COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS A predictable and common European way forward for Ukrainians in the EU
Date: 2025-06-04
Institutions: European Commission, Secretariat-General
Subjects: EU Member State, EU aid, EU migration policy, Russo-Ukrainian issue, Ukraine, aid to refugees, disclosure of information, foreign national, international protection, return migration

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 4.6.2025  COM(2025) 649 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS A predictable and common European way forward for Ukrainians in the EU      
 
 
A predictable and common European way forward for Ukrainians in the EU 

1.  INTRODUCTION 

Since the start of Russia’s war of aggression against Ukraine, the European Union has shown 
unwavering support through its political, humanitarian, military and diplomatic aid, as well as 
by  being  Ukraine’s  largest  financial  donor1.  In  parallel,  the  EU  has  imposed  massive  and 
unprecedented sanctions on Russia and those complicit in Russia’s war effort2. Member States 
and their citizens have sent a powerful message of solidarity towards Ukraine and its people 
fleeing  the  war,  by  offering  them  immediate  protection  and  support,  including  access  to 
accommodation,  healthcare,  education  and  employment.  As  a  result,  millions  of  displaced 
people from Ukraine have found safety, shelter and opportunities across the EU. 
The activation of the Temporary Protection Directive3 set out a common EU approach, giving 
predictability and legal certainty both to the displaced persons from Ukraine and to the Member 
States.  It  has  provided  immediate  protection,  while  also  preventing  an  additional  strain  on 
already overstretched national asylum systems. Temporary protection, currently in place until 
March  2026,  has  therefore  proven  to  be  an  effective  and  proportionate  response  to  the 
exceptional circumstances.  

As the situation in Ukraine remains precarious, the Commission is committed to continuing its 
unwavering support to the country and its people. Many persons enjoying temporary protection 
have  built  strong  ties  with  their  host  societies  in  the  EU,  through  language  learning, 
employment, education, cultural initiatives and not least their children’s integration.  

A  continued  common  EU  approach  is  essential  to  ensure  balanced  responsibility-sharing 
among Member States. Following close consultations with Member States under the guidance 
of  the  Polish  Presidency  of  the  Council,  and  bearing  in  mind  the  views  of  the  Ukrainian 
government, it is therefore necessary to prolong temporary protection by an additional year, 
whilst preparing to offer a more stable and lasting perspective to persons enjoying temporary 
protection, including supporting safe, voluntary and dignified returns to Ukraine.  

Ukraine holds significant economic promise and, looking ahead to its recovery and long-term 
development,  the  country  will  increasingly  rely  on  the  support  of  its  own  citizens  to  drive 
reconstruction and shape its future. Ukraine needs its people back, as vital members of their 
communities,  bringing  with  them  the  strength,  experience  and  resilience  needed  to  restore 
everyday  life  and  social  cohesion.  A  common  way  forward  is  required,  one  that  offers 
predictability, stability, and ensures a balanced impact on Member States. This should allow 
sufficient time for persons enjoying temporary protection to transition to other legal statuses 
that better represent their actual situation, for example for work, study or family reasons, as 
well as support for those wishing to go back to Ukraine.  

This Communication sets out a common European path for the future of the Ukrainians present 
today in the EU. It is accompanied by proposals for a Council Implementing Decision on the 
prolongation of temporary protection, and for a Council Recommendation outlining a series of 
measures  to  pave  the  way  for  a  smooth  and  well-coordinated  transition  out  of  temporary 
protection and for supporting those who wish to go back home to Ukraine. 

1 EU assistance to Ukraine - European Commission 
2 Sanctions adopted following Russia’s military aggression against Ukraine - European Commission. 
3 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, L 212/12, 7.8.2001. 

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2.  TEMPORARY PROTECTION 

The  estimated  number  of  persons  enjoying  temporary  protection4  in  the  EU+5  is  over 
4.4 million6, and people continue to arrive.  

In the first three months of 2025, almost 142 000 decisions granting temporary protection were 
issued in the EU+, at an average monthly rate of around 47 0007 decisions. Around 800 0008 
people have returned to Ukraine from Member States, however current movements are mostly 
pendular in nature. Asylum applications9 in the EU by Ukrainians reached almost 27 000 in 
2024,  with  a  recognition  rate  of  87%.  Applications  have  continued  to  increase  in  the  first 
months of 2025, with almost 6 000 Ukrainian asylum applications lodged in the EU between 
January and February 202510. 

The Temporary Protection Directive continues to provide a sound legal framework for ensuring 
the same, harmonised standards of protection for millions of displaced people from Ukraine. 
The  current  precarious  and  uncertain  situation  in  Ukraine  shows  that  safe  and  durable 
conditions do not currently exist in large parts of Ukraine for those wishing to go back. UNHCR 
assesses that most persons enjoying temporary protection are unlikely to return voluntarily in 
the short term, primarily due to the ongoing safety and security concerns, whilst also indicating 
concerns  about  the  stability  of  any  potential  ceasefire.  As  such,  it  is  important  that  the  EU 
stands by its commitment to provide assistance to those displaced for as long as needed, based 
on our values of solidarity, humanity, and respect for human rights. Therefore, the Commission 
is  presenting  a  proposal  for  a  Council  Implementing  Decision  to  further  prolong 
temporary protection for an additional year, until 4 March 2027. 

As the EU will continue to offer temporary protection and the ensuing rights, displaced people 
from  Ukraine  should  be  reassured  that  applying  for  international  protection  is  neither 
necessary, nor required. Providing persons enjoying temporary protection with clarity and legal 
certainty, as well as encouraging people to transition towards other legal statuses that better 
reflect their actual situation, will also avoid an additional strain on national asylum systems.  

In  the  three  years  since  the  activation  of  the  Directive,  the  need  to  provide  for  temporary 
protection, coupled with the possibility for temporary protection to be enjoyed in the Member 
State of choice, has impacted the reception systems of Member States in an uneven way. The 
impact  in  some cases  has been further compounded by  the additional pressure of  having  to 
simultaneously cope with large numbers of asylum applications, as well as practical issues such 
as  housing.  Going  forward,  it  is  important  to  continue  working  towards  ensuring  a  greater 
balance of effort among Member States. 

In particular, Member States should reject requests for residence permits from individuals who 
have already received a residence permit for temporary protection in another Member State 
and are already benefitting from temporary protection rights on that basis11. This can help to 

4 Eurostat | Data. 
5 EU Member States, Iceland, Liechtenstein, Norway, Switzerland.  
6  In  March  2025,  the  Member  States  with  the  largest  number  of  persons  enjoying  temporary  protection  were 
Germany  (1 184 890),  Poland  (997 120),  the  Czech  Republic  (365 055),  Spain  (233 825),  Italy  (165 225)  and 
Romania (182 835). When considering only the EU Member States, the  number of beneficiaries of  temporary 
protection amounts to nearly 4.3 million. 
7 -21% compared to the monthly average recorded in the first three months of 2024, and  -24% compared to the 
monthly average for the whole of 2024. Eurostat | Data. 
8 IOM DTM Ukraine — Returns Report — General Population Survey Round 20 (April 2025). 
9 Eurostat | Data. 
10 +86% compared to the same period in 2024; Eurostat | Data.  
11  See in this regard Case C-753/23 paragraph 30. 

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avoid multiple registrations for temporary protection and ensure that the rights attached to such 
protection are enjoyed in only one Member State at a time. 

3.   OFFERING A LASTING PERSPECTIVE AND SUPPORT TO UKRAINIANS IN 

THEIR CHOICES  

More than anything, Ukraine needs its people, to restore the threads of society and rebuild its 
economy and infrastructure. At the same time, many displaced Ukrainians are building new 
lives within the EU. Ukraine is actively working to create favourable conditions for the safe 
return  of  its  citizens  and  residents,  with  EU  support,  both  through  incentives  and  through 
outreach to Ukrainians living abroad. Meanwhile, access to employment and education granted 
by Member States brings benefits not only to those who are eligible and choose to stay in the 
EU but also to those planning to return home. To offer a more stable and lasting perspective, 
the Commission is committed to supporting displaced people from Ukraine in making informed 
decisions about their future.  

3.1 Supporting Member States with the inclusion of displaced Ukrainians within the EU  

Employment and education are at the heart of the rights that displaced people from Ukraine are 
enjoying in the EU, in addition to accommodation, healthcare and social assistance. The efforts 
to  provide  access  to  the  labour  market  and  to  grant  access  to  education  under  the  same 
conditions as EU nationals will bring benefits in the future both for those who are eligible and 
choose to stay in the EU, and for those who will go back home.  

Access  to  employment  has  made  a  major  contribution  to  helping  displaced  persons  from 
Ukraine  find  their  place  in  their  host  societies,  making  a  positive  contribution  to  local 
communities.  Work  to  prevent  skills  being  lost  has  been  combined  with  help  for  displaced 
people who obtained European qualifications to find befitting employment  in  Ukraine.  EU-
level  initiatives  and  funding  are  supporting  Member  States’  efforts  for  the  integration  of 
displaced persons from Ukraine in the EU labour market12. Public employment services play a 
key role in active labour market policies to make the best use of the jobseekers’ skills, ensure 
matchmaking on the labour market and the exchange of good practices and information. The 
comparison  established  in  2023  between  the  European  Qualifications  Framework  and  the 
Ukrainian national qualifications framework contributes to a smoother integration in the EU 
labour  market.  The  Commission  also  launched  a  web-based  EU  Talent  Pool  Pilot13  to  help 
match  displaced  Ukrainian  jobseekers  with  job  vacancies  published  by  EU  employers. 
Euraxess,  the  EU  platform  for  employment  in  research  and  innovation,  offers  specific  job 
opportunities  for  Ukrainian  researchers  under  its  ERA4Ukraine  initiative,  including  in 
European Research Council teams. 
In March 2025, 1.3 million displaced minors14 from Ukraine were benefitting from temporary 
protection, including 840 000 children at compulsory schooling age15. 700 000 are estimated 
to  be enrolled in  local  schools from  early childhood education  and care to upper secondary 
education  across  the  EU16.  With  support  from  the  European  Education  Area  strategic 
framework,  the  EU  supports  Member  States  through  policy  guidance,  peer  learning,  online 
platforms,  funding  –  notably  Erasmus+  –  and  data  collection,  as  well  as  exchange  of  good 
practices. Maintaining links with the Ukrainian language and culture will help reintegration 

12 See Communication 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. 
13 EU Talent Pool Pilot. 
14 Eurostat | Data.  
15 The estimate on the number of children at compulsory schooling age is based on the Education and Training 
Monitor 2023: Education and training monitor 2023 - Publications Office of the EU. 
16 The inclusion of displaced children from Ukraine in EU education systems. 

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into Ukraine’s education system. In particular, access to cultural life also supports emotional 
well-being,  with  support  from  Creative  Europe  aimed  at  facilitating  the  social  and  cultural 
integration  of  displaced  persons.  The  2023  Arrangement  for  Cooperation  on  Education 
between the Commission and the Ministry of Education and Science of Ukraine specifically 
encourages  enrolment  in  host  country  schools  and  the  mutual  recognition  of  academic 
qualifications.  The  Ukrainian  government  has  already  put  measures  in  place  to  ensure  easy 
recognition of education when returning to Ukraine.  

The EU has been supporting Member States hosting displaced people from Ukraine through 
EU  funding,  in  particular  under  the  relevant  Home  Affairs  Funds  and  cohesion  policy 
funding17. These funding possibilities provide the flexibility to reflect specific national contexts 
and financial needs, including for the integration of the persons enjoying temporary protection. 
Cohesion  policy  has  provided  EUR  13.6 billion  of  additional  liquidity  for  Member  States 
accommodating people from Ukraine, and another EUR 1.4 billion has been reallocated within 
existing funding programmes to provide direct support to displaced people from Ukraine. The 
EU is making available a further EUR 3 billion until the end of 2027, to support Member States 
in implementing the Pact on Migration and Asylum and to cater for persons enjoying temporary 
protection. Around EUR 1 billion from the mid-term review of Member States’ programmes 
will in addition be made available for the same period to address relevant priorities under the 
Asylum, Migration and Integration Fund (AMIF), including the hosting of persons enjoying 
temporary protection.    

3.2 Supporting the creation of Unity Hubs 

Following the initiative of the Ukrainian Minister of National Unity to set up centres in the EU 
that could help maintain a connection with Ukrainians living abroad, some Member States have 
taken up this idea and are currently in the process of establishing Unity Hubs on their territory. 
Unity Hubs provide information, referrals and advice to displaced people from Ukraine.  As 
well as facilitating the return of those wishing to go back to  Ukraine, this can also support 
integration into host societies and in the labour market of those who wish to stay, with a better 
development and use of their skills. 

To  help  finance  Unity  Hubs,  Member  States  can  draw  on  the  Asylum,  Migration  and 
Integration Fund (AMIF) programme. International organisations, such as the UNHCR, IOM 
and ICMPD, can also support displaced persons from Ukraine to make well-informed voluntary 
decisions whether to remain in host countries or to go back to Ukraine, through the provision 
of accurate and independent information and counselling. Member States are encouraged to 
make use of the knowledge, capacities and networks offered by these organisations, as well as 
of support offered by partner countries, to make the most of the Unity Hubs.  

In order to support the setting-up of Unity Hubs, the Commission will appoint a Special Envoy 
for Ukrainians in the EU, who will be tasked with coordinating with national representatives 
in the Member States, with international organisations that can provide information services 
and return counselling – notably UNHCR, IOM and ICMPD –, as well as with the Ministry of 
National Unity in Ukraine. The Solidarity Platform – Ukraine18 will also serve as a coordination 
forum  at  expert  level.  The  Platform  brings  together  the  Commission,  Member  States,  and 
international organisations, as well as Ukrainian authorities. Through the Solidarity Platform, 
the  Commission  will  also  facilitate  information  exchange  and  the  coordination  of  support 
measures,  keeping  an  overview  of  the  assistance  provided  across  Member  States,  to  ensure 

17  Cohesion’s  Action  for  Refugees  in  Europe,  the  so-called  ‘CARE’  package  (CARE,  CARE-plus  and  Fast-
CARE). 
18  The  Solidarity  Platform  was  set  up  in  March  2022  to  ensure  the  implementation  of  the  provisions  of  the 
Temporary Protection Directive. Its added value lies in the overall coordination of the EU response to the Russian 
aggression  against  Ukraine,  by  offering  an  informal  space  for  the  quick  alignment  of  operational  and  policy 
responses by key stakeholders. 

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credibility and consistency. It will aim to streamline efforts amongst the various stakeholders 
and raise awareness of the importance of helping the local communities in Ukraine to be ready 
for returns. Focusing support on local communities will strengthen social cohesion in Ukraine. 
The Commission  will continue to  pull together technical  and policy expertise for  the Unity 
Hubs’  efficient  operationalisation,  as  well  as  encourage  corresponding  measures  from  the 
Ukrainian authorities.  

In Ukraine, the counterpart for the Unity Hubs will be the National Unity Agency as the key 
implementing body of the Ministry of National Unity of Ukraine. The Agency will support the 
establishment of Unity Hubs in the EU and facilitate broader initiatives aimed at strengthening 
national cohesion, advancing cultural and civic ties with the Ukrainian community, as well as 
supporting voluntary return and reintegration efforts. 

The  Commission  will  also  provide  dedicated  technical  support  to  the  newly  established 
Ministry of National Unity. This will increase its capacity to establish Unity Hubs, as well as  
services in Ukraine for those going back, and to coordinate with relevant offices such as the 
State  Employment  Services.  To  improve  the  overall  coordination  of  initiatives  and  ensure 
information is available to the returning population, the Ministry of National Unity will  also 
benefit  from  support  to  design  and  implement  recovery  and  reform  priorities  important  for 
those who go back, complementing the EU budget support and technical assistance that help 
Ukraine’s  recovery  and  modernise  services  needed  for  reintegration,  such  as  housing, 
education and employment. 

3.3 EU support to reintegration in Ukraine  

Ukrainians  are  the  key  driver  for  Ukraine’s  recovery  and  reconstruction.  However,  the 
possibility of going back is highly dependent upon the development of conditions of safety and 
security inside Ukraine, as well as upon access to livelihoods and housing for those returning 
from within or outside Ukraine.  

While safety is essential for people to go back home, they must also see a future in Ukraine – 
they  need  a  place  to  live,  proper  infrastructure,  including  functioning  energy  infrastructure 
ensuring  access  to  basic  and  essential  services,  access  to  quality  education  and  work 
opportunities.  These  are  central  goals  of  the  EU’s  support.  Social  cohesion  must  also  be 
carefully considered when supporting returns to Ukraine, to ensure that equal consideration is 
granted to both the needs of people who remained in Ukraine and to the returning population.  

A well-functioning Ukrainian labour market will be key to attracting – and retaining – human 
capital,  and  hence  to  the  country’s  reconstruction,  growth,  and  social  development. Good-
quality employment opportunities, with decent working conditions, will be essential to restore 
a labour force that has been highly impacted by the war, and to improve life in Ukraine. With 
EU support, as part of the EU accession process, Ukraine is modernising its legislation with 
the objective of aligning it with the EU acquis. Key steps include ongoing work to develop a 
new Labour Code, a new Employment Strategy, and the finalisation of a new law on Vocational 
Education, both with the potential to contribute to addressing the shortage of skilled workforce 
and skills mismatches. The participation of Ukraine in the Employment and Social Innovation 
(EaSI) strand of the European Social Fund Plus19 will allow Ukrainian entities to participate in 
calls for proposals for EU-financed projects. The Skills Alliance for Ukraine, co-led by Ukraine 
and Germany20, also supports training opportunities for people from Ukraine.  

19 The agreement for Ukraine to join the Employment and Social Innovation (EaSI) strand is under negotiation. 
20 The Commission participates as observer in the working groups of the Skills Alliance. Over 70 organisations 
around the world are part of it. 

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In terms of funding, EU support to Ukraine since the beginning of Russia’s war of aggression 
amounts so far to a total of almost EUR 148 billion. The Ukraine Plan21, an integral part of 
the Ukraine Facility22, outlines critical reforms and investments to foster the right conditions 
for displaced people to go back home. It provides a predictable stream of financial inflows to 
Ukraine, while driving key reforms over the period spanning from 2024 to 2027. The reforms 
and  investments  include  a  focus  on  helping  people  to  go  back  to  Ukraine  and  to  support 
reintegration in their home country and labour market. The Ukraine Plan commits Ukraine to 
invest in education (EUR 650 million by 2027), healthcare (EUR 400 million by 2027) and 
social infrastructure (EUR 350 million by 2027). At least 20% of the non-repayable support 
under the Ukraine Plan - approximately EUR 1 billion - is allocated to the needs of subnational 
authorities, in particular local self-government.  
The Ukraine Investment Framework23 plays a crucial role in preserving human capital and 
creating  conditions  for  return.  Education,  housing,  healthcare,  care  economy  and  social 
protection  are  priority  sectors.  Ongoing  projects  support  the  restoration  of  municipal 
infrastructure and help finance businesses affected by the war. New investment programmes 
accepted  in  March  2025  will  support  housing  needs,  and  future  calls  will  include  access  to 
finance and jobs for vulnerable groups, including returnees.  

As part of the G7 Extraordinary Revenue Acceleration loans initiative (EUR 45 billion), the 
EU is providing EUR 18.1 billion in macro-financial assistance (MFA) to Ukraine as direct 
budgetary support for the country’s urgent  financial needs. The EU and  G7 loans are to  be 
repaid with proceeds from immobilised Russian Central Bank assets held in the EU. 

Ongoing  technical  assistance  projects  in  Ukraine  can  prioritise  support  to  reintegration  of 
people  returning  home.  The  EU  is  providing  support  through  initiatives  such  as 
Skills4Recovery24, which supports tailored vocational education and training programmes, and 
EU4Business25,  which  includes  advice  or  capacity  building  to  SMEs  wishing  to  go  back26. 
These projects, as well as future projects, can support the Ministry of National Unity, enabling 
people going back to Ukraine to establish businesses, receive tailored employment services and 
participate in Vocational Education and Training programmes. 

The EU support contributed to the resilience of the country and helped people to continue 
living their lives in Ukraine. The Union Civil Protection Mechanism had supported the power 
needs of 6.5 million people, and the Ukraine Facility has contributed to the repair of destroyed 
equipment. The EU’s humanitarian aid has supported the Ukrainian population in the sectors 
of  shelter,  water,  sanitation  and  hygiene,  protection,  basic  needs,  health,  mine  action  and 
education in emergencies, including the rehabilitation of schools. The EU and Member States 

21  The  Ukraine  Plan  is  Ukraine’s  reform  and  investment  strategy  for  2024-2027,  paving  the  way  for  regular, 
quarterly  payments  under  the  Ukraine  Facility  subject  to  Ukraine  meeting  pre-agreed  requirements.  Among 
others,  it  includes  reforms  focused  on  human  capital,  such  as  demographic  strategy,  employment  strategy, 
improvements in education, healthcare etc. 
22 The Ukraine Facility is a pivotal instrument within the EU's strategy to address the multifaceted challenges 
confronting Ukraine in the wake of Russia's war of aggression. This dedicated support mechanism, which entered 
into force on 1 March 2024 and covers the years 2024 to 2027, offers up to EUR 50 billion in financial support.  
23 The Ukraine Investment Framework (UIF) is part of the EUR 50 billion Ukraine Facility, designed to attract 
public  and  private  investments  for  the  recovery  and  reconstruction  of  Ukraine.  It  is  endowed  with  financial 
instruments totalling EUR 9.3 billion, with EUR 7.8 billion in loan guarantees and EUR  1.5 billion in blended 
finance. Its aim is to mobilise EUR 40 billion of investments for recovery, reconstruction, and modernisation. 
24 The Joint Action Skills4Recovery is financed by the EU, Germany, Poland, and Estonia. It is implemented by 
Deutsche  Gesellschaft  für  Internationale  Zusammenarbeit  (GIZ)  and  the  Solidarity  Fund  PL  (SFPL). 
Skills4Recovery was initiated by the German Government in 2023. 
25 EU4Business is an umbrella initiative that encompasses all EU support to small and medium-sized businesses 
(SMEs) in the Eastern Partnership countries, by improving access to finance and business development services. 
26  Support  is  spread  locally:  U-LEAD  with  Europe,  with  24  regional  offices,  provides  capacity  development 
measures covering the entire scope of municipal responsibilities during the war of aggression and the recovery. 

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have donated more than 370 school buses to help children go to school. Erasmus+ has helped 
print over 1.5 million textbooks since the start of the war, and is supporting capacity building 
projects in the education, training, youth and sport sectors, to strengthen the provision of high-
quality opportunities in the country. The Ukrainian government has already put measures in 
place to ensure easy recognition of education when returning to Ukraine27. Safeguarding and 
restoring Ukrainian culture and heritage will also facilitate the socio-cultural reintegration of 
people going back.  

Remittances from displaced Ukrainian people living in the EU are a source of income that can 
support the Ukrainian economy and contribute to the reconstruction of the country. In 2024, 
remittance inflows from the EU amounted to 3.26% of Ukraine’s GDP, or approximately EUR 
5.6 billion, according to data from the National Bank of Ukraine (NBU). The Commission has 
engaged with the payment industry to promote practices that make remittances more affordable 
and  accessible,  with  guidance  to  facilitate  payments  between  the  EU  and  all  government-
controlled territories of Ukraine. The Commission  continues to  support Ukraine’s efforts  to 
prepare its application to join the geographical scope of the Single Euro Payments Area (SEPA) 
schemes, which would further facilitate cross-border transfers. 

Measures  for  Ukraine’s  closer  integration  into  the  EU  single  market  set  out  in  the  Priority 
Action Plan for the Deep and Comprehensive Free Trade Area (DCFTA), together with the 
reforms under the Ukraine Plan, will provide the basis for sustainable economic growth and 
employment  opportunities,  through  measures  such  as  improvement  of  the  business 
environment. Based on a ‘single market highway’ logic, connections with Ukraine will also be 
fostered  with  the  aim  of  reducing  barriers  to  trade,  increasing  connectivity  and  boosting 
regional economic integration.  

4.  PAVING THE WAY FOR A SMOOTH AND COORDINATED TRANSITION OUT 

OF TEMPORARY PROTECTION  

Temporary protection was intended to provide immediate relief to people fleeing Russia’s war 
of aggression against Ukraine. The activation of the Temporary Protection Directive remains a 
testament to the Union’s unity and to the solidarity with the people of Ukraine.  

Nevertheless, temporary protection is by nature temporary. At some future point in time, when 
the circumstances allow for sufficient certainty about the situation in Ukraine, and in particular 
the  conclusion  that  safe  and  durable  conditions  for  return  exist,  the  temporary  protection 
framework will no longer be necessary. Member States should be ready for this change when 
that time comes. 

Since 2022, the EU has combined the legal framework of temporary protection with dedicated 
action to support Member States care for displaced people coming from Ukraine and to help 
their  inclusion  in  EU  societies.  Considering  the  prolonged  displacement  and  the  scale  and 
complexity  of  the  current  situation,  it  is  time  to  start  developing  a  more  tailored  approach, 
better adapted to the situation of the people currently benefitting from temporary protection, 
and with the additional aim of easing the pressure that host societies have been facing.  

The Commission is therefore presenting a proposal for a Council Recommendation setting 
out  the  core  components  of  a  coordinated  forward-looking  response  at  EU  level,  to  allow 
Member States to put in place transitional measures. 

27  Legislation  from  March  2025  mandates  the  recognition  of  learning  outcomes  acquired  abroad,  including 
informal education such as online courses and seminars. The Ukrainian authorities have also issued guidance to 
Ukrainian  schools  on  assessing  learning  outcomes  achieved  abroad,  ensuring  that  pupils  who  attended  local 
schools in the EU can continue their education upon returning to Ukraine. 

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4.1 Transitioning from temporary protection towards other legal residence statuses 

Transitioning out of temporary protection would provide legal certainty and durable prospects 
to  its  beneficiaries.  Defining  a  clearer  longer-term  perspective  will  also  avoid  additional 
pressure on already overstretched national asylum systems.  

Over time, persons enjoying temporary protection have become part of the social and economic 
fabric of Member States. As such, the Commission is recommending Member States to allow 
persons  enjoying  temporary  protection  to  transition  towards  national  legal  residence 
statuses,  especially  those  related  to  employment,  education  or  family  reasons.  This  would 
allow persons enjoying temporary protection the possibility to enjoy a more stable status in 
their host Member States that better reflects their actual situation.  

Based on  existing  EU legislation,  persons enjoying  temporary protection  are not  eligible to 
apply for residence statuses defined under the EU legal migration Directives. To support 
persons enjoying temporary protection in making informed choices and giving them alternative 
opportunities,  the  Commission  is  encouraging  Member  States,  particularly  where  access  to 
national legal statuses is not possible, to enable persons enjoying temporary protection and who 
would otherwise qualify for another status based on EU law to transition to other statuses by 
applying for authorisations under the Blue Card Directive, the Single Permit Directive and the 
Students  and  Researchers  Directive28.  By  doing  so,  Member  States  would  support  the 
sustainable  integration  of  persons  enjoying  temporary  protection  in  their  host  countries, 
including the labour market, and promote a more efficient use of their skills.  

4.2 Preparing for a gradual return and sustainable reintegration in Ukraine 

The EU and its Member States must be ready to support people who will go back to Ukraine 
now and in the future. The Commission is recommending Member States take the necessary 
steps to ensure a gradual and orderly return and reintegration, when the time is right and taking 
into  account  the  needs  and  capacities  of  Ukraine.  Member  States,  as  well  as  Ukraine,  are 
encouraged to make full use of the tools already available at EU level. 

Those  considering  going  back  home  to  Ukraine  should  have  the  chance  to  make  informed 
decisions. To ensure everyone has equal opportunities, Member States are encouraged to offer 
a flexible yet structured approach to taking exploratory visits to Ukraine. These trips could 
help  people  check  on  their  families,  homes,  or  the  situation  in  their  communities,  before 
deciding to return. 

To support those who wish to go back home, the Commission also recommends that Member 
States’ voluntary return programmes29 allowed under the Temporary Protection Directive 
be carefully crafted. These would be practical ways to help people go back home safely and 
with  dignity.  These  programmes  should  be  well  planned  and  clearly  communicated.  They 
should consider the situation in Ukraine, the needs of those returning, and the impact on local 
communities. These programmes should aim to support social cohesion and avoid placing a 
strain  on  communities  already  affected  by  Russia’s  war  of  aggression.  To  reduce  the 
administrative burden of handling each case individually, the Commission is recommending 
that Member States continue to grant people in voluntary return programmes the extension of 

28 Directive (EU) 2021/1883 on the conditions of entry and residence of third-country nationals for the purpose of 
highly  qualified  employment;  Directive  2011/98/EU  on  a  single  application  procedure  for  a  single  permit  for 
third-country nationals to reside and work in the territory of a Member State and on a common set of rights for 
third-country workers legally residing in a Member State; Directive (EU) 2016/801 on the conditions of entry and 
residence  of  third-country  nationals  for  the  purposes  of  research,  studies,  training,  voluntary  service,  pupil 
exchange schemes or educational projects and au pair (recast). 
29 These are not to be considered programmes under the Return Directive, as the persons concerned legally reside 
in the host Member State until the end of temporary protection and as no return decision is required. 

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the rights they had as persons enjoying temporary protection until they go back to Ukraine, or 
until the end of the period provided for under the programme for voluntary departure. 

Our efforts to support the safe return and reintegration of displaced people from Ukraine must 
ensure  that  everyone  is  treated  with  dignity  and  fairness.  The  individual  situation  of  some 
persons enjoying temporary protection and living in the EU may mean that they do not qualify 
for transition to other statuses nor for return to Ukraine, by reason of their vulnerability coupled 
with the fact that Ukraine may not have the capacity to cater for their needs immediately after 
the  end  of  temporary  protection  –  such  as  those  undergoing  a  medical  treatment  plan.  The 
Commission  is  therefore  recommending  that  Member  States  explore  options  for  these 
vulnerable persons to continue residing legally in the EU for a transitional period until their 
return is feasible.  

In a similar vein, the education of children should not be disrupted. It is important to ensure 
that  minor  children  attending  schools  are  allowed  to  complete  their  education  in  a  stable 
environment,  together  with  their  families.  Member  States  can  make  use  of  the  Temporary 
Protection Directive rules that would allow families whose minor children are attending school 
to remain in the EU for the necessary period of time, especially if the temporary protection 
ends before the school year does.  

4.3 Strengthening information provision, coordination, monitoring and data exchange 

Clear, accurate and up-to-date information will be essential. Member States are encouraged to 
set up adequate communication tools and channels, including information campaigns, while 
making good use of the existing tools to avoid duplication, and using the Unity Hubs, where 
established, as well as involving international organisations. 

While Eurostat prepares  the official European statistics on temporary protection, ensuring a 
timely situational picture for operational purposes requires Member States to regularly update 
their  temporary  protection  data  in  the  Temporary  Protection  Platform,  including  figures 
regarding  inactive  registrations.  As  the  transition  out  of  temporary  protection  will  lead  to 
significant changes in the status of displaced persons, it is essential to have an accurate picture 
of  the  evolving  situation,  and  coordination  and  exchange  of  information  between  Member 
States and the Ukrainian authorities is recommended, including in the Solidarity Platform.   

5.  CONCLUSION 

The EU’s unwavering support to Ukraine will continue as long as necessary. The EU will offer 
shelter to the displaced people from Ukraine as long as they need it.  

We  are  committed  to  reuniting  Ukraine  with  its  people,  once  the  appropriate  conditions  of 
security and stability are in place. By adopting a gradual, flexible and coordinated approach to 
moving forward from temporary protection, we can make sure that all persons are treated with 
dignity and respect, Ukraine’s needs and capacities are duly considered, and our systems are 
not subject to disproportionate pressure.  

The Commission will continue to work closely with Member States, the Ukrainian government 
and with international organisations, to ensure that the needs of people displaced from Ukraine 
to the EU are met, and that they are equipped with all the resources and tools to rebuild their 
lives and their future.  

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