ENNHRI welcomes the European Commission’s recent mid-term review of the European Union (EU) Charter Strategy. This confirms the key role of National Human Rights Institutions (NHRIs) in promoting and protecting fundamental rights. While showing progress made in the last five years, it also highlights persistent challenges that risk undermining the EU’s founding values. To clarify the role of NHRIs under EU law, ENNHRI calls for the adoption of a standalone European Commission Recommendation on NHRIs.

Key achievements and progress since 2020

As confirmed in the 2020 EU Charter Strategy and its recent mid-term review, NHRIs – with their broad human rights mandates and bridge-building role – are central to making the Charter a reality. Reflecting the Charter Strategy’s commitment to ensure a strong and independent NHRI in compliance with the UN Paris Principles in each EU Member State, significant progress has been made, including through ENNHRI’s support. Since its adoption, five additional NHRIs have been internationally accredited in full compliance with the Paris Principles. There has also been progress towards establishing an accredited NHRI in EU Member States. Italy is now the only EU Member State without an ENNHRI member actively working towards Paris Principles compliance.

The Charter review recognises the increased efforts of NHRIs to advance application of the Charter since 2020. This includes through monitoring compliance, building awareness of and providing training on the Charter, advising on law and policy-making, and supporting individuals’ access to remedy and strategic litigation. EU law has provided further mandates and roles for NHRIs to monitor fundamental rights and Charter compliance at national level. This includes for Member States’ expenditure of EU funds, fundamental rights compliance under the EU Artificial Intelligence Act, and under the EU Screening Regulation.

Challenges to Charter implementation and NHRIs

Yet respect for fundamental rights, democracy, and the rule of law is under pressure across the EU. Recent EU legislative initiatives aimed at “simplification” – including the Omnibus I and Digital Omnibus – risk weakening rights protections and bypassing oversight, transparency and impact assessments. Debates about limiting the rights of migrants at the Council of Europe and legislative proposals like the EU Return Regulation further challenge Charter obligations. Among these are the right to asylum and non-refoulement.

At the same time, threats to NHRIs and civil society are growing. One in four NHRIs reported harassment or obstruction last year, often linked to work on migrant or LGBTQI rights. Online attacks and gender-based harassment against women NHRI leaders are on the rise. Patterns of threat escalate from intimidation to obstruction of work and legal prosecution. These trends are expected to continue unless stronger support and protection is put in place.

Structural barriers also persist for NHRIs to carry out their human rights mandate. These include unclear recognition of NHRIs’ role under EU law, insufficient cooperation from state authorities, and resource constraints. While NHRIs are being given additional mandates, including ones devolving from EU law, they are often not provided with the resources they need to fulfil these.

Next steps to support Charter application and NHRIs’ work on this

ENNHRI welcomes the Commission’s recommendations and commitments in the mid-term review to further advance the Charter’s application. This includes the decision to organise the work of Member State Charter focal points as a Commission network, with regular exchange on Charter implementation. In addition, the review calls on Member States to ensure fundamental rights impact assessments of policy and legislative initiatives and to involve NHRIs in these. It also raises the possibility of the Commission monitoring Charter implementation in Member States through its annual Charter reports.

ENNHRI urges stronger action from all relevant Charter actors to turn commitments into reality. This includes maintaining fundamental rights safeguards in EU legislation, further building national ecosystems for Charter compliance, and ensuring enabling conditions for civil society and NHRIs.

ENNHRI also welcomes commitments in the Charter review to support NHRIs. These include securing EU funding for ENNHRI under CERV and AgoraEU, and to explore guidance on NHRIs’ role under EU law and how Member States can support this. ENNHRI reiterates that the most effective instrument for doing so would be a standalone European Commission Recommendation on NHRIs.

More information and background

• Read ENNHRI’s submission to Charter review.
• Read the Charter mid-term review.
• Explore ENNHRI’s 2025 rule of law report.
• Read ENNHRI’s statement on Omnibus I.
• Learn more about ENNHRI’s call for a standalone European Commission Recommendation on NHRIs.
• Read ENNHRI’s statement in advance of the informal Ministerial Conference of the Council of Europe on the European Convention on Human Rights and migration.