European Union ambassadors are set to debate a scaled-back version of a proposed ban on issuing visas to Russian soldiers and military veterans, after France and Italy raised objections to the original, more sweeping measure. The revised plan, which forms part of the EU's 21st sanctions package against Russia, now targets only short-stay visas and individuals who directly participated in combat in Ukraine since the full-scale invasion began in February 2022.
The original proposal, which aimed to bar all Russian military personnel—including those in administrative and logistical roles—from entering the EU, faced resistance from Paris and Rome. Both capitals argued that the measure should be handled under visa policy rather than sanctions, and warned it could create practical headaches for consular services processing large numbers of Russian applications.
Narrowed Scope and Wider Exemptions
To address these concerns, the Irish presidency of the Council of the EU has proposed limiting the ban to short-stay visas (Schengen visas) and focusing on individuals who are serving or have served in Russia's armed forces or in irregular forces controlled by Moscow. The revised text no longer presumes that an applicant took part in the war unless proven otherwise, shifting the burden of proof away from the applicant.
Exemptions have also been expanded. While the original version only allowed entry for dissidents or defectors from the Russian army, the latest draft permits visas for humanitarian reasons, national interest, or international obligations. However, such visas would be restricted to the issuing EU country, meaning the holder cannot travel to other member states without their consent.
France and Italy had previously questioned the practicality of a broad ban, given that Russia enforces mandatory military conscription for all male citizens aged 18 to 30, who must serve a year in the armed forces. The two countries also raised legal concerns about whether consular services could be held liable for breaches of the travel ban, potentially facing legal challenges if they mistakenly issue visas to banned individuals.
To ease these worries, the European Commission has offered to update its guidance on issuing visas to Russian applicants and revise the required supporting documents. But practical questions remain, as the ban would require case-by-case assessments, placing a significant administrative burden on consular services.
The pushback from France and Italy has drawn criticism from northern and eastern European countries, which have seen a steady increase in tourist visas issued to Russians since the start of the war, according to Eurostat data. These member states argue that the ban should be more comprehensive to limit Russian travel to the EU.
There is no official estimate of how many individuals would be affected by the visa ban, but the share relative to total Russian arrivals is not expected to be significant, given the socio-economic background of Russian footsoldiers and the high death toll at the front. The EU aims to adopt the 21st sanctions package by mid-July to avoid an automatic revision of the Russian oil price cap.
Meanwhile, the broader context of the war continues to shape EU policy. Recent Russian strikes have killed seven in Ukraine as NATO leaders convened in Ankara, underscoring the urgency of maintaining pressure on Moscow. The EU's internal debate over the visa ban reflects the delicate balance between enforcing sanctions and managing practical and legal complexities.
