administrative procedures and databases for storing and verifying citizens’ personal data, management of civil status records and breeder documents (such as birth certificates used to obtain identity documents 

3. Strengthening Anti-Corruption Frameworks and Public Integrity Measures  

Visa Liberalisation Action Plan (2010) 

Establishment of training programmes and adoption of ethical codes on anti-corruption targeting the officials of any public authority that deals with international passports, as well as domestic passports and other breeder documents. The VLAP required reforms aimed at reducing corruption in public administration, particularly in institutions responsible for issuing identity documents. 

Regulatory improvements 

• Adoption of anti-corruption policies targeting officials involved in issuing passports and identity documents. 

• Strengthening the legal framework against corruption in administrative processes. 

Training and awareness 

• Establishment of training programmes for public officials working with passports and civil documentation. 

• Development and dissemination of educational and informational materials aimed at preventing corruption and improving administrative integrity.  

The Third Progress Report 2013 

The Commission emphasised the need for stronger anti-corruption legislation and enforcement mechanisms. 

• The need to strengthen anti-corruption legislation, including more dissuasive sanctions for corruption in the private sector. 

• Establishment of impartial mechanisms to verify asset declarations of public officials. 

• Improvements to public procurement rules to prevent corruption in public administration. 

• Clarification of rules regarding immunity of officials to avoid impunity.  

The Fourth Progress Report  

In relation to the required benchmarks in Block 3, the third Commission report underlined the need to urgently address a number of issues in relation to preventing and fighting corruption. These included: strengthening public procurement rules; clarifying exceptions and transparency rules; ensuring asset disclosure and effective and impartial checks on declaration of assets; completing rules on corruption in the private sector; and strengthening the system on lifting immunities. 

•  Adoption of new anti-corruption legislation creating stronger rules on transparency and integrity in public administration. 

• Development of institutions responsible for preventing and combating corruption. 

•  Increased focus on training and awareness for public officials in order to reduce corruption risks in public service 

• Ukraine worked on strengthening the legal framework regulating the conduct of civil servants. 

• Ethical standards and integrity rules were linked to the broader anti-corruption reforms. 

• Public officials, especially those working in law enforcement and administrative services, were expected to follow clear professional and ethical guidelines. 

The Fifth Progress Report (May 2015) 

The progress made so far on anti-corruption policies was notably at legislative level and on some preparatory steps for a new institutional setting. 

 In October 2014, an anti-corruption package, including a national strategy for 2014-17, was adopted, setting the foundations for a new institutional framework for prevention policies. Certain shortcomings in the law on the National Anti-Corruption Bureau were addressed in February 2015, including safeguards for staff salaries and a framework for a specialised anti-corruption prosecution office. The recruitment of the Bureau’s leadership, following an open competition managed by an independent commission, was finalised on 16 April 2015, when the President appointed the Bureau’s director. The central register of companies is being completed with data on beneficial ownership. Progress was made in reducing exemptions in public procurement. However, there is little prioritisation and coherence in the implementation, leading to a fragmentary approach for what is already an overwhelming process. Besides, the Commission will continue to monitor the putting in place of anti-corruption safeguards for privatisations, state-owned/controlled companies as well as large public procurement; the adoption of legislation reflecting the GRECO recommendations on party and electoral campaign funding and the follow up of the Venice Commission’s recommendations and a realistic frame as regards the ‘cleaning-up’ exercise of the ranks of judges and prosecutors envisaged by the Ukrainian authorities.  

The anti-corruption benchmark is deemed to be only partially achieved. It is recommended that the Ukrainian authorities:  

• Ensure a high-level, anti-corruption coordination mechanism to implement the anti-corruption strategy and ensure a consistent approach at political level.  

• Establish an operational and independent National Anti-Corruption Bureau, a specialised anti-corruption prosecution office and a National Agency for Prevention of Corruption, with clear guidelines for inter-agency cooperation.  

• Put in place procedures to ensure: the timely publication of all current asset declarations; effective verification of assets and conflicts of interest of public officials; full operability and accuracy of central electronic databases, including on asset declarations and beneficial ownership; and a unified web portal disclosing public expenditure.  

• Establish a national Asset Recovery Office and an effective inter-agency coordination to establish an asset recovery record.  

• Pursue the immunity reforms related to judges and Members of Parliament.  

The Sixth Progress Report (December 2015) 

• Creation and operationalisation of the National Anti-Corruption Bureau of Ukraine (NABU). 

• Establishment of the Specialised Anti-Corruption Prosecutor’s Office. 

• Creation of the National Agency for the Prevention of Corruption responsible for monitoring asset declarations of public officials. 

• Adoption of legislation strengthening asset recovery, confiscation and transparency mechanisms. 

However, the report stressed that these institutions needed sufficient funding and full operational capacity to ensure effective enforcement of anti-corruption policies. 

The Last Press Release (May 2015) 

The press release emphasises that fighting corruption was a key benchmark of the visa liberalisation process. The Ukrainian state adopted a comprehensive anti-corruption legislative framework that would create specialised anti-corruption institutions, including investigative and prosecutorial bodies.  

4. Adoption of a Code of Ethics 

Visa Liberalisation Action Plan (2010) 

• Establishment of training programmes and adoption of ethical codes on anti-corruption targeting the officials of any public authority that deals with international passports, as well as domestic passports and other breeder documents. Reduce corruption risks and increase trust in the document issuance system. 

• Implementation of legislation on preventing and fighting corruption, ensuring the efficient functioning of the independent anti-corruption agency; development of ethical codes and training on anti-corruption, especially targeting public officials involved in law enforcement and the judiciary; 

• Establishment of training programmes and adoption of ethical codes on anti-corruption specifically targeting border guards, customs and any other officials involved in border management 

The Third Progress Report 2013 

An ethical code was already adopted in 2011, focusing on the integrity of the civil service, asset declarations and rules on whistle-blowers, and another more general code for officers of internal affairs bodies of Ukraine was adopted in 2012. It is to be seen whether updates are necessary, due to the subsequent changes in the overall legal framework on anti-corruption (for further detail see the section on Block 3).   

In the area of border management, all the necessary laws are in place along with the institutional framework, including provision of training and ethical codes to fight corruption. Inter-agency information exchange should be improved via the possibility to exchange information at regional and local levels. 

The Fifth Progress Report (May 2015) 

The report also addresses the need to strengthen ethical standards and integrity rules for public officials. 

• Implementation of integrity and accountability standards for civil servants as part of broader anti-corruption reforms. 

• Establishment of rules governing the conduct of public officials, including those working in law enforcement, migration services and border management. 

• Reinforcement of professional standards and ethical obligations in public administration to prevent abuse of power and corruption. 

The Last Press release (May 2015) 

• Adoption of frameworks requiring public officials to follow clear ethical and professional standards. 

• Integration of ethical conduct rules within broader anti-corruption and governance reforms. 

Result  

The Visa Liberalisation Action Plan between the European Union and Ukraine resulted in the successful completion of a comprehensive and monitored reform process that led to the establishment of a visa-free regime for Ukrainian citizens. The final assessment, issued in December 2015, confirmed that Ukraine had fulfilled all the necessary benchmarks, marking the successful conclusion of the VLAP process. In April 2016, this positive evaluation led the European Commission to propose, the lifting of visa requirements for Ukrainian citizens. Subsequently, the decision to transfer Ukraine to the list of third countries whose nationals are exempt from visa requirements entered into force on 11 June 2017. From that date, Ukrainian citizens holding biometric passports were granted visa-free travel to the Schengen area for short stays. Visa liberalisation from June 2017, permits citizens with biometric passports to enter the EU/Schengen area without visas for up to 90 days in any 180-day period for tourism, business, or family, fostering closer EU-Ukraine ties. The move significantly increased travel, boosted tourism/business, facilitated structural reform, and enhanced border management security. 

The ease of travel led to a substantial increase in trips from Ukraine to the European Union, which in turn strengthened cultural and economic ties between the two sides. As a precondition for visa liberalisation, Ukraine undertook significant security and legal reforms, updating its legislative framework in areas such as border control, migration, and anti-corruption efforts. Despite initial concerns, there was no drastic surge in illegal migration or abuse of the system, according to reports from Frontex. The process also contributed to improved security cooperation, particularly through enhanced collaboration on combating corruption and strengthening document security. Finally, Ukraine continues to meet the required conditions, while the European Union maintains regular monitoring to ensure that structural reforms are sustained, especially in the field of anti-corruption. 

Moldova (candidate status since 2022- accession talks 2024) 

Background  

The Justice and Home Affairs section of the EU-Republic of Moldova ENP Action Plan, in place since 2005, provides the overall framework for EU-Republic of Moldova cooperation in the area of Freedom, Security and Justice (JLS) and its priorities are regularly monitored through EU-Republic of Moldova JLS Subcommittee meetings. As a first gradual step towards the long-term perspective of visa-free travel, EU-Republic of Moldova visa facilitation and readmission agreements entered into force on 1 January 2008. A wider EU-Republic of Moldova Mobility Partnership was signed on 5 June 2008. Following exploratory talks on 2 March 2010 in Chisinau, which allowed for initial fact-finding, the EU-Republic of Moldova visa dialogue examining the conditions for visa-free travel of Moldovan citizens to the EU as a long-term goal was duly opened on 15 June 2010. The Republic of Moldova already exempts EU citizens from the visa obligation. the Council on 25 October 2010 invited the Commission to prepare a draft Action Plan setting out all the conditions to be met by the Republic of Moldova before the possible establishment of a visa-free travel regime, with a view to the visa dialogue entering a fully operational phase as soon as appropriate. 

Chronology 

The EU-Republic of Moldova Visa Liberalisation Dialogue was launched on 15 June 2010 and the VLAP was presented to the Moldovan authorities in January 2011. 

The First Progress Report on Moldova was issued in September 2011. 

The Second Progress Report on Moldova was issued in February 2012. 

The Third Progress Report on Moldova was issued in June 2012. 

A Report on the Possible Migratory and Security Impacts of Future Visa Liberalisation for Moldova on the EU was issued in August 2012. 

The Fourth Progress Report on Moldova was issued in June 2013. 

The Fifth Progress Report (final report) on Moldova was issued in November 2013. 

The European Commission proposed on 27 November 2013 to allow visa-free travel to the Schengen area for Moldovan citizens holding a biometric passport. This proposal builds on the successful implementation by the Republic of Moldova of all the benchmarks set in its Visa Liberalisation Action Plan. 

The decision to transfer the Republic of Moldova to the list of third countries whose nationals are exempt from visa requirement entered into forcet on 28 April 2014. From this date, the visa obligation for citizens of the Republic of Moldova who hold a biometric passport and want to travel to the Schengen area for a short-stay was abolished. 

1. The Transition to Biometric Passports: Legal Framework and Implementation 

Visa Liberalisation Action Plan (January 2011) 

• The VLAP indicates that the visa waiver would apply only to Moldovan nationals holding biometric passports, therefore risks related to a visa waiver for non-biometric passport holders are not analysed. 

• If the rules on issuing identity and travel documents and their security are not strictly applied, including regarding the International Civil Aviation Organization, compliant biometric passports, individuals and organised crime groups could try to exploit the loopholes. 

• Moldova developed a comprehensive legal framework for identification and documentation procedures, particularly for citizens whose identity needed to be verified before issuing passports. 

• Special procedures were created for people from the Transnistrian region, using additional verification through family-related breeder documents (e.g., birth certificates or marriage certificates) 

The Third Progress (September 2011) 

•  The introduction of biometric passports containing electronic chips and biometric identifiers, in line with International Civil Aviation Organization standards. 

• Strengthening the legal framework regulating the issuance of identity documents and passports. 

•  Establishing secure procedures for the production, personalisation and distribution of biometric passports. 

• Developing mechanisms to report lost and stolen passports to international databases, which helps prevent document fraud. 

A Report on the Possible Migratory and Security Impacts of Future Visa Liberalisation for Moldova on the EU (August 2012) 

The report stresses the importance of biometric passports and secure identity verification as a prerequisite for visa-free travel. 

• Visa-free travel would apply only to Moldovan citizens holding biometric passports with enhanced security features. 

• Moldova established procedures for issuing biometric passports and verifying identity data before documentation. 

• Authorities developed a legal framework for identifying persons, particularly from the Transnistrian region, based on additional documentation such as family records, marriage certificates and other breeder documents.  

Moldova was also required to share data on lost and stolen biometric passports with international databases such as Interpol. These measures aimed to ensure that Moldovan travel documents were secure and reliable for EU border authorities. 

The Fourth Progress Report (June 2013) 

The report confirms that Moldova successfully established a secure system for issuing biometric passports. These reforms ensured that Moldovan travel documents met EU security requirements, which was a fundamental condition for visa-free travel. 

Since January 2011, the Republic of Moldova is issuing exclusively biometric passports (Ordinary passports, Diplomatic passports, Official passports and passports for stateless persons) with the “one Passport, one Document” principle being implemented.  

1 July 2011, introducing the new specimens with the Moldovan biometric passports security features. In December 2012, 65 new specimens with the Moldovan diplomatic and service biometric passports security features were sent. 

As of 1 January 2012, Moldovan citizens living abroad can submit applications to the Republic of Moldova diplomatic missions and consular offices for obtaining a biometric passport. All embassies and consulates of the Republic of Moldova abroad, without exceptions, have been equipped with special equipment for collecting biometric data from applicants. This new biometric passport complies with ICAO standards and contains a number of security features recommended by ICAO[9].  

On 31 December 2012 there were 2 514 335 passports of citizens of the Republic of Moldova in circulation, 487 745 (or 19.3%) of which were biometric passports. The complete phasing out of non-biometric passports is planned for the end of 2020. 

The potential for someone to use multiple identities appears to be very limited given the existence of the SRP containing a large amount of data relating to each Moldovan citizen. The inclusion of biometrics in passports “freezes” the identity of the holder and prevents that a different identity be used. 

ICAO compliant biometric passports are being distributed and old passport types are being rapidly phased-out. 

According to the Moldovan authorities the population of the Transnistrian region is 509 400 persons, out of which 55% are citizens of the Republic of Moldova and 33 128 of which hold Republic of Moldova biometric passports. 

The Fifth Progress Report (November 2013) 

• Implementation of a secure biometric passport system compliant with EU and international standards. 

• Issuance of biometric passports containing electronic chips and biometric identifiers. 

• Compliance with international standards for machine-readable travel documents. 

• Mechanisms for reporting lost and stolen passports to international databases, helping prevent document fraud. 

• Gradual roll-out of biometric passports in compliance with ICAO standards, including at Moldovan consulates abroad, and phase-out of non-ICAO-compliant passports 

The Republic of Moldova has been issuing exclusively biometric passports in full compliance with the ICAO standards since 1 January 2011 and the entire legislative framework required is in place and is being implemented. A consolidated framework for secure identity management is ensured. The current sticker passport booklets were tested by the French company Ingelis Expertise and were found in September 2010 fully compliant with ICAO standards. Additionally, on 11 June 2013 the Republic of Moldova became the 38th member of the ICAO Public Key Directory, with the Centre for State Information Resources (CSIR) Registry (‘Registru’), receiving six certificates in September 2013. The collection and management of biometric data is done in full compliance with the law on protection of personal data. 

Passports that do not contain biometric data issued until 1 January 2011 within the Republic of Moldova and the ones issued until 31 December 2011 abroad will be valid until the expiration date.  

On 1 September 2013, 2 623 225 passports of the citizens of the Republic of Moldova were in circulation, including 680 836 (or 25.19 %) biometric passports. The complete phasing out of non-biometric passports is scheduled for 2020. 

In order to start issuing biometric passports with integrated chips, Registru and the joint-stock company Gemalto signed on a contract 27 September 2013 for the production and delivery of passport booklets with a contactless integrated circuit. The contract was submitted on 30 September 2013 to the Public Procurement Agency of the Ministry of Finance for registration, and will enter into force after registration. The issuing of the new booklets is planned for the first quarter of 2015. 

2. Registration of New Citizens and Management of Population Registers: Document Security Systems 

Visa Liberalisation Action Plan (January 2011) 

• Strengthening the civil registry system in order to control and trace identity changes and prevent abuse. 

• Improving the management and verification of “breeder documents” (documents used to obtain passports, such as birth certificates). 

• Establishing clear rules regarding changes of name or identity, which could otherwise be used to obtain new passports fraudulently. 

•  Introducing traceability and control mechanisms within the civil registration framework to guarantee the integrity of identity records. 

• Provision of adequate infrastructure (including detention centres) and strengthening of responsible bodies to ensure effective expulsion of irregularly residing and/or transiting third-country nationals from the territory of the Republic of Moldova 

The Third Progress (September 2011) 

The National Virtual Centre uses a database called “Registru”. This database offers information on persons, vehicles, companies (the owners, kind of activity and means of transport registered in the company’s name), driving licenses, check on different types of documents like passports or, birth certificates and border crossings. As there are different types of database, under various operators (“Registru” under the Ministry of Information, Technology and Communications, information on crossing the state border from the Border Guard Service, information on real estate “Cadastru”), the Centre has access to these databases via the delegated liaison officers. 

The Order ‘on some prevention measures against corruption and protectionism’ was approved on 31 May 2011 by the Director General of the CSIR ‘Registru’ and was followed by the ‘Risk Management Action Plan on corruption risks in the area of population documentation and civil status registration’ on 11 August 2011. The ‘Management plan of corruption risks in the field of population documentation’ was approved on 5 April 2012 by the Director General of the CSIR ‘Registru’. Training courses for the employees of the territorial subdivisions for population documentation were given during 2011 and in the first trimester of 2012. 

• Strengthening procedures to ensure reliable identity data before issuing passports. 

A Report on the Possible Migratory and Security Impacts of Future Visa Liberalisation for Moldova on the EU (August 2012) 

• Strengthening the legal and institutional framework of the civil registry system to ensure accurate identification of citizens. 

• Establishing clear rules for identity changes (e.g., name changes) to prevent people from obtaining new passports fraudulently. 

• Introducing traceability and control mechanisms within civil registration systems to monitor identity records.  

The Fourth Progress Report (June 2013) 

• Modernisation of the civil registry and population registration system: The signing by the Registru of a contract on procurement of booklets with an integrated chip, based on the January 2012 tender results was suspended until February 2013 due to a legal challenge, which was rejected by the Supreme Court of Justice of the Republic of Moldova. The winner of the tender and Registru are expected to sign a contract in the summer of 2013. 

• Creation of secure administrative databases linking civil registry data with identity document issuance systems. 

• Strengthening data protection rules and verification procedures to prevent identity fraud.  

• Strengthening the legal and institutional framework regarding the “Civil Registry” in order to prevent the abuse of change of names or identity for the purpose of obtaining a new passport. Clear rules should be established and applied regarding name changes; the legal and institutional framework should be strengthened and include effective control as well as traceability measures 

The Fifth Progress Report (November 2013) 

The report highlights improvements in identity management and population registration systems. 

• Strengthening the civil registry and population registration systems used for issuing identity documents. 

• Improving the management and verification of breeder documents (e.g., birth certificates and civil status records). 

• Developing secure databases and administrative procedures for storing and verifying identity data. 

• Regularly share data on lost and stolen biometric passports with the EU authorities, in particular using Interpol’s Lost and Stolen Travel Document database 

• Strengthen the legal and institutional framework regarding the ‘Civil Registry’ in order to prevent the abuse of change of names or identity for the purpose of obtaining a new passport. Clear rules should be established and applied regarding name changes; the legal and institutional framework should be strengthened and include effective control as well as traceability measures. 

• Strengthening data management and risk-analysis capacities in migration authorities.  

3. Strengthening Anti-Corruption Regulations and Public Awareness Measures 

Visa Liberalisation Action Plan (January 2011) 

•  Implementation of legislation on preventing and fighting corruption, ensuring the efficient functioning of the independent anti-corruption agency; development of ethical codes and training on anti-corruption, especially targeting public officials involved in law enforcement and the judiciary 

• Adoption of legislation on preventing and fighting corruption and consolidation of the anticorruption function of the Centre for Combating Economic Crime and Corruption; strengthening coordination and information exchange between authorities responsible for the fight against corruption. 

• Strengthening measures to prevent and combat corruption, particularly in border management and public administration. 

• Introducing sanctions for people selling or lending their passports, which could lead to abuse of visa-free travel. 

• Conducting information campaigns explaining the rights and obligations of visa-free travel, including rules related to access to the EU labour market and penalties for misuse of the regime 

• Effective implementation of the National Human Rights Action Plan measures on fight against discrimination (including allocation of adequate resources); general awareness raising campaigns against racism, xenophobia, anti-Semitism and other forms of discrimination; – strengthening the responsible bodies for anti-discrimination policy and combating racism, xenophobia and anti-Semitism.  

The Third Progress (June 2012) 

• Establishment of training programmes, and adoption of ethical codes on anti-corruption specifically targeting border guards, customs and any other officials involved in border management 

Several anti-corruption activities have been launched under the auspices of the EUBAM. 

• comprehensive legislative and policy framework is in place and in an advanced stage of consolidation. The Republic of Moldova has passed and is about to pass a considerable number of legislative amendments aimed at aligning the legislative framework with the main European and international instruments. The Anti-Corruption Strategy and the Action Plan 2012-2013 were adopted. A new Law on the Centre for Combating Economic Crimes and Corruption (renamed National Anti-Corruption Centre) was adopted. The strategic planning and needs assessment should be further improved in order to ensure an effective implementation. Capacity, distribution of powers and cooperation among institutions with tasks in the anti-corruption field should be further strengthened. 

A Report on the Possible Migratory and Security Impacts of Future Visa Liberalisation for Moldova on the EU (August 2012) 

The Commission emphasised the importance of fighting corruption and preventing misuse of the visa-free regime. 

• Strengthening efforts to prevent and combat corruption, especially in border management and migration administration. 

• Establishing effective and dissuasive sanctions for individuals selling or lending their passports. 

• Conducting information campaigns explaining the rights and obligations of visa-free travel, including restrictions on working in the EU and penalties for abuse of the regime.  

These measures aimed to reduce risks of irregular migration, document fraud and corruption. 

The Fourth Progress Report (June 2013) 

The Commission recognised progress in strengthening the anti-corruption framework and public administration integrity. 

• Adoption and implementation of anti-corruption legislation and national anti-corruption strategies. 

• Provision of adequate infrastructure, technical equipment, IT systems, financial and human resources in accordance with the IBM Strategy and Action Plan to be adopted, and effective implementation of training programmes, anticorruption measures and awareness measures aimed at public officials involved in migration management, law enforcement and document issuance. 

• Strengthening institutions responsible for preventing and combating corruption. 

• Improving transparency and accountability in public administration. 

The Fifth Progress Report (November 2013) 

Regarding anti-corruption measures, planned and unexpected inspections are being carried out continuously. New rules on organising unexpected inspections were approved by Order No 51 of 18 June 2013. A strategy for preventing and fighting corruption at staff level was developed by the Civil Status Service and approved by Order No 58 on 16 July 2013. All staff, including the management of the central and territorial offices of evidence and documentation of population signed to confirm that they were aware of the Order ‘On some prevention measures against corruption and protectionism’ 

Regarding training, in order to harmonise the methodology for dealing with requests of judicial cooperation in criminal matters/mutual legal assistance the International Legal Assistance manual for judges and prosecutors was distributed in December 2012 to the territorial and specialised prosecutors, judges and other law enforcement authorities. Both prosecutors and judges attended trainings and seminars, at international and national level, including several organised by the National Institute of Justice. 

High level of effectiveness of judicial cooperation in criminal matters of judges and prosecutors with the EU Member States. 

4. Adoption of a Code of Ethics 

Visa Liberalisation Action Plan (January 2011) 

• Establishment of training programmes and adoption of ethical codes on anti-corruption targeting the officials of any public authority that deals with passports, as well as identity cards and other breeder documents 

The Third Progress (September 2011)  

The report highlights reforms aimed at strengthening ethical standards in public administration. 

• Introduction of codes of conduct and professional standards for public officials, particularly those working in law enforcement and migration authorities. 

• Strengthening disciplinary procedures and oversight mechanisms to address misconduct. 

• Promoting integrity, accountability and transparency in the public sector as part of broader governance reforms. 

• The ‘Ethical Code for staff working in civil registration and document issuance’ was adopted on 1 April 2011. It refers to the Labour Code for sanctions in the event of violation of its provisions. It introduces provisions on conflicts of interest, incompatibilities and obligation to report irregularities. 

These measures were intended to reinforce ethical behaviour and public trust in institutions responsible for migration and document management. 

A Report on the Possible Migratory and Security Impacts of Future Visa Liberalisation for Moldova on the EU (February 2012) 

• Preventing and combating corruption at all levels of administration  

• Establishing effective oversight mechanisms and sanctions for misconduct in migration management and identity documentation systems.  

The Fourth Progress Report (June 2013) 

• Increasing the funding for State sponsored integration measures and develop an ethical code for the personnel of the reception centre(s). 

The Fifth Progress Report (November 2013) 

The report emphasises improvements in integrity and ethical standards within public administration. 

• Strengthening rules on accountability and professional conduct for civil servants, particularly in migration services and law enforcement. 

• Promoting transparency and integrity in public administration as part of broader rule-of-law reforms. 

• Supporting reforms in justice and administrative systems, including governance reforms and institutional oversight mechanisms.  

• The Ethical Code for staff working in civil registration and document issuance has been in force since 1 April 2011. In 2012, there was one violation of the Ethical Code and the staff member was disciplined under an Internal Order of the Registru. In 2013 there were no cases. 

Result  

On 1 January 2008, a Visa Facilitation Agreement between the European Union and the Republic of Moldova entered into force, followed by the signature of a wider EU-Republic of Moldova Mobility Partnership on 5 June 2008. After exploratory talks held on 2 March 2010 in Chisinau, the EU-Republic of Moldova visa dialogue examining the conditions for visa-free travel of Moldovan citizens to the EU as a long-term goal was formally launched on 15 June 2010. Subsequently, on 25 October 2010, the Council invited the Commission to prepare a draft Action Plan setting out all the conditions to be met by Moldova before the possible establishment of a visa-free travel regime, with a view to the visa dialogue entering a fully operational phase. 

 As a first step towards this objective, Moldovan citizens benefited from the Visa Facilitation Agreement, which was later upgraded and entered into force on 1 July 2013. This agreement reduced visa fees to €35 instead of €60 and waived fees for broad categories of applicants, including children, pensioners, students, individuals visiting family members in the EU, persons requiring medical treatment, economic operators cooperating with EU companies, participants in cultural exchanges, and journalists. It also simplified and accelerated procedures and facilitated access to multiple-entry visas of longer duration. The VLAP was presented to the Moldovan authorities in January 2011, and in its fifth report on implementation, the European Commission concluded that Moldova met all the benchmarks set in the four blocks of the second phase. In particular, Moldova successfully reformed its Ministry of Interior, ensured continued judicial cooperation in criminal matters with EU Member States, strengthened international police cooperation, and established a solid framework for enhanced cooperation with Ukraine in border management.  

Additional efforts included the implementation of the Law on Ensuring Equality, the National Human Rights Action Plan, and the strengthening of the Ombudsman’s office. In November 2013, the Commission proposed transferring Moldova to the list of third countries whose nationals are exempt from visa requirements, applicable to holders of biometric passports. Moldova’s swift progress and effective implementation of reforms established it as a “model student” in the region. The VLAP facilitated significant improvements in administrative capacity, particularly in border control and migration governance, while reinforcing legal and institutional frameworks related to the rule of law. More broadly, the Moldovan case illustrates how EU conditionality, combined with strong political will, can produce rapid and tangible outcomes, granting mobility benefits to citizens while strengthening alignment with EU norms and standards. Over the same period, the number of short-stay Schengen visa applications from Moldovan citizens remained stable, oscillating between 50,000 and 55,000 annually, while the refusal rate decreased significantly from 11.4% in 2010 to 6.5% in 2012. 

Georgia (candidate status since 2023 – procedure stopped) 

Background 

Relations between the European Union and Georgia are based on the Partnership and Cooperation Agreement (1999), which established the framework for political and economic cooperation. This cooperation was strengthened with the EU-Georgia European Neighbourhood Policy Action Plan adopted in 2006, particularly in the field of Justice, Freedom and Security, where priorities are monitored through regular meetings. To improve mobility, the EU and Georgia established a Mobility Partnership in 2009, involving 16 EU Member States. This partnership focuses on facilitating legal migration, promoting migration for development, combating irregular migration, and strengthening asylum and international protection systems. Further steps toward visa liberalisation included the EU-Georgia visa facilitation and readmission agreements entering into force in 2011, while EU citizens have been able to travel to Georgia visa-free since 2006. The EU confirmed its long-term objective of visa-free travel for Georgian citizens, provided that Georgia meets the conditions for secure and well-managed mobility. In 2012, the EU launched a visa liberalisation dialogue with Georgia, following Georgia’s submission of a report detailing reforms in relevant areas. The EU reaffirmed its commitment to the possibility of visa-free travel once the required conditions are fulfilled. 

Chronology  

The EU-Georgia Visa Liberalisation Dialogue was launched on 4 June 2012 (IP/12/561) and the VLAP  was presented to the Georgian authorities on 25 February 2013 

• The First Progress Report on Georgia was published in November 2013. 

• The Second Progress Report on Georgia was published in October 2014. 

• The Third Progress Report on Georgia was published in May 2015. 

• The Fourth Progress Report (final report) on Georgia was published in December 2015. 

•  The European Commission proposed in March 2016 to allow visa-free travel to the Schengen area for Georgian citizens holding a biometric passport. This proposal builds on the successful implementation by Georgia of all the benchmarks set in its Visa Liberalisation Action Plan. 

• The decision to transfer Georgia to the list of third countries whose nationals are exempt from visa requirement entered into force on 28 March 2017. From this date, the visa obligation for citizens of Georgia who hold a biometric passport and want to travel to the Schengen area for a short-stay was abolished. 

Methodology:  

The methodology of the VLAP for Georgia aims to define the reforms necessary to ensure secure and well-managed visa-free travel with the EU. The Action Plan is tailor-made to Georgia’s situation and is based on findings from the exploratory phase of the visa dialogue. It focuses on four key areas: document security (including biometrics), integrated border and migration management, public order and security, and external relations and fundamental rights. 

The reforms process follows a two-phase benchmark system. The first phase concerns the adoption of legislative and policy frameworks, while the second focuses on the effective and sustainable implementation of these measures. Progress is monitored through European Commission reports, on-site evaluations with EU Member State experts, and performance indicators, including visa refusal rates, irregular migration, asylum applications, and return procedures. 

The process is performance-based, meaning progress depends on the effective fulfilment of benchmarks rather than automatic timelines. Before proposing visa liberalisation, the European Commission assesses potential migration and security impacts, after which the European Parliament and the Council decide whether to lift the short-stay visa requirement for Georgian citizens holding biometric passports. 

1. The Transition to Biometric Passports: Legal Framework and Implementation 

Visa Liberalisation Action Plan (February 2013) 

The Action Plan required Georgia to continue reforms aimed at ensuring a high level of document security, including biometric passports, ID cards, and breeder documents. These reforms were part of broader efforts to strengthen border management, migration management, asylum policy, public order and security, including the fight against trafficking in human beings and corruption. The continued development of these reforms, including at institutional level, was expected to ensure compliance with EU and international standards. 

• Consolidation of the legal and institutional framework guaranteeing the integrity and security of civil status and civil registration systems, including the creation of a unified and secure electronic population register, with safeguards meeting the highest data protection standards. 

• Establishment of a legal and institutional framework for the issuance of machine-readable biometric passports, fully compliant with the highest ICAO standards and recommended practices, based on secure identity management (civil registry and breeder documents), in accordance with the “one person – one document” principle, including diplomatic and service passports. 

• Adoption of a clear timetable for the full rollout of biometric passports, including at Georgian consulates abroad, and for the complete phase-out of non-ICAO compliant passports. 

• Gradual implementation of biometric passports in full compliance with ICAO standards, alongside the systematic withdrawal of old passports. 

The Third Progress Report on Georgia’s implementation of the action plan on visa Liberalisation (May 2015) 

The report confirms that the roll-out of biometric passports compliant with ICAO standards had been successfully implemented as part of Block 1 (document security). The Commission assessed progress under the first phase benchmarks and noted substantial advancements in establishing a secure identity management system. The biometric passport system was considered operational and compliant with international standards, forming a key requirement for short-stay visa exemption. 

The VLAP structure comprising four blocks and two implementation phases was reaffirmed in the report, with document security (including biometrics) being the foundational element of the visa liberalisation process.  

The Fourth Progress Report on Georgia (December 2015) 

The report confirms that Georgia had already fulfilled the benchmarks related to document security, including biometric passports, under the VLAP. The biometric passport system, compliant with ICAO standards, was fully operational, and the legal and institutional framework supporting secure identity management had been established. 

The Commission notes that Georgia had successfully completed the relevant benchmarks under Block 1 (document security), and that the system ensured compliance with European and international standards. This included the “one person – one document” principle and the full implementation of secure passport issuance procedures. The progress achieved in this area was considered sustainable and effective. 

The European Commission’s Final Legislative Proposal 

The document is a proposal to amend Regulation (EC) No 539/2001, transferring Georgia from the list of countries whose nationals require a visa (Annex I) to the list of countries exempt from the visa requirement (Annex II). 

A key condition underpinning this proposal is that the visa exemption would apply only to holders of biometric passports. This links the legislative process directly to Georgia’s compliance with the document security benchmarks of the VLAP, particularly the full implementation of ICAO-compliant biometric passports. 

The proposal reflects the Commission’s conclusion that Georgia had fulfilled the necessary benchmarks, thereby allowing the transition from the reform phase VLAP to the legislative phase (amendment of EU visa rules). 

2. Registration of New Citizens and Management of Population Registers: Document Security Systems 

Visa Liberalisation Action Plan (February 2013) 

• The Action Plan emphasised the need for a secure and reliable system for managing identity documents and personal data. These measures aimed to prevent identity fraud and enhance trust in Georgia’s document security systems: 

• Ensuring secure management of personal data for officials handling passports, identity cards, and breeder documents. 

• Strengthening the integrity and security of the document application, personalisation, and distribution processes, including secure storage of document stocks in protected facilities. 

• Preventing the issuance of multiple passports or identity documents per person, in line with strict identity control procedures. 

• Ensuring prompt and systematic reporting of lost and stolen passports to Interpol databases. 

• Strengthening cooperation with the EU through regular exchanges of passport specimens, visa forms, information on false documents, and document security practices. 

The Third Progress Report on Georgia’s Implementation of the Action Plan on Visa Liberalisation (May 2015) 

• The report highlights the effective functioning of Georgia’s civil registry system, managed by the Public Service Development Agency. The authority responsible for issuing identity documents was assessed as well-structured, with clear separation of responsibilities between application processing, decision-making, and document issuance. 

• The system was described as efficient and secure, ensuring integrity in document production and distribution. The report confirms that the institutional framework for document security had reached a high level of compliance, including proper staff training and professional management structures.  

• This assessment reflects progress under Block 1 of the VLAP, focusing on secure document management and institutional reliability. 

The Fourth Progress Report on Georgia (December 2015) 

• The report highlights continued improvements in migration management and civil registration systems, particularly through the development of integrated electronic tools and risk analysis mechanisms. Georgia expanded its migration risk analysis system to cover all migration fields and strengthened inter-agency data collection through a unified analytical system. 

• The Commission also underlines improvements in reintegration policies for returnees, including the establishment of state-funded reintegration programmes and enhanced institutional capacity within the responsible ministries. These measures contributed to more effective migration governance and supported compliance with the VLAP benchmarks under Block 2 (integrated border management, migration management, and asylum). 

The European Commission’s Final Legislative Proposal 

Although COM(2016) 142 is primarily a legislative act, it builds on the Commission’s assessment that Georgia had established: 

• A secure civil registration system, 

• Reliable identity management procedures, 

• Strengthened document issuance and verification mechanisms. 

The proposal confirms that compliance with document security benchmarks including secure breeder documents and integrated identity systems formed the foundation for visa liberalisation. The requirement for biometric passports ensures continued alignment with EU standards on identity verification and border security. 

3. Strengthening Anti-Corruption Regulations and Public Awareness Measures  

Visa Liberalisation Action Plan (February 2013) 

Georgia was expected to adopt and implement a national anti-corruption strategy and action plan with clearly defined objectives, timelines, performance indicators, and adequate human and financial resources. Particular emphasis was placed on strengthening the independence and operational capacity of anti-corruption institutions, including the Anti-Corruption Interagency Coordination Council (ACICC), while ensuring improved coordination, accountability, and information exchange among relevant bodies. 

The reforms also required the establishment of a robust legal framework, including necessary secondary legislation, to guarantee effective internal control mechanisms aimed at preventing and prosecuting corruption, including high-level corruption and corruption in international transactions. Compliance with integrity standards and the implementation of GRECO recommendations were considered essential components of this process. In addition, Georgia was expected to develop targeted measures addressing corruption risks in vulnerable sectors, based on systematic risk assessments, and to maintain a credible track record of investigations, prosecutions, and final court decisions, including in high-level cases. 

Furthermore, the framework required strengthened mechanisms for detecting and sanctioning conflicts of interest and unjustified wealth, alongside the development and enforcement of ethical codes applicable to public officials at all levels, including elected representatives, law enforcement authorities, and the judiciary. Adequate training and specialisation of judicial and law enforcement bodies were also necessary to ensure the effective handling of corruption cases. 

The Third Progress Report on Georgia’s Implementation of the Action Plan on Visa Liberalisation (May 2015) 

Anti-corruption reforms fall under Block 3 (public order and security). The Commission’s report evaluates Georgia’s progress in consolidating its anti-corruption legal and institutional framework, including implementation of national strategies and coordination mechanisms. 

The report situates anti-corruption measures within the broader requirement of effective implementation of reforms, including strengthening institutional capacity, improving enforcement mechanisms, and ensuring sustainable compliance with benchmarks. Monitoring mechanisms were maintained to assess continued progress in corruption prevention, law enforcement cooperation, and institutional accountability.  

The progress assessment formed part of the Commission’s overall evaluation of Georgia’s readiness to move from the first-phase (legislative framework) to the second-phase (effective implementation) benchmarks. 

The Fourth Progress Report on Georgia (December 2015) 

Significant legislative reforms Under Block 3 (public order and security), the report confirms that Georgia had achieved the benchmark related to preventing and fighting corruption. 

were adopted, including: 

• The new Law on Civil Service and accompanying secondary legislation aimed at depoliticising public administration and strengthening institutional independence. 

• Amendments to the Law on Conflict of Interests and Corruption in Public Service, introducing enhanced systems for monitoring asset declarations, detecting conflicts of interest, and identifying unjustified wealth. 

• Strengthened whistle-blower protection mechanisms. 

• Reforms in public procurement procedures to increase transparency. 

• Continued implementation of GRECO recommendations. 

The Commission assessed these reforms as substantial and concluded that the anti-corruption benchmark had been fulfilled, while emphasizing the importance of continued implementation and sustainability. 

The European Commission’s Final Legislative Proposal 

COM (2016) 142 does not introduce new anti-corruption measures; however, it is legally grounded in the Commission’s broader assessment that Georgia had met all VLAP benchmarks, including those related to: 

• Public order and security, 

• Anti-corruption frameworks, 

• Judicial and institutional reforms, 

• Border management and migration governance. 

The proposal therefore reflects the Commission’s determination that Georgia had achieved sufficient institutional safeguards in these areas to justify visa-free travel, while also acknowledging the importance of the visa suspension mechanism as a safeguard. 

Importantly, the proposal was politically linked to the parallel revision of the visa suspension mechanism, ensuring that visa liberalisation could be temporarily suspended if serious deficiencies or security concerns emerged. 

4. Adoption of a Code of Ethics 

Visa Liberalisation Action Plan (February 2013) 

Adoption of an ethical code including:  

• Training programmes for relevant officials (including anti-corruption and professional conduct components), 

• Strengthening institutional integrity in document security systems, 

•  Ensuring compliance with EU and international standards, 

•  Enhancing accountability within law enforcement and border authorities.  

The Third Progress Report on Georgia’s implementation of the action plan on visa Liberalisation (May 2015) 

Within the framework of integrity reforms, the Action Plan required the development of ethical standards for public officials, particularly those involved in document security, border management, and law enforcement. 

Although the Third Progress Report primarily focuses on overall benchmark assessment, it confirms that integrity measures including professional standards, training, and institutional accountability are integral components of the visa liberalisation process. The establishment and enforcement of ethical principles contribute to ensuring sustainable implementation of reforms under the VLAP structure 

The Fourth Progress Report on Georgia (December 2015) 

The report situates ethical standards within broader integrity reforms under Block 3. While the document does not present the Code of Ethics as a standalone measure, it confirms the development and strengthening of integrity frameworks for public officials, including law enforcement, judiciary, and civil servants. 

The reforms adopted particularly in civil service legislation and conflict-of-interest regulation effectively reinforce ethical standards and professional conduct requirements. These measures contribute to institutional accountability, transparency, and compliance with EU governance principles, forming part of the sustained implementation of VLAP benchmarks. 

The European Commission’s Final Legislative Proposal 

The legislative proposal does not itself regulate codes of ethics. However, it is based on the Commission’s positive evaluation of Georgia’s compliance with VLAP benchmarks, which included integrity reforms and anti-corruption measures supporting professional standards in public administration. 

The adoption and implementation of ethical standards for public officials formed part of the broader institutional reforms that enabled the Commission to conclude that Georgia met the necessary conditions for visa liberalisation. 

Result  

European Commission proposed in March 2016 to transfer Georgia to the list of third countries whose nationals are exempt from visa requirements, with the exemption applying to holders of biometric passports. This decision entered into force on 28 March 2017, marking the abolition of visa requirements for Georgian citizens travelling to the Schengen area for short stays. This facilitated increased tourism, education, and people-to-people contacts. This policy was initially considered a major milestone in Georgia’s integration with the European Union and its compliance with democratic benchmarks. In its early years, the regime proved highly effective, with approximately 22% of the population using the visa-free scheme to travel to the EU, particularly among younger generations, according to a 2025 study. It also significantly enhanced mobility for educational, academic, and business purposes, contributing to closer ties between Georgia and the EU. 

The process contributed to significant improvements in areas such as border management, migration policy, document security, and the protection of fundamental rights, while also strengthening institutional and administrative capacities. As a result, the VLAP not only delivered tangible mobility benefits for Georgian citizens but also reinforced the country’s initial integration process of political and regulatory convergence with the European Union. Beyond its technical achievements, visa liberalisation also carried significant symbolic value, reinforcing Georgia’s European integration process and its alignment with EU standards.  

However, these positive developments were later accompanied by growing concerns. Within the first year, there was a noticeable increase in asylum applications in countries such as Switzerland and Norway, raising concerns among EU member states about potential misuse of the system. More importantly, the European Commission identified a significant backsliding in democratic standards, particularly in the areas of rule of law and human rights, which led to the activation of the suspension mechanism. In March 2026, the European Union suspended visa-free travel for Georgian holders of official, service, and diplomatic passports due to non-compliance with EU policies and concerns over democratic regression. The EU also warned that further divergence from democratic norms could result in the suspension of visa-free travel for the general population. 

This situation had a strong impact on public opinion in Georgia. A large majority of the population, over 78% viewed the suspension as a negative development, reflecting the high value placed on visa-free access. At the same time, more than half of the population held the ruling party, Georgian Dream, responsible for the potential loss of the visa-free regime, highlighting the political consequences of democratic backsliding and its direct impact on EU-Georgia relations. 

Conclusion 

Overall, the visa liberalisation processes implemented with Georgia, Ukraine, and Moldova demonstrate how EU conditionality can serve as a powerful instrument for political, legal, and institutional transformation. In all three cases, the prospect of visa-free travel encouraged reforms in border management, migration governance, document security, judicial cooperation, and the protection of fundamental rights.  More broadly, these reforms contribute to a progressive alignment with EU standards while strengthening societal ties with the EU through increased mobility, educational opportunities, and economic exchanges.  However, the Georgian case also illustrates the fragility of these achievements when democratic standards deteriorate. This case shows that visa liberalisation is not only a technical instrument but also a political mechanism closely linked to respect for the rule of law and democratic governance. These experiences are particularly relevant when considering Armenia’s European integration process. Although Armenia does not yet benefit from a visa-free regime with the EU, the launch of the EU-Armenia visa liberalisation dialogue reflects a growing political rapprochement between Yerevan and Brussels. The examples of Ukraine and Moldova demonstrate that sustained reforms, strong political commitment, and alignment with EU norms can gradually lead to deeper integration and tangible benefits for citizens. At the same time, the Georgian experience highlights that democratic resilience remains essential to preserving these gains over the long term. Visa liberalisation could become not only a practical objective for Armenia, but also a strategic tool to support democratic consolidation, modernisation, institutional reform, and stronger integration with the European space.  

Greg  Zwickert