Latvia has called for a European Union-wide ban on tourist visas for Russian citizens, reopening a dispute between member states over border security, freedom of movement and the treatment of Russian nationals during Moscow’s continuing war against Ukraine.

Prime Minister Andris Kulbergs is pressing Brussels and other European capitals to adopt a common approach, arguing that continued visa issuance by some Schengen countries weakens restrictions imposed by states bordering Russia.

His intervention comes amid growing concerns over suspected Russian sabotage, espionage and other hostile activities across Europe. The Latvian government regards restrictions on non-essential travel as an additional measure to reduce potential security risks.

According to details of the Latvian proposal, Kulbergs has criticised the continued issuance of tourist visas by countries including France, Italy and Spain, maintaining that the consequences extend beyond the states granting entry.

The proposal would go considerably further than the restrictions already introduced by the EU since Russia launched its full-scale invasion of Ukraine in February 2022.

A divided European visa policy

The European Union suspended its visa facilitation agreement with Russia in September 2022, ending the preferential conditions previously available to Russian applicants.

The Council’s original decision introduced more demanding documentation requirements, higher application fees and stricter scrutiny, but it did not prohibit Russian citizens from obtaining short-stay visas.

National authorities therefore retained considerable discretion when assessing applications, subject to common Schengen rules.

In November 2025, the Commission introduced additional restrictions on multiple-entry visas, requiring Russian travellers covered by the new rules to apply again for subsequent visits.

The EU has also agreed a legal basis for restrictions targeting Russian military personnel and former combatants involved in the invasion of Ukraine, although implementation requires further measures.

Latvia argues that these steps remain insufficient because ordinary tourist visas continue to be available through some European consulates.

Once admitted to the Schengen area, a visitor can generally travel between participating countries without routine internal border checks. This creates difficulties for governments seeking to enforce stricter national entry policies.

Security concerns on the eastern border

Latvia shares borders with Russia and Belarus and has repeatedly warned that Moscow’s activities present risks extending beyond conventional military threats.

European governments have investigated incidents involving suspected sabotage, cyber operations, intelligence gathering and interference with transport infrastructure.

Such concerns have intensified following drone incursions and security alerts affecting NATO’s eastern members.

These concerns were also evident in EU Today’s reporting on suspected security breaches in Europe, although the circumstances of individual incidents must be investigated rather than assumed to involve foreign intelligence services.

The distinction is relevant to the Latvian proposal. European intelligence agencies have identified Russian-linked activities, but this does not establish that ordinary Russian tourists are collectively involved in intelligence operations.

Supporters of tighter visa restrictions argue that limiting discretionary entry could reduce opportunities for hostile activity and simplify security screening.

Opponents question whether a nationality-based prohibition would be proportionate or effective, particularly when intelligence operations may involve individuals travelling under other nationalities or using established residency arrangements.

Political and legal complications

A comprehensive tourist visa ban would require agreement on its precise scope, legal basis and implementation.

European governments would need to determine how the restrictions apply to Russian citizens with family members in the EU, people travelling for humanitarian purposes and individuals seeking protection from the Russian authorities.

The EU Visa Code already permits refusals where applicants present security risks, but a general prohibition based on nationality would involve a different policy decision.

Humanitarian exceptions would be particularly important for Russian dissidents, independent journalists and other individuals facing political persecution.

France has supported restrictions on entry by Russian combatants, while other member states are considering further measures. That does not necessarily mean they support Latvia’s broader proposal covering ordinary tourists.

Kulbergs is also seeking greater European financial assistance for countries facing the economic and security consequences of their proximity to Russia and Belarus.

Sanctions and Schengen controls

The renewed visa debate coincides with disagreements between Washington and Brussels over economic restrictions on Moscow.

EU leaders have maintained that sanctions should remain in place until Russia ends its aggression against Ukraine. Visa policy, however, requires separate legal and political consideration from economic sanctions.

Latvia’s proposal has not been adopted as an EU-wide rule. The immediate question is whether enough member states are prepared to move from tighter individual screening towards a general restriction on Russian leisure travel.

Until that agreement is reached, European countries will continue to apply different policies within a shared Schengen system, leaving the security concerns raised by Riga unresolved.

Italy has extended checks on travellers from Spain for another week, but talks between Giorgia Meloni and Pedro Sánchez have opened the way for an end to reciprocal restrictions imposed after the migration crisis in Ceuta.

Italy and Spain have agreed to work towards ending their reciprocal Schengen border controls following discussions between Prime Ministers Giorgia Meloni and Pedro Sánchez at the European Council summit in Brussels. Rome nevertheless extended its restrictions for another seven days on Friday, 16 October, as the two governments consider how to bring their respective measures to an end.

The decision marks a possible turning point in a dispute that has disrupted travel between two of the European Union’s largest countries since the summer. According to the notifications recorded by the European Commission, the restrictions concern air and sea connections between Italy and Spain, which do not share a land border.

The two governments have instructed their interior ministers to consider alternative arrangements over the coming week. Although neither side has formally withdrawn its measures, the agreement to coordinate their removal suggests that both capitals are seeking a way out of an increasingly uncomfortable confrontation over migration and internal European security.

How the Ceuta crisis reached Schengen

The dispute began after an extraordinary influx of migrants from Morocco into Spain’s North African enclave of Ceuta in late July. More than 72,000 people crossed the border, prompting serious questions about the management of the EU’s external borders and the possibility of onward movements into other member states.

Italy responded by introducing checks on passengers arriving from Spain, arguing that the situation created risks for public order and internal security. Rome also raised concerns about the possible movement of individuals presenting security threats, although the extent of any such movement remained disputed.

Madrid rejected the justification and introduced reciprocal measures. What began as an emergency response to events on an external border consequently developed into a disagreement about whether one Schengen member could impose restrictions on another on the basis of anticipated migration movements.

EU Today examined the original Spanish retaliation in August, when the dispute first threatened to turn temporary border controls into an instrument of political pressure.

The wider consequences of the Ceuta incident have raised questions about the vulnerabilities exposed at the EU’s external border and the effectiveness of common European migration and crisis-response policy.

The limits of temporary border controls

Schengen is built on the principle that people can travel between participating countries without routine internal border checks. Member states nevertheless retain the right to reintroduce temporary controls in response to serious threats to public policy or internal security, subject to the requirements of EU law.

The difficulty lies in determining when those exceptional powers are justified. Italy has maintained that the Ceuta crisis warranted precautionary action. Spain has argued that controls imposed specifically on travellers from its territory were unjustified and discriminatory.

These opposing positions matter beyond the two countries. If concerns over irregular arrivals in one member state become sufficient grounds for another to introduce sustained checks, the distinction between Europe’s external borders and its internal travel area becomes increasingly difficult to maintain.

The operational results have also entered the political argument. Italian figures cited during the dispute indicate that nearly half a million passengers were checked during the first month, with 31 refused entry. Those numbers demonstrate that the measures were substantial, but do not by themselves establish whether the original security concerns were proportionate to the restrictions imposed.

Madrid, meanwhile, has maintained that migrants involved in the Ceuta influx had not moved onwards to mainland Spain in the manner suggested by Italian concerns.

Meloni and Sánchez seek a practical compromise

The latest discussions offer both governments a route towards de-escalation without formally conceding their underlying positions. Meloni can present the additional week of controls as a continuation of Italy’s security precautions, while Sánchez can point to an agreement to prepare their coordinated removal.

The two prime ministers remain politically divided on migration. Meloni has consistently argued for stronger border enforcement and deterrence, while Sánchez has defended an approach incorporating legalisation and labour-market integration for migrants already living in Spain.

Those disagreements were also visible during the Brussels summit, where European leaders returned to the question of migration management and the consequences of national decisions for the wider Union.

For Brussels, the immediate concern is whether the two governments can replace competing national restrictions with arrangements that address security concerns without unnecessarily interrupting movement between Schengen countries.

A coordinated end to the controls would not resolve the underlying problems exposed by Ceuta. It would, however, remove one of the more unusual internal consequences of that crisis and demonstrate that political negotiations can still prevent emergency border measures from becoming semi-permanent.

The decisive period is now the coming week. Whether the controls expire as planned will depend on the discussions between the Italian and Spanish interior ministries and their ability to agree practical alternatives.

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.