The European Commission is preparing proposals to impose tighter visa restrictions on Russian citizens entering the Schengen area, with new measures expected to be presented in January 2027 following pressure from several member states concerned about Russia’s expanding hybrid operations across Europe.

Poland, Sweden and Estonia are among the countries demanding a tougher approach to Russian visitors, particularly former military personnel who fought in Ukraine. The proposals could affect hundreds of thousands of Russian nationals who continue to receive visas for travel to the European Union despite restrictions introduced following Moscow’s full-scale invasion of Ukraine in February 2022.

According to a report published on Sunday, EU officials are finalising plans to address vulnerabilities in the Schengen visa system, which governments increasingly regard as a potential entry point for individuals involved in intelligence operations, organised crime and acts of sabotage.

Swedish Justice Minister Gunnar Strömmer said the Commission was working towards a January announcement, although Stockholm would prefer an earlier decision. He told Politico that vulnerabilities in the existing arrangements could be exploited by hostile actors.

The initiative is expected to feature in discussions surrounding the Foreign Affairs Council meeting on 12 October, when ministers will examine Russia’s intensifying hybrid campaign against EU member states.

Schengen visas remain a security concern

Despite the deterioration in relations between Brussels and Moscow, Russian citizens continue to receive substantial numbers of Schengen visas. Approximately 478,000 tourist visas were reportedly issued to Russian nationals in 2025, including a significant proportion allowing multiple entries.

The figures have renewed questions about whether existing screening arrangements adequately reflect the security environment created by Russia’s war against Ukraine.

In September 2022, the EU suspended its visa facilitation agreement with Russia, ending preferential treatment and introducing stricter application procedures, additional documentation requirements and more restrictive conditions for multiple-entry visas.

However, the decision did not amount to a general prohibition on Russian tourism. National authorities retained considerable discretion over applications, producing differences in how individual Schengen countries handle Russian visitors.

The Commission’s existing visa guidelines also preserve access for certain categories of travellers, including journalists, political dissidents, civil society representatives and people travelling for essential family reasons.

The new initiative would therefore concern not only the number of visas issued but also the extent to which national screening decisions can affect the security of other Schengen countries. Under the Schengen system, a visa issued by one participating state generally permits its holder to travel throughout the area.

Estonia calls for restrictions on former Russian soldiers

Estonia has taken a particularly forceful position, proposing an EU-wide entry ban targeting former members of the Russian armed forces who participated in the invasion of Ukraine. Estonian Foreign Minister Margus Tsahkna estimates that approximately 650,000 former Russian combatants could fall within the category of individuals requiring closer scrutiny.

Tallinn has advocated individual entry restrictions rather than relying exclusively on broader measures covering Russian nationals generally. Tsahkna warned that former soldiers, particularly those with combat experience and connections to Russian intelligence services, could present a serious security challenge if they entered European countries.

He suggested that Moscow could exploit former combatants to penetrate organised criminal networks or facilitate violent operations against European targets. These assessments remain security warnings rather than evidence that Russian veterans as a group are involved in such activities.

A coordinated European policy would also seek to prevent individuals refused entry by one member state from exploiting differences in national visa procedures elsewhere.

Restrictions on Russian diplomats also under consideration

The visa proposals form part of a wider effort to restrict the activities of Russian nationals whose presence in Europe may present security risks. EU foreign policy chief Kaja Kallas has previously indicated that member states are considering tighter controls on the movement of Russian diplomats within Schengen, alongside restrictions on visas for former combatants and a reduction in Russian tourism.

One proposal would prevent Russian diplomatic personnel from travelling beyond the member state in which they are accredited. Such restrictions would complicate cross-border activities by diplomatic officials suspected of conducting intelligence operations under official cover.

The issue has acquired greater urgency as European governments report an expanding pattern of Russian-linked sabotage, including suspected arson attacks, cyber operations and attempts to disrupt critical infrastructure.

Migration Commissioner Magnus Brunner acknowledged that the initial decline in visa issuance to Russian nationals had levelled off. He urged member states to reduce the number of visas granted and to strengthen scrutiny of applicants.

January proposals will test EU consensus

The immediate question is whether member states can agree on common restrictions that go beyond the existing visa framework. An outright prohibition on Russian tourism would represent a significant departure from the current approach, under which national governments retain responsibility for individual visa decisions.

More narrowly targeted measures against former combatants could prove easier to justify on security grounds, although identifying eligible individuals would require reliable information and cooperation between national authorities. The Commission has yet to publish its proposals, and the precise legal instruments under consideration remain unclear.

Foreign ministers meeting on Monday will discuss Russia’s hybrid campaign and possible European responses. The Council’s published agenda places the issue in the context of Moscow’s continuing aggression against Ukraine.

Whether the Commission ultimately proposes new binding restrictions or stronger common guidelines, the central difficulty remains the same: a Schengen system built around common freedom of movement must accommodate increasingly different national assessments of the security risks associated with travel from Russia.