The European Union is exploring several measures to reduce the number of Russian citizens entering its member states, including what officials have described as a “nuclear option”: a blanket ban on all non-essential travel to the Schengen Area.
The discussions have intensified amid warnings from Brussels and several member states that individuals operating under Russian diplomatic cover or travelling on tourist visas have played a role in various forms of hybrid attacks across the EU.
German authorities recently identified a Belarusian-Russian national as the main suspect in an August drone incident at Leipzig Airport that caused significant disruption. The suspect reportedly entered the EU on a Schengen tourist visa issued by Italy.
A document prepared by the EU presidency and reviewed by Radio Free Europe/Radio Liberty (RFE/RL) outlines several options for restricting Russian visas. It states that “the only long-term and effective solution appears to be the possibility of adopting visa-restrictive measures that would prohibit non-essential travel for a nationality of applicants.”
Such a measure would require changes to the EU Visa Code, with the rules applying uniformly across the bloc. The document says the amendment could be approved by a qualified majority, requiring the support of 55% of member states representing 65% of the EU’s population.
A major revision of the Visa Code could be considered later this year, although some member states, particularly in southern Europe, remain reluctant to close all channels of contact with Russian citizens.
Following Russia’s full-scale invasion of Ukraine in 2022, the EU suspended its visa facilitation agreement with Russia, which had provided cheaper visas, easier access to multiple-entry visas and simplified application procedures.
Brussels has also issued guidance encouraging member states to prioritise so-called essential travel, including humanitarian cases, applications from civil society representatives, political dissidents and independent journalists, as well as family reunification. However, the guidance is not binding, leaving national authorities considerable discretion.
Different Approaches Across the EU
The result has been a patchwork of policies. Several EU countries bordering Russia have imposed strict entry restrictions, while southern member states, which attract Russian tourists during the summer season, have continued issuing larger numbers of Schengen tourist visas.
In 2025, EU countries issued 477,878 tourist visas to Russian citizens, the highest number since the invasion began. Most were issued by Greece, Italy, France and Spain.
While discussions over a blanket ban continue, the EU is pursuing three parallel approaches to reducing the number of Russian visitors: restrictions targeting former Russian combatants who served in Ukraine, tighter controls on Russian diplomats’ movements and the expanded use of limited territorial validity (LTV) visas.
LTV visas permit holders to stay only in the country that issued the visa, preventing them from travelling to other Schengen states under that document.
The EU presidency document describes LTV visas as a temporary measure pending the possible introduction of a comprehensive ban on non-essential travel. Germany has supported the approach, arguing that countries continuing to issue visas for non-essential travel should bear full responsibility for their decisions while other member states adopt stricter policies.
However, the document also warns that the measure could undermine the principle of mutual trust on which the Schengen Area is based and effectively renationalise short-stay visa policy.
Questions Over the Effectiveness of Restrictions
The absence of routine internal border controls within much of the Schengen Area also limits the effectiveness of LTV visas. According to the document, such a visa issued to a Russian national with malicious intentions may not provide sufficient security guarantees against further movement within the area.
The EU is also expected to make progress on screening Russian applicants who previously served in the military. European consulates in Russia could be asked to check military service records as part of routine visa processing.
Diplomats familiar with the discussions have identified practical obstacles, including the fact that many consular employees are Russian citizens and that Moscow has threatened legal action against them if they request such documentation.
A separate diplomatic note reviewed by RFE/RL examines proposals to restrict the movement of Russian diplomats and consular staff within the EU.
Under current practice, Russian diplomatic personnel generally need to notify authorities when travelling to another member state. Several governments are now pushing for a requirement that diplomats obtain prior approval from the country they intend to visit.
Another proposal gaining support in Brussels would limit how long Russian diplomats and officials can remain in host countries. European counterintelligence services want to disrupt established espionage networks in which diplomats stationed in the same country for extended periods can play a significant role.
The proposals remain under discussion, and EU member states have yet to reach agreement on a comprehensive ban on non-essential travel for Russian citizens.
