Schengen Country.

Schengen Area Explained: Visa Policy, Border Controls & 29 Member Countries

Key Sections

What Is the Schengen Area?

The Schengen Area is a territory of 29 European countries that have abolished their internal borders, allowing for passport-free movement of people within the area. It covers an area of 4,595,131 square kilometers (1,774,190 sq mi), making it the world’s largest passport-free travel zone.

Established through the 1985 Schengen Agreement and governed today by the Schengen Borders Code (Regulation (EU) 2016/399), this framework allows more than 462 million residents and approximately 1.3 billion annual crossings without systematic identity checks at internal borders.

Why Is It Called Schengen?

The name Schengen comes from a town in Luxembourg where Germany, France, Belgium, Luxembourg, and the Netherlands signed the Schengen Agreement in 1985.

Schengen Member Countries

Here is the list of the 29 Schengen member states:

• Austria
• Belgium
• Bulgaria
• Czechia
• Croatia
• Denmark
• Estonia
• Finland
• France
• Germany
• Greece
• Hungary
• Iceland
• Italy
• Latvia
• Liechtenstein
• Lithuania
• Luxembourg
• Malta
• Netherlands
• Norway
• Poland
• Portugal
• Romania
• Slovakia
• Slovenia
• Spain
• Sweden
• Switzerland

Key Facts and Figures

Characteristic	Details
Type of zone	Passport-free area with a common visa policy
Number of member countries	29
Date created	14 June 1985
Total area	4,595,131 km2
Population as of 2025	462,840,000 (estimated)
Number of crossings per year (in 2022)	593 million

The Impact of the Schengen Area on Border Control

The essential features of the Schengen Area which are based on the elimination of borders between the European member countries are as follows:

• There are no checks in the internal borders between member countries and harmonized controls are carried out at external borders based on jointly agreed criteria.
• No border checks are carried out when traveling between Schengen countries, but identification documents are required at ports of entry and airports.
• Schengen member states must facilitate smooth road traffic flow.
• Police checks may only be carried out to prevent possible public security threats.
• The establishment of joint police centers and teams to increase police cooperation through hot pursuit and cross-border surveillance.
• Common rules and asylum policies for non-Schengen citizens crossing the EU’s external border.

Microstates and Overseas Territories

Schengen’s territorial application involves complex variations addressing European microstates and member states’ overseas possessions These arrangements are based on political realities, historical ties, and practical considerations regarding border control.

European Microstates

There are four European microstates with unique relationships to the zone due to their status as non-members:

Monaco, San Marino, Vatican City

Although Monaco, San Marino and Vatican City are not formal members of the Schengen Agreement, all three have entered into bilateral agreements with their neighboring Schengen States (France and Italy), thus creating open border conditions for travelers moving between each country.

However, these countries do not issue Schengen visas; therefore, individuals traveling to Monaco, San Marino and/or Vatican City must obtain a visa for France (for Monaco) or Italy (for San Marino and/or Vatican City) which is also valid for the country to be visited within the Schengen zone.

Andorra

Liechtenstein

Overseas Territories Participating in Schengen

Although geographically distant from mainland Europe, there are three overseas territories that are part of the Schengen Agreement:

• Canary Islands (Spain): Participate in the Schengen agreement and allow for free movement across their borders, even though they are located off the western coast of Africa.
• Azores (Portugal): Participates fully in the Schengen Agreement and allows free movement across their borders.
• Madeira (Portugal): Participate fully in the Schengen Agreement and allow for free movement across their borders.

A uniform Schengen visa is recognized throughout the Schengen territories and grants the holder free movement to enter and exit any of the territories, without need for additional documentation.

Non-Schengen Overseas Territories

While numerous European overseas territories are exempt from the Schengen Agreement, they still require separate visa applications:

French overseas departments and collectivities

Dutch Caribbean territories

Danish autonomous territories

Travel restrictions created by these exclusions create difficulties for tourists. For example, someone who wants to travel to Metropolitan France and French Guiana needs two separate visas.

Similarly, tour operators offering itineraries in multiple Caribbean islands must inform clients about the different visa requirements when visiting Schengen (e.g., the French side of Saint-Martin) and non-Schengen (e.g., the Dutch side of Saint-Martin) ports.

European Countries That Are Not Part of the Schengen Area or the EU

Here is a list of European countries that are neither members of the European Union nor participants in the Schengen Zone:

• Albania
• Armenia
• Azerbaijan
• Belarus
• Bosnia and Herzegovina
• Georgia
• Kosovo
• Moldova
• Montenegro
• North Macedonia
• Russia
• Serbia
• Türkiye
• Ukraine
• United Kingdom

Schengen Membership: Chronological Accession

The Schengen Zone expanded in waves from 1995 to 2025 as shown below.

Founding Members (1995-1997)

Country	Schengen Implementation	EU Member	Special Status
Belgium	26 March 1995	Yes	Benelux founding member
Netherlands	26 March 1995	Yes	Benelux founding member
Luxembourg	26 March 1995	Yes	Benelux founding member
Germany	26 March 1995	Yes	Original signatory 1985
France	26 March 1995	Yes	Original signatory 1985
Spain	26 March 1995	Yes	—
Portugal	26 March 1995	Yes	—
Italy	26 October 1997	Yes	—
Austria	1 December 1997	Yes	—

Nordic Expansion (1996-2001)

2004 Enlargement Wave (2007-2008)

Recent Expansions (2011-2025)

Special Cases: Ireland and Cyprus

Ireland has opted out of the Schengen Zone to allow it to continue the Common Travel Area with the United Kingdom.

Ireland and the United Kingdom had established the Common Travel Area prior to Ireland becoming a member of the EU and allows for passport-free travel between the two states.

Cyprus has not joined the Schengen Zone due to outstanding issues related to the island’s division and potential difficulties in establishing adequate border control over the territory of Cyprus. However, both Ireland and Cyprus do take part in some aspects of Schengen cooperation, such as Ireland participates in SIS for policing purposes, but they do not participate in the passport free movement of people through the Schengen Zone.

Unified Visa Policy: Types, Duration, and Territorial Scope

The European Union member states have a common list of the countries, the nationals of which need a visa in order to enter the Schengen territory. The EU decides on visa exemptions case by case.

The Schengen visa framework encompasses three primary visa categories as defined in Article 2 of Regulation (EC) No 810/2009. Each visa type serves distinct purposes and carries specific territorial validity.

Uniform Schengen Visa (Type C)

A Uniform Schengen Visa (Type C), as referred to in Article 2(2)(a) of Regulation (EC) No 810/2009 permits holders to remain for no more than 90 days in any given 180 day period within the entire Schengen area. This is the most commonly issued visa type for tourist travel, business trips, visiting relatives/friends, etc.

For a comprehensive overview, explore Schengen Short-Stay Visas (Type C) and the various subtypes categorized by travel purpose.

Limited Territorial Validity (LTV) Visa

According to Article 2(4) of Regulation (EC) No 810/2009, a visa can be limited to one or more member states, but this will not apply to the entire Schengen area.

LTV visas are issued by member states where the member states have determined that the applicant is unable to meet the criteria for entry and/or the member state determines that the visa should be issued based on humanitarian reasons, national interest or international obligations; when the member state has decided to issue a visa in spite of another member state having refused the applicant a visa and/or a negative consultation response; or if the applicant has a passport that is not accepted by all member states.

The LTV visa will contain the words “LIMITED TERRITORIAL VALIDITY” and the name of the member states that accept the visa. Travelers who hold an LTV visa are allowed to enter international transit zones of airports in other member states, however they are not permitted to enter the Schengen territory of those member states.

Airport Transit Visa (Type A)

Article 3 of Regulation (EC) No 810/2009 identifies the nationality of certain third country nationals who will need to obtain an airport transit visa prior to traveling through the international transit zone of any airport located in the Schengen territory.

The list of nationalities that will need to obtain an airport transit visa prior to traveling through the international transit zone of any airport located in the Schengen territory can be found in Annex IV of the Visa Code.

Travelers from the countries identified in Annex IV will need to obtain an airport transit visa regardless of how long their stay will be in the international transit zone of an airport located in the Schengen territory. However, travelers from countries identified in Annex IV will not be required to obtain an airport transit visa if they meet the exemption criteria established in Article 3(5).

For further information regarding airport transit visas, please see our article: Airport Transit Visa for Schengen: Requirements, Exemptions & Country Rules.

Additionally, member states may impose an airport transit visa requirement for other nationalities than those identified in Annex IV of the Visa Code during mass influx situations and as such must notify the Commission prior to implementing such measures and annually assess these measures within the framework of the Committee.

Visa Application Procedures: Competence, Representation, and Processing

The Schengen Visa Code (Regulation (EC) No 810/2009) outlines common procedures for each member state to follow on:

• how to determine which country should review a visa request;
• which consulate is geographically responsible for that visa request;
• how member states represent each other for this type of issue;
• under what circumstances a visa application can be submitted;
• how biometric data from applicants is collected; and what documentation applicants must submit to support their requests.

The Visa Code provides consistency with how visa applications are processed throughout the Schengen area and eliminates practices known as “visa shopping” (applicants submitting multiple applications to different consulates to see who would grant the visa).

Determining the Competent Member State

Article 5 of the Visa Code identifies which member state is responsible for examining a visa application through the use of the following priorities:

• Single Destination: The member state of the single destination examines the visa application.
• Multi-Destination: The member state responsible for the principal destination (i.e., the destination with the longest duration of stay in days, or the destination primarily for the purpose of the visit) examines the visa application.
• No Main Destination Identified: When durations of stay are equivalent, the member state responsible is the one at which the applicant crosses the external border of the member state first.

The priorities outlined above establish legal certainty and eliminate “visa shopping”, where applicants could have submitted their application to the consulate perceived to be the most lenient.

SchengenVisaInfo experts have created two in-depth guides to help travelers determine their main destination for visa applications and understand how the first port of entry rule affects Schengen visa holders:

• Learn how to determine the correct Schengen country for your visa application.
• Understand the first port of entry rule and how it affects Schengen visa holders.

These guides provide clarity on choosing the correct country for lodging your application and avoiding common mistakes.

Entry Requirements at the Schengen External Border

To enter a country in the Schengen Area travelers must fulfill some requirements and present documents at the Schengen port of entry in order to be allowed entry.

Everyone must show:

• A valid travel document (passport)
• Schengen visa (based on your nationality)

Schengen border officers might also ask for

• proof of purchased Schengen travel insurance
• evidence of accommodation
• proof of funds to cover living expenses
• travel itinerary and travel tickets

For a smooth entry experience into the visa-free zone, we recommend reading the following articles:

• List of Official Documents You Must Show at the External Schengen Border
• How to Register for the Schengen Entry and Exit System – Step‑by‑Step Guide to EES Registration and Border Check‑in
• What Questions Do Border Officers Ask When Entering the Schengen Area

Schengen Area vs European Union

The connection between Schengen and the EU represents the EU’s variable geometry integration.

While the Schengen acquis is an element of EU law (Title V of the Treaty on the Functioning of the European Union) there are several exclusions that create some degree of overlap between Schengen and the EU, while preventing complete identity.

Not all member states of the EU have opted into participation in the Schengen Area.

• Ireland has maintained its opt-out of the Title V Area of Freedom, Security and Justice provisions, although Ireland does participate in select elements of the Schengen acquis (police cooperation, access to the Schengen Information System).
• Cyprus has also yet to join the Schengen Area, although like all EU member states it is required to join eventually as a requirement of EU membership obligations.

Bulgaria and Romania were both EU member states for 18 years before achieving full Schengen membership in 2025.

Non-EU Countries Participating in Schengen

In contrast to the EU member states that do not participate, four non-EU countries participate in the Schengen Area.

• Norway and Iceland participated in Schengen through existing frameworks of Nordic cooperation prior to their entry into the EU.
• Switzerland become a member country in 2008 through a series of bilateral agreements that were designed to ensure Switzerland was separate from EU membership which Swiss citizens have consistently voted against.
• Liechtenstein entered the Schengen Area in 2011 as the final country to enter prior to Croatia.

These arrangements present practical challenges. While Schengen provides for passport-free travel across participating countries, it does not  eliminate the customs checks at borders between EU and non-EU member states. As such, individuals traveling from France to Switzerland will be able to cross the border without checking their passport; however, they may still be subject to customs inspections.

Switzerland continues to enforce veterinary and phytosanitary regulations at borders, and is permitted to do so under the terms of the association agreements.

Voting Rights: Countries that associate with Schengen are permitted to participate in the implementation of Schengen legislation, but are not entitled to vote on future amendments to the legislation. Thus, countries that are associated with Schengen are required to implement any future amendments to Schengen legislation in order to continue to be a member of the area, creating what some refer to as a “fax democracy”, or a system in which countries receive faxed copies of laws that they must then implement themselves.

Despite this voting deficit, all four associated countries consider the benefits of membership to outweigh the costs of implementing laws developed by other countries.

Legal Framework and Regulatory Architecture

Foundation Documents

Free movement of people in the zone is made possible by the absence of systematic border controls between the member states, eliminating the need for passport checks when moving from one member state to another.

The legal basis for this framework is the Schengen Agreement signed on 14th June 1985 by the founding states (Belgium, France, Germany, Luxembourg and the Netherlands). The agreement established a political commitment to remove internal border controls.

Operational implementation of the Schengen Agreement followed the signing of the Schengen Implementation Convention in 1990. The convention provided detailed rules for the removal of internal borders, for police co-operation and for a common visa policy. These two foundation documents were incorporated into the European Union’s legal structure by the Amsterdam Treaty (1999), that included the Schengen acquis – currently around 140,000 pages of legislation – into EU law.

Main Legal Framework

The Schengen system is based today on an extensive set of interrelated legal instruments:

Visa Code (Regulation (EC) No 810/2009)

Regulation (EC) No 539/2001

Schengen Borders Code (Regulation (EU) 2016/399)

VIS Regulation (Regulation (EU) 2021/1134)

Entry/Exit System (Regulation (EU) 2017/2226)

European Travel Information and Authorisation System (Regulation (EU) 2018/1240)

Regulation (EU) 1053/2013

SIS II Legal Framework

These legal instruments provide the common standards for the issuance of visas, for the management of the external borders of the Member States, for police cooperation, and for judicial cooperation in criminal matters among the Member States of the Schengen Area.

Organizational Architecture and Governance

Schengen governance differs from traditional EU policy-making frameworks in that it includes different forms of participation:

Denmark and Ireland: Both have opted-out from certain aspects of the Justice and Home Affairs provisions, and therefore have very limited rights to participate. However, Ireland participates in some areas of Schengen (police cooperation and access to the SIS) and maintains passport controls, whereas Cyprus is not yet part of the Schengen Area pending the resolution of border control issues.

Associated Non-EU Countries: Norway, Iceland, Switzerland and Liechtenstein are associated with the Schengen Area through association agreements.

They implement the Schengen rules and participate in the Schengen area, but do not have voting rights on legislative amendments (this sometimes called “fax democracy”). The three first countries (Norway, Iceland and Switzerland) were able to join the Schengen area via their respective Nordic Passport Union, Switzerland via bilateral treaties (2008), and Liechtenstein as the last addition (2011).

The Schengen framework is developed through the same EU legislative processes, with the European Parliament and the Council adopting amendments to Schengen Regulations to respond to changing security threats, technology developments, and migration flows. Thus, ensuring that the system continues to remain flexible while continues to remain flexible of free movement of persons.

Supervision and Implementation

The European Commission is responsible for supervising the implementation of Schengen rules by the Member States through the Schengen Evaluation and Monitoring Mechanism created by Regulation (EU) 2022/922, which replaced the previous voluntary peer review mechanisms with a binding mechanism that allows the European Union to propose binding recommendations when deficiencies are detected.

Each Member State is evaluated periodically in five main areas:

• Management of the external borders with third countries
• Issuance of visas and visa policies
• Procedures for returns of non-admitted applicants and overstaying applicants
• Cooperation in police and cross-border activities
• Implementation and operation of the databases (SIS, VIS, EES)

On-site inspection teams consisting of European Commission experts and Member State representatives evaluate each Member State in terms of compliance with Schengen rules, prepare detailed reports that identify specific deadlines for corrective actions. Where serious non-compliances occur, the mechanism can lead to proposals from the Commission to Member States to temporarily reintroduce internal border controls with the Member State concerned, as foreseen by Article 21 of the Schengen Borders Code.

Thus, the monitoring mechanism ensures that all participating Member States implement the Schengen rules in a consistent manner, contributing to the continuous improvement of the effectiveness of the management of the external borders of the Schengen Area.

For a more global overview of how these regulations have contributed to shaping the process of European integration, consult our article: Benefits of the Schengen Area: A Comprehensive Analysis of Europe’s Bold Experiment in Transnational Integration.

Operational Implementation and Technology

Interoperability of Information Systems

Border management has been completely transformed by the development of the Schengen Area’s extensive use of large-scale computerized systems run by the eu-LISA (European Agency for the operational management of large-scale information systems).

Collectively, these systems serve as the “digital spine” of modern border management — each generating millions of search requests per day while meeting both high levels of security and privacy requirements.

Key Computerized Systems Used Within Border Management

Schengen Information System (SIS II)

• Over 93 million alerts are included in the SIS II for individuals and items including people wanted, missing persons, people denied entry into the Schengen Area, stolen passports, cars, weapons etc.
• Each year border guards, police officers and consular staff make almost 15 billion requests for information in SIS II — when a passport is read at a border, SIS II will in a matter of seconds check whether the individual is on any alert list(s).

Visa Information System (VIS)

Entry/Exit System (EES)

European Travel Information and Authorization System (ETIAS)

Interoperable Technical Architecture

In order to allow seamless communication between the various systems, Regulations (EU) 2019/817 and (EU) 2019/818 establish a technical interoperability framework consisting of three main building blocks:

1. The European Search Portal (ESP)

A single search portal for border control personnel and law enforcement personnel to access the multiple databases (SIS, VIS, EES and Interpol databases) to obtain combined search results in seconds instead of minutes (which would require separate queries for each database). This significantly accelerates border control processes and improves security coverage.

2. Shared Biometric Matching Service (BMS)

3. Common Identity Repository (CIR)

Data Protection and Fundamental Rights

As extensive as the amount of data that is collected, there are also very strong protections to safeguard the rights to privacy:

• Retention Limits: Data in the EES is deleted after 3 years from the last date of exit; VIS data is kept for 5 years after the visa expires; ETIAS authorizations are valid for 3 years.
• Access Controls: Only border guard personnel, police officers, visa application officials and designated Europol/Interpol personnel can access the systems and conduct searches; all searches are recorded and audited.
• Purpose Limitation: The data collected for border management purposes cannot be used for any other administrative purpose than that stated in the regulation governing the use of the data unless there is a specific legislative provision.
• Right to Information: Individuals can ask for any data that is stored about them, and can seek to correct inaccurate data via their respective national data protection authorities.

Overall, this integrated approach is considered to be one of the world’s most advanced systems for managing international borders — allowing for both the rapid processing of travelers while conducting comprehensive screening for potential security threats to the Schengen Area — all within the constraints of protecting individual rights under the EU’s General Data Protection Regulation (GDPR).

Key Institutions and Their Roles

The Schengen framework operates through a complex multi-institutional architecture where EU bodies, national governments, and specialized agencies share responsibilities. Understanding which institution handles what clarifies accountability and helps travelers know where to direct inquiries or complaints.

Institution	Primary Responsibilities	Website
European Commission (DG HOME)	Proposes new Schengen legislation and amendments; monitors member state implementation; conducts or coordinates Schengen evaluations; manages visa liberalization dialogues with third countries; issues recommendations on temporary border control reintroductions; publishes annual reports on Schengen functioning	home-affairs.ec.europa.eu
Council of the European Union	Adopts Schengen regulations jointly with Parliament; decides on new member state accession to Schengen Area (requires unanimity); approves or objects to temporary border control reintroductions; adopts common visa lists (Regulation 539/2001); coordinates member state positions on migration and border security	consilium.europa.eu
European Parliament	Co-legislates on all Schengen regulations (ordinary legislative procedure); scrutinizes Commission evaluation reports; questions Commissioners and agency heads; represents citizens’ interests in balancing security and rights; can veto or amend proposed Schengen legislation; budgetary authority for Schengen systems and agencies	europarl.europa.eu
Frontex (European Border and Coast Guard Agency)	Coordinates joint operations at external borders; deploys rapid intervention teams during migration surges; conducts risk analyses identifying vulnerabilities; assists member states with return operations for irregular migrants; maintains equipment pool (vessels, aircraft, vehicles) for border operations; trains national border guards; does NOT issue visas or make entry decisions (member states retain this authority)	frontex.europa.eu
eu-LISA (European Union Agency for Operational Management of Large-Scale IT Systems)	Operates and maintains SIS II, VIS, EES, ETIAS, and other large-scale systems; ensures 24/7 system availability; implements interoperability components (ESP, BMS, CIR); provides technical support to member states; develops system upgrades; publishes annual statistics on system usage; coordinates with Europol and Interpol on data exchanges	eulisa.europa.eu
Court of Justice of the European Union (CJEU)	Interprets Schengen regulations authoritatively; rules on infringement proceedings against member states violating Schengen law; protects fundamental rights in border and visa cases; provides preliminary rulings when national courts request interpretation of EU law; ensures uniform application of Schengen rules across member states	curia.europa.eu
European Data Protection Supervisor (EDPS)	Monitors data protection compliance in all centralized Schengen IT systems operated by eu-LISA; conducts audits and inspections; issues binding opinions on new regulations affecting privacy; investigates complaints about EU-level data processing; advises Commission and Parliament on privacy implications of legislative proposals; publishes transparency reports	edps.europa.eu
Europol (European Union Agency for Law Enforcement Cooperation)	Supports cross-border police cooperation on serious crime and terrorism; analyzes intelligence from member states; maintains databases on serious criminals accessible to border authorities; coordinates joint investigations; provides operational support during major security operations; does NOT conduct border checks directly	europol.europa.eu
Fundamental Rights Agency (FRA)	Monitors fundamental rights implications of Schengen border management; publishes research reports on border practices; advises EU institutions on rights-compliant policy development; conducts field research at borders; issues opinions on proposed legislation affecting rights; tracks complaints and incidents involving rights violations at borders	fra.europa.eu
National Border Guard Authorities	Conduct actual border checks at airports, seaports, and land borders; make entry/exit decisions; operate EES enrollment stations; refer asylum seekers to asylum authorities; cooperate with Frontex during joint operations; maintain national sections of SIS; investigate border-related crimes; staff SIRENE bureaux handling SIS alerts	Varies by member state
National Consular Services	Process visa applications; collect biometric data for VIS; make visa issuance/refusal decisions; represent other member states through representation agreements; apply Visa Code procedures; maintain connections to VIS for applicant verification; issue limited territorial validity visas when appropriate	Varies by member state

How Institutions Interact: A Practical Example

Consider how institutions collaborate when a security gap is identified:

1. Frontex identifies in a risk analysis report that a particular airport has weak document fraud detection
2. European Commission includes this in a Schengen evaluation of the concerned member state
3. Member state must submit action plan to Commission detailing corrective measures and timeline
4. eu-LISA provides technical support to upgrade document readers connected to SIS
5. Frontex deploys document fraud experts to train national border guards
6. Fundamental Rights Agency monitors to ensure enhanced checks don’t lead to ethnic profiling
7. EDPS verifies that expanded SIS queries comply with data protection rules
8. European Parliament questions Commission on follow-up in Committee hearings
9. If member state fails to comply, Commission can launch infringement proceedings before the CJEU

This multi-institutional architecture ensures checks and balances, preventing any single body from dominating Schengen governance. The Commission proposes but cannot impose; the Council and Parliament decide jointly; agencies implement under oversight; and courts review, creating a system of distributed authority characteristic of the EU’s supranational governance model.

Border Control Mechanisms: Internal Abolition and External Enforcement

Internal Border Controls: The Abolition Principle

Article 22 of the Schengen Borders Code provides the basis for the operation of internal borders within the Schengen Zone: “Internal borders may be crossed at any point without a border check on persons, regardless of nationality.”

This is not to say that internal borders are eliminated entirely or that a state’s sovereignty ceases to exist. Instead, systematic border checks are replaced by mobile border surveillance and policing cooperation.

Border guards have authority to conduct checks on persons in the area around the internal border (typically defined as 30 km from the internal border and entirely throughout the territory of Malta and Cyprus under certain circumstances):

• Checks conducted by border guards on persons within the area around the internal border must not have an equivalent effect to border checks and can only be based upon general information and/or experience of the police regarding possible threats to public order and safety.
• Random checks conducted at or immediately adjacent to the internal border are permissible if they are not systematic.

The Schengen rules still allow national authorities of each country to exceptionally and temporarily reintroduce internal border controls in case of a serious threat to security or of serious deficiencies at the external border that can put the overall functioning of the Schengen area at risk. This is regulated through the Regulation (EU) No 1051/2013 that the EU has adopted.

External Border Controls: Harmonized Standards

Articles 6 through 14 of the Schengen Borders Code detail the procedures to be followed for external borders.

When a third country national attempts to cross an external border of a Schengen State, border guards must determine whether the individual meets the entry conditions and verify the authenticity of the individual’s travel document(s) against stolen/lost travel document databases; SIS; and national registers.

Additionally, border guards must assess the potential threat posed to public policy or security.

When assessing the potential threat, the border guard must:

• determine if the individual has sufficient resources to sustain themselves during their intended stay;
• verify the purpose of the individual’s visit; and
• confirm that the individual does not have any SIS alerts associated with them.

Typically, this process will take approximately 1 to 3 minutes when traveling via automated gate; however, the time required for manual processing can vary significantly depending on the specific requirements of each case.

Entry/Exit System (EES): Digital Border Management Transformation

The Entry/Exit System implemented on October 12, 2025, is a new digital way of managing the borders between the European Union (the Schengen Area) and non-EU countries. It has replaced the traditional manual method of stamping passports with a completely digital record of every time someone who is subject to the regulation crosses a border into the Schengen Area from outside it.

Regulation (EU) 2017/2226 gives authority to implement the EES which will create a common entry/exit database across the entire area that includes information about every time a third country national crosses an external border during a short stay.

As far as travelers are concerned there will be a number of practical ways in which traveling in the Schengen Area will change because of the EES. Once a traveler has completed biometric enrollment they can use automated gates and self-service kiosks at future border crossings; however, the system also will provide travelers with accurate and reliable calculations of how many days they have left before their permitted length of stay expires, removing uncertainty associated with complying with the 90/180-day rule.

It is important to note that the EES applies equally to third-country nationals who require visas as well as to nationals who do not require visas to enter the Schengen Area.

To find out more details regarding requirements, registration process, and participating countries read Schengen Entry and Exit System (EES) – Requirements, Registration Process & Participating Countries.

Temporary Reintroduction of Internal Border Controls

Abolishing the internal border is one of Schengen’s core principles; however, the framework also allows for a limited period to reinstate border control restrictions if an extraordinary circumstance arises. According to Article 25 of Regulation (EU) No 2016/399 (the Schengen Borders Code), there are specific conditions and processes under which this can take place.

When Can Border Control Be Restored?

Internal border control can be reinstated when a state identifies serious threats to its public policy or internal security. For these threats to qualify as “serious” they need to represent a genuine, current, and sufficient risk to the basic interest of the state. In addition, when considering whether to reinstate border control, it needs to be demonstrated that the reinstatement of border control is the least restrictive alternative to achieve the desired level of protection, i.e., that no less restrictive measures have been proven inadequate to protect against identified threats to public policy or internal security.

Examples of the most common reasons why internal border control has been temporarily restored by EU member states include:

• Secondary migration movements resulting from irregular migration flows overwhelming normal control arrangements
• Terrorism threats associated with major international events (e.g. G7/G20 Summits, Olympic Games, FIFA World Cup)
• Serious weaknesses in the external border controls of another member state undermining the integrity of the entire Schengen system
• A credible threat of an impending terrorist attack

In recent years several EU member states have temporarily restored their internal border control to prevent secondary migration and terrorism. These measures have been contentious as many question the true necessity of these measures and suggest they were politically motivated instead of based upon real necessity.

Notification Procedure and Time Limits

Article 25 of Regulation (EU) No 2016/399 established a detailed and time-limited notification process to ensure that border control is only reinstated in truly exceptional and temporary circumstances.

Prior to reinstating border control, the member state must inform the European Commission and the other member states of its intention to do so, except in cases of urgency where the member state may implement the controls immediately and send the formal notification at the same time.

Notifications must detail:

• Justification for the decision to implement border control, including documentation to support the justification;
• Scope of the reinstatement (which borders will be affected, what type of control will be implemented);
• Length of time for which border control is expected to be in place; and
• Date by which the member state intends to lift the border control.

Time Limits for Border Control Reinstatement

The length of time during which border control can be reinstated depends upon the nature of the threat to public order and/or internal security.

• If the threat is foreseeable, then the maximum period for which border control can be reinstated is 30 days initially, with subsequent extensions for up to 180 days in total.
• If the threat is serious and requires immediate action, then border control can be reinstated for a maximum of 10 days initially, with subsequent extensions for up to 60 days in total.
• Under exceptional circumstances where the threat continues for longer than permitted, an extension of up to three years is possible, but this would require a unanimous vote by the Council of Ministers and prior consultation and agreement by both the European Parliament and the Council of Ministers.

Reinstatement of border control does not mean that all previous aspects of border management are reinstated.

A member state must reinstate border control in a way that is proportional to the risks that are being addressed. Therefore, a member state cannot reinstate border control as a matter of course; nor can they reinstate border control in such a manner that creates significant barriers to free movement between member states, particularly for the benefit of frontier workers, students, and residents of border regions.

Security Cooperation: Beyond Physical Borders

The role of technology has been significant in supporting the overall security strategy of the Schengen Area. Technology provides for enhanced external control on the external borders and facilitates both the collection and processing of information as well as its exchange between different agencies responsible for controlling those borders.

For more information regarding Schengen’s security systems read our article: Understanding the Schengen Area’s Border Security System.

Because internal borders had to be removed from the area, a vast framework of cooperative security was developed to compensate for the loss. While the Schengen Information System (SIS) serves as the primary tool, many additional mechanisms have been developed to support police cooperation.

“Hot Pursuit” enables officers to pursue suspects into another country, subject to defined circumstances, for a maximum period of five hours or until they are relieved by local law enforcement. Additionally, cross-border surveillance enables officers to continue tracking suspects into another country for a limited time without advance approval.

For specific cross-border crimes, joint investigation teams may be established by participating agencies. The Prum framework establishes automated comparative analyses of DNA profiles, fingerprint records and motor vehicles’ registration information among participating countries.

EUROPOL assists with coordination of intelligence gathering and actions against transnational organized crime, terrorism, human trafficking and other transnational threats.

While these measures do not entirely replicate the security features of traditional border control — a point that is frequently made by critics — they establish new capabilities which did not exist prior to the implementation of Schengen, including the ability to share information in real time. This capability would be unachievable using physical border inspections.

Criteria for Joining the Schengen Zone

The evaluation procedure for admission to the Schengen Area is an extremely rigorous process to ensure that candidate countries are prepared to perform their duties related to the elimination of internal borders.

Council Regulation (EU) No 1053/2013 provides a basis for the implementation of comprehensive evaluation and monitoring procedures.

Admission Requirements for Membership

Potential members of the Schengen Area must demonstrate the required capabilities in five key areas:

1. External Border Management

Members must be able to manage external borders on behalf of all member states in order to allow for effective control over them. They need to have the appropriate infrastructure, technology and sufficient trained personnel to carry out thorough checks of passengers at the same time as preventing excessive delay. This includes both land and sea borders as well as airport borders.

2. Visa Issuance Standards

3. Police Cooperation

4. Data Protection

5. Connectivity of Information Systems

Evaluation Procedure

Candidate countries will first have to undergo a complete evaluation prior to being permitted to apply the Schengen rules. Experts from the European Commission accompanied by experts from the member states will carry out on-site inspections in the candidate country in order to evaluate:

• Border infrastructure, such as crossing points, surveillance systems and equipment
• National legislation transposing the Schengen acquis
• Organisational structures and staffing levels
• Training programmes for border guards and consular officers
• Risk assessment capacity and cooperation with Frontex
• Return procedures for individuals who are refused entry or who are overstaying

Experts from the evaluation team will compile detailed reports in which they identify shortcomings which require correction before the Schengen rules can be applied.

If serious shortcomings exist, then the date of accession of the new member to the Schengen Area will be postponed until the shortcomings have been removed. Minor shortcomings may result in recommendations to improve after the accession has taken place, but do not prevent the accession to the Schengen Area.

A Council Decision regarding a new member participating in the Schengen rules requires the unanimous consent of the Council, thereby granting to each member state a right to veto.
This explains why Bulgaria and Romania were granted partial membership (for air and sea borders) in March 2024, and almost a year later, on January 1, 2025, they achieved full membership, including land borders.

Continuous Ongoing Monitoring and Evaluation

Schengen evaluations do not end with the accession of a country. Regulation (EU) No 1053/2013 lays down ongoing monitoring by means of planned and unplanned visits. Every year approximately 5-7 member states are evaluated; each country is evaluated at least once every 7 years.

In addition to the previously mentioned areas, evaluations cover the entire area relevant to Schengen: external borders, issuing of visas, returns, data protection, police cooperation and the operation of the SIS and VIS.

Shortcomings identified during the evaluations will result in the publication of recommendations with specific deadlines for remedial action. In extreme cases, shortcomings may result in the Council recommending, pursuant to Article 21 of Regulation (EU) 2016/399, the temporary reintroduction of border controls at the external borders of the state concerned.

This mechanism serves to create trust between member states in that it guarantees that the Schengen Area is based on mutual confidence and verifiable compliance. The success of removing internal borders depends on the fact that all member states guarantee a high level of standardised external border control and comply with the applicable common rules.

Cross-Border Travel and Schengen Statistics

Schengen has dramatically altered European mobility patterns and facilitated a massive increase in cross-border travel volumes (i.e., it changed European integration). Statistics illustrate this trend and scale of the system:

• Approximately 593 million people traveled to an EU country from outside the Schengen area in 2022 via an external border crossing; this represents a dramatic recovery to pre-COVID levels of approximately 744 million people in 2019.
• Approximately 3.5 million people travel via an internal Schengen border on a daily basis for work.
• Consulates of member states issued more than 11.7 million Schengen visas in 2024 to nationals requiring a visa.
• The refusal rate for Schengen visa applications is approximately 15-18%; however, refusal rates vary significantly by nationality and destination state.
• As of 2022, the VIS database contains over 70 million applicant records.
• In 2024, there are over 93 million active SIS alerts which have been queried an estimated 15 billion times per year.

The numbers provided above indicate how Schengen is integral to the process of European integration, especially for frontier areas, where millions of commuters live in areas where they can easily travel between their home country and work place (e.g., the Franco-German border region) or shop and socialize in neighboring countries (e.g., Estonia, Latvia, Lithuania).

Studies estimate that the reduction in transaction costs due to Schengen border abolition results in large increases in gross domestic product (GDP), as well as the enhancement of labor market integration and tourism. In particular, reductions in waiting time at borders result in substantial savings in freight transportation time (i.e., 20-30%) resulting in increased efficiency in the supply chains of companies that require “just-in-time” delivery.

Future Development: ETIAS and Ongoing Evolution of the Schengen Framework

The Schengen Framework is developing in response to new security challenges, technological advancements and policy objectives.

Development of ETIAS

Following the successful implementation of EES, ETIAS will represent the next significant development in the evolution of the Schengen Framework, representing a pre-travel authorisation system for visa exempt third country nationals entering the Schengen Area.

According to Regulation (EU) 2018/1240, ETIAS will be an online pre-travel authorisation system that all third country nationals travelling visa free into the Schengen Area (i.e. citizens of US, Canada, Australia, Japan, etc.) must obtain prior to their departure for the Schengen Area.

ETIAS is expected to become operational in Q4 2026.

Current Debates Regarding Schengen Policy Reform

There are a number of current debates in relation to various aspects of Schengen policy which may result in changes to the existing policies in the future:

Visa Liberalisation

Periodic reviews take place to determine if countries currently subject to visa restrictions have achieved sufficient criteria to justify the granting of visa-free travel status. In recent times, visa-free travel has been granted to Colombia, Peru and several Balkan countries. Other countries are also currently undergoing assessments but the pace of such assessments is likely to be influenced by ongoing security concerns and irregular migration risks.

Visa Facilitation

Enhancement of External Border Controls

Internal Border Control