Russia: new threats to European democracies

Doc. 16272: compendium of written amendments | Doc. 16272 | 01/10/2025 | Final version

Compendium index

Amendment 4 Amendment 1 Amendment 2 Amendment 3 Amendment 5 Amendment 6 Amendment 7 Amendment 8

Caption: AdoptedRejectedWithdrawnNo electronic votes

ADraft Resolution

1The Parliamentary Assembly is deeply concerned by the growing, multi-faceted threat posed by Russia to Europe’s security and stability. New military and hybrid threats build upon a long history of repeated and extensive violations of international law by Russia, including human rights violations against its own citizens and attempts to assert its de facto control and undue influence in neighbouring countries. It is imperative that Council of Europe member States fully grasp the magnitude of the threat posed by Russia and do everything in their power to strengthen their deterrence, preparedness and resilience capabilities against it, in order to safeguard Europe’s democratic security and peaceful future.

2Russia has responded to diplomatic efforts to end its full-scale war of aggression against Ukraine by escalating its attacks. In recent weeks, the intensification of Russia’s missile and drone attacks on civilian infrastructures in Ukraine, including in Kyiv, have taken a devastating toll on civilian lives, destroying schools and residential buildings and damaging diplomatic facilities. The Assembly strongly condemns this further escalation of the illegal, unjustified and unprovoked full-scale war of aggression against Ukraine and reiterates its urgent call for just and lasting peace in Ukraine to ensure Europe’s long-term security and Ukraine’s European future.

• Amendment 4
• Amendment 1

01 October 2025

Tabled by Ms Mariia MEZENTSEVA-FEDORENKO, Ms Olena KHOMENKO, Ms Larysa BILOZIR, Ms Yuliia OVCHYNNYKOVA, Ms Iryna KONSTANKEVYCH

In the draft resolution, paragraph 2, third sentence, after the words "unprovoked full-scale war of aggression against Ukraine," insert the following words:

"including the forcible transfer and deportation of Ukrainian children and civilians from temporarily occupied territories, acts recognised as grave violations of international law"

01 October 2025

Tabled by Ms Olena KHOMENKO, Ms Carmen LEYTE, Mr Markus WIECHEL, Mr Jan Filip LIBICKI, Ms Mariia MEZENTSEVA-FEDORENKO, Mr Arminas LYDEKA

In the draft resolution, after paragraph 2, insert the following paragraph:

"The Assembly deplores and firmly opposes the military-style education system imposed by the Russian Federation on children from the temporarily occupied territories of Ukraine, viewing it as an integral part of the Russian Federation’s broader strategy to prepare for a renewed wave of aggressive warfare. The Assembly denounces this policy as constituting a real and objective threat to the peace and security of mankind, and underlines that only by ensuring accountability for the militarisation of a young generation can the international community provide an adequate response."

3Likewise, the Assembly is deeply alarmed by the increasing number of incursions by unidentified drones and Russian military aircraft into the airspace of Council of Europe member States. In September 2025, Estonia, Poland and Romania recorded unacceptable and intentional violations of their airspace that led Estonia and Poland to call for consultations under Article 4 of the North Atlantic Treaty. Drone activity near critical infrastructure and military sites in Danish and German airspace has also disrupted civilian aviation, including temporary airport closures in Denmark. These deliberate provocations are part of a wider strategy to test Europe’s commitment to supporting Ukraine, Europe’s internal cohesion and the strength of Euro-transatlantic relations. They recklessly increase the risk of an enlargement of military operations in Europe.

• Amendment 2

01 October 2025

Tabled by Ms Olena KHOMENKO, Ms Carmen LEYTE, Mr Markus WIECHEL, Mr Jan Filip LIBICKI, Ms Mariia MEZENTSEVA-FEDORENKO, Mr Arminas LYDEKA

In the draft resolution, at the end of paragraph 3, insert the following sentence:

"If left unanswered, such airspace violations risk normalising deliberate Russian provocations and undermining collective security across Europe."

4Furthermore, in recent months, Russia has intensified its hybrid warfare – combining hard and soft power – through sophisticated cyberattacks, intelligence operations and co-ordinated disinformation campaigns. Heightened military activities and growing hybrid threats have significantly challenged the security and stability of the Baltic Sea region. Russia has particularly increased its hybrid assault on European electoral processes. It has deployed an unprecedented, sophisticated combination of covert interference, information warfare and destabilisation tactics, through large-scale use of social media, vote buying and cyberattacks. These methods were on full display in the presidential elections in Romania, and in the Republic of Moldova’s 2025 parliamentary elections, where unprecedented foreign interference and co-ordinated online manipulation networks targeted institutions and voters to derail the country’s pro-European course and seek wider destabilisation. On the election day itself, attempted destabilisation persisted with bomb threats against polling stations in the Republic of Moldova and abroad. The Moldovan people and institutions demonstrated exceptional resilience and solidarity in defending the electoral process against such massive foreign interference, allowing the people’s pro-European choice to prevail. Persistent risks caused by disinformation and foreign interference have also been highlighted in the context of the observation of the 2025 presidential election in Poland.

5Referring to its Resolution 2593 (2025) “Foreign interference: a threat to democratic security in Europe”, the Assembly firmly condemns Russia’s interference in democratic processes across Europe and its attempts to destabilise European democracies, increase domestic polarisation and undermine trust in public institutions.

6The Assembly also condemns the deployment by Russia of information warfare through state-sponsored media outlets and Russian cultural centres, used to destabilise political systems, distort public opinion, and undermine democratic processes across Council of Europe member States. It recalls that Russian oligarchs and affiliated actors residing in Europe have been implicated in exerting financial and political pressure, underscoring the necessity for co-ordinated, transparent, and robust responses at national and international levels.

7In its current warfare, Russia has rewritten the concept of weaponry. The Assembly has already acknowledged the weaponisation of migration by Russia, and its attempts to destabilise democratic societies by exploiting or amplifying alleged minority grievances and misusing the status of the Russian language. These attacks have also undermined economic resilience and exacerbated societal divisions throughout the continent.

8Furthermore, Russia has intensified its diplomatic activity worldwide, strengthening ties with non-democratic countries that tangibly support its aggression against Ukraine by providing weapons, or troops or by making their territory available for hosting Russian weapons and launching attacks – such as Belarus, Iran and North Korea; relying on economic partners – in Europe and outside – to circumvent the sanctions system; and developing an alliance with a global player such as China to promote a new world order.

9The Assembly reiterates that the strategy of Russia, aimed at destabilising European democracies using force, fear and foreign influence, should be strongly opposed and defeated. Russia must stop its unprovoked aggressions and provocations and be held accountable for its repeated crimes and violations of international law. In light of accelerating attacks and threats, the Assembly, at this critical juncture, stresses that enduring peace in Europe will only be achieved through democratic security and resilience.

10In the light of these considerations, with regard to the need for a just and lasting peace in Ukraine, the Assembly:

10.1referring to its previous resolutions, in particular Resolution 2588 (2025) “European commitment to a just and lasting peace in Ukraine”, calls for unwavering European commitment and greater unity, beyond Europe, in support of Ukraine and a just and lasting peace, which is indispensable for Ukraine’s European future and the security of the entire European continent;

10.2insists that any peace negotiations must involve Ukraine and respect its right to determine its own future, including its sovereign right to continue its integration into the European Union, as well as membership of other international organisations; such negotiations must also include the necessary security guarantees;

• Amendment 3

01 October 2025

Tabled by Ms Olena KHOMENKO, Ms Carmen LEYTE, Mr Markus WIECHEL, Mr Jan Filip LIBICKI, Ms Mariia MEZENTSEVA-FEDORENKO, Mr Arminas LYDEKA, Ms Béatrice FRESKO-ROLFO

Votes: 128 in favor 0 against 3 abstentions

In the draft resolution, paragraph 10.2, after the words "membership of other international organisations", insert the following words:

", including NATO, as Ukraine also has the sovereign right to choose its own security arrangements."

10.3considers that a just, lasting and effective peace can only be achieved by anchoring it in the international human rights framework as stressed by the Council of Europe Commissioner for Human Rights;

10.4reiterates that enhanced support to Ukraine is also crucial in order to strengthen its capacity to effectively uphold human rights, the rule of law and democracy, which remains key to its democratic security and recovery and its accession process to the European Union;

10.5calls on Council of Europe member and observer States, as well as relevant European institutions and international partners, to increase support for the Council of Europe Action Plan for Ukraine “Resilience, Recovery and Reconstruction” 2023-2026.

11With regard to the need to ensure accountability, the Assembly:

11.1referring to Resolution 2605 (2025) “Legal and human rights aspects of the Russian Federation’s aggression against Ukraine”, welcomes the judgment of the European Court of Human Rights of 9 July 2025 in the case of Ukraine and the Netherlands v. Russia, which held the Russian Federation responsible for widespread and flagrant abuses of human rights in Ukraine – including the downing of Malaysian Airlines flight MH17, torture, rape as a weapon of war, summary executions, and unlawful and arbitrary detentions;

11.2welcomes the landmark signing of the agreement between the Council of Europe and Ukraine on the establishment of the Special Tribunal for the Crime of Aggression against Ukraine on 25 June 2025, as well as the finalisation of a draft convention establishing an international claims commission for Ukraine;

11.3stresses the need to expedite the establishment of a comprehensive accountability system, bearing in mind that reparations should remain a core component of any peace settlement;

11.4asks Council of Europe member and observer States and like-minded countries, to:

11.4.1work without delay towards the establishment of the Enlarged Partial Agreement on the Management Committee of the Special Tribunal for the Crime of Aggression against Ukraine and to join the enlarged partial agreement as soon as possible, in accordance with their national procedures;

11.4.2conclude co-operation agreements with the future Special Tribunal;

11.4.3work towards the adoption and opening for signature of the convention establishing an International Claims Commission for Ukraine, taking into account the Assembly’s Opinion No. […];

11.4.4intensify efforts to establish the third component of the international compensation mechanism, an international compensation fund, which could be funded by repurposing and transferring frozen Russian State assets;

11.5recalls the need to ensure accountability for deliberate and systematic attempts to erase Ukrainian cultural identity and all war crimes;

• Amendment 5

01 October 2025

Tabled by Ms Mariia MEZENTSEVA-FEDORENKO, Ms Olena KHOMENKO, Ms Larysa BILOZIR, Ms Yuliia OVCHYNNYKOVA, Ms Iryna KONSTANKEVYCH

In the draft resolution, before paragraph 11.5, insert the following paragraph:

"calls for the swift operational launch of the international claims commission for Ukraine, to ensure that victims of Russian aggression, including deported children and survivors of torture, can file claims effectively"

11.6calls on national parliaments to strengthen parliamentary diplomacy to mobilise broader support for Ukraine, in particular for accountability mechanisms and its accession process to the European Union.

12With regard to the need for increased pressure on Russia, the Assembly calls on Council of Europe member and observer States, as well as relevant European institutions and international partners to:

12.1reinforce the current sanctions regime against Russia, its allies and their political and military leaderships, notably by:

12.1.1renewing efforts to reduce sanctions circumvention, including through secondary sanctions against third countries and other economic actors facilitating it;

• Amendment 6

01 October 2025

Tabled by Ms Mariia MEZENTSEVA-FEDORENKO, Ms Olena KHOMENKO, Ms Larysa BILOZIR, Ms Yuliia OVCHYNNYKOVA, Ms Iryna KONSTANKEVYCH

In the draft resolution, at the end of paragraph 12.1.1, insert the following words:

", and greater transparency to prevent the use of complex ownership structures to bypass restrictions"

12.1.2enlarging the list of targeted individuals and entities, including all senior financial officers, all Russian banks and all shadow fleet vessels;

12.1.3enlarging the sectoral scope of sanctions, by targeting the supply chain of larger groups of dual-use materials, machineries and technologies;

12.1.4lowering further oil price caps and tightening energy-related sanctions;

12.1.5strengthening the co-ordination among national authorities in terms of compliance enforcement of sanctions;

12.2pursue further diplomatic isolation of Russia through co-ordinated efforts to exclude Moscow from key forums and rally global partners in defence of international law; these efforts should include sport diplomacy, which is widely used by Russia to project its influence;

12.3strengthen accountability mechanisms for all Russian violations of international law and their respective rules.

13With regard to increased hybrid warfare, the Assembly calls on Council of Europe member and observer States, as well as relevant European institutions and international partners, to:

13.1develop non-military responses to violations of airspace and related threats – alongside adequate military responses when needed – through a comprehensive strategy and cross-cutting action, combining deterrence, preparedness, protection and reactivity measures, for both infrastructures and populations, in order to enhance the resilience of democratic societies. Such a comprehensive resilience strategy should ensure co-ordination among public authorities across sectors, including legislators, law enforcement, education and health services, as relevant. It should also seek to preserve national unity as Russia aims at polarising and dividing European countries and their societies;

13.2implement robust countermeasures against foreign interference, particularly in the context of electoral integrity, including updating national legal frameworks to criminalise covert foreign involvement in political funding, electoral campaigns, and information operations, and enhance transparency and oversight of media and financial flows;

13.3offer solid counternarratives to Russian propaganda seeking to undermine European core values, notably by supporting free media such as Radio Free Europe / Radio Liberty;

• Amendment 7

01 October 2025

Tabled by Ms Mariia MEZENTSEVA-FEDORENKO, Ms Olena KHOMENKO, Ms Yuliia OVCHYNNYKOVA, Ms Larysa BILOZIR, Ms Iryna KONSTANKEVYCH, Ms Agnieszka POMASKA

In the draft resolution, at the end of paragraph 13.3, insert the following words:

"and other independent media platforms countering disinformation in occupied and neighbouring regions"

13.4operate closely with and provide support to States targeted by Russian threats to help them to resist covert Russian attempts to undermine elections and national sovereignty;

13.5as the current security situation requires a unified response from like-minded countries, reinforce international co-operation and co-ordinated measures to defend European democracies and develop an ever stronger and agile multilateralism that can react quickly to Russian threats and ensure accountability;

13.6improve the efficiency and resilience of the European security architecture.

14While defence issues are excluded from its remit, the Council of Europe should contribute to enhancing the comprehensive and long-term security of its member States within the scope of its mandate, making them more resilient to countering threats and preventing conflicts. In this context, the Assembly:

14.1welcomes the New Democratic Pact for Europe, launched by the Secretary General of the Council of Europe, which should help reinforce democratic security in Council of Europe member States;

14.2considers that the Council of Europe should strengthen its work on democratic security, in order to take into account the rapidly evolving nature of the threats and challenges faced by Europe, including from Russia. Projects on fighting disinformation should be further developed, possibly with the support of the Council of Europe Development Bank. The Council of Europe should also play a proactive role in the discussions on the European political and security architecture, within the scope of its mandate;

14.3invites Council of Europe member States to adopt a strategic, long-term approach to shaping the Council of Europe’s support for Ukraine, bringing together the closely related aspects of democratic security, resilience and reconstruction;

• Amendment 8

01 October 2025

Tabled by Ms Mariia MEZENTSEVA-FEDORENKO, Ms Olena KHOMENKO, Ms Larysa BILOZIR, Ms Yuliia OVCHYNNYKOVA, Ms Iryna KONSTANKEVYCH, Ms Agnieszka POMASKA, Mr Oleksii GONCHARENKO

In the draft resolution, after paragraph 14.3, insert the following paragraph:

"calls on Council of Europe member and observer States to continue strengthening Ukraine’s defence capabilities, including but not limited to increasing investment in Ukraine's security and defence sectors as one of the core elements of a resilient and stable Europe, able to defend democracy and human rights."

14.4stresses the need to develop interparliamentary dialogue and co-operation with relevant security forums, including the Parliamentary Assembly of the North Atlantic Treaty Organization (NATO).