Commission signs Convention to establish the International Claims Commission for Ukraine on behalf of the EU
Today, the Commission, represented by Vice-President Kaja Kallas and Commissioner for Democracy, Justice, the Rule of Law and Consumer Protection, Michael McGrath, signed the Convention establishing the International Claims Commission for Ukraine on behalf of the EU. The signature is a major milestone in Europe's collective efforts to ensure accountability and justice for Ukraine and the Ukrainian people, ensuring that the victims of Russia's brutal war of aggression are properly compensated. The signature took place in the context of a Diplomatic Conference hosted by the Council of Europe and the Netherlands, and was attended by the President of Ukraine, Volodymyr Zelenskyy.
President von der Leyen said: “Today's agreement sends a crystal clear message: Russia's war of aggression will not go unanswered. This is a concrete instrument of justice to ensure the aggressor will be held accountable. Because accountability is not optional, it is inevitable. The victims of Russia's brutality have the right to compensation. And we will pursue this, in yet another example of Europe's steadfast support for Ukraine.”
Operating within the Council of Europe's framework, the Claims Commission will be responsible for reviewing, assessing, and deciding on claims for the compensation of damage, loss or injury caused by Russia in Ukraine. It will also be responsible for determining the amount of compensation due in each case. The Claims Commission builds on the important work carried out by the Register of Damage established in May 2023 to record eligible claims. As a final step, the Commission is discussing with its international partners legal pathways to establish a compensation fund which would ensure that Russia directly compensates Ukraine for the damage caused.
The Claims Commission will strongly support the principles of justice, accountability, and victims' rights; and ensure that these are upheld in line with the international legal framework. Following the signing of the Convention, the EU and its Member States will proceed with ratification.
Background
Since the start of Russia's full-scale invasion of Ukraine, the international community has been committed to ensuring that Ukraine and its citizens can seek reparations under international law. An essential tool that has supported this objective is the Register of Damage, established in 2023. The Register serves as a record of all eligible claims seeking compensation for the damage inflicted by Russia.
In March 2025, the discussions about setting up a Claims Commission began in order to build on the work of the Register. In September, these negotiations resulted in agreement on the Draft Convention establishing an International Claims Commission for Ukraine within the framework of the Council of Europe. On 12 November, the Commission put forward a proposal requesting authorisation from the Council to sign the Convention, which was adopted by the Council on 15 December.
Work is ongoing in parallel on establishing a Special Tribunal to hold Russian political and military leaders accountable, given that they bear the greatest responsibility for the crime of aggression against Ukraine. An Agreement was signed in June between Ukraine and the Council of Europe to establish this Special Tribunal. Since the Enlarged Partial Agreement of the Special Tribunal was finalised, the EU has been preparing a proposal for the signature of this instrument.
The EU is also supporting Ukrainian authorities, such as the Prosecutor General's Office of Ukraine, to strengthen capacities to investigate and prosecute international crimes committed in Ukraine, including through the EU Advisory Mission. Additionally, the EU has provided further funding to the International Criminal Court for its work in Ukraine and elsewhere to support its investigation capacities, to scale up its data storage and processing infrastructure, and to build up additional analytical capacities.
For more information
Register of Damage for Ukraine
Quotes
“Russia will not escape the bill for the homes, schools or hospitals it has destroyed in Ukraine. Reparations are fundamental for accountability. Ukrainians have already registered more than 70,000 cases for compensation. The new Claims Commission will determine what is owed for damages. To uphold justice for Ukraine, we must keep working for it, including for the necessary funding”.
Kaja Kallas, High Representative for Foreign Affairs and Security Policy/Vice-President of the European Commission
“There should be full accountability for Russian crimes in Ukraine – this is non-negotiable. Today’s signing of the Convention brings us one step closer to justice for the Ukrainian people. Through the Claims Commission, victims and the Ukrainian state will be compensated, and Russian aggressors will be held to account. This is a major milestone on our path to ensuring a just and lasting pace in Ukraine”.
Michael McGrath, Commissioner for Democracy, Justice, the Rule of Law and Consumer Protection