The Temporary Protection Directive: EMN Sweden presents national report

EMN Sweden has produced a national report on the implementation of the Temporary Protection Directive, up to November 2024. The report provides a comprehensive overview of challenges and good practices, as well as the current situation in Sweden. One of the most significant changes for beneficiaries of temporary protection is the Swedish government’s decision to make it easier for this group to obtain a personal identity number. Previously, they had largely the same rights as asylum seekers in Sweden. With a personal identity number, they are entitled to population registration, education, healthcare, social assistance and welfare, with certain exceptions.

Background

The national report constitutes Sweden’s contribution to the 2023 EMN study “Application of the Temporary Protection Directive: Challenges and Good Practices in 2023”. The report covers the period up to November 2024 and provides an overview of the application of the Temporary Protection Directive in Sweden, focusing on challenges, good practices and policies that can effectively support these displaced persons.

In December 2024, there were about 4.3 million non-EU nationals from Ukraine in the EU benefitting from temporary protection, of whom 46,410 were in Sweden. In 2022, about 50,000 people sought protection in Sweden, most of whom were granted temporary protection. The number fell to about 40,000, with about 9,000 leaving the country during the first year. The exact number of people who have left is unclear.

Registration and extension process

The process for registering and extending the validity of documentation for temporary protection was conducted via e-services. Under Sweden’s implementation of the Temporary Protection Directive, applications for international protection are permitted at the same time as applying for, or after having been granted, temporary protection. However, applications for international protection were not examined until December 2023. Once the Directive applies, other types of residence permits cannot normally be granted.

Some insights from the national report

One significant change since the Temporary Protection Directive came into force is that beneficiaries of temporary protection can now be issued with a personal identity number in Sweden. In July 2024, the government allowed registration in the population register after two years in Sweden, a period which was reduced to one year as of 1 November 2024. A personal identity number entitles the holder to education, labour market support, financial assistance, healthcare and social security benefits. Exceptions apply to child and housing benefits, as well as to care for the elderly.

The International Organization for Migration (IOM) has conducted several studies with concrete figures on the situation of beneficiaries of temporary protection, including regarding their situation in Sweden.

• Housing – The Swedish Migration Agency is responsible for financial support, while the local authorities manage housing and allocate social services, such as childcare and education. In 2024, 44% lived in their own homes and 56% in accommodation arranged by the Swedish Migration Agency or local authorities.
• Labour market – By the spring of 2024, almost two-thirds (58%) of all respondents were in employment, while 30% were jobseekers. Almost half of those in employment stated that their skills were not being fully utilised. About 76% cite a lack of language skills as the greatest obstacle, followed by difficulties validating their education and experience.
• Healthcare – Until they were granted population registration, beneficiaries of temporary protection were entitled to “urgent medical care” as well as free health checks and reduced-price medicines. Children and young people received the same health and dental care as their peers in Sweden, including free prescription medicines. About 52% experienced difficulties in accessing healthcare, mainly due to language barriers (18%), costs (16%) or uncertainty about the type of care to which they were entitled. (10%). With a personal identity number, the same patient fees now apply as for other residents.
• Education – In the spring of 2023, the Swedish government allocated SEK 100 million to enable local authorities to offer “Swedish for Immigrants” (SFI) courses. Only 39 of 290 local authorities offered access to SFI courses for beneficiaries of temporary protection.
• Compulsory schooling – Children who are beneficiaries of temporary protection had the right to attend school, but attendance was voluntary. Parents were allowed to decide how their children would participate in education. In spring 2023, 73% of school- or pre-school-aged children were enrolled in Swedish schools, and 7% were taking online courses from Ukrainian schools.
• Vulnerable groups – Due to their reliance on digital processes and a limited number of face-to-face meetings, Swedish authorities face challenges in identifying vulnerable groups, including unaccompanied children and victims of human trafficking.
• Children accompanied by guardians – In Sweden, an increased number of cases were reported where the guardian leaves the country, sometimes without notifying the relevant authorities. As a result, the child is left alone or with another adult who is not their guardian.
• Freedom of movement within the Schengen Area – Beneficiaries of temporary protection have been able to move freely within the EU without their right to a residence permit being jeopardised. However, their entitlement to financial support could be affected.
• EU funding – Sweden has utilised funding from the European Social Fund+ (ESF+). In May 2023, SEK 329 million was allocated for integration, labour market initiatives and language lessons.

What happens next?

In June 2024, the EU Council of Ministers extended the Temporary Protection Directive until 4 March 2026. The Swedish government has yet to propose a national approach to apply once the directive expires.

The issue remains topical and relevant in Sweden. From 2025, the Swedish Migration Agency may consider other grounds for residence permits for beneficiaries of temporary protection. This usually applies when someone applies to extend their residence permit on grounds other than temporary protection. Exceptions may apply.

At present, Sweden does not offer financial support to beneficiaries of temporary protection who wish to return to Ukraine. The European Commission emphasises the difference between returning and short trips to renew documents or visit relatives. On emigrating, deregistration with the authorities is required.

About the Temporary Protection Directive

The Temporary Protection Directive was adopted in 2001 in response to the conflicts in the former Yugoslavia. Following Russia’s full-scale invasion of Ukraine, the directive was activated for the first time on 4 March 2022. All EU Member Countries, except Denmark, are obliged to apply the Directive.