Overview of the main changes since the previous report update

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The report was previously updated in April 2024.

National context

• Key asylum statistics at first instance: In 2024, 9,634 preliminary applications for international protection were lodged in Sweden. This marks a decrease of 23% from 2023. Most first-time applications were lodged by nationals of Syria (976), Afghanistan (839), Iraq (572), Iran (540) and Uzbekistan (517). At first instance, the in-merit rate was 40%, an increase from 34% in 2023. The recognition rate for Syrian nationals was 84%, the same as in 2023. The recognition rate for Afghans was 64%, a slight increase from 63% in 2023. The backlog of pending cases at the end of 2024 was 3,685, a significant decrease from 5,229 cases 2023. The average length of proceedings decreased slightly from 195 days in 2023 to 187 days in 2024. 6,830 subsequent applications were lodged, particulary from nationals from Iraq, Iran, Afghanistan and stateless applicants.
• The Pact on Migration and Asylum (the Pact): On 12 December 2024, the Government of Sweden submitted its national implementation plan to the Commission. The Government’s position is that necessary legislative amendments are expected to be in place by the time the Pact provisions take effect in 2026. The Government of Sweden does not anticipate the need for substantial changes to the asylum system infrastructure. The aspects of the Pact identified as requiring the most thorough analysis and resources are those related to the screening and border procedures, along with the new Eurodac system. An inquiry was appointed by the Government on 21 November 2024. The inquiry is tasked with reviewing the need for adaption of Swedish legislation in line with the Pact instruments concerning asylum procedures and screening, including questions relating to fundamental rights monitoring mechanisms. The inquiry will present its report to the Government by 21 November 2025 at the latest. According to its terms of reference, the inquiry is to enable an effective and legally secure application of the relevant legal acts while ensuring a prudent and restrictive regulatory framework.

• The Government platform agreement – Tidö Agreement: In the agreement between the parties of the new government (formed in October 2022) and the Sweden Democrats, known as the Tidö Agreement,[1] the parties state various actions to be undertaken during this term of office to ensure that the rights of asylum seekers will be restricted to a minimum level in accordance with international obligations. In 2024, several legal amendments came into effect and several government inquiries concerning other restrictions were completed. A selection follows below.

Asylum procedure

• General conditions: An inquiry chair has been tasked with suggesting possible restrictions to asylum applicants’ rights. The aim is to ensure rights are lowered to a minimum level, while remaining in compliance with international obligations. The purpose of the inquiry is also to remove the possibility for asylum applicants to receive permanent residency permits and instead only grant them temporary permits. The inquiry shall also investigate the possibility to remove already existing permanent residency permits and instead grant temporary permits. Another purpose of the inquiry is to look at criteria for legal representatives, interpreters and general restrictions that can be made concerning reception conditions (See Reception Conditions). The consequence of the investigation regarding public counsel may be that the right to public counsel in the first instance is abolished. The inquiry chair was tasked with additional terms of reference on 21 November 2024, whereby it shall also investigate the need to adapt the national legislation to incorporate changes derived from the Pact. The inquiry shall present an interim report by 31 March 2025 and its final report by 2 October 2025.
• The situation for undocumented migrants: On 12 March 2025, the Swedish Parliament adopted a bill introducing several changes: (i) an extension of the period during which a return decision remains valid, (ii) longer re-entry bans, and (iii) the removal of the possibility to switch from an asylum application to a work permit application. One consequence of the extended validity period is that a return decision now will remain enforceable for as long as the individual remains in Sweden. Previously, such decisions were subject to a limitation period of four years, making the new system a departure from the earlier regime. Another consequence is that individuals who have switched tracks from an asylum application to a work permit will no longer be able to extend their permits. The Swedish Migration Agency estimates that approximately 4,700 people may face difficulties renewing their work permits as a result of this change in legislation. The bill entered into force on 1 April 2025, and does not include any transitional provisions, meaning that the amendment also applies to return decisions and work permit applications issued before that date. On 26 November 2024, an inquiry regarding reinforcing return operations and internal controls of foreign nationals was completed. The inquiry proposes to increase the reporting obligations of certain authorities when they come into contact with individuals they suspect are not entitled to remain in Sweden. The inquiry recommended exempting healthcare services, schools, and social services from the reporting obligation due to the negative consequences they would have for children. The inquiry’s proposal also includes expanded powers for coercive measures and internal immigration checks. The proposal is currently under consultation, and the suggested measures are intended to take effect on 1 July 2026, concomitantly to the date of applicability of all Pact legislative instruments.
• Resettled refugees: As decided in the Tidö Agreement, Sweden lowered the number of resettled refugees accepted from 5,000 in 2022 to 900 the per year the consecutive years. 959 refugees were resettled to Sweden during 2024, a significant increase from 297 in 2023.

• Examination of the Swedish Migration Agency’s assessments of asylum cases: The Swedish Agency for Public Management, on behalf of the Swedish Government, has examined the Swedish Migration Agency’s assessments of asylum cases. On 7 October 2024, the agency published its analysis, which indicates clear signs of deficiencies in the Swedish Migration Agency’s assessment of asylum cases. The analysis highlights that the Swedish Migration Agency struggles to maintain consistency and legal certainty in asylum assessments, as decisions vary significantly across different parts of the country.
• Stricter requirements regarding conduct for residence permits: On 21 November 2023, the Swedish Government instructed an official report of the Government to present an overview of the legal possibilities to deny and withdraw residence permits due to dishonourable conduct or other reasons. The inquiry presented its findings in 1 April 2025. The inquiry proposes, among other things, that a fundamental requirement of good conduct be reintroduced into the Aliens Act for the assessment of whether an individual should be permitted to enter or reside in Sweden. It also proposes that an individual’s dishonourable conduct may constitute grounds for refusing or revoking a residence permit not based on EU law. Examples cited include unwillingness to pay debts, abuse of the welfare system, or other forms of non-compliance with regulations. It may also concern close associations with criminal networks or violent extremist organisations. The amendments are proposed to enter into force on 1 July 2026.

Reception conditions 

• Housing: According to the political agreement between the Government political parties and the Sweden Democrats, the migration legislation will be subject to comprehensive changes with the aim of restricting the rights of asylum seekers to a minimum level in accordance with international obligations. A bill was passed by the Parliament on 29 January 2025. The legislative proposal provides, among other things, that asylum seekers, as a rule, are only entitled to financial assistance if they reside in the asylum accommodation assigned to them by the Swedish Migration Agency. The Swedish Migration Agency is granted additional authority to verify that asylum seekers reside at the designated accommodation and to withdraw the right to accommodation and financial assistance from individuals who fail to maintain contact with the authorities. Additionally, a statutory obligation is introduced for asylum seekers to participate in a societal introduction program. The new regulations entered into force on 1 March 2025. On 15 October 2024, additional proposals were presented by an inquiry. It proposed additional obligations for asylum seekers, including participating in attendance checks at their accommodation, remaining within the county where the asylum housing is located, complying with a reporting obligation to the Swedish Migration Agency, and facing reduced daily allowances if they leave the county or fail to comply with their individual reporting obligation. To align Swedish regulations with the EU’s minimum standards regarding the reception conditions for asylum seekers, the inquiry also proposes to introduce a six-month time limit before asylum seekers gain access to the labour market. The proposal also includes a change in how the daily allowance is calculated, using a system of percentage of the national standard for income support instead of a fixed number (which will, most likely, raise the allowance). The inquiry’s proposal also suggests reinstating the right to accommodation and daily allowance to  all individuals subject to a deportation order, which would improve conditions for adults facing deportation (as, currently, adults without minor children generally lack entitlement to accommodation and allowances when they have enforceable deportation orders). The inquiry suggests that the legislative changes would take effect on 1 October 2026.

Detention of asylum seekers

• Detention: An inquiry report was published at the beginning of 2024, proposing further restrictions for visitors, room searches, increased surveillance and increased security checks. The Swedish Parliament was expected to vote on the legislation during 2024, but it has been postponed. The legislative changes are proposed to enter into force on 1 July 2025.

Content of international protection

• Citizenship: On 14 January 2025, an inquiry presented a report on the subject of stricter requirements for Swedish citizenship. The inquiry’s proposals include, among other measures, a longer period of residence in Sweden and more stringent requirements for demonstrating good conduct in order to acquire Swedish citizenship. The proposed new period of residence is eight years, replacing the current five-year requirement. Additionally, a requirement for financial self-support is proposed as a condition for acquiring citizenship. The proposal has been circulated for consultation. The legislative changes are proposed to take effect on 1 June 2026.
• Work permit: On 15 February 2024, a report was published presenting several proposals aimed at restricting the conditions for low-skilled labour migration while promoting high-skilled labour migration. The proposal includes, among other measures, a further increase in the income requirement and the possibility of exempting certain professions from the salary threshold. It also proposes that researchers and recent graduates be exempt from the salary requirement. The proposal has been circulated for consultation but has not yet been adopted. It is proposed that it enters into force on 1 June 2025.
• Repatriation: A committee tasked with examining incentive structures for voluntary repatriation presented its findings on 13 August 2024. The committee concluded that high financial incentives for repatriation could increase the rate of repatriation but simultaneously risk undermining integration efforts. In its 2025 budget proposal, the Government of Sweden proposed a substantial increase in the repatriation grant for 2026, up to SEK 350,000 per person. As of April 10, 2025, this was equivalent to approximately 31,822 euros. The report has not yet resulted in any legislative changes.

Temporary protection (see Temporary Protection Annex).

• The Temporary Protection Directive has been transposed into Swedish law and can be found in Ch. 21 of the Aliens Act.
• Key temporary protection statistics: In 2024, the Swedish Migration Agency registered 10,646 first time applications for temporary protection. In comparison, the Swedish Migration Agency registered 11,401 applications in 2023. Of those applications, 10,563 were Ukrainian nationals. The remaining applications came from third country nationals from more than 20 different countries, the second largest nationality being Russian with 12 applicants. The Swedish Migration Agency took decisions in 10,743 first time applications, and of those examined on the merits (10,035), 9,946 (99%) were granted a residence permit and 89 applications were rejected.

Temporary protection procedure

• Asylum and expulsion enforcement: On 24 February 2022, the Swedish Migration Agency decided to halt all deportations to Ukraine and decision-making in ordinary asylum cases concerning applications for protection in relation to Ukraine, due to the difficulties to assess the situation in Ukraine and the protection needs. This position applied until 22 December 2023. On 22 December 2023, the Swedish Migration Agency published a new legal position to re-start decision-making in ordinary asylum cases relating to Ukraine.

• Scope of temporary protection: In December 2023, the Government decided to extend the personal scope of temporary protection to include all persons legally staying in Sweden before 22 December 2023, if they belong to the categories of persons mentioned in article 2.1 of the Council implementing decision (EU) 2022/382 of 4 March 2022. Thereby, Ukrainian nationals who applied for asylum prior to 30 October 2021 and have thereafter been staying legally in Sweden are also included in the personal scope of the temporary protection.

Content of temporary protection

• Financial support: Temporary protection holders are provided with financial support at the same low level as asylum-seekers, which has not been increased since 1994. They are alsoonly entitled to healthcare that cannot be postponed, which is the limited extent to which asylum seekers have the right to healthcare (see Reception Conditions – Health care). In 2024 it became possible for some holders of temporary protection permits to register as residents in Sweden, giving them the full rights of other holders of residence permits in Sweden who are registered as residents. Earlier in 2024, the Swedish Government prepared a new law giving temporary protection permit holders the possibility to register as residents after one year with a temporary protection permit in Sweden. This proposal came into force on 1 November 2024. However, the social rights of persons who registered as residents after this date are restricted and are given less rights than those who registered as residents before the new law (see Temporary Protection Annex).

^{[1]  ‘Tidöavtalet – Överenskommelse för Sverige’, available in swedish at: https://tinyurl.com/Tidoavtalet.}