A group of European governments hopes to establish the first migrant return hub outside the European Union in 2026–2027. Danish Prime Minister Mette Frederiksen said a coalition of willing countries was working with the European Commission on the plan. The future system would principally cover people staying illegally in the EU who have received a return decision, but no host country, final budget or binding opening date has been agreed.
Denmark expects a first hub by 2027
Frederiksen told the Financial Times that the first return hub outside Europe could be established within a year and referred to the period 2026–2027. She declined to identify the countries involved in the negotiations.
Her statement represents a political expectation rather than an EU timetable. No host state, operating agreement or dedicated funding package has been announced.
A return hub would be a facility in a non-EU country to which a person with no right to stay in the Union could be transferred. It could function as an intermediate centre before onward removal or as a final destination where the host country agrees to provide lawful residence.
The system would not apply to every migrant
The agreed regulation applies to third-country nationals staying illegally in the EU who have received a return decision. It does not establish a general offshore system for all migrants or all asylum seekers.
The group may include rejected asylum applicants, people whose residence permits have expired and other foreign nationals who no longer have a lawful right to remain.
Unaccompanied minors are excluded. Agreements may only be concluded with countries that respect human rights, international law and the principle of non-refoulement.
Frederiksen has said she would also like external facilities to deal with some newly arriving asylum seekers. She acknowledged that this broader scope has not been settled. Processing new asylum applications abroad would require a separate legal and operational framework.
Parliament approved the reform, but it is not yet in force
The Council and Parliament reached a provisional political agreement on June 1. Parliament approved the agreed text on June 17 by 418 votes to 218, with 30 abstentions.
The Council must still formally adopt the legislation following legal-linguistic revision. It will then need to be published in the Official Journal before entering into force. As of July 22, the legislative file remained open and was awaiting the Council’s first-reading position.
Provisions on return hubs, the age assessment of minors and the external dimension of returns are expected to apply immediately after entry into force. Other provisions requiring preparation will apply after 12 months.
Mutual recognition will initially remain voluntary
An earlier version of this article incorrectly stated that every EU country would be required to recognise and enforce return decisions issued by other member states from July 2027.
The final political agreement does not create that obligation. A standardised European Return Order will provide the information needed for recognition, but member states will decide voluntarily whether to enforce another country’s decision. The Commission must review the arrangement within three years of entry into force and may then propose mandatory recognition.
Detention could last up to 30 months
People subject to a return decision will be required to cooperate with the authorities. Detention may be imposed following an individual assessment where a person refuses to cooperate, presents a risk of absconding or poses a security threat.
The ordinary maximum will be 24 months, with a possible extension of up to six months when circumstances change, new information appears or cooperation with a third country improves. Alternatives include reporting requirements, designated residence, financial guarantees and electronic monitoring.
Nineteen national leaders support external solutions
On June 19, the leaders of 19 EU countries urged the Union to move quickly on third-country migration arrangements and provide financial support. The signatories represented Denmark, Italy, Austria, Belgium, Bulgaria, Cyprus, Czechia, Estonia, Greece, Hungary, Latvia, Lithuania, Malta, the Netherlands, Poland, Romania, Slovakia, Slovenia and Sweden.
The letter encouraged the Commission, the UN refugee agency and the International Organization for Migration to support interested governments. It does not commit all 19 countries to a single shared facility.
Austria, Denmark, Germany, Greece and the Netherlands are separately working on possible return hubs. Rwanda, Uganda and Uzbekistan have been mentioned in policy discussions, but none has been confirmed as the first host.
The return rate was about 28%
Around 28% of people ordered to leave the EU were recorded as having returned in 2025. This was the highest rate in ten years, but most return decisions were still not implemented.
The rate is an imperfect measure because one person may receive several orders, while some voluntary departures are not recorded. Other obstacles include difficulties establishing nationality and countries of origin refusing to issue travel documents or readmit their citizens.
EU funding has not been approved
Frederiksen and the 19 national leaders want the European Union to help finance the facilities. Their request does not mean that a dedicated funding programme has already been adopted.
The EU’s 2028–2034 budget negotiations may allow “innovative solutions” in migration management to be financed through external-action instruments. Up to €20 billion has been discussed for the wider external dimension of migration policy, potentially including return hubs, but this is not an allocation to particular centres and the amount may change.
The Council’s July 2026 negotiating position excluded financial envelopes, which remain subject to the wider long-term budget talks.
Italy’s Albania scheme is not a settled legal precedent
Italy has established detention and repatriation facilities on Albanian territory under Italian jurisdiction. The arrangement is related to, but not identical with, the broader return-hub model being considered by other governments.
Advocates General of the Court of Justice concluded in April and June 2026 that offshore detention facilities may comply with EU law where all applicable safeguards are maintained. These were legal opinions, not final judgments of the Court.
Human-rights safeguards will be decisive
The EU Agency for Fundamental Rights has warned that return hubs cannot become “rights-free zones”. Each transfer would require an enforceable individual decision, lawful treatment, compliance with EU return rules, an agreement with the host country and independent monitoring.
On July 16, the Council of Europe Commissioner for Human Rights asked Austria, Denmark, Germany, Greece and the Netherlands to introduce strict safeguards, effective appeals, independent oversight and clear responsibility for violations.
A 2027 opening remains uncertain
The political agreement and the work of the five governments make the launch of a first hub in 2027 possible. They do not make it certain.
As of July 22, no host country, operator, capacity, final treaty or dedicated budget had been announced, and the EU regulation had not completed its formal legislative procedure.
The central operational problem will remain readmission. Moving a person to another third country does not complete a return if the country of origin still refuses to recognise or accept them.
Conclusion
The European Union has moved closer to allowing return hubs outside its territory. Parliament has approved the legal framework, 19 national leaders support external migration arrangements and five governments are working on practical proposals.
The system principally concerns people with return decisions, not all migrants. The 2027 date is Frederiksen’s forecast, EU funding remains under negotiation, and no host country has been confirmed.
As International Investment experts report, the success of the model will depend less on the number of places built than on whether lawful returns can actually be completed. Without cooperation from countries of origin, return hubs risk becoming expensive long-term detention facilities.
FAQ
What is a migrant return hub?
A facility in a third country to which a person staying illegally in the EU and subject to a return decision could be transferred.
Would every asylum seeker be sent abroad?
No. The agreed regulation primarily concerns people who have already received return decisions.
Are unaccompanied minors included?
No. They are explicitly excluded.
When could the first hub open?
Frederiksen expects 2026–2027, but there is no binding timetable.
Has the regulation entered into force?
No. Formal Council adoption and publication in the Official Journal are still required.
Will return decisions be automatically recognised across the EU?
Not initially. Recognition will remain voluntary and will be reviewed after three years.
How long could detention last?
Up to 24 months, with a possible six-month extension.
Who will pay for the hubs?
Member states are seeking EU support, but no dedicated budget has been approved.