Mitsotakis: EU needs new tools to counter weaponized migration

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Kyriakos Mitsotakis is the prime minister of Greece.

Europe’s security environment has fundamentally changed.

Alongside conventional military threats and cyberattacks, the EU is increasingly confronted with a more insidious form of hybrid pressure: the deliberate instrumentalization of migration by state and nonstate actors seeking to test Europe’s resilience, undermine its cohesion and extract political concessions.

Recent events at Europe’s borders, most notably in the Spanish exclave of Ceuta, are the latest reminder that migration is no longer just a humanitarian issue or management challenge. In some cases, it has become a tool of geopolitical coercion.

The EU has made important progress on this issue with its Pact on Migration and Asylum . It has introduced mechanisms to manage migratory pressure, including flexibility in its procedures and solidarity among member countries. But these tools are designed for situations that remain, at their core, manageable. They do not adequately address scenarios in which migration is weaponized, or where flows are engineered, amplified or facilitated in a way that creates a de facto hybrid challenge.

To be sure, we don’t yet know what caused the situation that unfolded in Ceuta last week. But scenarios like these are not unprecedented.

Greece faced a similar situation at its land border with Turkey in Evros in 2020, as did Lithuania, Poland and Latvia at their borders with Belarus in 2021. What we are witnessing in these cases is not a gradual increase in arrivals but the sudden, massive and often coordinated movements of people — sometimes in the tens of thousands within just a few days — that overwhelm national capacities and test the EU’s resilience as a whole.

In such extreme circumstances, the immediate and full application of standard asylum and reception systems for all arrivals is not simply difficult — it is often impossible. Systems risk paralysis, public trust erodes and the very functioning of Schengen is put under strain.

Europe needs to acknowledge this gap and act decisively.

What is required is a dedicated European framework for situations of mass and instrumentalized migratory pressure, with clear and objective criteria for its activation. These criteria should combine quantitative elements — such as the scale and speed of arrivals relative to a country’s capacity — with qualitative indicators, including any evidence of coordination, facilitation or involvement by third countries or organized criminal networks.

Once triggered under a specifically defined EU emergency regime, a mechanism like this could allow for temporary, proportionate and strictly controlled adjustments to standard procedures. Accelerated asylum processes must also continue to be part of the toolbox, particularly for individuals coming from countries with low recognition rates for international protection.

EU flags fly in front of the European Commission’s Berlaymont building in Brussels on Feb. 17, 2025. | Thierry Monasse/Getty Images

But this is not sufficient.

Europe has to be honest about the limits of its fast-track asylum procedures. In clearly defined exceptional situations of extreme and disproportionate pressure — whether at land borders or following mass arrivals by sea — member countries should be given the option, under a dedicated EU emergency regime, to temporarily suspend asylum applications for newly arrived persons while proceeding with the swift return of those not entitled to remain, in full compliance with the EU’s legal obligations.

This is not a departure from Europe’s values but a necessary adaptation to new realities.

Moreover, any such measures must be strictly time-bound, proportionate and subject to robust safeguards. Full respect for EU law, the Charter of Fundamental Rights of the EU and the principle of non-refoulement remains non-negotiable. At the same time, safeguarding international obligations must go hand in hand with the EU’s ability to protect its borders and preserve its internal stability.

Crucially, this balance cannot be sustained without genuine European solidarity. No member country facing this kind of pressure should stand alone. Operational support from EU agencies, coordinated return efforts and financial and technical assistance must be automatically mobilized whenever a mechanism to this effect is activated.

Without such a framework, the risks are clear. Frontline countries remain exposed, incentives grow for hostile actors to exploit migration for geopolitical purposes and internal divisions within the bloc deepen. Most importantly, citizens’ confidence in Europe’s ability to effectively, fairly and collectively manage its borders will continue to erode.

Europe has always adapted its policies to changing realities. Migration is no exception. And recognizing that it can be weaponized is not alarmism — it is realism.

The EU must now equip itself with the legal and operational tools needed to defend its external borders, deter those who seek to exploit its openness and respond to this new reality firmly, lawfully and collectively.

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