European Parliament and PACE adopt resolutions against Russia's cross-border repression

The European Parliament passed a resolution on 17 June 2026 against cross-border repression by states, naming Russia as the primary source of the problem. On 25 June, the Parliamentary Assembly of the Council of Europe (PACE) adopted a similar resolution. The documents propose issuing so-called grey passports to the persecuted and ensuring their access to bank accounts.

The European Parliament passed a resolution on 17 June 2026 addressing states' so-called cross-border repression, deliberate actions or threats against citizens of a state abroad. On 25 June, the Parliamentary Assembly of the Council of Europe (PACE) adopted a similar resolution. According to both documents, Russia is one of the world's leading practitioners of cross-border repression.

What is cross-border repression?

According to the European Parliament resolution, cross-border repression means deliberate actions or threats that states use against their emigrated citizens on the territory of other states. Hanna Neumann, a German Green party MEP who presented the resolution, emphasised that more than a quarter of the world's countries practise cross-border repression, which endangers more than 3.5 million people. The resolution identifies Russia, Iran, China and Belarus as the main aggressor states.

The document highlights specific methods Russia uses against its political opponents abroad: murders, surveillance, digital repression, intimidation, abductions, cyber-attacks, intelligence operations, blackmail, discreditation campaigns, pressure on relatives and trials in absentia.

Russian politician Dmitri Gudkov, who contributed to drafting the resolution, noted that this is the first time such a high-level recognition has been given to the principle that family members of the persecuted are themselves victims of cross-border repression.

What do the resolutions aim to change?

The European Parliament resolution proposes the creation of a pan-European monitoring system and the establishment of a cross-border repression co-ordinator position at the Council of Europe. Additionally, the document recommends that EU member states should not treat Interpol notices as an automatic basis for arrest, and proposes the creation of a mechanism for challenging red notices. The resolution also emphasises the need to train police and courts to identify politically motivated requests.

The resolution calls on EU member states to ensure that people threatened by cross-border repression have access to at least one bank account, and to establish mechanisms for rapid financial assistance in case of sudden asset freezes. The document also proposes that the European Commission develop solutions to allow victims to obtain temporary documents without having to contact their home country's embassy.

Grey passports, a possible solution for Russians without documents

The PACE resolution was aided by a platform of Russian democratic forces. During negotiations, Gudkov proposed extending the issuance of so-called grey passports, travel documents for foreign nationals, not only to refugees but also to victims of cross-border repression and those seeking protection. This amendment was rejected, however, and the final text of the resolution replaced the call to mechanisms to "strengthen and simplify" with a softer recommendation to "consider" adopting such a measure.

The Russian War Crimes Committee, which also participated in amending the PACE resolution, noted that thousands of Russians abroad have been denied consular services. "Without a new passport, these people lose their residence permits, cannot cross borders, use bank accounts or receive medical care. They fall into the situation of effectively stateless persons. The most frightening part, however, is the threat of deportation," the committee said.

Russian opposition politician Mikhail Khodorkovsky, who is also a key figure for the Russian war crimes platform at PACE, said that the problem of documents and bank accounts has now moved forward. "Yes, this is only the first step. Ahead lies work with government authorities who must implement these decisions. Yes, it is slow, procedural and tedious. But it is happening. The ice has moved. We did it," he said.

Resolutions are non-binding

Both resolutions lack binding force; they are rather a political signal than law. Most points are phrased as appeals and recommendations, leaving member states considerable freedom to decide how and when to implement the recommendations.

Gudkov acknowledges that quick results should not be expected, but considers it important that the concept of cross-border repression is now officially defined at EU and Council of Europe level. "When you say 'cross-border repression', ninety per cent think it means murders organised by secret services. Now this has been explained, and the fact that we are not being given passports is also cross-border repression," he said.

The adoption of the resolutions takes place as the EU tightens migration rules. In autumn 2025, Germany ended and in spring 2026, France ended the issuance of humanitarian visas to Russians. On 12 June, the new European migration and asylum pact came into force.