European regions and cities are calling on the EU to give millions of displaced Ukrainians legal certainty and a genuine choice between building a future in Europe and returning home safely. Their appeal comes as Russian attacks on Ukraine’s critical energy infrastructure intensify ahead of what is expected to be another harsh winter for the war-torn nation.
Temporary protection for displaced Ukrainians was set to end in March 2028. Eurostat data from July shows that almost 4,5 million non-EU citizens who fled Ukraine were benefiting from the mechanism, which was established shortly after Russia’s full-scale invasion in 2022.
“Temporary protection was the right emergency response, but it cannot be the long-term answer,” said Antje Grotheer, Chair of the European Committee of the Regions’ (CoR) Working Group on Ukraine. “People forced to flee Ukraine because of Russia’s war need certainty about their future,” the President of the Bremen State Parliament added.
An opinion drafted by Grotheer and adopted by CoR members on Tuesday calls for timely, accessible information on legal options beyond temporary protection so that people can make informed decisions.
It notes that decisions on legal status are taken mainly at EU and national level, while their practical consequences are managed in cities and regions. Local authorities need predictable funding and administrative capacity to keep public services running and respond to housing pressures, the CoR said.
Grotheer demanded that cities and regions are given a voice in shaping the transition after the EU’s temporary protection runs out.
Preparing for winter
The opinion sets out three parallel priorities: supporting the inclusion of displaced Ukrainians in European communities, investing in their education and skills for the benefit of host societies and Ukraine’s recovery, and enabling voluntary, informed and safe return when conditions allow.
“It’s time now to realise that we should not only treat Ukrainians as vulnerable refugees; we should treat them as our partners,” said Ylva Johansson, EU Special Envoy for Ukrainians in the EU. “Their future is part of Ukraine’s future, and that future is in the European Union,” she added.
“The millions of Ukrainians currently living outside the borders of our country are a huge human potential that Ukraine cannot afford to lose,” said Tetiana Yehorova-Lutsenko, President of the Ukrainian Association of District and Regional Councils (UAROR) and Chair of Kharkiv Regional Council.
The UN Refugee Agency (UNHCR) reported that 49 percent of Ukrainian refugees – down from 61 percent in 2024 – have expressed hopes or intentions to return one day, with security, housing and essential services among the key conditions.
Protecting Ukraine’s energy infrastructure has been a central part of the EU’s support since 2022. In a letter to CoR members, President Kata Tüttő and Grotheer warn that the attacks risk depriving communities of basic living conditions. The letter recalls that the European Commission President Ursula von der Leyen had described the attacks as “a strategy of terror”.
“Cities and regions must act before the arrival of the cold further aggravates the already difficult humanitarian situation,” the letter warned. It said regions and cities can deliver support in the form of energy equipment, used municipal vehicles, medical supplies or IT equipment.
This story was produced by the European Newsroom (enr) in cooperation with the European Committee of the Regions (CoR). The editorial responsibility lies with the enr.
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