Operational law enforcement cooperation

Operational law enforcement cooperation refers to the practical cooperation and coordination between law enforcement authorities in different EU countries to combat cross-border crime and maintain public safety. This cooperation involves conducting joint operations or investigations, harmonising operational procedures, and providing support in addressing cross-border crime.

Why operational cooperation is essential

Operational cooperation between EU countries’ law enforcement authorities is crucial in ensuring security within the EU. The Commission and EU law enforcement Agencies, such as Europol and CEPOL, enhance and support operational cooperation through initiatives that include:

• The European Multidisciplinary Platform Against Criminal Threats (EMPACT);
• Implementing existing EU legislation on cross-border cooperation, such as joint operations against cross-border crime;
• Providing specific support to EU countries through law enforcement Agencies.

European Multidisciplinary Platform Against Criminal Threats (EMPACT)

EMPACT is a security initiative driven by EU Member States to identify, prioritise and address threats posed by organised and serious international crime. This multidisciplinary cooperation platform is supported by all EU institutions, bodies and agencies, such as, the Commission services, Europol, Frontex, Eurojust, CEPOL, OLAF, eu-LISA, EFCA and others. Non-EU countries, international organisations, and other public and private partners are also associated. It operates in four-year cycles, with each cycle starting with the Council setting out EU crime priorities that are mainly based on Europol’s EU Serious and Organised Crime Threat Assessment (EU SOCTA).

EU crime priorities (also called ‘EMPACT priorities’) are addressed through operational action plans, which are coordinated by a Member State representative (‘Driver’). Each cycle concludes with an independent evaluation – entrusted to the Commission services (DG HOME) and contracted to external consultants.

On average, over 300 operational actions take place yearly. These include joint investigations, action days, training and prevention activities, cooperation with non-EU countries, improvement of the intelligence picture on certain new crime phenomenon etc.

The Commission financially supports the implementation of the EMPACT activities and is responsible for its evaluation.

The current EMPACT cycle runs from 2022 to 2025 and tackles 10 EU crime priorities.

Operational law enforcement cooperation

Since the creation of the Schengen area of justice, freedom and security, where goods, people, services and capital move freely, operational cross-border law enforcement cooperation is more than ever essential for an effective Security Union. It helps ensure that people cannot escape law enforcement authorities simply by crossing the internal borders inside the EU.

The EU legislation provides EU countries with several tools to organise their cross-border operational law enforcement cooperation, including:

• Urgent cross-border interventions, cross-border surveillance, joint patrols and other joint operations;
• National Single Point of Contact for law enforcement information exchange;
• Joint centres set up between two or more Member States (e.g. Police and Customs Cooperation Centres) in internal border regions.

Council Recommendation on operational law enforcement cooperation

Council Recommendation (EU) 2022/915 sets out standards for operational cooperation between law enforcement officers operating in another EU country or participating in joint operations. It includes:

• A series of principles for urgent cross-border interventions and cross-border surveillance;
• A list of offences for which urgent cross-border interventions and cross-border surveillance should be allowed;
• A framework for joint operations;
• The introduction of a support platform for joint patrols and other joint operations, as well as ensuring effective access to information and communication through secure channels;
• Enhanced responsibilities for Police and Customs Cooperation Centres;
• Joint training and professional development with a view to establishing a European police culture.

Joint centres between Member States

These centres have been established throughout the Schengen area, the European Union and Western Balkan countries. Around 50 centres currently exist across the Schengen Area and 59 in Europe.

They bring together different law enforcement authorities of the participating countries, facilitating the exchange of information, practices and expertise, narrowing the gap between different methods and administrative cultures.

Joint investigation teams

Joint investigation teams are set up by competent authorities of at least two EU countries to carry out criminal investigations in one or more of these countries, for a limited period of time. Seconded members from other EU countries, Europol, Eurojust and OLAF may take part in these teams and support them in various ways.

EU specialised agencies

EU specialised agencies, such as Europol, Frontex, eu-LISA, EUDA and Eurojust, support operational cooperation between EU countries’ law enforcement authorities. They help assess common security threats, define common priorities for operational action, carry out training activities, and promote and facilitate cross-border cooperation and prosecution.

Cooperation between special intervention units

The Council has adopted a Decision to improve cooperation between EU countries’ special intervention units in crisis situations, defining the general rules and conditions under which these units can intervene, based on a EU country’s request. This clear framework allows for time-saving during crises, while regular meetings and joint trainings ensure that special intervention units benefit from knowledge exchanges.

Networks of national specialised units

Cross-border cooperation between national financial intelligence units and national asset recovery offices helps combat money laundering and access the illicit proceeds of crime. Similarly, customs authorities cooperate to better manage risks in the international supply chain while facilitating legitimate trade. Specialised units also cooperate, within their respective legal mandates, to tackle environmental crime.

EU Critical Communication System

In cooperation with EU and Schengen countries, the Commission is working to establish the EU Critical Communication System (EUCCS), which will connect communication networks of law enforcement, civil protection and public safety responders in Europe. This system will allow for seamless critical communication and operational mobility across the Schengen area, enhancing the resilience of public communication infrastructure and ensuring Europe’s capacity to react in times of crises.

The system is to be established by 2030, as announced in the Commission's White Paper, How to master Europe's digital infrastructure needs?, outlining the main initiatives for secure digital infrastructures and networks. The technical pillar of EUCCS is based on the EU-funded projects BroadEU.Net (Internal Security Fund), BroadWay and BroadMap (both Horizon 2020).