By Ekaterina Janashia | 2025-11-14

The European Union (EU) announced new visa restrictions for Russian nationals on November 7, stating it will deny them multi-entry visas as security concerns and fears of "hybrid warfare" grow nearly four years into the war on Ukraine.

Brussels says the change reflects a shift from convenience to caution. With Russian drones, hackers and disinformation campaigns increasingly testing Europe's defenses, officials argue that even travel cannot be treated as routine.

The new policy and justification

Under the tightened regulations, Russian travelers will now be required to apply for a new Schengen visa for every trip to the EU, replacing the prior allowance for multi-entry visas. Brussels stated that this change will permit "close and frequent scrutiny of applicants to mitigate any potential security risk."

The decision comes amid heightened fears of Russian "hybrid warfare," triggered by incidents including air space incursions and unexplained drone sightings in numerous countries.

Kaja Kallas, EU high representative for foreign affairs and security policy and former prime minister of Estonia, publicly defended the measure.

"Starting a war and expecting to move freely in Europe is hard to justify," she wrote on X November 7, noting the curbs were being implemented amid continued security concerns.

"The EU is tightening visa rules for Russian nationals amid continued drone disruptions and sabotage on European soil," she wrote.

Henna Virkkunen, executive vice-president for tech sovereignty, security and democracy, speaking on behalf of the European Commission, highlighted the ongoing threat.

"Russia's illegal and unprovoked war of aggression against Ukraine continues to pose a serious threat to European security, with heightened risks related to sabotage, disinformation and drone incursions in the Union."

The visa controversy

The new rules allow for exceptions in justified cases, specifically naming independent journalists and human rights defenders.

Additionally, the bloc had already tightened controls on travel for Russian diplomats stationed in the 27 EU countries last month.

This policy reflects a persistent internal conflict within the EU, specifically division between member states pushing for a near-total ban on Russian travelers (primarily Baltic and Eastern European nations) and those, like France and Italy, who prioritize maintaining certain channels for ordinary citizens.

Supporters of tougher measures argue that ordinary Russian citizens should feel the impact of the war and should not be granted the privilege of free tourism.

However, Russian opposition figures argue it unfairly targets ordinary citizens and political dissidents who had fled the regime. Prominent Russian opposition leader Yulia Navalnaya has strongly cautioned against broad restrictions.

In September, Navalnaya called sweeping bans a "serious mistake," arguing they would feed the Kremlin's narrative that Europe is hostile to all Russians and would ultimately be "counterproductive" to achieving peace by isolating Russian society.

She urged the EU to focus sanctions instead on the elite close to President Vladimir Putin.

Impact on tour operators and travel volume

The restrictions represent an escalation of travel limitations imposed since Russia's 2022 full-scale invasion of Ukraine. In 2022, the EU suspended its visa facilitation agreement with Russia and advised member states to "deprioritize" applications from Russians.

This led to a sharp decrease in visas issued to Russians, dropping from over four million before the war to approximately 500,000 in 2023.

"Russian travel to the European Union has dramatically decreased since the imposition of sanctions and flight restrictions following the 2022 invasion of Ukraine," Evgenia, tour operator of Saint Petersburg, told Kontur on condition of anonymity.

Due to the fundamental shift in visa application requirements, many tour operators can no longer efficiently service clients interested in Schengen travel, she said.

"Previously, tour operators could streamline multi-entry visa applications; however, current regulations often require applicants to submit documents in person, mandating personal presence at consulates," Evgenia said.

"Given this necessity for in-person submission, coupled with the exorbitant cost of travel -- often requiring indirect flights with complex logistics -- many agencies have deemed the effort and expense unjustified."

Scale of decline and market shift

According to Evgenia, the volume of trips by Russian citizens to Europe has seen a catastrophic drop, with industry estimates pointing to a decline of 80% to over 90% since the restrictions began.

"Initially, only Russians with long-term, pre-existing valid visas were traveling," she said. "Now, the market is primarily limited to those with essential ties, such as family members or property ownership abroad, who have legally compelling reasons to secure new visas."

Consequently, the focus of Russian outbound tourism has undergone a massive reorientation.

"Travelers have shifted to open destinations outside the EU, with the Asian market actively developing," Evgenia said. "Europe still remains an option, but the high costs and logistical complexity make it a luxury accessible only to a small segment of the population."