Displaced Ukrainians: EU regions and cities call for a safe future

Local and regional leaders urge Europe to give millions of Ukrainians clarity, dignity and a genuine choice between building a future in the EU and returning home safely.

As Russia intensifies its attacks on civilian and energy infrastructure ahead of winter, the likelihood of a large number of Ukrainians fleeing their country increases again. Against this background and with view to have legal certainty and sustainable prospects for people displaced from Ukraine, cities and regions play a central role and need predictable funding and sufficient administrative capacity to shape the transition beyond temporary protection, the European Committee of the Regions (CoR) said in its opinion, ‘From Temporary Protection to Sustainable Solutions for Displaced Ukrainians in the EU - the role of cities and regions’, adopted at the 173rd plenary session on 13 October 2026.

As of July 2026, 4.4 million non-EU citizens who had fled Ukraine were benefiting from temporary protection in the EU, according to Eurostat. UNHCR reports that 49% of Ukrainian refugees expressed hopes or intentions to return in the future, with improved security, access to housing and the availability of essential services among the key conditions influencing return. More than four years after Russia’s full-scale invasion, these figures underline the need to move from an emergency response towards clear, coordinated and sustainable arrangements, the CoR’s opinion underscores. With temporary protection due to end on 4 March 2028, the EU and its Member States must use the remaining period to prepare sustainable solutions for displaced people from Ukraine and host communities, the CoR argues.

The opinion drafted by Antje Grotheer(DE/PES), President of the Bremen State Parliament and Chair of the CoR Working Group on Ukraine, calls for a gradual and coordinated transition that reflects individual circumstances, safeguards acquired rights and avoids gaps in protection. It identifies three priorities: supporting the sustainable inclusion of displaced Ukrainians in European communities; investing in their education, skills and professional development for the benefit of both host societies and Ukraine’s recovery; and enabling voluntary, informed, safe and sustainable return and reintegration when conditions allow.

Cities and regions have been central to Europe’s response since the start of Russia’s war, helping people find safety and providing housing, education, healthcare, employment support and social services. The CoR stresses that their experience must shape EU and national decisions on future residence pathways, inclusion measures and support for voluntary return and reintegration.

Local and regional authorities should therefore be directly involved in designing and implementing the transition. They also need predictable EU and national funding, together with sufficient administrative capacity, to maintain essential public services, respond to housing pressures and safeguard social cohesion in host communities.

The Committee calls for persistent barriers to employment, education, healthcare, adequate housing and the recognition of qualifications to be removed, enabling displaced people to live independently, contribute their skills and participate fully in their communities. Particular attention should be given to children and young people, women, older people, persons with disabilities and others in vulnerable situations.

Local and regional representatives insist that any future return to Ukraine to be voluntary, informed, safe and sustainable, reflecting each person’s family situation, health, education and community ties. EU and Ukrainian cities and regions should cooperate to support dignified reintegration, restore housing and local public services, and ensure continuity in education, healthcare and social protection.

Quotes:

• Antje Grotheer(DE/PES), President of the Bremen State Parliament, Chair of the CoR Working Group on Ukraine and CoR rapporteur: "Temporary protection was the right emergency response, but it cannot be the long-term answer. People forced to flee Ukraine because of Russia’s war need certainty about their future. Europe must prepare a clear transition, and cities and regions implementing it on the ground must have a real say in shaping it."
• Ylva Johansson, Special Envoy for Ukrainians in the European Union, European Commission: "It's time now to realise that we should not only treat Ukrainians as vulnerable refugees; we should treat them as our partners. Their future is part of Ukraine's future, and that future is in the European Union. I see the 4.4 million Ukrainians in the EU as a human bridge between Ukraine and EU. Some of them would like to return to Ukraine, others will not return, but as I said, everybody is very eager to support the reconstruction of Ukraine and would like to be part of our common European future. It's important that we do everything to support that and prepare for that."
• Vitaly Klitschko, Mayor of Kyiv and President of the Association of Ukrainian Cities (online): "Last winter was a critical winter for us. We survived. We are doing everything we can to prepare for the next winter. Please never underestimate the dangers of what Russia is doing right now in Ukraine. Also, very important, when the war will be stopped, the main goal to us is to bring our refugees. We can do that - first point - if peace comes. Second point, our refugees will need jobs in Ukraine and life quality on European level. Please stay with us. It's very important not to be alone."
• Tetiana Yehorova-Lutsenko, President of the Ukrainian Association of District and Regional Councils (UAROR) and Chair of Kharkiv Regional Council: "The millions of Ukrainians currently living outside the borders of our country are a huge human potential that Ukraine cannot afford to lose. Ukrainians in European communities need to keep connection with Ukraine and have the possibility of a voluntary return to Ukraine. I want to emphasize on several fundamental issues. First, security is the main condition for the return of our citizens. The draft resolution rightly states that the return should be voluntary, safe, dignified and consider the situation in specific regions of Ukraine. Second, the renewal of Ukrainian communities must become part of European policy."
• Tetiana Hasanenko, Head of the Oleshky City Military Administration, Kherson Region: "Every day, Ukrainians face the threat of shelling, loss of housing and forced displacement. Under these circumstances, the continuation of temporary protection is vital for many Ukrainians, especially for women and children who need stability and confidence in tomorrow. At the same time, we cannot forget about Ukrainians who remain in the temporarily occupied territories and have no possibility of escape. So I appeal to you: help Ukraine and Ukrainians. People's right to security should not depend on which side of the front line they are on."

Background:

• The Temporary Protection Directive was activated in March 2022 following Russia’s full-scale invasion of Ukraine. It granted displaced Ukrainians immediate access to residence, employment, education, healthcare and social assistance across the European Union. On 30 July 2026, the Council extended temporary protection until 4 March 2028. The European Commission’s communication on a common European way forward for Ukrainians in the EU and the Council recommendation on a coordinated transition beyond temporary protection provide the framework for preparing sustainable arrangements after the current protection period.

Contact:

Wioletta Wojewodzka

Tel. +32 (0)2 282 2289
Mobile: +32 (0)473 843 986

wioletta.wojewodzka@cor.europa.eu