Temporary Protection - Italy | DIP EUAA
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Italy transposed the Temporary Protection Directive in 2003 by Law Decree No 85 of 7 April 2003 on the implementation of 2001/55CE Directive on granting temporary protection in case of mass influx of displaced persons | Decreto Legislativo 7 aprile 2003, n. 85, Attuazione della direttiva 2001/55/CE relativa alla concessione della protezione temporanea in caso di afflusso massiccio di sfollati ed alla cooperazione in ambito comunitario.
The Presidential Decree on the temporary protection provision for individuals fleeing Ukraine | Decreto del Presidente del Consiglio dei Ministri del 28 marzo 2022 recante misure di protezione temporanea per le persone provenienti dall'Ucraina was signed on 28 March 2022 and published in the Official Gazette on 15 April 2022.
Law Decree 21/2022 as converted by Law 51/2022 after the Civil Protection Order n. 881
Law No 46 of 21 April 2023 | Legge 21 aprile 2023, n. 46, confirmed the extension of temporary protection until 31 December 2023, as per a Council of Minister’s Decree in March 2023.
Head of Civil Protection Order n. 1123/2024
The Budget Law for 2024 | Legge di Bilancio di previsione dello Stato per l’anno finanziario 2024 extended temporary protection status until 31 December 2024.
The Legislative Decree 202/2024 "Decreto Legge Milleproroghe" approved by the Council of Ministers on 09 December 2024 extended temporary protection status until 04 March 2026
| Area | Competent national authority | Assistance to the competent authority (if applicable) |
|---|---|---|
| Screening at the external border (if relevant) | Border Police | Polizia di Frontiera
| UNHCR representatives and civil protection volunteers |
| Biometric data (if relevant) | Police Immigration Office | Ufficio Immigrazione Questura | n/a |
| Granting temporary protection | Police Immigration Office | Ufficio Immigrazione Questura | n/a |
| Issuing the residence permit | Police Immigration Office | Ufficio Immigrazione Questura | n/a |
| Providing accommodation | Ministry of the Interior, Department of Civil Liberties and Immigration | Ministero dell’Interno, Dipartimento per le Libertà civili e l’Immigrazione | UNHCR representatives and civil protection volunteers, third sector entities, volunteer service centres, entities and associations registered in the register referred to in Article 42 of Legislative Decree No. 286 of 25 July 1998, and civilly recognised religious entities |
| Medical care | Ministry of the Interior, Department of Civil Liberties and Immigration | Ministero dell’Interno, Dipartimento per le Libertà civili e l’Immigrazione | n/a |
| Social welfare | Ministry of the Interior, Department of Civil Liberties and Immigration | Ministero dell’Interno, Dipartimento per le Libertà civili e l’Immigrazione | n/a |
The decree law activating temporary protection for individuals fleeing Ukraine was issued on 15 April 2022. Nonetheless, pending its publication, displaced persons from Ukraine were able to apply for a residence permit for temporary protection at the immigration offices of the police, as anticipated by the ministry through a dedicated circular.
The following categories of people are eligible for a residence permit:
- Ukrainian citizens and their family members who were residing in Ukraine before 24 February 2022;
- Stateless persons and nationals of third countries other than Ukraine and their family members who were granted international or equivalent national protection in Ukraine before 24 February 2022 and who were displaced from Ukraine as of 24 February 2022;
- Stateless persons and nationals of third countries other than Ukraine who were residing in Ukraine before 24 February 2022 had a permanent resident permit issued by Ukrainian authorities and cannot safely and return to their country of origin.
Holders of a biometric passport can enter visa-free and stay in the country for a total of 90 days, after which it is necessary acquire a residence permit.
The Embassy of Ukraine in Italy has confirmed that Ukrainian citizens fleeing the war without identification documents will be identified in the consulates upon arrival and provided with an alternative identification document issued by the embassy. Moreover, the validity of passports is extended up to 5 years and the data of minors under 16 can be included in the passports of their parents fleeing the war or residing in Italy.
Those who enter Italy without a visa are obliged to file a declaration of presence within 8 days. This obligation is lifted if the passport is stamped on arrival, with Italy as the first country of arrival. If applicants arrive in Italy from another Schengen country, then it is necessary to submit the declaration of presence to the police.
Ukrainian citizens who do not have a stamp in their passport or have a stamp from another European state must submit the declaration of presence.
The border police are in charge of monitoring entries into the national territory and refer cases to the Territorial Commission. The presence of a minor should be immediately communicated to the immigration offices of the police who oversees the referral to the competent authorities. If there are doubts about the age of the minor and the minor has no documentation, an age assessment can be requested by the public prosecutor's office before the juvenile court. The assessment is conducted through a social health check.
Information platforms (websites)
- Ministry of the Interior’s dedicated page on Useful information for the entry of Ukrainian refugees to Italy
- Department of Civil Protection’s dedicated page on Ukraine emergency
- Portal "Integrazionemigranti.it" under Ukraine emergency provides useful information for displaced persons and for the management of their reception.
- Immigration offices published relevant information in their websites (e.g. the Turin immigration office).
- Municipalities are also involved in the provision of information to individuals in need (e.g. the municipality of Rome and Milan).
- Regional and local web pages contain relevant information on services targeted at people fleeing Ukraine. Some examples: Regione Veneto and Regione Piemonte.
Leaflets
Welcome to Italy booklet with information for Ukraine citizens arriving in Italy (IT, UA, RU, EN) by the Civil Protection Department together with the Ministry of the Interior.
Benvenuto a Trieste brochure with information for Ukrainians arriving in Italy from the east border (IT, UA) by the Department of Civil Liberties and Immigration, the Department of Public Security and the National Asylum Commission.
Opuscolo informativo Protezione temporanea in Italia leaflet with information on temporary protection in Italy (IT, UA) developed by the Department of the public security of the Ministry of the Interiors, the National Commission for the right of Asylum, Department of Civil Liberties and Immigration, Civil Protection Department with EUAA support.
Information points
Information is available in most municipalities and police offices, with information desks available in each province.
Other
• Ministry of Education dedicated page
• Ministry of Health dedicated page
• UNHCR Italy dedicated page (EN, UA)
• Naga dedicated page
• Save the Children Italy Frequently asked questions page
| Registration | Pre-registration (if applicable): n/a Registration: To regularise their stay, displaced persons should go to the immigration office of the police headquarters (Questura). Immigration officers will print the application form and provide a receipt to the applicants. For minors, the police will verify the parental authority of accompanying individuals. If there are no definitive documents, they will inform the juvenile court and contact Ukrainian diplomatic representations. Biometric data and documentation: Holders of a biometric passport can enter visa-free and stay in the country for a total of 90 days, after which it is necessary to acquire a residence permit. The Embassy of Ukraine in Italy has confirmed that Ukrainian citizens fleeing the war without identification documents will be identified in the consulates upon arrival and provided with an alternative identification document issued by the embassy. |
|---|---|
| Residence permit | The immigration offices of the police issue residence permits in electronic format, valid from 4 March 2022 for 1year, with the possibility of a renewal every 6 months for up to 1 additional year. A tax number (codice fiscale) is created by the Revenue Agency and issued by the immigration offices upon application for temporary protection, allowing access to the national health system. According to the 2024 Budget Law, temporary protection residence permits can be converted into work permits, requiring a financial contribution ranging from EUR 40-50. |
| Legal aid | For those who are hosted within the ordinary reception system, legal aid is provided among the reception services, according to the type of facility. In first line the service is guaranteed by the social operator while in the SAI centres, it is provided the legal support by a dedicated professional. For the beneficiaries of the widespread reception system, the entities that apply to offer reception services must offer, among the others, also the legal assistance, guidance and support for integration into the labour market and support for training and professional retraining. |
| Appeal | According to Article 9 of Law Decree No 85/2003 on the transposition of the Temporary Protection Directive, individuals can appeal the decision before the administrative courts, following the provisions provided by the Consolidated Immigration Act. |
| Exclusion | According to Article 5 of Law Decree No 85/2003 which transposes the Temporary Protection Directive, individuals who have committed certain crimes are excluded from temporary protection. These crimes include:
Additionally, Article 4(1) of the DPCM activating temporary protection states that temporary protection may be denied if the applicant is considered a security risk. Nonetheless, exclusion from temporary protection does not prevent an applicant from applying for international protection. |
| Termination/withdrawal | According to Article 7 of Decree Law No 85/2003, when an application for international protection is lodged, temporary protection is withdrawn. |
The reception of displaced persons from Ukraine is managed by various authorities, with overall coordination under the newly-appointed Control and Management Department (Di.Coma.C) within the Civil Protection Department. This department supports national-level coordination, while the Department of Civil Liberties and Immigration under the Ministry of the Interior ensures reception in Emergency Reception Centres (CAS) and the Reception and Integration System (SAI).
Regional coordination structures are established, involving:
- Regional technical structures for various sectors;
- The prefecture;
- Municipalities
- Their duty is to manage local civil protection activities in cooperation with civil society organisations and representatives of the Ukrainian community.
The National Reception Plan for individuals displaced from Ukraine includes the following steps:
Initial accommodation: Displaced persons are primarily accommodated in CAS and SAI facilities.
Temporary accommodation: If no spaces are available in CAS or SAI, temporary accommodations within the region may be used, as stipulated in Article 2(1b) of Ordinance No. 872 (4 March 2022).
Inter-regional verification: If accommodations are unavailable locally, Di.Coma.C verifies options in other regions or arranges transfers to national temporary facilities.
Border police, UNHCR representatives and civil protection volunteers carry out an entry monitoring activity at national borders to intercept the flow of Ukrainian citizens entering Italy and verify their actual needs for support and assistance.
The Region and Autonomous Provinces established transit and initial reception areas, as first entry or hub within the territory.
These facilities, which may be located at railway, port, airport or bus stations, represent a point of assistance to the Ukrainian population upon arrival, with a view to carrying out the initial social, health and administrative tasks such as identification and COVID-19 testing.
Once they reach the transit and initial reception areas, Ukrainian citizens who do not already have autonomous accommodation with relatives or acquaintances receive basic necessities. Subsequently, the search begins for suitable accommodation within the reception system. Upon registration, people in need of an accommodation are redirected to SAI and CAS structures.
Accommodation
Displaced persons may be accommodated in:
- Emergency Reception Centres (CAS): Managed by civil society organisations and private companies under the supervision of prefectures.
- Reception and Integration System (SAI): Jointly managed by local authorities, municipalities and non-profit organisations to deliver various services.
Due to the influx of refugees, the capacity of SAI and CAS was expanded several times in 2022. In this way it has been guaranteed that beneficiaries of temporary protection in need of reception could be included in the system.
According to Law Decree 202/2024 the project within the Sai system with a priority for Ukrainian temporary protection beneficiaries are extended until 31/12/2025
An online platform was launched by civil society organisations to list all reception initiatives available to Ukrainians and map the number of available facilities and services. Through the platform, Italian citizens can offer an accommodation in private houses
Provision for means to obtain housing
Displaced persons accommodated autonomously may receive a monthly allowance of EUR 300 for a maximum of 3 months, starting from their entry into Italy (or the date of application for temporary protection). Additionally, EUR 150 is available for each dependent child under 18 years.
To receive the allowance, individuals must present an identity document and the receipt of their temporary protection application issued by the Immigration Office. The allowance can also be requested through the dedicated online platform, with instructions available in Italian, English, and Ukrainian.
Other types of accommodation
According to Legislative Decree No 21/2022, the Civil Protection Department may introduce new reception structures, ‘widespread reception’, in addition to SAI and CAS. Initially limited to 15,000 places, this capacity was later increased to 30,000 through a subsequent decree. When regular reception centres lack capacity, temporary accommodation facilities may be established, which are regulated by the operational guidelines published by the Department of Civil Protection. These can include:
- Hotels;
- Collective facilities (buildings or similar) to house refugees until they can be transferred to SAI or CAS;
- National temporary accommodation facilities which are provided by the national civil services network and the private sector. If capacity limits are reached, the Civil Protection Department can set up tent or container camps.
Access to the reception system is granted regardless of whether individuals have applied for international protection. Widespread reception primarily targets individuals temporarily housed in hotels or those needing new accommodations.
Ordinance No 881 specifies the procedure to activate the widespread reception system through calls for interest directed at NGOs across the country, ensuring each initiative involves the relevant municipality. This call resulted in over 17,000 places being offered.
Ordinance Head of Civil Protection No 1123/24 foresaw a survey in order to identify the number of beneficiaries of widespread reception at the time and, among those, who declared to be still in need of reception.
For those who declared not to need of reception measures anymore, it has been provided for a “una tantum” allowance of 250 euro (max 1200 for family), otherwise for those who still needed to be hosted it has been provided for the possibility of an extension until 30.06/25 of the agreements in the framework of the widespread reception. After the expiration of the abovementioned agreements, the beneficiaries who remained in need of assistance could enter the ordinary reception system, primarily in the SAI system and, subsidiary, in the first reception system (first governmental reception system or extraordinary reception system) until 31.12.2025.
| Rights | Description |
|---|---|
| Access to the labour market | According to Decree No 872 of 4 March 2022, displaced persons from Ukraine are permitted to work in Italy—either as employees or self-employed—after applying for a residence permit at the police headquarters. This is granted regardless of the maximum quotas set by Italy’s annual planning for non-EU workers. To facilitate an initial skills assessment for refugees from Ukraine, Italian authorities promote the use of the EU Skills Profile Tool. Legislative Decree No 21/2022 exempts Ukrainian doctors, nurses and healthcare assistants, who were residents of Ukraine before 24 February 2022, from the usual procedures for the recognition of professional health qualifications. Those holding a European Qualification Passport for Refugees may be employed in public or private health and social care facilities under fixed-term contracts, collaboration contracts or as freelancers. The National Labor Inspectorate's Circular No 1521 of 8 March 2022 advises prioritising Ukrainian nationals in regularising undocumented workers employed illegally. Additionally, the 2024 budget law, under Article 1(396), allows for the conversion of temporary protection residence permits into work permits. This conversion recalls Article 5(2ter) of the Consolidated Immigration Act (TU), which requires a financial contribution for the issuance, renewal or conversion of residence permits. Temporary protection holders are not exempt from this fee, which ranges from EUR 40-50. For more detailed information, refer to the Overview of National Measures Regarding Employment and Social Security of Displaced Persons Coming from Ukraine (Country Fiches) by the European Labour Authority. |
| Access to medical care | Beneficiaries of temporary protection have access to medical care under the same conditions as Italian citizens. Similar to applicants for international protection, a tax number (codice fiscale) is issued by the Immigration Office when applying for temporary protection, allowing access to the national health system. An official health card (Tessera Sanitaria) is then issued by the relevant health authority, enabling beneficiaries to receive services such as prescriptions and medical visits free of charge. Health services are organised autonomously by the regions, and the availability of services may vary depending on the health district. Some regions have established special centres to provide healthcare services to Ukrainians fleeing the war. The Regional Health Contact Persons for Emergencies (RSR), identified in the Ministerial Directive of 24 June 2016, play a key role in coordinating emergency medical assistance. They ensure collaboration between regional health services and civil protection agencies and assess the need for additional health resources, which they can request from the Department of Civil Protection. National directives mandate that within 5 days of entry into Italy, the following medical services must be provided:
|
| Social welfare assistance and means of subsistence | Ukrainians may access to social services offered by the municipality of residence. |
| Education | According to the Consolidated Immigration Act (Article 38), unaccompanied minors have the same rights as any other minors. In addition, they are entitled to a special integration plan involving cultural mediators. The legal guardian, together with the reception centre’s personnel, will ensure the prompt registration of the unaccompanied minor in school. Adults granted temporary protection status are entitled to access to university studies and vocational training subject to the same conditions as legally residing foreigners. The recognition of diplomas, certificates and foreign qualifications for Italian citizens also applies. |
| Family reunification | Family reunification is regulated by Article 6 of Law Decree No 85 of 7 April 2003 on the implementation of 2001/55CE Directive on granting temporary protection in case of a mass influx of displaced persons. In addition, the law decree activating temporary protection specifies that family reunifications are allowed only for those residing outside of European Member States. |
| Other | Transportation: Ukrainian citizens arriving in Italy can travel for free within 5 days of their arrival to reach their first destination or reception centre. This provision covers free transportation on Trenitalia trains (FS Group), including Intercity, Eurocity and Regional Services, as well as maritime services and highways. The Civil Protection Department developed a platform called #OffroAiuto, which allows citizens, companies and organisations from the third sector or the private social sector to offer goods, services and accommodation in support of the Ukrainian population. The platform aims to provide a flexible tool for emergency management, enabling a timely and effective response to the needs of Ukrainian citizens. It serves as a dynamic database that adapts to evolving needs during an ongoing emergency. All offers of goods, services and accommodation are shared with emergency coordination structures, civil protection volunteer organisations and third sector entities involved in supporting and receiving the displaced population. |
On 25 March 2022, the Commissioner for Unaccompanied Minors issued a plan with guidelines for procedures for the reception of unaccompanied minors from Ukraine and for the coordination of the activities of the various stakeholders involved in their care and services.
The national authorities involved are:
- the Commissioner for Unaccompanied Minors;
- three departments of the Ministry of the Interior (Immigration, Borders and Anti-Crime);
- the Ministry of Social Policy and Immigration;
- the Ministry of Justice.
At the local level, prefectures, immigration offices of the police, public prosecutor’s offices, juvenile courts and social services of the municipalities are also involved.
The plan defines unaccompanied minors as not only children arriving without parents but also those accompanied by adults who are not their legal guardian under Italian law. The document gives some examples, including children accompanied by an aunt or grandmother or by the head of the institution where they were accommodated in Ukraine, but who cannot prove that they are legally responsible for them according to Italian legislation.
The border police are responsible for monitoring entries into the national territory and refer cases to the Commissioner for Unaccompanied Minors. The presence of a minor should be immediately communicated to the immigration office of the police, which is in charge of referring the case to the competent authorities. If there are doubts about a minor’s age and no documentation is available, the public prosecutor's office may request an age assessment from the juvenile court. This assessment is conducted through a social-health evaluation.
The plan also mandates that all unaccompanied minors details are entered into the Minor Information System (SIM), a database managed by the Ministry of Social Policy. On 13 April 2022, the plan was updated with additional regulatory references to further strengthen the framework for the protection of minors.
In May 2022, a new section was introduced to prevent and manage episodes of expulsion or absconding by unaccompanied minors from Ukraine. This includes procedures for the swift verification of initial information and, if necessary, the activation of provincial plans for missing persons.
Minors accompanied by adults who do not have parental authority (e.g. other relatives, acquaintances or civil society organisations) are considered unaccompanied minors, and the legal procedures established for them will be activated. If a minor has no parental reference in Italy up to the fourth degree of kinship, they must contact the Foreign Minors Office of the Municipality of arrival, local social services or the nearest police station. From there, the case is referred to the juvenile court for the appointment of a legal guardian, who assumes parental responsibility in Italy.
Ordinance No 876 of 13 March 2022 appointed the Head of the Department for Civil Liberties and Immigration of the Ministry of the Interior as the Commissioner for Unaccompanied Minors. The commissioner’s role is to ensure uniform management of the reception and care of vulnerable minors across the country.
Unaccompanied minors arriving alone in Italy will be accommodated in the reception system, regardless of whether they travelled entirely alone or with adults who only accompanied them during the journey. Accommodation will be provided either in a reception centre or through foster families. Minors over 14 years of age will be temporarily placed in facilities of the Ministry of the Interior for no more than 30 days before being transferred to the SAI system. If SAI placements are unavailable, the municipality will provide accommodation or, in the case of mass arrivals, minors may be placed in special facilities activated by the prefects.
Younger minors are accommodated in structures managed by the municipality or SAI structures appointed by the regions. Ordinance No 881 of 29 March 2022 issued by the head of the Civil Protection Department allows the communities to increase the maximum capacity by 25% in derogation of the existing rules for minors under 14 years old.
The plan for unaccompanied foreigner minors issued by the Commissioner for Unaccompanied Minors specifies that unaccompanied minors are not subject to the direct family custody procedure by social services. It is the responsibility of the juvenile court to appoint a legal guardian. In the absence of a voluntary guardian being available, an institutional figure is appointed, such as the mayor of the municipality where the child is located. During the period from the identification to the appointment of the legal guardian, the legal guardianship is granted by the legal representatives of the family community or the public/private reception structure.
According to Article 38 of the Consolidated Immigration Act, unaccompanied minors are entitled to the same rights as other minors, including a special integration plan with cultural mediators. The legal guardian, in coordination with reception centre staff, ensures the minor’s prompt registration at school.
The Circular of 4 March 2022, issued by the Ministry of Education, reaffirms that Article 38 guarantees the right to education for:
- Foreign minors present in Italy;
- Minors seeking international protection;
- Children of applicants for international protection;
- Unaccompanied foreign minors.
In line with these provisions, schools and regional education offices are responsible for the educational integration of Ukrainian students fleeing the war. This includes ensuring schooling as close as possible to where they find residence, even if the children lack civil documentation or residence permits. School principals and regional education offices are urged to consider the specific vulnerabilities of each child. To support the integration process, it is recommended to preserve small groups of children from the same household or geographical community whenever possible.
When welcoming children into schools, peer education and peer tutoring methodologies should be employed, especially in the initial phases of adapting to Italian language and education. Bilingual or mother tongue teaching material should also be used. School staff will be supported by linguistic and cultural mediators, whose work will be coordinated by the Regional School Offices in collaboration with local authorities.
Further guidelines on the inclusion of Ukrainian students were shared on 24 March 2022 by the Ministry of Education. These documents include pedagogical notes and an induction plan for schools, which consists of three phases:
A slow time for acceptance phase, lasting until the end of the 2022 school year, aimed at reorganising socialisation groups, building basic communication skills in Italian, addressing trauma and ensuring continuity of education where possible.
A consolidation and strengthening phase over the summer period, with the involvement of territorial communities through community pacts.
An educational integration phase during the 2023 school year, adapting to specific contexts and general conditions as they develop.
The identification of and assistance to individuals with specific social and health needs require coordination between municipalities, health authorities and civil society organisations to implement appropriate measures. The Regional Coordination Office assesses the need to organise local health services, as outlined in the Directive of 7 January 2019. This directive allows the deployment of doctors and nurses from local health authorities to municipal and inter-municipal centres to ensure care for vulnerable individuals during exceptional events.
Vulnerable persons from Ukraine are accommodated through the national reception system, including SAI, based on the capacity available.
Italy has joined the EU's solidarity mechanism to support Moldova by welcoming 1,000 Ukrainian refugees fleeing through Moldova.
Additionally, individuals with special needs are being transferred from Ukraine with the assistance of the Italian Red Cross, in coordination with the International Red Cross. On 22 March, the Italian Red Cross-National Emergency Operations Centre accommodated the first group of 29 people, including elderly, children and disabled individuals, aged 3 months to 85 years. They will be transferred to the national reception system, thanks to cooperation with the Civil Protection Department and third sector organisations.
The Department of Civil Protection also activated CROSS (Remote Central for Health Rescue Operations) to coordinate the transfer of individuals with medical needs from Ukraine’s neighbouring countries to Italy. CROSS had coordinated the transfer of 13 patients to various regions, including Lombardy, Friuli Venezia Giulia, Liguria, and Lazio. Another 30 patients were evacuated via MedEvac (medical evacuation) since the start of the crisis.
The department has also activated Disevac (Disability Evacuation) to ensure the safe evacuation of disabled individuals from the Poland-Ukraine border to Italy.
Displaced persons from Ukraine who receive temporary protection may apply for international protection at any time. To do so, they must submit their passport and complete form C3 at the Immigration Office of the police. It is important to note that applying for international protection results in a withdrawal from temporary protection and being granted international protection excludes the option to apply for temporary protection, according to Article 7 of Decree Law No 85/2003.
Displaced persons from Ukraine may also request special protection from the Police Headquarters. After consulting the Territorial Commission for International Protection, which evaluates the grounds for granting international protection, the police authority will decide on issuing a permit based on special protection.