Estonia is pushing forward a proposal to ban Russian soldiers who fought in Ukraine from entering the Schengen Area, the visa-free travel zone that includes most European Union member states. The initiative, outlined in an internal discussion document reviewed by Radio Free Europe/Radio Liberty (RFE/RL), was briefly discussed during a meeting of EU foreign ministers in Brussels on January 29.
According to EU officials speaking anonymously, the proposal was generally welcomed by several member states, with broad agreement that experts in foreign and internal affairs should continue working on the plan. However, questions remain regarding how feasible it would be to enforce such a large-scale entry ban.
Security Concerns Highlighted
Estonian authorities estimate that approximately 1.5 million Russian citizens have participated in military operations in Ukraine since Russia launched its invasion in February 2022. Of these, around 640,000 are believed to still be active fighters, leaving nearly one million former combatants who could potentially be targeted by EU restrictions.
The internal document warns that these individuals may pose serious security risks, citing their combat experience, potential involvement in war crimes, and exposure to violence. It also highlights concerns that former fighters could contribute to organized crime, extremist movements, and hostile intelligence operations within Europe.
The document further suggests that returning fighters could serve as recruitment pools for Russian intelligence services. It notes a reported rise in violent crime inside Russia, partly linked to roughly 180,000 prisoners who were recruited from Russian jails and deployed to fight in Ukraine. Officials believe that the return of such fighters may have contributed to Russia’s highest crime rates in 15 years during the first half of 2025.
How Could Entry Be Restricted?
Since September 2022, the EU has already suspended its visa facilitation agreement with Russia, making it more difficult and expensive for Russian citizens to obtain travel visas. Additionally, nearly 2,000 Russian individuals, including oligarchs, senior officials, and military commanders, have been placed under EU sanctions involving visa bans.
However, Estonia’s proposal differs from sanctions. Instead, Tallinn advocates for direct Schengen entry bans. On January 9, Estonia imposed such bans on 261 former Russian soldiers, registering them in the Schengen Information System (SIS). These bans could block entry across most Schengen states, excluding EU members Cyprus and Ireland, as well as non-EU Schengen countries such as Iceland, Liechtenstein, Norway, and Switzerland.
While such bans can last up to five years, individual Schengen countries still retain sovereignty and may choose to grant exceptions or allow entry independently.
Challenges and Political Concerns
Estonia is seeking broader EU support for the initiative, urging member states to collectively deny visas and residence permits to Russian citizens identified as participants in the war against Ukraine. Officials describe the proposal as a critical security measure requiring urgent political backing.
Despite general support, EU diplomats acknowledge significant practical challenges, particularly the difficulty of obtaining verified individual data on such a large number of former fighters. One diplomat noted that while several hundred or even thousands of names could realistically be added to the system, tracking nearly one million individuals would be extremely difficult.
There are also concerns that such entry bans could be misused for political purposes. A recent example cited within EU discussions involved Romania banning Ion Ceban, the mayor of Moldova’s capital, Chisinau, from entering Schengen, citing national security concerns. Some EU capitals questioned whether the decision may have been politically motivated.
Outlook
While Estonia’s proposal has gained initial attention and support, significant legal, logistical, and political obstacles remain before any bloc-wide policy could be adopted. EU member states are expected to continue discussions in the coming months as the union balances security concerns with legal and diplomatic considerations.
