COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Temporary protection for those fleeing Russia's war of aggression against Ukraine: one year on
Date: 2023-03-08
Institutions: Directorate-General for Migration and Home Affairs, European Commission
Subjects: EU aid, EU migration policy, Russia, Ukraine, admission of aliens, aid to refugees, asylum seeker, integration of migrants, war

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 8.3.2023  COM(2023) 140 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Temporary protection for those fleeing Russia's war of aggression against Ukraine: one year on  
 
 
1.  Introduction 

On 24 February 2022, Russia started an unprovoked and unjustified war of aggression against 
Ukraine.  This  was  met with  an  unprecedented  and  unified  response  by  the  European  Union 
and  the  international  community.  A  key  component  of  that  response  was  the  unanimous 
decision by Member States on a proposal of the Commission to activate the Temporary 
Protection Directive1. On 4 March 2022, just one week after the start of the war, millions of 
displaced  persons  fleeing  the  Russian  aggression  against  Ukraine  were  given  immediate 
access 
training,  healthcare,  and 
accommodation in the EU. The Directive’s activation was complemented on 28 March 2022 
with  a  10-Point  Plan2  on  stronger  European  coordination  on  welcoming  people  fleeing  the 
Russian  aggression  against  Ukraine.  Temporary  protection  has  already  been  extended  until 
March 2024. 

labour  market,  education  and  vocational 

the 

to 

One year on, the use of the Temporary Protection Directive (TPD) stands as testament to the 
Union’s  unity  and  solidarity  with  the  people  of  Ukraine,  in  the  face  of  unprecedented 
challenges.  Activated  for  the  very  first  time,  the  Directive  allowed  the  Union  to  provide 
immediate  protection  while  reducing  formalities  to  the  minimum.  It  complemented  such 
protection with a comprehensive and harmonised set of rights, including residency rights, 
suitable  accommodation,  access  to  education  and  training,  healthcare  and  to  the  labour 
market.  It  gave  structure  to  the  remarkable  welcome  offered  by  so  many  Europeans,  their 
families,  and  communities.  Today,  some  four  million  people  enjoy  temporary  protection  in 
the  EU.  Of  these,  47%  are  women  and  more  than  one  third  are  children,  whose  protection 
remains  a  critical  priority.  The  implementation  of  the  Directive  has  not  been  without 
challenges but thanks to the continued efforts of the EU institutions and Member States, the 
Directive continues to successfully deliver.  

This Communication takes stock of the Directive’s implementation over one year, building on 
the  Communication  ‘Welcoming  those  fleeing  the  Russian  aggression  towards  Ukraine: 
Readying Europe to meet the needs’3 adopted on 23 March 2022. It provides insight into how 
the EU managed to enable and coordinate a genuine whole-of-society response to the largest 
displacement on European soil since the Second World War.  It  also  identifies priority  areas 
where continued efforts are needed to guarantee the rights provided for in the Directive. 

Furthermore, this Communication will offer some reflections on the way forward to preserve 
some key lessons learned and make the EU more resilient and better able to adapt to future 
challenges.  

2.  Situational picture 

As  of  February  2023,  more  than  16  million  entries  from  Ukraine  and  Moldova  into  the  EU 
have been recorded, out of which 14 million were Ukrainian nationals. Border crossings from 
the EU to Ukraine and to Moldova amounted to more than 11 million4.  

1   Council Directive 2001/55/EC of 20 July 2001 on minimum standards for giving temporary protection in the 
event  of  a  mass  influx  of  displaced  persons  and  on  measures  promoting  a  balance  of  efforts  between 
Member States in receiving such persons and bearing the consequences thereof. 

2   The 10-Point Plan For stronger European coordination on welcoming people fleeing the war from Ukraine. 
3   Communication from the Commission to the European Parliament, the European Council, the Council, the 
European Economic and Social Committee and the Committee of the Regions Welcoming those fleeing war 
in Ukraine: Readying Europe to meet the needs. 

4  The  cumulative  number  of  entries  into  the  EU  from  Ukraine  and  Moldova  does  not  include  entries  by 
Romanian  and  Moldovan  nationals  from  Moldova  to  Romania.  Available  data  does  not  allow  us  to 

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Entries  were  significantly  higher  during  the  first  month  of  the  Russian  aggression,  with  a 
weekly average of 800 000 entries from Ukraine and Moldova into the EU, reaching peaks of 
over 200 000 daily entries heavily affecting Member States at the border with Ukraine. From 
April 2022 onwards, the trend stabilised to around 240 000 entries per week and the number 
of  border  crossings  between  the  EU  and  Ukraine  went  back  to  pre-aggression  and  pre-
pandemic levels.  

Overall, nearly 4 million registrations for temporary protection were recorded in the EU, out 
of which more than 3 million in the first half of 2022. Since June 2022, the number of weekly 
registrations  for  temporary  protection  has  been  declining  steadily,  albeit  with  some 
fluctuations. In total, as of 26 February, on the territory of the Republic of Moldova, there are 
90 187 foreign citizens, out of which 84 038 are Ukrainian nationals and 44 751 are minors. 

At the end of 2022, almost half of the total current beneficiaries of temporary protection (3.8 
million)5 were hosted in Germany and Poland, followed by Czechia, Italy, and Spain. Estonia, 
Poland  and  Czechia  host  the  highest  number  of  beneficiaries  of  temporary  protection  per 
capita.  Most  beneficiaries  are  Ukrainian  nationals,  with  around  70 000  nationals  of  third 
countries other than Ukraine enjoying temporary protection at the end of 2022. 

Those  fleeing  the  Russian  aggression  against  Ukraine  to  the  EU  are  predominantly  adult 
women  (47 %)  and  children  (34 %).  Around  69 %  of  the  displaced  children  were  under  13 
years of age and 0.5 % were registered as unaccompanied minors.  

The  activation  of  the  Temporary  Protection  Directive  ensured  that  asylum  systems  across 
Member States would not be overwhelmed with protection requests. Ukrainian nationals were 
the ninth largest group during 2022 for applications for international protection (28 160).  

Based  on  the  EU’s  cooperation  with  international  partners,  so  far  over  400 000  people 
displaced  from  Ukraine  travelled  onwards  to  the  United  States,  Canada  and  the  United 
Kingdom and benefitted from their respective protection schemes. Another 900 000 visas and 
applications for temporary residency have been approved by these countries. 

3.  Response to the crisis: a strong EU coordinated effort 

The  activation  and  the  implementation  of  the  Temporary  Protection  Directive  required 
unprecedented  coordination  and  cooperation  among  Member  States  and  their  respective 
administrations,  Commission  services,  the  Agencies  of  the  European  Union,  the  European 
External Action Service, and international organisations.  
The  Solidarity  Platform  ‘Ukraine’6  set  up  by  the  Commission  immediately  after  the 
activation of the Directive has played a crucial role in ensuring such coordinated response. It 
provides a framework for regular exchanges and ensures coherence between existing fora at 
EU level. It has addressed a wide range of issues, from border management to the protection 
of  minors,  access  to  education,  employment  access,  vocational  education  and  training  and 

distinguish  how  much  of  this  is  normal  border  traffic  and  how  many  are  fleeing  the  Russian  aggression 
against  Ukraine.  Figures  on  entries  and  exits  indicate  the  number  of  cross-border  movements  not  single 
individuals. The difference between total entries and entries by Ukrainian nationals includes entries by both 
EU nationals and nationals of third countries other than Ukraine. Over 300 000 nationals of third countries 
other  than  Ukraine  entered  the  EU  from  Ukraine  and  Moldova,  the  main  nationalities  being  Turkish,  US 
citizens, Russians, Israelis, Indians, Azerbaijanis, Georgians, UK citizens, Moldovans and Uzbeks. 
5   Beneficiaries of temporary protection at the end of the month by citizenship, age and sex – monthly data.  
6   The  Solidarity  Platform  brings  together  the  European  Commission,  Council  Secretariat,  the  European 
External  Action  Service,  EU  Member  States  and  Schengen  Associated  Countries,  EU  Agencies, 
international organisations such as the United Nations High Commissioner for Refugees (UNHCR) and the 
International Organization for Migration (IOM), as well as Ukrainian and Moldovan authorities.  

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adult  learning,  as  well  as  going  home  back  to  Ukraine  and  onward  movements  from  one 
Member State to another.  

The  Solidarity  Platform  also  focused  on  increasing  the  overall  preparedness  at  EU  level  by 
developing  contingency  measures  in  case  of  increased  arrivals  from  Ukraine,  on  security 
aspects  and prevention of trafficking in human beings and engaged regularly  with local and 
regional authorities as well as with civil society organisations. 

The  Solidarity  Platform’s  dedicated  sub-groups,  for  instance  on  the  transfers  of  displaced 
persons  from  Moldova  and  on  the  Temporary  Protection  Registration  Platform,  played  a 
crucial role in strengthening cooperation and meeting continuously arising challenges.  

Furthermore, the Solidarity Platform has proven its added value in the overall coordination of 
the  EU  response  to  the  Russian  aggression  against  Ukraine,  by  offering  a  flexible  and 
informal  framework  for  the  quick  adoption  of  soft  policy  documents  (e.g.,  replies  to 
Frequently Asked Questions made available online, Standard Operating Procedures). Member 
States and other stakeholders consider it to be a good practice to replicate in the future.  

3.1. Accurate data 

Since  the  adoption  of  the  Council  Implementing  Decision7,  the  Commission  has  made  a 
substantial  effort  to  coordinate  the  exchange  of  information  between  Member  States. 
Collection of data has been one of the main challenges of the overall coordination under the 
current  exceptional  circumstances,  but  the  situation  has  improved  steadily  thanks  to  the 
actions taken.  
Since the onset of the crisis, the EU Migration Preparedness and Crisis Blueprint Network8 
has  held  over  a  hundred  meetings  followed  by  written  reports,  providing  a  common 
situational awareness of the migratory implications of the Russian invasion of Ukraine and the 
EU’s  and  Member  States’  preparedness.  It  works  in  full  complementarity  with  other  fora, 
such as the Solidarity Platform, the Integrated Political Crisis Response arrangements, and the 
European Migration Network and as part of the overall coordination for Ukraine at EU level. 

The EU Agency for Asylum (EUAA) played a crucial role in swiftly setting up a system to 
collect data on daily registrations for temporary protection.  The European Border and Coast 
Guard  Agency  (Frontex)  also  stepped  up  in  support  to  managing  the  EU  external  borders, 
providing timely information on the situation at the border, planning different scenarios on the 
possible  evolution  and  initiating  an  operational  response,  including  capacity  building  and 
monitoring of cross-border crime threats in the area. The Fundamental Rights Agency (FRA) 
provided further information on the implementation of the Directive in several Member States 
through periodic bulletins. 

Crucially, as a follow-up to the 10-Point Plan of 28 March 2022, the Temporary Protection 
Registration  Platform  was  developed  in  just  six  weeks.  25  Member  States  are  exchanging 
information  on  beneficiaries  of  temporary  protection  and  of  adequate  protection  available 

7   Council Implementing Decision (EU) 2022/382 of 4 March 2022 establishing the existence of a mass influx 
of displaced persons from Ukraine within the meaning of Article 5 of Directive 2001/55/EC, and having the 
effect of introducing temporary protection. 

8   This Network responds to the need to provide an accurate, updated and joint situational picture as a basis for 
swift political and operational decision making. It monitors cross-border movements from Ukraine into the 
EU, first reception and implementation of the Temporary Protection Directive, including trends of  weekly 
registrations  and  in-depth  information  on  access  to  education,  employment  and  healthcare.  Commission 
recommendation  (EU)  2020/1366  of  23  September  2020  on  an  EU  mechanism  for  preparedness  and 
management of crises related to migration.  

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under national law to detect double registrations within the same Member State and across EU 
Member States.  

3.2. Provision of information 

The  Commission  created  a  network  of  information  hubs,  notably  with  the  support  of  the 
EUAA, embedded within the existing network of major transportation hubs in Member States, 
facilitating onwards movement of people fleeing Russian aggression and entering the EU as 
well as providing key information of authorities and other official sources of information.  

Following the activation of the Directive, the Commission rapidly launched a communication 
campaign to inform people fleeing the Russian aggression against Ukraine about their rights. 
This  was  a  key  feature  of  the  central  EU  website  on  ‘EU  Solidarity  with  Ukraine’9.  The 
website, translated in Ukrainian and Russian, includes practical information for people fleeing 
the Russian aggression and arriving in the EU and an interactive map with key contact points 
in each Member State.  

In parallel, ad hoc communication actions were carried out on the prevention of trafficking in 
human  beings,  awareness  of  misinformation,  the  Safe  Homes  initiative  and  the  Talent  Pool 
Pilot for people fleeing the Russian aggression against Ukraine.  
The  Commission  also  made  the  EU  helpline10  available  in  Ukrainian  and  Russian. 
Communication and information actions are closely coordinated with EU Member States, the 
EUAA  as  well  as  other  relevant  stakeholders,  including  Ukrainian  authorities.  On 
24 February 2023,  the  Commission  launched  the  webpage  of  one  year  of  Ukrainian 
resistance11. 

3.3. Scope of the temporary protection 

Temporary protection covers persons who left Ukraine on or after 24 February 2022 because 
of  Russia’s  military  invasion  and  who  fall  under  the  personal  scope  of  the  Council 
Implementing Decision12. In practice, many Member States extended the scope of protection 
to Ukrainian nationals who entered their territory prior to 24 February 2022.  

The  Council  Implementing  Decision  that  activated  the  Temporary  Protection  Directive  also 
protects  nationals  of  third  countries  other  than  Ukraine  and  stateless  persons  that  were 
permanently residing in  Ukraine  prior to  24 February 2022 and who  are  unable to  return in 
safe and durable conditions to their country or region of origin13.  

In  many  Member  States  third-country  nationals  who  had  other  temporary  rights  to  stay  in 
Ukraine,  e.g.,  students14  also  benefitted  from  the  rights  attached  to  temporary  protection.  In 
most  but  not  all  Member  States,  other  third-country  nationals  who  are  beneficiaries  of 
temporary protection fall under the same administrative procedures as Ukrainian nationals15.  

9   EU Solidarity with Ukraine. 
10   EU Helpline. 
11   One year of Ukrainian resistance. 
12   Articles 2(1) and 2(2) of the Council Implementing Decision. 
13   The  Decision  provides  that  for  these  categories  of  people,  Member  States  shall  apply  either  temporary 
protection  or  adequate  protection  under  national  law.  Most  Member  States  avoided  applying  two-track 
systems  and  third-country  nationals  and  stateless  persons  who  held  a  permanent  residence  in  Ukraine 
benefitted  for  the  rights  attached  to  temporary  protection,  rather  than  from  other  forms  of  adequate 
protection available under national law. 

14   Though one year after the beginning of the aggression, such provisions are being stopped in some Member 

States, such as the Netherlands.  

15   In Poland, third-country nationals are administratively managed through the Bureau of Foreigners.  

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At  the  same  time,  Member  States  who  decided  to  apply  a  form  of  protection  other  than 
temporary  protection16  to  nationals  of  third  countries  other  than  Ukraine  took  measures  to 
ensure an expedited registration process to give life to the ensuing rights at the same speed as 
for the Ukrainian nationals. In any case, it remains important that no administrative procedure 
create undue delays for enjoying the rights attached to temporary protection17.  

As of November 2022, around 70 000 nationals of third countries other than Ukraine received 
temporary protection across the EU, in addition to just under 300 stateless persons18. 

3.4. Access to registration and documentation 

To  translate  temporary  protection  into  reality,  Member  States  quickly  set  up  expedited 
procedures  for  registration  and  issuance  of  documentation.  In  this  way,  Member  States’ 
authorities  managed  to  swiftly  provide  protection  where  traditional  asylum  systems  might 
have been overwhelmed. 

Most displaced people fleeing the Russian aggression against Ukraine arrived in possession of 
official  documentation  or  biometric  passports,  which  facilitated  the  eligibility  check  for 
temporary  protection.  In  addition,  innovations  in  information  provision,  registration  and 
document issuance helped granting fast access to the rights attached to temporary protection. 
This  included  automatic  push  messages, digital  registration, and subsequent  processing, and 
sometimes  issuance  of  digital  IDs.  Where  people  lacked  the  required  documentation,  most 
Member States aligned with the Commission’s guidance to ease requirements when allowing 
entry. 

In many Member States, the Ukrainian embassies and consulates provided important support, 
stepping  in  to  (re-)issue  passports,  or  provide  other  certificates  of  civil  status.  The  use  of 
specific  mobile  applications  (such  as  the  Ukrainian  application  DiiA),  allowing  displaced 
persons to access their digital documents, as well as information on public services, was also 
promoted.  ‘One-stop-shops’  and  other  fast-track  arrangements  helped  speed  up  practical 
access to services. 

According to a survey conducted by the FRA in August 2022, most respondents reported that 
they did not  face difficulties when travelling into and within the EU and most felt that they 
were provided with enough information on their rights and on the services available to them19.  

There have been different reports of sporadic difficulties encountered by some third-country 
nationals  as  well  as  Roma  and  other  disadvantaged  groups  (e.g.,  LGBTIQ  people  and  also 
persons  with  disabilities)  in  accessing  temporary  protection.  More  specifically,  some  Roma 
encountered difficulties in accessing protection in the absence of documentation from Ukraine 
at  the  moment  of  arrival  in  the  EU;  persons  with  disabilities  had  difficulties  in  accessing 
specific  types  of  support  due  to  lack  of  recognition  of  disability  certificates  or  other 
documentation.  The  FRA has noted the need for more comprehensive data in  this  regard as 
well as the need for targeted action.  

In line with its position that all people who are fleeing the Russian aggression against Ukraine 
should be granted access to the EU, regardless of their nationality, ethnicity, or skin colour, 
the Commission took contact at all levels with EU Member States, Ukrainian authorities, and 

16   Austria, Estonia, Greece and Sweden. 
17   Austria and Estonia for instance are applying fast-track procedures. 
18  Beneficiaries of temporary protection at the end of the month by citizenship, age and sex – monthly data. 
19   Fleeing Ukraine: Displaced people’s experiences in the EU. 

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the Republic of Moldova to ensure that the safe arrival of third-country nationals, Roma and 
other disadvantaged groups was facilitated. 

The  Commission  will  continue  working  with  Member  States  to  ensure  that  all  measures 
supporting  persons  displaced  from  Ukraine  in  the  EU  are  implemented  in  full  respect  of 
fundamental  rights  and  non-discrimination  requirements  stemming  from  EU  law,  including 
the  Charter  of  Fundamental  Rights,  and  international  law20.  Specific  measures  need  to  be 
taken  from  the  moment  of  first  arrival,  leading  to  reception  and  integration,  to  address  the 
needs  of  vulnerable  groups  who  are  at  a  greater  risk  of  discrimination,  sexual  and  labour 
exploitation  and  abuse,  as  well  as  human  trafficking,  for  example  different  categories  of 
vulnerable children21 and women.  

With  temporary  protection  prolonged  until  March  2024,  the  challenge  for  Member  States’ 
administrations is to renew residence permits. Member States are adopting various models to 
do so, from automatic prolongation of chips, to mailing new cards or in-person renewal at the 
relevant  administrative  office.  The  Commission  encourages  the  Member  States  to  continue 
their commitment and efforts to  accelerate the issuance or renewal  of residence permits. To 
facilitate  free  movement  inside  the  EU,  Member  States  should  register  the  specimen  of 
residence permits issued by Member States (Annex 22 and 23 of the Practical Handbook for 
Border  Guards)  and  all  the  different  newly  nationally  issued  residence  IDs  related  to 
temporary protection in the Schengen Information System.  

4.  A whole-of-society approach 

The coordinated response to the large displacement of people fleeing the Russian aggression 
against Ukraine has touched all sectors of society in the EU. With the contribution of private 
citizens, social partners, non-governmental organisations, public authorities, and international 
organisations,  the  EU  managed  to  provide  a  coherent  response,  giving  life  to  the  rights 
enshrined in the Temporary Protection Directive.  

4.1. Special protection for children 

Child  protection  has  been  central  to  the  EU’s  support  to  persons  fleeing  the  Russian 
aggression  against  Ukraine.  Currently  close  to  one  fifth  of  Ukraine’s  children  are  taking 
refuge in the EU.  

Of the large number of children arriving from Ukraine to the EU, few have been registered as 
unaccompanied  or  separated  children  within  the  meaning  of  EU  law22.  This  is  because 
numerous  children  arrive  accompanied  by  a  guardian  appointed  in  Ukraine,  including  over 

20   Communication  from  the  Commission  on  Operational  guidelines  for  the  implementation  of  Council 
implementing  Decision  2022/382  establishing  the  existence  of  a  mass  influx  of  displaced  persons  from 
Ukraine  within  the  meaning  of  Article  5  of  Directive  2001/55/EC,  and  having  the  effect  of  introducing 
temporary protection 2022/C 126 I/01). 

21   Unaccompanied  and  Separated  Children  fleeing  from  war  in  Ukraine  -  Frequently  Asked  Questions  on 

Registration, Reception and Care. 

22   ‘Unaccompanied minor’ means third-country nationals or stateless persons below the age of eighteen, who 
arrive on the territory of the Member States unaccompanied by an adult responsible for them whether by law 
or custom, and for as long as they are not effectively taken into the care of such a person, or minors who are 
left unaccompanied after they have entered the territory of the Member States (Art. 2 (f) of the Temporary 
Protection Directive 2001/55/EC).  
A ‘separated child’ is a child who arrives on the territory of the Member States accompanied by relatives or 
known  (non-related)  adults,  whereby  sometimes  the  latter  have  been  provided  by  the  parent(s)  an 
authorisation to travel  with the  child and/or provide temporary care (example: Ukrainian  mother traveling 
with her own children and those of another family). 

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5 000 evacuated from Ukrainian institutions, together with their guardians. These children are 
particularly vulnerable and a considerable number of them are children with disabilities.  

The  modalities  of  arrival  and  specific  protection  needs  raised  challenges  for  host  Member 
States.  In  the  early  stages  of  the  displacement,  challenges  were  related  to  ensuring  the 
registration  of  unaccompanied  and  separated  children,  and  of  children  arriving  with 
Ukrainian guardians and of groups of children from institutionalised care facilities.  

Since  the  early  stages  of  the  conflict,  the  Commission  engaged  closely  with  the  relevant 
stakeholders in the Member States, and will continue to do so, to ensure that these multiple 
challenges are addressed in a comprehensive and coherent manner.  

While recognising the legitimate concerns of the Ukrainian stakeholders to maintain unity and 
keep track of these particularly vulnerable categories of children, it is important  to  ensure a 
high  standard  of  reception  and  care  in  a  de-institutionalised  environment23,  so  that  children 
are  hosted  in  line  with  EU  standards  of  community  and  family-based  care.  The  EU  stands 
ready  to  work  with  the  Ukrainian  authorities  to  identify  solutions  that  allow  high  quality 
alternative  care  for  the  members  of  the  group  while  preserving  close  contacts  among  the 
members of the group and with their Ukrainian guardian.  It will be important to ensure that 
support and protection are tailored in consideration of age, gender, abilities, and other forms 
of diversity according to the individual needs of each child.   
In the Operational Guidance on the application of the Temporary Protection Directive24, the 
Commission  advised  on  how  to  register  each  category  of  children  during  transit  and  in  the 
country  where  they  take  up  temporary  protection.  As  part  of  the  10-Point  Plan,  the 
Commission worked closely with experts and stakeholders to identify the specific challenges 
related  to  reception  and  care  for  the  most  vulnerable  categories  of  children  arriving  from 
Ukraine. This work resulted in comprehensive recommendations, published in the form of a 
‘Frequently  Asked  Questions  document  on  the  registration,  reception  and  care  for 
unaccompanied and separated children from Ukraine25’. 

The  Commission  is  closely  collaborating  with  UNICEF  to  secure  appropriate  reception  and 
care  in  the  host  Member  States  for  children  evacuated  as  groups  from  the  Ukrainian 
institutions  and  to  support  Ukraine’s  de-institutionalisation  reform.  In  addition,  the  EU  is 
working closely with its Ukrainian counterparts on how best to assist the Ukrainian authorities 
and Ukrainian parents or legal guardians with tracing missing children, in full respect of EU 
data protection legislation and of the rights of the children and their representatives.  

Another issue relates to the recognition of guardianship decisions from Ukraine. There are 
still reports of difficulties encountered in the Member States in obtaining direct recognition of 
guardianship  decisions  issued  by  the  relevant  authorities  in  Ukraine,  although  both  Ukraine 

23   The  Union  attaches  importance  to  de-institutionalisation  which  is  reflected  in  the  general  EU  policy 
framework. For instance, the  Council Recommendation establishing  a European Child Guarantee  provides 
that “with the aim of the de-institutionalisation of children, quality community-based or family-based care 
should be promoted. Placing children in institutional care should be done only when it is in the best interests 
of the child, taking into account the child’s overall situation and considering the child’s individual needs.” 
24   Communication  from  the  Commission  on  Operational  guidelines  for  the  implementation  of  Council 
implementing  Decision  2022/382  establishing  the  existence  of  a  mass  influx  of  displaced  persons  from 
Ukraine  within  the  meaning  of  Article  5  of  Directive  2001/55/EC,  and  having  the  effect  of  introducing 
temporary protection. 

25   Frequently  Asked Questions on registration, reception and care for unaccompanied and separated children 

fleeing from war in Ukraine. 

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and  the  Member  States  apply  the  1996  Hague  Child  Protection  Convention26.  Stakeholders 
also signal that, months after arrival in the EU, relations between children and their Ukrainian 
guardians are starting to deteriorate as these arrangements were often conceived as temporary. 
This  will  pose  new  challenges  to  child  protection  services  in  the  Member  States.  Some 
Member States took early steps to prevent this trend by appointing local guardians to support 
and guide the Ukrainian guardians.  

The Commission also collaborated closely with the European Guardianship Network, which 
collected and made available good practices developed in the Member States in relation to the 
reception  and  care  for  vulnerable  children27.  The  challenges  related  to  the  protection  of 
children have also been explored together with the Member States in various meetings of the 
Solidarity Platform and in dedicated technical meetings with the countries who received most 
children evacuated from Ukrainian institutions.  

Moving forward, targeted financial assistance will be mobilised. In Kyiv in February 2023, 
President von der Leyen announced EU support to a de-institutionalisation reform in Ukraine. 
Prior  to  the  Russian  invasion,  Ukraine  had  over  100 000  children  in  institutional  care  and 
Ukraine wants to move towards community and family-based care. The aim of the reform is 
to  design  a  modern  childcare  strategy,  including  capacity  building  and  to  fund  a  twinning 
project to share our best practices.  

Inside  the  EU,  the  Home  Affairs  Funds  directly  support  help  for  persons  in  vulnerable 
situations,  the  reception  of  children,  particularly  if  unaccompanied,  and  persons  with 
disabilities, including children, as well as the early identification of persons at risk of human 
trafficking and their referral to specialised services. Furthermore, the European Social Fund + 
ESF+ can be used to increase support for the relocation of unaccompanied children to family 
and community-based care. Particular attention should be paid to the needs of children with 
disabilities. The ESF+ 2021-2027 will also be able to support social protection systems with a 
particular  greater  focus  on  children,  disadvantaged  groups,  and  persons  with  disabilities, 
promoting in particular the accessibility of such systems.  

Next steps: 

  The  Commission  is  mobilising  EUR  10  million  to  support  Ukraine’s  transition 

 

towards de-institutionalisation of childcare. 
Inside the EU, the Solidarity Platform will support the coordination of the transfer of 
unaccompanied children to family and community-based care as needed. 

  The  Commission  will  work  with  the  Ukrainian  and  Polish  authorities  and  relevant 
stakeholders  on  a  project  in  a  childcare  facility  in  Poland,  hosting  large  numbers  of 
Ukrainian children, as a pilot for the de-institutionalisation reform in Ukraine.  

  The  Commission  will  update  existing  guidance  to  Member  States  to  ensure  the 
registration  of  children  who  arrive  to  the  EU  accompanied  by  their  Ukrainian 
guardians to guarantee the engagement of national child protection services. 

26   Convention on jurisdiction, applicable law, recognition, enforcement, and co-operation in respect of parental 

responsibility and measures for the protection of children.  

27   Practices regarding unaccompanied and separated children from Ukraine. 

8 

 
 
                                                 
4.2. Addressing risks of trafficking in human beings and supporting victims of war 

crimes 

The  Commission,  Member  States  and  relevant  EU  Agencies  put  in  place  prompt  awareness 
raising and preventive activities. The number of confirmed cases of human trafficking related 
to  displaced  persons  from  Ukraine  is  currently  low28.  Nevertheless,  the  risk  of  human 
trafficking,  in  particular  for  women  and  children,  will  remain  high  and  risks  being 
compounded should the economic situation of some displaced persons deteriorate, which may 
increase their vulnerability29.  
The  Solidarity  Platform  endorsed  a  dedicated  Common  Anti-trafficking  Plan30  on  11  May 
2022,  developed  and  implemented  under  the  lead  of  the  EU  Anti-Trafficking  Coordinator. 
The plan pursues five goals: (1) strengthening awareness raising; (2) reinforcing prevention; 
(3)  enhancing  law  enforcement  and  judicial  response;  (4)  improving  early  identification, 
support, and protection of victims; (5) addressing the risks of trafficking in human beings in 
non-EU  countries,  especially  Ukraine  and  the  Republic  of  Moldova.  The  actions  and 
recommendations set out in the Plan complement the Temporary Protection Directive which 
has  substantially  contributed  to  decreasing  the  vulnerability  of  persons  fleeing  the  Russian 
aggression against Ukraine to trafficking. The Commission reported on the implementation of 
the  Plan  in  the  fourth  report  on  the  progress  made  in  the  fight  against  trafficking  in  human 
beings, adopted on 19 December 202231.  

All  actions  have  been  completed  or  are  ongoing.  The  EU  Anti-Trafficking  Coordinator 
continues to monitor the implementation of the Plan, in close cooperation with the National 
Rapporteurs and Equivalent Mechanisms32, the EU Civil Society Platform against trafficking 
in human beings and EU Agencies. 

As  part  of  the  coordinated  approach,  actions  to  tackle  trafficking  of  displaced  people  from 
Ukraine are taken within the framework of the European Multidisciplinary Platform Against 
Criminal Threats (EMPACT), involving law enforcement and judicial authorities, as well as 
labour inspectorates. Member States and EU Agencies train relevant stakeholders to detect the 
signs of trafficking in human beings.  

Europol,  in  cooperation  with  the  Member  States,  continues  to  monitor  the  situation  via  the 
information  it receives through SIENA. Member States  are encouraged to continue to  share 
information on possible cases of trafficking with Europol.  

In addition, the European Labour Authority organises meetings with national law enforcement 
and  labour  authorities  and  social  partners  addressing  the  vulnerabilities  and  risks  linked  to 

28   The Russian war of aggression against Ukraine – The broad fundamental right impact in the EU, Bulletin 2 
European  Union  Agency  for  Fundamental  Right  (The  Russian  war  of  aggression  against  Ukraine  ―  The 
broad fundamental rights impact in the EU (europa.eu)). 

29   International  Labour  Organisation  and  European  Labour  Authority  joined  forces  to  reduce  the  risks  of 
undeclared  work,  labour  exploitation  and  trafficking  in  persons  fleeing  the  war  in  Ukraine  |  European 
Labour Authority (europa.eu). 

30   A Common Anti-Trafficking Plan to address the risks of trafficking in human beings and support potential 

victims among those fleeing the war in Ukraine. 

31   Report on the progress made in the fight against trafficking in human beings (fourth report).  
32   National  Rapporteur  or  Equivalent  Mechanisms  in  Member  States  contribute  to  the  understanding  of 
trafficking in human beings in its various forms of exploitation by collecting and analysing data on a regular 
basis, evaluate the effectiveness and impact of national policies and actions against human trafficking and in 
support  of  its  victims,  and  present  recommendations  for  improving  policies  and  practices  addressing  all 
forms of trafficking (Intensifying a coordinated response (europa.eu)). 

9 

 
 
                                                 
undeclared work and labour exploitation as part of the European Platform subgroup tackling 
undeclared work among displaced persons from Ukraine.  

In  parallel  to  this  effort,  the  Commission  is  working  to  ensure  that  displaced  persons  from 
Ukraine who are victims of war crimes, receive support and protection in the EU, as provided 
for  by  the  Victims’  Rights  Directive33.  Under  the  EU  Victims’  Rights  Platform,  the 
Commission is closely working with EU bodies and agencies, such as Eurojust, and with non-
governmental organisations, relevant for victims’ rights to ensure that the rights of victims of 
war crimes are taken into consideration. On 21 September 2022, Eurojust and the Office of 
the  Prosecutor  of  the  ICC  jointly  published  guidelines  for  civil  society  organisations  on 
documenting international  crimes  and human  rights  violations for accountability purposes34. 
Ensuring that victims can fully rely on their rights is particularly important in the context of 
the ongoing investigations in the EU Member States.  

Next steps: 

  The EU Anti Trafficking Coordinator will continue monitoring the implementation of 

the Common Anti Trafficking Plan and update it as appropriate. 

  Member  States  are  urged  to  share  information  on  trafficking  cases  with  Europol  to 

maximise the impact of a coordinated approach. 

  The European Labour Authority will continue engaging key stakeholders as part of the 
dedicated  group  on  undeclared  work  among  those  displaced  by  the  war  against 
Ukraine and present its findings to the Solidarity Platform. 

4.3. Access to education and vocational training 

Education  is  indispensable  for  inclusion  and  helps  improve  the  social  and  emotional  well-
being  of  children  displaced  by  the  Russian  aggression,  many  of  whom  already  experienced 
disrupted schooling as a result of the COVID-19 pandemic.  

Under  the  Temporary  Protection  Directive,  Member  States  should  grant  persons  under 
18 years of age access to the education system under the same conditions as nationals of the 
host Member State. They may also  grant adults enjoying temporary protection access to the 
general education system. 

EU Member States  have made substantial  efforts to  rapidly include displaced  children from 
Ukraine  in  their  education  systems,  from  early  childhood  education  and  care  to  higher 
education35. Yet, at the beginning of the school year 2022/2023, only half a million Ukrainian 
children were enrolled in education systems across the EU36. What’s more, in localities where 
the  number  of  displaced  children  is  particularly  large,  reinforcement  of  basic  infrastructure 
continues  to  be  a  necessity  alongside  the  need  for  recruitment  and  training  of  teachers, 
trainers,  and  carers.  Additional  language  and  psychosocial  support  are  proving  critical  and 
should  be  reinforced  where  not  sufficiently  available  so  as  to  sustain  enrolment  rates  and 
address emerging challenges. 

33   Directive  2012/29/EU  of  the  European  Parliament  and  of  the  Council  of  25  October  2012  establishing 
minimum  standards  on  the  rights,  support  and  protection  of  victims  of  crime,  and  replacing  Council 
Framework Decision 2001/220/JHA, OJ L 315, 14.11.2012, p. 57 – 73. 

34   https://www.eurojust.europa.eu/sites/default/files/assets/eurojust-icc-csos-guidelines.pdf 
35   At  the  beginning  of  the  school  year  2022/2023,  some  half  a  million  Ukrainian  children  were  enrolled  in 

education systems across the EU. 

36   European Education Area - Quality education and training for all. 

10 

 
 
                                                 
As  the  Russian  aggression  continues,  enrolment  in  education  is  critical  to  help  all  children 
displaced from Ukraine, including children with disabilities, reach their full potential and lay 
the foundations for their future. For children close to adulthood, it can also facilitate their later 
inclusion in the labour market. The education received in the EU will also be relevant for the 
later reconstruction and rebuilding of Ukraine.  

To  ease  the  transition  and  simultaneously  enable  children  to  maintain  their  bond  with 
Ukrainian culture and language, some Member States have hired Ukrainian-speaking support 
teachers  in  schools,  added  Ukrainian  textbooks  in  schools  and  libraries  and  provided 
dedicated  information  material  for  Ukrainian  parents.  Moreover,  in  some  cases,  Ukrainian 
authorities  have  worked  with  schools  and  education  authorities  in  Member  States  to  ensure 
that  the  Ukrainian  curriculum,  the  use  of  online  resources  and  the  inclusion  in  a  new  host-
country  school  can  supplement  each  other37.  At  the  European  Education  Summit  on 
1 December 2022, support was announced for the publication of Ukrainian schoolbooks.  

Discussions  regarding  the  recognition  arrangements  for  periods  of  study  in  a  host  country 
school upon return to Ukraine are critical in this regard. Such recognition arrangements help 
ensure  continuity  of  education  and  recognition  of  achievements  and  qualifications  and  can 
help  parents  and  children  avoid  feeling  that  they  need  to  choose  between  inclusion  in  their 
host country and continuing education on return to Ukraine. Beyond this, the Commission’s 
June 2022 practical manual for the inclusion of displaced children from Ukraine in Member 
States’ education systems summarises early best practices regarding all aspects of inclusion in 
schools38.  It  is  now  important  that  Member  States  build  on  these  efforts  and  address 
challenges on all relevant aspects, for example by supporting schools and educational staff to 
include  displaced  children,  targeted  activities  related  to  psychosocial  support  and  language 
acquisition, engaging with displaced families and communities or helping displaced children 
maintain the link with Ukraine. 

To support Member States and particularly teachers in their efforts, the EU provides resources 
and information on education and training intended for displaced parents, pupils, schools, and 
teachers, as well as for stakeholders and organisations engaged in providing solidarity efforts 
in EU Member States. The European Social Fund+ (ESF+) provided significant resources to 
the  training  of  the  teachers,  increasing  accessibility  of  education,  and  providing  adaptation 
programmes for children. These are available on the European Education Area Portal and the 
European School Education Platform39, the successor of the School Education Gateway40 
and new home of eTwinning. 

The  online  European  School  Education  Platform  serves  teachers,  school  leaders, 
researchers,  teacher  educators,  policymakers  and  other  professionals  working  in  school 
education,  including  Early  Childhood  Education  and  Care  as  well  as  Vocational  Education 
and  Training  (VET).  To  support  the  inclusion  of  displaced  children  from  Ukraine  the 
Commission  opened  a  dedicated  webpage,  offering  a  wide  array  of  different  resources  for 
education  stakeholders41.  The  Platform  also  includes  a  series  of  free  online  professional 
development courses on topics related to refugee education. The online community platform 

37   The  Ukrainian  Education  in  Emergency  website  provides  information  on  the  Ukrainian  education  system 

and curriculum and its aim is to help Ukrainian children adapt to new schools and curricula abroad. 

38   Supporting the inclusion of displaced children from Ukraine in education: considerations, key principles and 

practices for the school year 2022-2023. 
European School Education Platform. 

40   School Education Gateway.  
41   Education and support for Ukrainian refugees. The landing page was originally created on the online School 
Education Gateway, which – since 1 October 2022 – migrated to the European School Education Platform. 

11 

 
 
                                                 
 
for teachers and school staff, eTwinning, created dedicated discussion groups for peer-to-peer 
support  for  teachers  (and  their  pupils)  in  Ukraine  and/or  neighbouring  countries,  and  to 
support European teachers to promote inclusion and diversity in the classroom. All displaced 
teachers  from  Ukraine  who  establish  a  link  with  a  school  in  their  host  country  can  get  full 
access to the eTwinning community and launch their own specific projects.  

The Commission has also mobilised the Erasmus+ programme so that students studying at 
a Ukrainian higher education institution at any study level - from short cycle, bachelor and, 
master to doctoral level - may receive a grant to study for up to 12 months at their receiving 
higher  education  institutions  in  an  EU  Member  State  or  third  country  associated  to  the 
Erasmus+  programme.  Students  and  recent  graduates  from  Ukrainian  higher  education 
institutions  can  also  do  an  Erasmus+  funded  traineeship.  Staff  from  Ukrainian  higher 
education institutions  may  also  receive an Erasmus+ grant  for a short period.  In  addition  to 
student and staff mobility actions, the higher education and vocational education and training 
capacity-building projects, as well as the Erasmus Mundus Joint Masters will continue to be 
open  to  students,  staff  and  education  institutions  from  Ukraine.  In  addition,  proposals  for 
cooperation partnership projects can be submitted to support higher education institutions in 
Ukraine. 

The new Erasmus+ Online Language Support platform  helps students, learners, teaching 
staff,  professors  and  educators,  who  participate  in  Erasmus+  projects,  to  acquire  language 
skills. 

Access to education and vocational training is also important for adults who need to complete 
learning programmes initiated in  Ukraine or to  complement their existing qualifications and 
learning to access work commensurate to their profile. The EU guidance on ‘Helping people 
fleeing Russian aggression to access the labour market, vocational education and training and 
adult  learning’  calls  upon  Member  States  to  provide  targeted  upskilling  and  reskilling 
opportunities,  Vocational  Education  and  Training  or  practical  workplace  experience, 
including language training42. 

The Commission will continue to support Member States in providing access to education for 
Ukrainian  pupils  and  students  and  addressing  the  existing  challenges,  while  strengthening 
contacts with the Ukrainian authorities, including through the EU Education Solidarity Group 
for  Ukraine,  which  already  supports  the  exchange  of  information  and  experiences  between 
Member States on all matters related to supporting displaced persons from Ukraine in terms 
of education. 

The  Commission  has  also  continued  to  support  the  Ukrainian  research  and  academic 
community,  including  those  researchers  fleeing  Russian  aggression  against  Ukraine.  A 
dedicated  EUR  25  million  fellowships’  scheme  has  been  launched  under  the  Marie 
Skłodowska-Curie Programme and a EUR 20 million action has been made available by the 
European Innovation Council to support deep tech start-ups of Ukraine. The Horizon Europe 
ERA4Ukraine initiative has served as a one-stop shop for information for researchers fleeing 
Ukraine, working jointly with the Member States and Horizon Europe Associated Countries. 

Next Steps: 

  The Commission will work with Member States to scale up enrolment in schools by 
supporting regular exchanges on their progress, challenges, and good practices as part 

42   Communication  from  the  Commission  on  Guidance  for  access  to  the  labour  market,  vocational  education 

and training and adult learning of people fleeing Russia’s war of aggression against Ukraine. 

12 

 
 
 
                                                 
of  the  EU  Education  Solidarity  Group  for  Ukraine.  Outreach  to  the  Ukrainian 
authorities will be intensified to encourage Ukrainian parents to send their children to 
school in the EU. 

  The  Commission  will  deliver  half  a  million  schoolbooks  in  Ukrainian  language  for 

fifth grade students under the new Ukrainian curriculum by spring 2023. 

  Through  its  online  platforms,  the  Commission  will  continue  to  support  teachers  and 
schools  with  online  materials,  good  practices  and  training  courses,  with  the  specific 
emphasis on language teaching, psycho-social support and inclusive education.  

  The  Commission  will  continue  to  encourage  Member  States  to  make  full  use  of  the 
skills  and  competences  of  displaced  educational  staff  from  Ukraine,  in  line  with  its 
Recommendation and practical advice for the flexible recognition of qualifications. 
  The Commission will implement – through Erasmus+ ‘Capacity building in the field 
of  higher  education’  –  an  action  worth  EUR  5  million  for  the  creation  of  an  open 
educational digital environment for students who have fled from Ukraine or have been 
displaced in the country. 

  The Commission will continue to offer participation in the EU Bluebook traineeships 

to young Ukrainian graduates. 

  The  Commission  will  also  intensify  the  exchanges  with  the  Ukrainian  authorities  to 
facilitate  the  recognition  in  Ukraine  of  academic  qualifications  obtained  in  the 
Member States, including by supporting the Ukrainian National Information Centre of 
Academic Mobility in the framework of the Bologna Process. 

4.4. Access to healthcare and social benefits 

Human dignity and dignified standard of living are key aspects of temporary protection. The 
Directive  requires  Member  States  to  provide  the  necessary  assistance  in  terms  of  social 
welfare and means of subsistence, where these are not available, as well as medical care43. In 
response,  Member  States,  including  with  the  support  of  other  partners,  have  generally 
provided  immediate  humanitarian  assistance.  They  have  also  included  beneficiaries  of 
temporary protection in wider social protection systems,  which can provide for the essential 
transition from ad-hoc emergency aid to targeted social assistance and self-reliance44. 

The type, level and even duration of social assistance benefits (both cash and non-cash) for 
beneficiaries of temporary protection vary considerably across Member States, reflecting the 
diversity  and  often  complexity  of  national  social  systems.Three  broad  approaches  can  be 
distinguished:  a  substantial  number  of  Member  States  treat  beneficiaries  of  temporary 
protection  on  an  equal  footing  with  their  own  nationals/citizens  or  recognised  refugees, 
providing the same access to social services and support measures. This has often included the 
easing of access requirements to take into account the specific circumstances of displacement, 
e.g. in terms of verification for means-testing or other eligibility criteria. Other Member States 
include beneficiaries of temporary protection in the support systems established for applicants 
for international protection. A few others developed ad hoc arrangements specifically targeted 

43   See Article 13 TPD. 
44  Article  13  also  states:  “Where  persons  enjoying  temporary  protection  are  engaged  in  employed  or  self-
employed activities, account shall be taken,  when fixing the  proposed level of aid, of their ability to meet 
their own needs.” 

13 

 
 
 
                                                 
at  beneficiaries  of  temporary  protection.  In  such  cases,  the  level  of  support  is  often  less 
generous  or  limited  in  time.  One  Member  State  operates  a  hybrid  system  with  different 
provisions  applying  to  Ukrainian  nationals  and  third-country  nationals  falling  under 
temporary protection.  

The  large  majority  of  Member  States  also  provide  different  types  of  additional  benefits  or 
one-off  support  measures:  e.g.,  housing  benefit,  free  train  tickets,  or  initial  subsistence  or 
integration  grants,  special  integration  courses  or  related  support,  rehabilitation  services  and 
accessible solutions for persons with disabilities.  

In  addition  to  Member  State  action,  in  many  cases  European  civil  society  also  frequently 
provided  essential  additional  support  through  voluntary  support  platforms,  individual 
donations and other initiatives. In approximately half of the Member States, notably including 
those  hosting  the  highest  number  of  beneficiaries  of  temporary  protection,  dedicated  online 
platforms  were  launched  to  coordinate  offers  and  support  provided  by  social  organisations, 
enterprises and private persons45. 

As  the  situation  evolves,  and  with  the  prolongation  of  temporary  protection  until  at  least 
March  2024,  Member  States  are  reviewing  and  changing  national  legislation  and 
arrangements. The Commission will work with the Member States to ensure that all rights set 
out in the Directive continue to be afforded to the beneficiaries of temporary protection and to 
promote policies leading to their self-reliance (notably through access to jobs and education 
and training opportunities).  

The  Temporary  Protection  Directive  requires  that  assistance  necessary  for  medical  care 
includes at least emergency care and essential treatment of illness. Reflecting the Commission 
guidance  on  the  matter,  a  first  report46  of  the  Commission  concluded  that  the  majority  of 
Member States have provided inclusive access to national health care systems to beneficiaries 
of  temporary  protection,  on  a  par  with  or  closely  mirroring  that  of  their  own  citizens,  with 
only a few differences.  

Practical  implementation  difficulties  in  some  Member  States  relate  for  instance  to  lack  of 
information  about  access  to  healthcare  or  language  barriers.  The  differences  of  vaccination 
schedules47  and the courses  of treatment  for some  chronic  and  communicable  diseases have 
also presented challenges for health systems in host  countries. The Commission is currently 
working with Member States to identify the problems of accessibility and a second report will 
be published in April 2023. 

The identification and support to people with  disabilities also remains an overall challenge. 
Key issues relate to identification of people with special needs and of persons with disabilities 
through early medical assessments or by social workers or how to translate existing disability 
certificates  to  different  national  disability  support  systems.  The  Commission  has  provided 
relevant guidance on this issue and has brought together Member States, civil society partners 
and Ukrainian authorities and other organisations to help address these challenges48.  

45   EUAA Providing Temporary Protection to Displaced Persons from Ukraine: A Year in Review. 
46   Report on access to health care in EU Member States  - Implementation of Temporary Protection Directive 

(2001/55/EC) and Council Implementing Decision (EU) 2022/382. 

47   Free COVID-19 vaccination were provided in the large majority of Member States. 
48  Communication  from  the  Commission  on  Operational  guidelines  for  the  implementation  of  Council 
implementing  Decision  2022/382  establishing  the  existence  of  a  mass  influx  of  displaced  persons  from 
Ukraine  within  the  meaning  of  Article 5  of  Directive  2001/55/EC,  and  having  the  effect  of  introducing 
temporary protection. 

14 

 
 
                                                 
Through the Union Civil Protection Mechanism, the EU has supported medical evacuation of 
Ukrainian patients and those wounded in the war who could no longer receive treatment in 
Ukraine due to the war. Almost 2 000 Ukrainian patients have been evacuated successfully to 
20  EU  and  EEA  countries.  A  medical  hub  has  been  established  in  Rzeszów  (Poland)  to 
facilitate  the  evacuation.  This  has  involved  the  joint  efforts  of  the  European  Commission, 
World  Health  Organization,  EU  and  EEA  Member  states,  Ukraine  and  the  Republic  of 
Moldova.  Upon  request  of  the  Ukrainian  authorities,  an  EU  repatriation  scheme  for 
facilitating  the  evacuated  patients  return  to  Ukraine  has  been  developed.  Ukraine  has  also 
been associated to the EU4Health Programme and is joining several actions, such as the Joint 
Action on Integration of European Reference Networks for Rare Diseases into national health 
systems.  

A  Network  on  Supporting  Ukraine,  neighbouring  EU  Member  States  and  the  Republic  of 
Moldova  has  been  established  through  the  EU  Health  Policy  Platform  to  support  the 
cooperation and coordination of NGOs and civil society in their effort to support health care 
in  Ukraine and for displaced persons from  Ukraine. The Commission sustained the work of 
the network with additional funding from the EU4Health Programme with calls for proposals 
targeting  patients’  and  civil  society  organisations  to  support  people  fleeing  the  Russian 
aggression against Ukraine.  

Many of those displaced, including children, have specific needs because of the traumatising 
experience  of  Russian  aggression.  To  complement  the  mental  health  and/or  psychosocial 
support  offered  in  the  majority  of  Member  States,  the  Commission  has  therefore  provided 
additional  funding  for  first  psychological  aid  through  different  channels,  including  the 
International  Federation  of 
the  Red  Cross  Societies  and  other  non-governmental 
organisations. 

Next steps: 

  The Commission will report on barriers to accessing healthcare by April 2023 and will 

discuss with Member States how to overcome them. 

  The Commission will work with Member States to continue targeted actions. Priority 
will  be  given  to  the  vaccination  of  displaced  children,  according  to  the  vaccination 
programmes  of  the  host  country,  in  agreement  with  Member  States.  Support  for 
continuity of care for those in need of long-term treatment should also be prioritised. 
Epidemiological surveillance should be ensured. 

  The Commission will work with Member States to continue the support to Ukrainian 
cancer  patients,  through  the  current  medical  evacuations,  the  provision  of  cancer 
medicines  to  Ukraine  and  the  participation  of  Ukraine  in  the  activities  developed 
under Europe’s Beating Cancer Plan, through the EU4Health Programme. 

  The  Commission  will  fully  deploy  psychosocial  and  mental  health  support  for 
Ukrainian displaced persons through agreements with the IFRC and NGOs, including 
by scaling up provisions of mental health training for teachers and social workers. 

4.5. Access to jobs 

Labour market inclusion is fundamental for people to be financially independent, support their 
families and contribute to the host community. Inclusion will also be beneficial to Ukraine in 
the  long-run,  when  people  with  newly  acquired  skills  return  home  and  help  to  rebuild  the 
country.  

15 

 
 
 
Upon activation of the Temporary Protection Directive, Member States have removed many 
formalities and additional administrative steps (like additional work permits) or other barriers, 
to ensure immediate access to the labour market. In June 2022, the Commission, drawing on 
lessons learned from previous crises, provided guidance and put forward concrete measures to 
facilitate access to the labour market, vocational education, training, and adult learning49. 

Evidence  so  far  shows  that  such  initiatives  have  been  successful  and  the  entry  of  displaced 
persons  from  Ukraine  to  the  labour  market  has  been  faster  than  that  of  applicants  for 
international  protection  and persons with  refugee status50.  Available figures as of December 
2022 indicate that more than 1.1 million people displaced from Ukraine were in employment 
across the European Economic Area51. At least 614 933 beneficiaries of temporary protection 
have been employed in 18 Member States, Norway and Liechtenstein and 413 365 persons are 
registered as job seekers in 15 Member States (as of 1 March 2023).  

As  part  of  these  initiatives,  in  October  2022,  the  Commission  and  the  European  Labour 
Authority  launched  the  Talent  Pool  Pilot52  for  people  fleeing  Russian  aggression  against 
Ukraine.  The  initiative  supports  labour  market  integration  of  beneficiaries  of  temporary 
protection for as long as they are in the EU. It facilitates the matching of their profiles with 
jobs  and  vacancies  that  correspond  to  their  skills  and  qualifications.  It  helps  them  to  create 
their CVs and make their profiles available to more than 4 000 EU employers with 3 900 000 
vacancies, as of February 2023. Employers registered on the EURES portal undergo a vetting 
procedure among others to avoid the risk of labour exploitation. While the portal is available 
to  jobseekers  in  all  EU  Member  States,  some  Member  States  have  invested  additional 
resources  to  support  its  implementation53.  To  ensure  swifter  labour  market  integration  of 
beneficiaries  of  temporary  protection,  Member  States  are  encouraged  to  better  promote  and 
support the use of the Talent Pool Pilot through active promotion and information campaigns. 

integration. 

labour  market 

The  swift  validation  of  skills  and  recognition  of  qualifications  is  particularly  important  for 
successful 
issued  a 
Recommendation  and  practical  advice  for  the  flexible  recognition  of  qualifications 
giving access to regulated professions, or to further learning for people fleeing Russia’s war 
against  Ukraine,  and  is  monitoring  its  implementation54.  To  support  a  better  understanding 
and  comparability  of  Ukrainian  qualifications  with  qualifications  gained  in  the  EU,  the 
Commission  published  a  comparison  report55  and  is  organising  exchanges  for  practitioners 
and others involved in the review of qualifications.  

the  Commission 

In  April  2022, 

Many  Member  States  have  already  taken  important  steps  to  facilitate  the  recognition  of 
qualifications56,  with  some  concluding  agreements  with  Ukraine  in  the  field  of  academic 

49   Communication  from  the  Commission  on  Guidance  for  access  to  the  labour  market,  vocational  education 

and training and adult learning of people fleeing Russia’s war of aggression against Ukraine. 

50   OECD Policy Responses on the Impacts of the War in Ukraine – What we know about the skills and early 

labour market outcomes of refugees from Ukraine. 

51   Public Employment Services support to persons displaced from Ukraine: latest developments - Employment, 

Social Affairs & Inclusion. 

52   EU Talent Pool Pilot. 
53   Cyprus, Spain, Finland, Croatia, Lithuania, Slovakia, Poland. 
54   Commission  Recommendation  (EU)  2022/554  of  5  April  2022  on  the  recognition  of  qualifications  for 

people fleeing Russia’s invasion of Ukraine. 

55   Comparison  report  of  the  European  Qualifications  Framework  and  the  Ukrainian  National  Qualifications 

Framework. 

56   For  example,  measures  to  allowing  Ukrainian  medical  professionals  to  work  under  supervision  in  Latvia 

before their qualifications are formally recognised. 

16 

 
 
                                                 
recognition.  It  is  important  to  ensure  that  people  can  access  work  that  corresponds  to  their 
qualifications and experience.  

Given  the  predominance  of  Ukrainian  female-headed  households  among  beneficiaries  of 
temporary  protection,  several  Member  States’  labour  market  inclusion  programmes  have 
added a focus on support for women from Ukraine. This context also makes the availability 
of ‘early childhood education and care’  services  a particularly  critical  precondition  for their 
rapid and sustainable labour market inclusion.  

Specific  attention  has  also  been  given,  and  will  continue  to  be  given,  to  Ukrainian 
journalists and media workers. The “Europe-wide rapid response mechanism for violations 
of  press  and  media  freedom”57,  supported  by  the  EU,  has  hosted  journalists  in  the  EU. 
Another EU-financed project to promote cross-border journalism partnerships58 has been open 
to  Ukrainian  media.  To  support  the  entrepreneurial  potential  of  young  Ukrainians,  the 
Commission  has  taken  measures  to  allow  more  flexible  participation  in  the  Erasmus  for 
Young  Entrepreneurs  Programme.  As  a  result,  the  programme  saw  highest  numbers  of 
Ukrainian entrepreneurs applying and participating in the programme since 2018. 

The Commission also intensified its work with social and economic partners in the European 
Partnership  for  Integration  to  further  the  labour  market  integration  of  beneficiaries  of 
temporary  protection.  As  highlighted  in  a  joint  statement  issued  in  December  2022,  its 
members agree to focus on strengthening the cooperation structures between relevant labour 
market  actors  and  making  the  assessment,  recognition  and  validation  of  skills  and 
qualifications of refugees and migrants easier and more straightforward59. 

As  Member  States  are  starting  to  implement  their  ESF+  programmes  for  the  2021-2027 
period, the Commission  will monitor the use of the ESF+ to  support the  labour market  and 
social inclusion of third-country nationals, notably from Ukraine.  

Clarity about the right to employment and self-employment without delays or conditions has 
been  a  key  factor  so  far  to  ensure  people  displaced  from  Ukraine  can  access  the  labour 
market. Efforts can still be stepped up to reach out to displaced people with information about 
possible  support  to  enter  the  labour  market,  and  to  encourage  registration  at  the  Public 
Employment  Services.  At  the  same  time,  uncertainty  over  how  long  displaced  people  from 
Ukraine  might  stay  in  the  EU  calls  for  flexible  approaches  to  ensure  both  rapid  and 
sustainable  labour  market  access.  In  this  regard,  the  forward-looking  efforts  of  Member 
States,  such  as  Poland,  Estonia,  and  others  to  facilitate  access  to  other  legal  migration 
statuses,  including  through  employment,  present  an  important  step.  In  the  future,  proactive 
efforts  in  providing  language  courses,  better  access  and  inclusion  in  the  labour  market  will 
have to continue to accompany this approach, not to leave anyone behind.  

Next Steps: 

  The  Commission  will  encourage  Member  States  to  promote  swifter  labour  market 
integration  of  beneficiaries  of  temporary  protection  by  better  promoting  and 
supporting the use of the Talent Pool Pilot and by sharing best practices identified. 
  The Commission will promote exchanges on progress, challenges, and good practices 
in  implementing EU  funding projects  for third-country nationals  with  national  ESF+ 
managing authorities. 

57   https://www.mfrr.eu/. 
58   https://www.investigativejournalismforeu.net/. 
59   European Partnership for Integration. 

17 

 
 
                                                 
  To support a better understanding and comparability of Ukrainian qualifications with 
qualifications gained in the EU, the Commission will take stock of the implementation 
of  its  Recommendation  on  flexible  recognition  of  qualifications  ,  and  organise 
exchanges for practitioners and others involved in the review of qualifications  

4.6. Access to accommodation and housing 

Hosting millions of persons displaced in a short period of time has proven one of the major 
challenges in the implementation of the Temporary Protection Directive.  

Throughout  the  EU,  different  types  of  temporary  or  more  permanent  accommodation  were 
provided  by  national  authorities  and  municipalities,  through  private  sponsors  but  also  the 
housing market. The Union Civil Protection Mechanism (UCPM)60 helped meet the demand 
for emergency shelter in Member States neighbouring or close to Ukraine and the Republic of 
Moldova,  especially  for  the  first  few  days  upon  arrival.  The  Commission’s  Emergency 
Response  Coordination  Centre  (ERCC)  channelled  offers  from  21  EU  Member  States  and 
Norway, and mobilised Relief Housing Units and beds from the rescEU shelter reserve. 

Looking back, however, one of the most remarkable aspects of the response to the crisis has 
been the enormous generosity shown by private individuals in opening their own homes. 
Without that, official reception facilities would have struggled to cope.  

To  support  vulnerable  people  and  their  hosts,  national  authorities  supported  and  engaged  in 
innovative  joint  cooperation  platforms  that  connect  people  to  homes,  exchange  information 
and  provide  mutual  support.  Many  Member  States  also  provide  financial  support  to 
households  hosting  beneficiaries  of  temporary  protection  and  others  provide  housing 
allowances directly to beneficiaries of temporary protection61. 
Under the ‘Safe Homes’ initiative62 the Commission put forward guidance to assist Member 
States, regional and local authorities, and civil society in the organisation of private housing 
initiatives63.  The  Commission  further  encouraged  Member  States  to  exchange  on  and  study 
so-called  ‘community  sponsorship’  or  other  similar  schemes  that  provide  integration 
pathways  to  hosted  people.  A  targeted  budget  of  EUR 5.5  million  implemented  by  the 
International Federation of Red Cross project aims to support the implementation of the Safe 
Homes guidance and the development of a good practice model. The project will better match 
hosted  individuals  of  families  with  potential  hosts,  while  assessing  the  needs  of  Member 
States,  and  create  a  referral  mechanism  matching  accommodation  to  several  integration 
services. Other project activities will include the provision of support and guidance to hosts. 
Components  of  the  programme  will  be  implemented  throughout  2023  in  Belgium,  France, 
Germany, Hungary, Ireland, the Netherlands, Luxemburg, Poland, Romania, and Slovakia. 

Furthermore, in January 2023, the Commission launched a call for proposals for project grants 
under  the  Asylum  Migration  and  Integration  Fund64  to  further  support  and  promote 
community sponsorship schemes and to help develop complementarity between the reception 
capacities of Member States and the housing offer provided through private hosting schemes. 

60   EU Civil Protection Mechanism (europa.eu). 
61   OECD Policy Responses on the Impacts of the War in Ukraine - Housing support for Ukrainian refugees in 

receiving countries. 

62   Safe and suitable homes for people fleeing the war in Ukraine. 
63   Solidarity  and  housing:  supporting  safe  homes  –  Considerations,  key  principles  and  practices  -  As  of  21 

February 2023. 

64   Asylum, Migration and Integration Fund (AMIF) – Call for proposals – 17 January 2023.  

18 

 
 
 
                                                 
This  will  allow  to  integrate  the  lessons  learned  from  the  Ukraine  response  identify 
opportunities to expand the structural reception capacity at EU level. The ESF+ will be also 
well placed to support such schemes in EU Member States. 

In  the  future,  displaced  persons  from  Ukraine  will  need  to  transition  from  short-term 
emergency housing or temporary private hosting towards more sustainable housing solutions, 
avoiding a permanent dependence on state-run reception.  In addition, accessible housing for 
persons  with  disabilities  needs  to  be  available.  Shortages  of  affordable  or  social  housing  – 
amounting  to  a  housing  market  crisis  in  some  Member  States  –  make  this  transition  more 
difficult.  Where  beneficiaries  of  temporary  protection  fully  or  partially  pay  for  their 
accommodation,  appropriate  means-testing,  and  support,  where  necessary,  is  critical  to 
preserve access to accommodation to those who need it.  

Next Steps:  

  The Solidarity Platform will continue monitoring displacement trends and update the 

European contingency plan to ensure that accommodation is available; 

  The Commission  will monitor the application of the  Temporary Protection Directive 
in  the  field  of  reception  to  identify  risks  in  the  transition  from  emergency 
accommodation to longer term solutions, in particular for vulnerable individuals. 
  The Solidarity Platform will discuss the Safe Homes implementation and guidance to 

identify key steps to be taken in the coming months and lessons learned; 

  The  European  integration  network65  will  continue  exchanging  good  practice  in 
providing  accessible  housing  on  the  basis  of  the  discussions  held  on  2-3  February 
2023 in Sweden.  

  The  Commission  will  mobilise  EUR  8  million  in  funding  to  support  and  promote 

community sponsorship schemes in 2023. 

  The  Commission  will  monitor  the  implementation  of  the  Safe  Homes  project 
coordinated by International Federation of the Red Cross and reinforce it as needed. 

5.  Financial and operational support 

The  EU  has  provided  support  through  unprecedented  measures  and  funding  addressing  the 
needs of displaced persons, drawing from several EU funds. The Commission mobilised very 
early  on  its  comprehensive  toolbox  across  EU  spending  programmes  in  support  of  Member 
States.  

5.1. Financial support 

Since March 2022, the rules governing cohesion policy  were revised several times to enable 
Member  States  to  reallocate  unused  funds  from  the  2014-2020  envelope  and  provide 
additional  liquidity  also  from  the  new  2021-2027  envelope.  The  Cohesion’s  Action  for 

65   The  European  Integration  Network  (EIN)  brings  together  representatives  of  national  public  authorities, 
mainly from the ministries responsible for migrant integration, from all 27 EU Member States and Iceland 
and  Norway.  These  often  play  a  role  in  the  planning  and  implementation  of  dedicated  EU  funding 
opportunities such as the Asylum, Migration and Integration Fund (AMIF) in their respective countries. The 
EIN  members  also  participate  in  targeted  study  visits,  peer  reviews,  workshops  and  mutual  assistance 
actions  on  specific  integration  aspects  to  exchange  knowledge.  See  European  Integration  Network  | 
European Website on Integration (europa.eu) 

19 

 
 
 
                                                 
Refugees  in  Europe  (CARE)  package,  comprised  of  three  modifications66,  increased  the 
flexibility  of  existing  rules,  provided  more  liquidity  to  finance  urgent  needs  and  simplified 
reporting for the managing authorities. 

The total additional liquidity provided by the EU through CARE and FAST-CARE packages 
amounts  to  EUR 13.6 billion.  An  amount  of  nearly  EUR 1 billion  reprogrammed  funds67  to 
finance  welcoming  and  arrival  of  displaced  persons  from  Ukraine  and  facilitate  access  to 
mainstream labour market, education, language courses, childcare, housing, medical care and 
other  long-term  integration  measures.  As  such  measures  are  often  provided  by  local 
authorities and civil society organisations, Member States are required to allocate at least 30% 
of relevant CARE measures to those beneficiaries68.  

The EU also amended the Home Affairs Funds to increase financial flexibility and make it 
easier for Member States to redeploy available funds under their 2014-2020 programmes for 
actions  targeting  displaced  persons  from  Ukraine,  such  as  the  provision  of  first  reception 
needs  (e.g.  emergency  accommodation,  food,  healthcare,  extra  staff  etc.)  and  supporting 
Member States efforts (e.g. initial processing and registration activities and referral of persons 
to specialised support services).  

Moreover,  the  pledging  event  of  9 April 2022  ‘Stand  Up  for  Ukraine’,  EUR 400 million  in 
Emergency  Assistance  funding  was  mobilised  from  the  Home  Affairs  Funds.  Of  those, 
EUR 385 million  were  allocated  to  cover  the  most  pressing  needs  in  Member  States69  most 
affected by the influx of displaced persons from Ukraine  and for early integration  while the 
remaining EUR 15 million are planned to  address mainly  the ‘Safe Homes’ initiative and to 
provide psychosocial support for displaced persons from Ukraine.  

Through  the  Technical  Support  Instrument,  the  Commission  has  also  been  supporting 
Member  State  administrations  to  facilitate  access  to  rights  under  the  Temporary  Protection 
Directive.  This  is  contributing  towards  enhancing  multi-level  coordination  and  improving 
procedures relating to access to social services, education and jobs for displaced people from 
Ukraine. 

With  the  new  generation  of  programmes  being  adopted,  Member  States  have  access  to 
significant  financial  support  under  the  2021-2027  Home  Affairs  Funds  and  Cohesion 
Policy, allowing them to launch actions adapted to their specific needs.  

The Commission will continue to work with Member States, in particular in the light of the 
European  Council  conclusions  of  9  February  2023,  to  ensure  that  adequate  and  flexible 
financial assistance to the Member States who bear the largest burden of medical, education 
and living costs of refugees continues to be provided. 

66   Regulation (EU) 2022/562 of 6 April 2022, Regulation (EU) 2022/613 of 12 April  2022, Regulation (EU) 

2022/2039 of 26 October 2022. 

67   As of 31 January 2023. 
68   The re-programming exercise to set up this scheme is ongoing, and the Commission will check compliance 

with this condition at the closure of programmes. 

69   Emergency  Assistance  of  EUR 385  million  was  allocated  to  Czechia  (EUR 54.4 million),  Poland 
Bulgaria 
(EUR 200.1 million), 
(EUR 10.9 million),  Latvia  (EUR 7.8 million),  Romania  (EUR 39.1 million),  Hungary  (EUR 21.1 million), 
Slovakia (EUR 24.7 million) and Cyprus (EUR 6.7 million). 

(EUR 10.1 million), 

(EUR 10.1 million), 

Lithuania 

Estonia 

20 

 
 
                                                 
5.2. Operational support 

Russia’s  aggression  against  Ukraine  triggered  the  largest  emergency  operation  since  the 
creation  of  the  Union  Civil  Protection  Mechanism  (UCPM),  which  has  demonstrated  its 
ability to  mobilise assistance  both  to  Ukraine and  EU Member States most impacted by the 
inflow of displaced persons from  Ukraine. Three UCPM  logistical  hubs  were established in 
Poland, Romania, and Slovakia to channel more than 80 000 tons of in-kind assistance from 
the  Member  States  and  Participating  Countries  to  Ukraine.  The  Commission’s  Emergency 
Response  Coordination  Centre  (ERCC)  has  been  managing  the  largest  and  most  complex 
UCPM  operation  to  date,  with  an  estimated  financial  value  of  assistance  of  over 
EUR 540 million. This includes medicines and medical devices, emergency vehicles, energy 
generators  and  transformers,  to  name  just  a  few.  It  also  coordinated  the  aforementioned 
medical evacuations. 

EU operational support also materialised through the involvement of its Agencies, notably 
the EUAA, Frontex, Europol and the FRA. 

The EUAA supports 13 Member States with their asylum, reception and temporary protection 
needs.  An additional  90 staff were  deployed  to  specifically support Member States with  the 
implementation of the Temporary Protection Directive, information provision needs and other 
consequences of the Russian invasion of Ukraine. The Agency has developed and distributed 
a  wide  range  of  information  provision  products  and  launched  information  campaigns  on 
temporary  protection,  in  close  collaboration  with  the  Commission.  Relevant  training  was 
made available to  Member States on how to  equip their staff with  the knowledge and skills 
required to give effect to the rights under the Temporary Protection Directive.  

Around  200  Frontex  staff  are  deployed  at  the  relevant  border-crossing  points  in  Poland, 
Romania, and Slovakia and the Republic of Moldova to support the efficient and expeditious 
processing  of  those  fleeing  Russian  aggression  against  Ukraine.  Europol  has  also  deployed 
staff and guest officers to conduct secondary security checks in Lithuania, Poland, Slovakia, 
Romania, Hungary, and the Republic of Moldova. Europol staff also support investigations in 
these countries when requested. 

The FRA has compiled reports on the implementation of the Temporary Protection Directive 
and  has  recently  conducted  an  extensive  survey  with  beneficiaries  that  identified  key 
challenges and priorities for the coming months. 

6.  Solidarity and Partnership 

6.1. Solidarity in action 

Solidarity  has  been  the  defining  feature  of  the  EU’s  response  to  the  Russian  aggression 
against Ukraine, notably with Member States deciding to waive the application of Article 11 
of  the  Temporary  Protection  Directive,  thereby  facilitating  the  possibility  for  persons 
enjoying temporary protection in one Member State to move to other Member States to enjoy 
temporary  protection  there.  This  enabled  fluidity  of  onward  movements  in  the  EU  that 
helped to lower the pressure on national reception systems of those Member States bordering 
Ukraine  and  reduced  formalities70  regarding  transfers,  thereby  making  the  instrument  still 
easier to apply. 

To alleviate the Republic of Moldova’s overstretched reception capacity, the Commission has 
been  supporting  and  coordinating  from  an  early  stage,  in  the  framework  of  the  Solidarity 

70   Article 26 TPD. 

21 

 
 
                                                 
Platform,  the  transfers  of  vulnerable  persons  having  fled  Ukraine  and  who  are  entitled  to 
temporary protection from the Republic of Moldova to pledging EU Member States and other 
Schengen  associated  countries.  So  far,  12  EU  Member  States,  as  well  as  Norway, 
Liechtenstein,  Switzerland,  and  Iceland  made  pledges  to  welcome  17 870  people  transiting 
through  the  Republic  of  Moldova.  Out  of  the  pledges  made  so  far,  a  total  of  2 377  persons 
have been transferred to the EU and other Schengen associated countries from the Republic of 
Moldova  (as  of  17 February  2023).  Moreover,  the  EU  engagement  has  also  included  a 
financial  support  being  provided  to  the  International  Organization  for  Migration’s  (IOM) 
activities related to the organisation of flights from the Republic of Moldova to pledging EU 
Member States and Schengen Associated Countries  as part of a EUR 15 million  EU-funded 
project. 

6.2. Engagement and coordination with Ukrainian authorities 

The involvement and participation in meetings of the Ukrainian authorities in Ukraine and the 
Ukrainian  embassies  and  consulates  in  the  EU  Member  States  quickly  became  one  of  the 
distinctive features of the operational response to this crisis compared to any other crises in 
the  past.  The  Commission  has  been  able  to  establish  close  cooperation  with  Ukrainian 
authorities,  which  allowed  for  broader  coordination  also  in  key  areas  dedicated  to  the 
protection  of  categories  of  vulnerable  persons,  preventing  human  trafficking  and  smuggling 
and  for  a  better  identification  of  the  challenges  people  faced  in  accessing  rights  attached  to 
temporary  protection  in  practice.  This  helped  the  Commission  and  Member  States  to  detect 
and correct shortcomings in the implementation of the Directive. 

6.3. From European solidarity to global response  

The Commission reached out to its international partners by setting up an international leg of 
the Solidarity Platform to include the United States, Canada and the United Kingdom. The 
aim  is  to  exchange  information  on  the  schemes  put  in  place  by  different  countries  offering 
protection  to  those  fleeing  the  Russian  aggression  against  Ukraine71,  to  share  updated 
situational  awareness  on  the  circumstances  in  Ukraine  and  to  discuss  contingency  planning 
and additional assistance. 

Close  cooperation  with  relevant  international  organisations,  especially  with  UNHCR  and 
IOM,  has  helped  improve  the  EU’s  situational  awareness.  It  has  supported  better-informed 
actions  (through  studies  and  analysis)  and  provided  operational  support  to  stakeholders  and 
concrete  projects  on  the  ground,  such  as  the  transfer  of  vulnerable  persons  fleeing  Ukraine 
from  the  Republic  of  Moldova  to  the  EU,  and  the  development  of  the  Standard  Operating 
Procedures guiding these transfers. 

7.  Looking ahead 

As  reiterated  in  the  European  Council  meeting  of  9  February  2023,  the  Union  will  stand  in 
support  of  those  fleeing  the  Russian  aggression  against  Ukraine  for  as  long  as  needed.  In 
triggering the Temporary Protection Directive, the EU has provided safety for millions who 
had to leave the country. Temporary protection has already been prolonged until March 2024. 
The Commission will be ready to make a proposal for further prolongation as necessary.  

The directive has been the enabler of an unprecedented whole-of-society effort, one that the 
Commission has advocated for since the early days of the response. All sectors of government 
and  society  have  been  mobilised  in  an  unprecedented  manner,  giving  life  to  the  rights 

71   Since the beginning of the war, more than 400 000 people from Ukraine arrived in the US, Canada and in 

the UK. 

22 

 
 
                                                 
enshrined in the Temporary Protection Directive. It has spurred a large degree of innovation, 
including pilot projects across various sectors including employment, education, housing, and 
recognition of qualification that will offer crucial lessons learned to improve our policies and 
be ready for future scenarios.  

The Directive proved to be both strong and flexible enough to enable a collective and quick 
response,  backed  by  strong  EU  coordination  through  the  Solidarity  Platform.  This  has 
helped  to  forge  new  connections  and  foster  cooperation  between  public  authorities,  social 
partners, civil society, and those fleeing the Russian aggression against Ukraine. 

A  strong  EU  coordinated  approach  is  not  only  necessary  to  continue  addressing  current 
challenges but also for any future action. It will be crucial to ensure a smooth transition to 
alternative legal statuses that would allow access to rights beyond the maximum duration of 
temporary protection, for example by prolonging residence and work permits, or by creating 
the  conditions  to  transit  into  other  legal  statuses.  This  is  important  to  ensure  that  Member 
States’ asylum systems are not overwhelmed.  

In parallel, targeted support is needed for persons who, having fled Ukraine, want to go back 
home.  The  Commission  has  already  intervened  on  the  issue  with  targeted  guidance  in  the 
form  of  Frequently  Asked  Questions,  clarifying  the  different  consequences  of  short-term 
visits  to  Ukraine  and  voluntary  return  to  Ukraine72,  and  providing  safeguards  for  those 
wishing to go home back to Ukraine so they can easily re-access their protection if they need 
to  flee  again73.  The  Commission  will  continue  to  monitor  the  situation,  to  make  sure  that 
Member States take the necessary measures to cater for the voluntary return of persons who, 
in full knowledge of the facts, decide to go home, and to support such decisions with Home 
Affairs  Funds.  The  Commission  is  also  stepping  up  efforts  under  the  Multi-agency  Donor 
Coordination Platform to support Ukraine’s repair, recovery, and reconstruction process. The 
return of those displaced will be an important consideration in this context. 

More broadly, the Temporary Protection Directive has proven to be an essential instrument to 
provide immediate protection in the EU and the Commission considers that it should remain 
part of the toolbox available to the European Union in the future.  

However,  experience  has  shown  that the  types  of  migratory  challenges  the  Union  faces  can 
vary  greatly,  particularly  with  regards  to  the  scale  of  the  flows  or  their  composition.  It  is 
therefore essential that the EU be equipped with a variety of tools and prepared to reply to all 
types of crises. The Commission will work with the co-legislators to make sure the European 
Union is equipped with the tools it needs in the future and ensure proper articulation with the 
Commission proposal for a Crisis and force majeure Regulation74. 

The implementation of the Directive in the near future will require continued support to make 
sure that existing challenges are addressed, and that appropriate transitions and contingencies 
are in place to cater for future situations. The Solidarity Platform will continue to ensure an 
EU coordinated response and to engage with Member States and other stakeholders. 

The solidarity and compassion shown by people across the EU, as well as the efforts provided 
by national and local authorities, stakeholders and communities continue to teach us important 

72   Frequently asked questions received on the interpretation of the Temporary Protection Directive and Council 

Implementing Decision 2022-382_en.pdf.  

73   Frequently Asked Questions on going home to Ukraine on a voluntary basis in the context of the Temporary 

Protection_en.pdf.  

74   Proposal for a Regulation of the European Parliament and of the Council addressing situations of crisis and 

force majeure in the field of migration and asylum. 

23 

 
 
                                                 
lessons,  proving  once  again  that  the  European  Union  is  strong  when  it  acts  with  unity  and 
coordination.  

The European Union will remain a place of welcome for those fleeing the Russian aggression 
for as long as it takes. 

24