Working closely with the authorities concerned, SEM has developed the 2027 Integrated Border Management (IBM) Action Plan to put the IBM Strategy into practice. Unlike the previous 2014 IBM Action Plan, which was a conventional report, the new plan is designed to be constantly evolving. For this reason it is available exclusively in electronic form (on this website) and not in print or printable form. This way, the new action plan can be continuously adapted to changing challenges in the migration and security sector, providing flexibility when implementing measures and documenting the work of border control officers.
The 2027 IBM Action Plan describes all the measures that need to be implemented to realise the IBM Strategy. It will be regularly reviewed and adapted to the situation on the ground – in particular to the migration, security and other challenges border control authorities face currently. Having an adaptive action plan in place makes it possible to consider current and future challenges in border management in a way that is modern, comprehensive and in line with EU recommendations. It also takes into account the lessons learned from the previous action plan.
The 2027 IBM Action Plan builds on two pillars: the key measures and the standard measures, which are listed in the action plan’s table of measures.
Key measures
Key measures are measures that require significant coordination and cooperation between the authorities involved. They are of particular practical and political significance. The Border Steering Group is responsible for these key measures and for the project overall, while management of the project is handled by the responsible authorities. Four key measures have been identified and approved by the Border Steering Group to achieve the strategic objectives; they are listed in the following table:
| Measure | Lead authority |
Collaborating authorities |
Strategic goal |
Launch of Project |
Completion of Project |
|---|---|---|---|---|---|
| reFRONT | SEM | Cantonal and federal border control authorities | a2, a3, c3, e1, e2, e3, g1, g1, i2 | April 2020 | Q2 2023 - Completed |
| Review cooperation between national border control authorities. | |||||
| Quality assurance system for integrated Swiss border management components | SEM | j1, k1 | 24.11.2021 | Q4 2023 | |
| Conduct national border audits to identify and remedy loopholes. | |||||
| Funding (review of incentives for implementing the 2027 IBM Action Plan) | SEM | Cantonal and federal border control authorities | n1 | 24.11.2021 | Q4 2022 - Completed |
| Analyse financial incentives for implementing the 2027 IBM Strategy. | |||||
| System failure management plans | SEM | Cantonal and federal border control authorities | i3 | 24.11.2021 | Q4 2022 - Completed |
| Compile national inventory of security protocols on cyber risks, in particular to identify and remedy vulnerabilities. |
Standard measures
The action plan’s standard measures are short-term tasks or projects carried out by a canton to meet the objectives of the 2027 IBM Strategy. Each border control authority defines its own, innovative standard measures.
A standard measure is thus a task an authority carries out that goes beyond what is legally required of them. What is not meant here are core day-to-day activities that are carried out to meet a legal mandate (e.g. border checks), but rather measures that make it possible to more easily, simply and effectively meet such a mandate. Standard measures must be limited in time; they are considered completed when the improvements have been successfully made. In short, they are tasks and/or support projects carried out in order to facilitate the fulfilment of traditional border management tasks (e.g. setting up Automated Border Control (ABC) Gates at airports).
The following is a list of criteria for a task or project to be considered a standard measure:
- A short-term task or project aimed at realising the 2027 IBM Strategy objectives;
- that is innovative;
- that is not considered ‘daily business’ and not expressly required by law;
- that permanently improves, simplifies or fulfils a legal requirement in a more efficient way;
- and that is limited in time.
SEM will continuously update its list of standard measures based on the information it receives from the responsible authorities. The standard measures are an important part of the action plan and are published in the table hereafter. The cantons and federal authorities with border management responsibilities will implement and manage their projects themselves and periodically report back to SEM. If a canton or federal authority announces a measure that has an effect on the dynamic action plan, SEM will publish this information and actively inform the public about the progress of the work. Both key measures and standard measures will contribute equally to the realisation of the IBM Strategy’s objectives, and together form the 2027 IBM Action Plan.
| Measure |
Lead authority |
Collaborating authorities |
Strategic goal |
Launch of project |
Completion of project |
|---|---|---|---|---|---|
| Review of training concept | FOCBS | a2 | 01.07.2019 | 31.12.2023 | |
| Review new training concept with regard to border control issues and adapt if necessary. | |||||
| Further cooperation with the cantonal partner authorities on the basis of the synergy analysis. | FOCBS / cantons | g1 | 01.01.2024 | 31.12.2026 | |
| Review cooperation between the FCA and the cantonal authorities based on the recommendation of the Swiss Federal Audit Office and in line with customs law, and make changes where necessary. The synergy potential has been analysed and the necessary adjustments are being driven forward. | |||||
| Increase the Frontex pool | FOCBS | d1 | 01.01.2021 | 31.12.2027 | |
| Recruit qualified FOCBS staff in order to meet the requirements of the Frontex regulation by 2027. | |||||
| New border control system | FOCBS | i2 | 01.06.2020 | 31.12.2023 | |
| Introduce a new border control system from 2023 in line with the technical requirements. Provide extensive staff training. | |||||
| Adopt BMVI regulation and conclude additional BMVI agreement | SEM | k1 | 01.01.2020 | 31.12.2024 | |
| Switzerland adopts the BMVI regulation as a further development of Schengen and concludes an additional agreement with the EU on modalities for BMVI participation. | |||||
| BMVI administration and control system | SEM | k2 | 01.01.2021 | 31.12.2024 | |
| Establish a BMVI administration and control system that takes into account the experience gained from implementation of the ISF while keeping bureaucracy for project participants to a minimum. | |||||
| Participate in Schengen bodies dealing with return | SEM | h2 | 01.01.2020 | 31.12.2026 | |
| By participating actively in European bodies, Switzerland can identify the need for action in good time and adopt measures. | |||||
| Swiss inclusion in EU readmission agreements | SEM | FDF, FOJ | h2 | 01.01.2020 | 31.12.2026 |
| By targeted lobbying of the EU and important countries of origin, Switzerland ensures it is included in EU readmission agreements (SOPs) aimed at increasing the number of returns. | |||||
| ETIAS | SEM | CH: FOCBS, FDFA, cantonal migration offices, cantonal police authorities, fedpol, NDB, FAC, FDPIC EU: Commission, eu-LISA, Frontex, Europol |
i5 | 01.07.2019 | 31.12.2024 |
| Establish a European Travel Information and Authorisation System (ETIAS). Third-state nationals who do not require a visa and wish to enter the Schengen area should have to apply online for ETIAS travel authorisation against a fee before they begin their journey. | |||||
| EES | SEM | CH: FOCBS, FDFA, cantonal migration office, cantonal police authorities (+ PTI, CCPCS), fedpol, FDPIC EU: Commission, eu-LISA, Frontex, Europol | i5 | 07.09.2016 | 31.12.2024 |
| Continue with the project to implement the Entry/Exit System (EES) that registers the entry, departure or entry refusal of third-country nationals (including biometric and personal data) for short-term stays across the Schengen area. At the same time as introducing the EES, the Schengen Borders Code will be amended in order to establish a modern infrastructure (e-gates, kiosks) for identity checks. | |||||
| Interoperability IOP | SEM | FOCBS, FDFA, cantonal migration offices, cantonal police authorities, fedpol | i5 | 01.03.2019 | 30.06.2025 |
| The interoperability project will ensure that the authorities can access numerous information systems with one search in order to identify a person. | |||||
| SIS removal | SEM | FOCBS, cantonal migration offices, cantonal police authorities, fedpol | i5 | 04.03.2019 | 30.06.2023 |
| The project aims to implement the new EU requirements of registering removal decisions in the SIS and monitoring their enforcement. | |||||
| ORBIS-EES | SEM | eu-LISA, ISC-FDJP, border control authorities, FDFA | i5 | 01.04.2019 | 31.03.2024 |
| The project aims to ensure the correct implementation of the EES and the timely implementation of EES requirements for the national visa information system (ORBIS). | |||||
| VIS Recast | SEM | FDPIC, ISC, fedpol, FDFA CD, FDFA Protocol, FOCBS, cantonal police authorities, cantonal migration offices EU: Commission, eu-LISA, Europol |
a1, c1, c2, f1, f2, h2, i1, i5, j2, k1, k2 | 01.01.2022 | 31.12.2024 |
| The VIS will be completely renewed in the next few years. VIS Recast is intended to ensure the interoperability of the VIS with the other major information systems of the EU and to close information gaps by improving the exchange of information between the Schengen Member States. The scope of the VIS will be extended to include, among other things, long-stay visas and residence permits. | |||||
| Renewal System AFIS (Project AFIS2026) | fedpol | a3, i2, i5 | 01.10.2021 | 31.12.2026 | |
Automated Fingerprint Identification System:
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| jMessage Handler Next Generation |
fedpol | a3, i2, i5 | 01.04.2018 | 31.03.2026 | |
Communication hub for exchanging biometric information:
|
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| Upgrade Doc PKI | fedpol | SEM, FOCBS, ISC-FDJP, armasuisse | a1, a3, e1 | 14.03.2018 | 31.12.2024 |
| The Public Key Infrastructure (PKI) for issuing and verifying digitally signed travel documents (incl. visas) and data will be upgraded. | |||||
| Interoperability IOP in the field of policing | fedpol | i5 | 30.09.2019 | 30.06.2025 | |
| Develop system. Switzerland will ensure connection of its national systems to the EU's central systems. | |||||
| Passenger Name Record PNR | fedpol | a1 | 31.10.2017 | 31.12.2026 | |
| Develop system. Use PNR to identify security threats and combat them successfully, including through identity checks at the border. Adverse secondary effects on legal tourist traffic are to be kept to a minimum. | |||||
| Expansion/replacement of the border control infrastructure at ZRH Airport | Capo ZH | a1, a3, i1, i2 | 01.02.2020 | Q1 2026 | |
| Expansion of the border control infrastructure with additional lines, biometrics columns, kiosks, website, replacement of ABC gates, mobile counters and suitcase solution. | |||||
| Replacement Border control system | Capo ZH | a1, a3, i1, i2 | 01.02.2020 | Q2 2023 | |
| Replacement of the border control system by 2022, taking into account future EU requirements. | |||||
| Expansion of border control system | Capo ZH | a1, a3, e1, i1, i2 | 01.02.2022 | Q1 2025 | |
| Expansion of the border control system with EES, ETIAS, VIS-Recast, IOP, Eurodac III, etc. due to the Schengen-wide development of the BusinessCore systems. | |||||
| Further development of the border control infrastructure | Capo ZH | a1, a3, i1, i2 | 01.06.2023 | Q4 2024 | |
| Piloting of remote monitoring workstations of e-Gate, further development of border control counters as well as border control processes. | |||||
| Expansion activities | Capo ZH | a3 | 01.12.2022 | Q4 2028 | |
| Expansion of the border control hall due to the expected higher passenger volume in the coming years. New GAC/BAC building and thus a concentration of private aviation in one location/building. |
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| Organisation and training | Capo ZH | a1, a2 | 01.06.2022 | Q4 2028 | |
| Increase staffing levels, train and retrain staff with regard to the innovations in border control systems, infrastructure and processes. | |||||
| BMVI - Use of subsidies | Capo ZH | k1 | 01.07.2022 | Q4 2028 | |
| Planning and implementation of the most efficient and resource-saving project administration possible. |
| Measure |
Lead authority |
Collaborating authorities |
Strategic goal |
|---|---|---|---|
| Develop infrastructure at airports (ABC gates) | FOCBS | a3 | |
| Put additional ABC gates into operation by the end of 2022. | |||
| Legal provisions for Schengen-compatible removal orders | SEM | h1 | |
| Bring the requirements for removal orders under the AsylA, the FNIA and the implementing regulations in line with the provisions of the EU Return Directive. | |||
| Removal order forms | SEM | Cantonal migration offices | h1 |
| Adapt the forms for removal orders under the AsylA and the FNIA to conform to the provisions of the EU Return Directive. | |||
| Deploy additional ILO | SEM | f3 | |
| Establish an additional ILO position in a country of origin or transit relevant for migration. | |||
| Conclude migration agreements and partnerships | SEM | f4 | |
| Switzerland should conclude at least two new migration agreements or partnerships by the end of 2024. | |||
| 2D barcode | SEM | fedpol, border control authorities (optional), FDFA, cantonal migration offices | i5 |
| Digital signature for the visa sticker. The European Commission is planning to introduce a digital seal for the uniform visa sticker. Switzerland must implement the digital signature by spring 2022. | |||
| Establish a risk analysis unit at Geneva airport | Internatio- nal Police GE / FOCBS |
c2, c3, d1 | |
| Create the necessary conditions for establishing a police risk analysis unit in partnership with the FOCBS. Total management in fighting document fraud and intelligence on asylum networks. | |||
| Schengen Information System SIS, recast in the field of policing | fedpol | i5 | |
| Further development of SIS. Switzerland will ensure connection of its national systems to the EU's central systems. |
Strategic goals |
|
|---|---|
| a) Border control | |
| a1) Illegal border crossings will be prevented consistently at all of Switzerland's external borders. Security threats will be identified and combated successfully, including through border controls. Adverse secondary effects on legal tourist traffic are to be kept to a minimum. | |
| a2) The border control authorities have specialised and specifically trained professional staff in sufficient number and with sufficient resilience. | |
| a3) The border control authorities have sufficient technical and constructional infrastructure to cope with passenger volume and enable efficient and lawful border controls. | |
| b) Search and rescue operations at sea | |
| No strategic objective | |
| c) Risk analysis | |
| c1) The national and cantonal authorities responsible for risk analysis of the external border work according to the current European standards. They contribute to the national risk analysis with their resources and their know-how. | |
| c2) Assure the ongoing training of analysts with respect to applying the current European standards. | |
| c3) A formalised national risk analysis structure exists with defined tasks and responsibilities that include all stakeholders. The Confederation and the cantons provide the necessary additional resources at their respective levels. | |
| d) Frontex-supported Schengen cooperation | |
| d1) Guarantee the quantitative and qualitative availability of border protection experts to strengthen external border protection in the context of Frontex operations, while taking national requirements into account. | |
| d2) Ensure the operational capability of the rapid response pool to support other Schengen states in the event of particular or disproportionate migratory pressure or other particular or disproportionate challenges. | |
| d3) The resources necessary for carrying out the vulnerability assessment are available and any shortcomings identified at Switzerland's external borders are systematically remedied. | |
| e) National and international Schengen cooperation | |
| e1) All authorities involved in border management intensify national and international cooperation at all levels in an adequate manner. Cooperation will be increasingly institutionalised in order to ensure it becomes more lasting and durable. | |
| e2) The increasing need for cooperation at national and international levels will be offset by suitable forms of resource-saving cooperation. | |
| e3) The mandate, composition and group of participants of the Border Steering Group will be enlarged in order to strengthen it in all areas of border management. | |
| e4) Participation in intergovernmental bodies is based on Switzerland's interests, with priorities being defined in advance and resources allocated in a targeted manner. | |
| f) Activities in third countries | |
| f1) Switzerland supports legal provisions for visa matters at European level, which simplify legal travel and are an efficient instrument in combating irregular migration and threats to internal security. | |
| f2) Switzerland anticipates digitalisation trends in the visa sector and creates the necessary regulatory and technical environment for operational implementation of visa processes in the medium to long term within the scope of the available resources. | |
| f3) Liaison officers (ALO, PA/FCA and ILO attachés) are deployed according to the situation in order to ensure close cooperation with the authorities of the appropriate third countries and with the international liaison network. | |
| f4) Switzerland conducts specific migration dialogues with important countries of origin and transit and seeks to formalise cooperation by concluding agreements or partnerships. | |
| g) Checks inside the Schengen area | |
| g1) Switzerland continues to strengthen national cooperation between the authorities responsible for border control in Switzerland as well as cross-border cooperation with neighbouring states. | |
| g2) Switzerland continues using customs arrangements to increase security in the border region. | |
| h) Return | |
| h1) The content of removal orders complies with uniform minimum standards throughout Switzerland. | |
| h2) Measures will be examined to mitigate or eliminate any disadvantages Switzerland experiences because of its status as a Schengen-associated state when cooperating in the area of return with the countries of origin. | |
| i) Use of modern technologies | |
| i1) Border staff work with uniform systems/applications for controlling the border and for carrying out identity checks on foreign nationals in Switzerland. | |
| i2) Border control, police and migration authorities have the technical equipment (e.g. mobile monitor devices) and the trained staff they need to be able to use the legal search options. | |
| i3) The control-relevant infrastructure is as secure as possible against cyber attack and manipulation, and contingency plans are in place to deal with system failures. | |
| i4) When procuring control-relevant infrastructure, synergies with Schengen states are systematically identified and utilised. | |
| i5) Switzerland ensures connection of its national systems to the EU's central systems. | |
| j) Quality assurance mechanisms | |
| j1) Switzerland has an adequate quality assurance system that includes further IBM components. | |
| j2) Switzerland has trained and experienced evaluation experts in all sub-categories and who regularly participate in evaluating other member states. | |
| j3) Switzerland examines its staff and financial capacity to participate increasingly in planning and carrying out evaluations of other Schengen states. | |
| k) Solidarity mechanisms | |
| k1) The BMVI supports the implementation of goals contained in the IBM Strategy. | |
| k2) The national BMVI management system is efficient and streamlined. It gives rise to as little bureaucracy as possible for project participants. | |
| k3) An alternative to the binding pre-financing of projects will be examined for implementing IBM measures from 2027. | |
| l) Action plan | |
| l1) Given the dynamic nature of the environment and of influencing factors, the action plan is sufficiently flexible and focuses on measures that have a certain scope in terms of coordination and impact. | |
| m) Steering | |
| m1) The deployment, tasks and responsibilities of the Border Steering Group must be regulated by law. | |
| n) Funding | |
| n1) Examine the possibility of creating incentives to implement the IBM Action Plan. | |
| o) Communication | |
| o) Take concrete measures to promote the concept and content of integrated border management among the federal and cantonal administrations involved and at a political level. | |
Monitoring and updating intervals of the action plan
The action plan will be updated in intervals that are synchronised with the meetings of the Border Steering Group. In principle, this will occur every six months. In these meetings, the authorities concerned will be invited to present the progress they have made with their projects. Where appropriate, SEM will identify and actively inform the public about changes to the action plan directly on the website.
Last modification 12.06.2023
