The Parliamentary Assembly of the Council of Europe (PACE) has unanimously approved the creation of a Platform for Dialogue with Russian democratic forces in exile, marking a significant step in Europe’s ongoing effort to engage with those opposing the Kremlin’s authoritarian regime. The new forum is intended to establish structured, two-way communication between the Assembly and representatives of the Russian opposition abroad, giving them a voice within the Council of Europe’s institutional framework.
For years, PACE has maintained informal contacts with Russian civil society, dissidents, and human rights defenders through hearings and committee meetings. With this resolution, based on a report by Estonian parliamentarian Eerik-Niiles Kross (ALDE), the Assembly moves from occasional exchanges to a permanent institutional framework for cooperation. Participants in the Platform will be able to attend certain PACE committee sessions during part-sessions and engage directly with European parliamentarians on issues of common concern.
According to the adopted text, the new Platform will include individuals “of the highest moral standing” who share the values of the Council of Europe, unconditionally recognise Ukraine’s sovereignty, independence and territorial integrity, and are committed to achieving democratic change in Russia. Candidates must have publicly opposed the Russian regime, denounced its aggression against Ukraine, and rejected any form of neo-imperial policy. The Bureau of the Assembly, on the proposal of the PACE President, will approve the list of participants, valid for one session. Those found to violate the established criteria may be suspended from participation pending review.
In a symbolic gesture, the resolution also bans the display of Russian state symbols—such as the flag or coat of arms—on Council of Europe premises. Instead, the white-blue-white flag, used by Russian democratic movements, is recognised as a legitimate symbol of resistance. One third of the seats in the Platform will be reserved for representatives of Russia’s indigenous peoples and national minorities until a separate dialogue forum is established for them.
PACE’s initiative is part of a broader strategy to sustain contact with democratic voices from Russia after its expulsion from the Council of Europe in March 2022, following the full-scale invasion of Ukraine. The Assembly emphasised that this new framework will “help strengthen the capacity of Russian democratic forces to bring about sustainable democratic change in Russia and contribute to a lasting and just peace in Ukraine.” It also seeks to ensure accountability for international crimes committed by Russian actors, including war crimes and crimes of aggression.
While the decision has been welcomed by many European lawmakers and human rights advocates, others point out potential challenges. Russian democratic forces remain divided and fragmented, lacking a single unified political structure comparable to that of Belarusian opposition movements. The resolution explicitly encourages exiled Russian groups to join forces in advocating for democracy, exposing the crimes of the Russian regime, and countering disinformation. Some Ukrainian representatives have also expressed concern that the Platform could be targeted by infiltration attempts from Kremlin-linked actors if vetting is not rigorous.
Despite these uncertainties, the move represents one of the Council of Europe’s most ambitious post-2022 efforts to give institutional support and visibility to Russian opposition figures, independent journalists, and civil society representatives living abroad. The Assembly’s Bureau will now finalise the operational details of the Platform—its composition, procedures, and participation rights—together with the PACE Secretary General and the General Rapporteur on Russian democratic forces.
The creation of the Platform underscores the Council of Europe’s long-term vision: to keep the doors of democracy open for those Russians who stand for freedom, human rights, and the rule of law. Whether this initiative will evolve into an influential political tool or remain largely symbolic will depend on how it balances inclusivity, transparency, and effectiveness in the months ahead.
