The role of customs in EU security

Customs authorities are key actors in the EU’s broader security and preparedness strategies since they monitor and control the movement of goods across the EU’s external borders. They are thus in a strategic position to ensure border security, participate in crisis response and facilitate trade, as demonstrated during the COVID-19 crisis.

Since 2025, the European Commission has adopted several strategies, agendas, and action plans aimed at strengthening the security and response capacity of the EU.

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In an increasingly complex and fast-changing threat environment, customs authorities remain Europe’s first line of defence. Supported by the European Commission, they integrate security measures across all customs policies while boosting their ability to:

safeguard the EU, its citizens, businesses, and environment;
anticipate emerging risks; and
respond effectively to crises.

EU approach to supply chain security

To close existing security gaps while ensuring the right balance between security and trade facilitation, the EU adopts:

a multi-layered risk-based approach regarding customs security by assessing risks as early as possible and intervening when and where it is most efficient,
a holistic and collaborative approach by working on various activities and initiatives that complement each other - with different actors involved at national, EU and international level, including governments, the private sector, international organisations and major trading partners.

Customs risk management supports security linked to the movement of goods and means of transport in various areas, such as:

protecting the vehicle used to bring goods and crew into the EU
protecting critical EU infrastructure such as ports and airports
preventing the illicit entry of prohibited or restricted goods such as firearms and chemical, bBiological, radiological, nuclear and explosives materials
protecting the EU, its residents, businesses and the environment from illicit and/or dangerous non-compliant goods
preventing the export of goods subjected to restrictive measures, such as critical goods in time of crisis or goods covered by a sanction regime

Customs security includes all modes of transport crossing the EU’s external borders. Measures to strengthen the security of supply chains take into account the specificities of the different modes of transport and business models, including e-commerce, express couriers and postal services.

Key programmes and initiatives

Deployment of ICS2

Import Control System 2 (ICS2) is the advance cargo information system put in place consistent with the WCO SAFE framework. It anticipates security risks through:

pre-loading risk analysis for maritime security to prevent threats posed by CBRN and explosive materials against the maritime supply chain, and to complement aviation security measures by preventing explosives or incendiary devices to be loaded onto an aircraft transporting commercial cargo (bomb in the box)
pre-arrival risk analysis on all shipments entering or transiting the EU on all modes of transport (maritime, air, road, rail and inland waterways) to detect illicit and potentially dangerous goods

Collaboration with economic operators

The EU collaborates with economic operators to fight the abuse of legitimate trade by criminal organisations involved trafficking drugs, weapons, dangerous waste and other illicit materials. These materials not only compromise the security and safety of EU residents but also undermine the economic and social fabric of our society.

To counter their influence, the EU fosters an enhanced two-way cooperation between customs authorities and economic operators, in line with the EU Drugs Strategy and the EU Ports Strategy, through the Authorised Economic Operator (AEO) programme. This cooperation will be expanded under the newly adopted customs reform.

Securing maritime supply chains

In the framework of the ProtectEU and the EU Ports strategies, and to complement the ICS2-based risk analysis of each consignment, the European Commission is working on initiatives to enhance maritime security. These initiatives are aimed at preventing threats from reaching EU shores and enhancing security standards in maritime transport hubs worldwide, thus protecting harbours, ships and crew. This includes establishing security protocols for maritime operators in case dangerous shipments such as chemical, biological, radiological, nuclear and explosive materials are detected in transport.

Security in e-commerce

E-commerce poses challenges to customs authorities due to:

high volumes of small, often low-value, consignments
the speed of the e-commerce supply chain
infiltration of organised illicit trade into these trade flows.

A variety of customs processes are affected by e-commerce, including control operations, risk management, revenue collection and customs procedures. All e-commerce goods entering or transiting through the EU are subject to the same ICS2 advance cargo information requirements as other shipments and subject to security and safety risk analysis.

International framework and EU legislation

Customs security aspects were first introduced into EU customs legislation in the aftermath of the September 2001 terrorist attacks in the United States. In 2005, the World Customs Organization (WCO) adopted the SAFE Framework of Standards that introduced security measures for supply chains, such as an industry partnership programme (Authorised Economic Operator (AEO)), and the requirement to submit advanced cargo information for security risk assessment. To date, 172 WCO members have signed a letter of intent to implement the standards of WCO SAFE.

The ’Punta Cana Resolution’ adopted by the WCO Policy Commission in December 2015 encourages customs authorities to enhance security measures and advocates closer cooperation with authorities at national and international level. The EU participates in the WCO SAFE Working Group that continuously updates the SAFE Framework in 3-year review cycles.

The EU introduced the WCO SAFE standards in EU legislation in 2005. Advance cargo information, pre-arrival (Entry Summary declaration – ENS) and pre-departure information (Exit Summary declaration – EXS), was established by regulations 648/2005 and 1875/2006. The requirement to submit ENS and EXS to customs for all goods entering or leaving the EU entered into force on 1 January 2011. To lodge and process the ENS, the Import Control System was implemented. The EU’s Authorised Economic Operator (AEO) programme was launched in 2008.

The Union Customs Code (UCC) and its implementing and delegated acts have further enhanced security measures, especially the advance cargo information requirements needed to adapt to evolving trade business models.

When fully implemented, the EU Customs Reform – supported by the following key measures – will strengthen the role of customs in EU security:

EU-level risk management: Enhanced coordination through the European Union Customs Authority (EUCA);
Centralised crisis response: A stronger, unified approach to managing emergencies;
Data-driven enforcement: Full use of the EU Customs Data Hub to improve threat detection and decision-making.

International cooperation

The EU cooperates with major trading partners and international organisations such as the World Customs Organization, the International Civil Aviation Organization, the International Maritime Organization and the Universal Postal Union.

The EU has signed agreements on supply chain security with its main partner countries in the area of customs security to provide mutual recognition of Authorised Economic Operators (AEOs). Most of those agreements, such as those with the US, China, Japan and Canada, go beyond mutual recognition: they also establish joint risk rules, improve supply chain security and create joint standards regarding security controls.

The EU security zone

To facilitate the smooth flow of goods between Switzerland and Norway and the EU, the EU has concluded agreements with both countries to ensure the equivalence of trade security and safety measures at their borders with third countries.

Consequently, the requirement to submit entry and exit summary declarations prior to bilateral trade import and export between the EU and Switzerland and Norway are waived. These agreements entered into force on 1 July 2009 and are amended regularly to maintain the equivalence of security and safety measures.

Both countries are part of the ICS2 programme. They also apply equivalent standards for Authorised Economic Operators (AEOs), including security and safety standards and facilitation measures in respect of security-related customs controls.

Original agreements

Switzerland (OJ L 199 of 31 July 2009)

Norway (OJ L 232 of 3 September 2009)

Latest amendments

Switzerland (OJ L 152, 3.5.2021, p. 1 – 32)

Norway (OJ L 226, 25.6.2021, p. 41 – 72)