Plans to create a special tribunal to try crimes of aggression committed by Russia in Ukraine are facing financial hurdles, Euronews reports. European donors are concerned that the United States may continue to pull back support under the Trump administration, complicating efforts to cover the tribunal’s costs.

The tribunal, agreed bilaterally by the Council of Europe and President Volodymyr Zelenskyy in June, is designed to prosecute Russia’s crimes of aggression - a gap left by the International Criminal Court, which cannot target the crime of waging war.

Funding from multiple partners is required for the tribunal to operate, but European countries are now weighing their contributions amid rising costs and reduced US engagement.

Holding Russia accountable - with limits

The tribunal was formally announced in Strasbourg in June 2025, with Zelenskyy noting that “every war criminal must know: justice will prevail - and that includes Russia.” 

While the court cannot prosecute sitting Russian leaders such as President Vladimir Putin or Foreign Minister Sergey Lavrov due to immunity, it can try other senior Russian and Belarusian officials, potentially even in absentia.

The tribunal is seen as a key step in Ukraine’s broader strategy to secure legal accountability for Moscow’s invasion.

Europe scrambles to cover €75M tribunal costs as Trump pulls back

The Council of Europe initially proposed a budget of roughly €75 million per year for operational costs, with additional funding needed for premises and security. The Netherlands is set to host the tribunal. 

The EU is expected to contribute about €10 million annually, but it is unclear which G7 countries, including France, Germany, Italy, and the United Kingdom, will participate.

Sources told Euronews that discussions are ongoing, and fewer funds from Washington put the tribunal’s implementation at risk. To begin work, the tribunal must secure a minimum number of participating countries, usually 16, but in Ukraine’s case, experts say more influential and relevant states will need to join to lend credibility.

European governments are now facing difficult choices about which Ukraine-related projects to fund as military, humanitarian, and financial support falls increasingly on their shoulders.

Ukraine and the Council of Europe signed a historic agreement on June 25 to establish a Special Tribunal for the Crime of Aggression, marking a major step toward holding Russia's leadership accountable for launching the full-scale invasion in 2022.

The agreement was signed by President Volodymyr Zelensky and Council of Europe Secretary General Alain Berset during a ceremony in Strasbourg, France – following more than three years of diplomatic efforts and deliberation.

Speaking at the Parliamentary Assembly of the Council of Europe (PACE), Zelensky thanked the assembly and underscored the importance of justice.

"Everyone responsible for this war must be held to account," he said. "Every war criminal must face justice – including Putin... the crime of aggression must be recorded, judged, and punished."

Zelensky also praised PACE for its "real leadership" in taking a stand against Russia and developing the tribunal.

"It was here in this assembly, that the first call for such a tribunal was made," Zelensky said. "The idea was born here – and now it’s gaining real support from partner countries in Europe and beyond."

The Special Tribunal will be established within the framework of the Council of Europe and will have the mandate to prosecute senior Russian leaders for the crime of aggression – defined as the decision to use armed force against another state, in violation of the United Nations Charter.

President Zelensky has long advocated for the creation of the tribunal, emphasizing the need to bring Russian President Vladimir Putin and other senior officials to justice. Ukrainian prosecutors have documented thousands of war crimes committed by Russian forces, including attacks on civilians, cultural landmarks, medical facilities, and reports of torture and forced deportations.

The tribunal is intended to close a key legal gap in existing international accountability mechanisms.

While the International Criminal Court (ICC) has jurisdiction to investigate war crimes, crimes against humanity, and genocide in Ukraine – and has already issued arrest warrants for Putin and Maria Lvova-Belova, the Russian official overseeing the forced deportation of Ukrainian children to Russia – it cannot examine the crime of aggression due to jurisdictional constraints.

The new tribunal will complement the ICC's efforts by specifically targeting high-level officials responsible for starting the war – such as Putin and his inner circle.

In addition to the special tribunal, the Council of Europe’s Ukraine-related work  includes the Register of Damage – an initiative that has already received more than 34,000 claims detailing losses and harms resulting from Russia's full-scale invasion.

The establishment of the register, and now the special tribunal, are important steps to ensure justice for Ukraine and its people.

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The Council of Europe and Ukraine will sign an agreement on June 25 to set up a special tribunal for the crime of Russian aggression, Yevheniya Kravchuk, a member of Ukraine's delegation to the Parliamentary Assembly of the Council of Europe (PACE), said on June 24.

The move marks a milestone in international efforts to hold President Vladimir Putin and other top Russian officials accountable for launching the full-scale war against Ukraine.

"What seemed like a dream of justice will soon become a reality. Ukraine, together with the Council of Europe, will sign an agreement that will bring Russia to justice," Kravchuk wrote on Facebook.

Ukrainian Deputy Prime Minister Olha Stefanishyna stressed that the special tribunal will have jurisdiction over the Russian president, prime minister, foreign minister, and other top officials.

"It is not a matter of debate anymore, only a matter of time. Some will get into the hands of justice sooner, some later, but they will all be held accountable. There are no exceptions," Stefanishyna told the Kyiv Independent. "It's critical to restore the international rule of law and prevent future acts of aggression."

The tribunal's jurisdiction covers all aspects of the crime of aggression, including the planning, preparation, initiation, or execution of acts of aggression, according to Stefanishyna.

"The tribunal's design makes it clear that the official status of the accused at the time of the crime does not exempt them from responsibility," she said. "Functional immunity does not apply here; high-ranking officials can be prosecuted even while holding office. The statute provides rules for conducting proceedings if the accused is absent."

The tribunal will be authorized to cooperate with the International Criminal Court (ICC) to ensure jurisdictional effectiveness and share information, Stefanishyna added.

President Volodymyr Zelensky has long advocated for the tribunal to ensure that Putin and other senior Russian officials face justice for launching the invasion three years ago.

Ukrainian prosecutors have documented thousands of war crimes committed by Russian forces, including attacks on civilians, cultural and medical sites, and acts of torture and deportation.

While war crimes, crimes against humanity, and genocide can be prosecuted against individuals at any level, the crime of aggression applies exclusively to state leaders responsible for planning and waging a war.

The ICC has already issued arrest warrants for Putin and Maria Lvova-Belova, the Russian official overseeing the forced deportation of Ukrainian children to Russia.

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