Since the onset of Russia’s invasion of Ukraine in February 2022, the European Union (EU) has faced the unprecedented challenge of integrating millions of displaced Ukrainians. The activation of the Temporary Protection Directive (TPD) marked a significant step, granting immediate rights and access to services across Member States. However, the complexity of this humanitarian crisis necessitated a collaborative approach, involving governments, civil society, and international organizations. This investigation delves into the multi-stakeholder strategies employed to facilitate the inclusion of displaced Ukrainians, examining their efficacy and the challenges encountered.
Methodology
This report synthesizes information from policy briefs, official EU documents, and reports from various organizations, including the European Policy Centre, the European Commission, and national agencies. It also incorporates data from recent surveys and studies conducted across multiple EU Member States.
Key Findings
- Activation of the Temporary Protection Directive (TPD)The EU’s swift activation of the TPD provided displaced Ukrainians with immediate access to residence permits, employment, healthcare, education, and social welfare services. This directive facilitated a coordinated response, preventing the overwhelming of national asylum systems.
- Employment IntegrationPublic Employment Services (PES) across Member States have played a pivotal role in integrating displaced Ukrainians into the labor market. By November 2023, over 325,000 Ukrainians were registered with PES, with a significant number securing employment in sectors facing labor shortages, such as services, construction, and industry.
- Housing and AccommodationMember States adopted diverse housing strategies, combining public reception facilities with private accommodation offers. Initiatives included repurposing public buildings, collaborating with private entities, and providing rent allowances. However, challenges persist in ensuring sustainable and adequate housing solutions.
- Healthcare AccessDisplaced Ukrainians received access to public healthcare systems, including mental health services. Specialized programs were established to address trauma and psychological needs, with some countries offering services in Ukrainian.
- Education and Language AcquisitionEfforts to integrate Ukrainian children into education systems included providing access to schools, language courses, and educational materials in Ukrainian. Programs also supported Ukrainian educators in continuing their professions within host countries.
- Role of Civil Society and Local AuthoritiesCivil society organizations and local authorities have been instrumental in facilitating integration, offering services ranging from legal assistance to cultural orientation. Their involvement has been crucial in addressing the nuanced needs of displaced populations.
While the European Union’s Temporary Protection Directive marked a historic step in swiftly granting displaced Ukrainians legal status, the real test lies not in how they arrived, but in how – and if – they stay.
According to the European Policy Centre (EPC), “the first wave of solidarity has begun to fade,” revealing systemic cracks in how member states approach the long-term inclusion of Ukrainian refugees. Behind the policy headlines and refugee registration statistics are mounting personal and institutional challenges that threaten to undermine what was initially seen as a model humanitarian response.
Bureaucratic Labyrinths and Paper Walls
Despite legal access to employment, education, and healthcare, many Ukrainians encounter opaque bureaucracies that make daily life difficult. In interviews conducted across Poland, Germany, and Romania, displaced Ukrainians describe waiting months for tax IDs, health insurance numbers, or school registration approvals.
“I had the right to work, yes, but no one told me how,” says Larysa, a former schoolteacher from Kharkiv now living in Bucharest. “I didn’t understand the system. I went from office to office for weeks.”
The EPC warns that such procedural delays “create a two-tier system, where rights exist on paper but not in practice.”
Fragmented Governance, Uneven Support
One major issue lies in the fragmented governance between national and local authorities. Cities like Berlin and Warsaw, overwhelmed by refugee flows, received limited direct funding or guidance from central governments. As the EPC notes, “the success of integration largely depends on municipalities that were never adequately resourced or consulted.”
This has resulted in a postcode lottery of access: while some cities offer comprehensive language programs, child care, and mental health services, others provide only bare essentials.
Private Sector: Untapped but Promising
Though often left out of formal coordination mechanisms, the private sector has emerged as an unexpected ally in refugee integration. Companies like IKEA, Amazon, and local SMEs have launched training and hiring initiatives targeting displaced Ukrainians.
Yet the EPC points out that “a lack of structured dialogue between governments and businesses limits the potential scale of these efforts.” Without national incentives or policy frameworks, corporate involvement remains ad hoc.
Civic Engagement and Refugee Agency
Crucially, many Ukrainians are not just passive recipients of aid – they are actively shaping their own futures. Refugee-led networks have begun organizing community events, support groups, and advocacy campaigns. In Prague, Ukrainian women launched a legal clinic for fellow refugees. In Vilnius, displaced journalists created an online platform reporting on both local and Ukrainian affairs.
As the EPC notes, “Refugees must not be seen solely as beneficiaries. Their expertise, resilience, and networks are assets for both host societies and Ukraine’s future reconstruction.”
Challenges and Recommendations
- Sustainability of Support: As the conflict persists, there is a pressing need for long-term strategies to support displaced Ukrainians, moving beyond temporary measures.
- Coordination Among Stakeholders: Enhanced coordination between EU institutions, Member States, and civil society is essential to streamline services and avoid duplication of efforts.
- Addressing Vulnerabilities: Special attention is required for vulnerable groups, including unaccompanied minors, the elderly, and those with disabilities, ensuring their specific needs are met.
- Monitoring and Evaluation: Implementing robust monitoring systems will help assess the effectiveness of integration measures and inform future policy decisions.
The EU’s multi-stakeholder approach to integrating displaced Ukrainians has yielded significant progress, demonstrating the potential of collaborative efforts in addressing complex humanitarian crises. However, sustained commitment, strategic planning, and adaptive policies are imperative to ensure the long-term inclusion and well-being of displaced populations.