2025-06-102024/25:UU10 · p.3UUForeign affairs
The sanctions regime against terrorism
Tightening the criteria for the EU's anti-terrorism sanctions regime
What's at stake: Current EU criteria for terrorist listing effectively require a judicial investigation, indictment or conviction, making it hard to sanction state-backed actors such as Iran's Revolutionary Guard or the Wagner Group even though they are seen as security threats. The outcome affects the EU's sanctions toolkit and Sweden's ability to shape it.
Case texts and AI reasoning are AI-translated from the Swedish originals; the Swedish text is authoritative.
What the vote decides
The question is whether parliament should again press the government to pursue an update of the EU's legal framework for terrorist listing so that state-backed groups can be sanctioned, or whether this is already addressed by an earlier instruction to government and ongoing work.
Yes Yes — the committee proposal
The committee reaffirms its earlier instruction that the government should push for an EU review of the legal preconditions for terrorist listing, so the criteria capture today's threats and can be used against state-backed groups such as the Wagner Group and the IRGC, ideally through a model that allows listing without requiring prior judicial action but with strong legal safeguards. For certain other actors, such as the KGB or Gubopik, the committee finds no current legal basis for listing. Since the government is already active on this front — including tougher sanctions on Belarus and an ongoing review of the framework — the committee sees no need for a new initiative, and the motions are rejected.
No No — the reservations
Reservation 6 (S, C)
The Social Democrats and the Centre Party argue that the government should push harder to update the EU's legal framework for terrorism sanctions so that state-backed groups such as the IRGC and the Wagner Group can be listed, pointing out that parliament has already adopted an instruction on the matter which they feel has not been followed through clearly enough.
Summarised from the committee report. Party labels in the summary come from the report, not from the vote.
What do the votes mean here?
Yes The committee proposal: rejecting the motions (keeping things as they are).
No Backing the counter-proposal: reservation 6 by S, C.
Abstain The party marks a position of its own that is not one of the two final alternatives.
What each plan points to — and how the party voted
For each party: the vote its own election manifesto and party programme point to in this case, next to how the party actually voted. A plan can only point to Yes or No; a party can also abstain.
| Plan | Vote | Confidence | Evidence | ||
|---|---|---|---|---|---|
| V | Yes | Yes 21/0/0/3 | follows the plan | confidence: low | derived |
| S | No | No 0/93/0/13 | follows the plan | confidence: medium | derived |
| MP | No | Yes 14/0/0/4 | departs from the plan | confidence: low | derived |
| C | No | No 0/17/0/7 | follows the plan | confidence: medium | derived |
| L | No | Yes 14/0/0/2 | departs from the plan | confidence: medium | derived |
| KD | No | Yes 15/0/0/4 | departs from the plan | confidence: medium | derived |
| M | No | Yes 60/0/0/8 | departs from the plan | confidence: medium | not addressed |
| SD | No | Abstain 0/0/60/12 | departs from the plan | confidence: high | explicit |
Committee proposal
Parliament rejects the motions 2024/25:1432 by Markus Wiechel et al. (SD) motions 1 and 2, 2024/25:1438 by Markus Wiechel et al. (SD) motion 25 and 2024/25:3162 by Kerstin Lundgren et al. (C) motions 23 and 24.
Original (Swedish)
Riksdagen avslår motionerna 2024/25:1432 av Markus Wiechel m.fl. (SD) yrkandena 1 och 2, 2024/25:1438 av Markus Wiechel m.fl. (SD) yrkande 25 och 2024/25:3162 av Kerstin Lundgren m.fl. (C) yrkandena 23 och 24.
Riksdag decision: The Government has reported to Parliament on activities in the EU in 2024. The report addresses decisions and events in the Union and presents the breadth of the Union's matters based on work in the various ministerial councils. It has been 30 years since Sweden joined the EU. Parliament notes that a strong EU gives Europe strength and Sweden a stronger voice in global matters. The year has been marked by a difficult international situation, with Russia's full-scale invasion of Ukraine and an escalated conflict in the Middle East. Continued strong economic, military, political and humanitarian support to Ukraine and expanded sanctions against Russia have permeated the EU's political agenda. Rule of law matters remain high on the EU's agenda. Parliament emphasizes the importance of prioritizing these matters and that EU cooperation's fundamental values—freedom, democracy, equality and the principles of the rule of law—must be respected by the member states. Parliament filed the report away, that is, concluded the matter.
Counter-proposals
- The counter-proposal wants the EU to introduce a sanctions ladder for countries that undermine democratic values. (S, C) — Reservation 6
Plan vs actual vote
Every party, in chamber order: what its own plan pointed to, how it voted, and the reasoning behind both. Highlighted rows are where the two differ — but a vote that follows the plan is a result too, so the reasoning is there for every party.
The plan maintains a justice system built on legal security, where no one is considered guilty before the contrary is proven and where transparency and independent scrutiny shall be maintained.
Plan documents: party programme
Reasoning and quotes
The plan maintains a justice system built on legal security, where no one is considered guilty before the contrary is proven and where transparency and independent scrutiny shall be maintained. The counter-proposal in substance wants to remove the requirement that law enforcement authorities have acted first before an actor is terror-listed, i.e. lower the legal thresholds. The plan provides no support for listing without legal review, even though it is silent on the individual groups.
Original (Swedish)
Planen håller fast vid ett rättsväsende byggt på rättssäkerhet, där ingen anses skyldig innan motsatsen är bevisad och där insyn och oberoende granskning ska upprätthållas. Motförslaget vill i sak ta bort kravet på att rättsvårdande myndigheter först agerat innan en aktör terroristlistas, alltså sänka de rättsliga trösklarna. Planen ger inget stöd för listning utan rättslig prövning, även om den är tyst om de enskilda grupperna.
- presumption of innocencedecisive»anses oskyldiga tills motsatsen är bevisad är grundläggande i det.« (party programme ↗)“are considered innocent until the contrary is proven is fundamental to it.”
- maintained legal security»Rättssäkerheten behöver upprätthållas genom rättshjälp, medborgerlig« (party programme ↗)“Legal security needs to be maintained through legal aid, civic”
- legally secure justice system»Utvecklingen av ett rättsväsende byggt på rättssäkerhet är viktig« (party programme ↗)“The development of a justice system built on legal security is important”
- defended international law»Folkrätten behöver försvaras och« (party programme ↗)“International law needs to be defended and”
The party programme demands combating violent extremism and prevention of terrorist attacks and a stronger joint foreign and security policy for the EU.
Plan documents: party programme · 2022 manifesto
Reasoning and quotes
The party programme demands combating violent extremism and prevention of terrorist attacks and a stronger joint foreign and security policy for the EU. Updating the EU's listing criteria so that state-supported groups such as IRGC and the Wagner Group can be targeted is an application of both commitments. The election manifesto furthermore points out EU cooperation as the foundation for meeting the threat from terrorism.
Original (Swedish)
Partiprogrammet kräver bekämpande av våldsbejakande extremism och förhindrande av terrordåd samt en mer kraftfull gemensam utrikes- och säkerhetspolitik för EU. Att uppdatera EU:s listningskriterier så att statsunderstödda grupper som IRGC och Wagnergruppen kan träffas är en tillämpning av båda åtagandena. Valmanifestet pekar dessutom ut EU-samarbetet som grunden för att möta hotet från terrorism.
- combat terrorismdecisive»Bekämpande av våldsbejakande extremism och förhindrande av terrordåd.« (party programme ↗)“Combating violent extremism and prevention of terrorist attacks.”
- stronger joint EU policy»Mer kraftfull gemensam utrikes- och säkerhetspolitik för EU för att bidra till ökad säkerhet och trygghet i en osäker omvärld.« (party programme ↗)“Stronger joint foreign and security policy for the EU to contribute to increased security and safety in an uncertain world.”
- EU against terrorism»Vi är övertygade om att EU-samarbetet är grunden för att lösa många av vår tids svåraste problem. Inte minst klimatfrågan, migrationen och hotet från terrorism och gränsöverskridande brottslighet.« (2022 manifesto ↗)“We are convinced that EU cooperation is the foundation for solving many of the most difficult problems of our time. Not least the climate question, migration and the threat from terrorism and transnational crime.”
- legal security in listing»Slå vakt om rättsstatens principer.« (party programme ↗)“Uphold the principles of the rule of law.”
The plan wishes the law-enforcement authorities to be given the tools needed and the EU to get better tools against breaches of human rights with a developed sanctions system, which supports the requirement that state-backed groups be able to be terrorist-listed.
Plan documents: party programme
Reasoning and quotes
The plan wishes the law-enforcement authorities to be given the tools needed and the EU to get better tools against breaches of human rights with a developed sanctions system, which supports the requirement that state-backed groups be able to be terrorist-listed. International humanitarian law and human rights are central. At the same time the plan conditions terrorism prevention with that it shall not happen at the expense of human rights, which makes the support cautious.
Original (Swedish)
Planen vill att de rättsvårdande myndigheterna ges de verktyg som krävs och att EU får bättre verktyg mot brott mot mänskliga rättigheter med ett utvecklat sanktionssystem, vilket bär kravet att statsunderstödda grupper ska kunna terrorlistas. Folkrätten och de mänskliga rättigheterna står i centrum. Samtidigt villkorar planen terrorbekämpning med att den inte får ske på bekostnad av mänskliga rättigheter, vilket gör stödet försiktigt.
- tools against crimedecisive»Rättssäkerheten ska tryggas samtidigt som de rättsvårdande myndigheterna ska ges de verktyg som krävs för att bekämpa kriminaliteten och öka tryggheten i samhället.« (party programme ↗)“Legal security shall be secured at the same time as law-enforcement authorities shall be given the tools needed to combat criminality and increase security in society.”
- developed sanctions system»EU måste få bättre verktyg att ta itu med brott mot de mänskliga rättigheterna inom unionen, och sanktionssystemet behöver utvecklas.« (party programme ↗)“The EU must get better tools to address breaches of human rights within the union, and the sanctions system needs to be developed.”
- international humanitarian law at centre»Miljöpartiet de gröna sätter folkrätten och de mänskliga rättigheterna i centrum.« (party programme ↗)“The Green Party puts international humanitarian law and human rights at the centre.”
- legal security condition»Brotts- och terrorbekämpning är viktigt men ska inte ske på bekostnad av mänskliga rättigheter.« (party programme ↗)“Crime and terrorism prevention is important but shall not happen at the expense of human rights.”
The plan takes no explicit position on what the committee actually decided — often because the committee's reason was procedural. The stance is derived and fully cited, but it does not show the party broke a commitment.
The party programme wants the EU's joint policy to become more forceful precisely against cross-border crime and states that such challenges can only be solved through international cooperation.
Plan documents: party programme · 2022 manifesto
Reasoning and quotes
The party programme wants the EU's joint policy to become more forceful precisely against cross-border crime and states that such challenges can only be solved through international cooperation. Updating the EU's sanctions framework so that state-sponsored groups can be terrorist-listed is an application of that line, as is the commitment to adapt defence capabilities to threats from actors other than states. The plan does not address the listing criteria as such, so the coverage is derived.
Original (Swedish)
Partiprogrammet vill att EU:s gemensamma politik blir kraftfullare just mot gränsöverskridande brottslighet och slår fast att sådana utmaningar bara kan lösas genom internationellt samarbete. Att uppdatera EU:s sanktionsramverk så att statsunderstödda grupper kan terroristlistas är en tillämpning av den linjen, liksom av åtagandet att anpassa försvarsförmågan efter hot från andra aktörer än stater. Planen behandlar inte listningskriterierna i sig, varför täckningen är härledd.
- stronger EU against cross-border crimedecisive»På områden som klimatomställningen, frihandeln och den gränsöverskridande brottsligheten bör den gemensamma politiken bli kraftfullare« (party programme ↗)“In areas such as climate transition, free trade and cross-border crime, common policy should become more forceful”
- international cooperation against crime»Utmaningar som är gemensamma för många nationer, som tullmurar, klimatfrågan och internationell brottslighet, kan bara lösas genom internationellt samarbete.« (party programme ↗)“Challenges common to many nations, such as tariffs, climate issues and international crime, can only be solved through international cooperation.”
- adaptation to non-state threats»Därför måste vi också anpassa vår försvarsförmåga efter nya hot mot landet.« (party programme ↗)“Therefore, we must also adapt our defence capabilities to new threats to the country.”
- resistance to authoritarian forces»Runtom i världen pågår en kamp mellan anhängare av den liberala demokratin och auktoritära krafter. Den måste vi vinna.« (2022 manifesto ↗)“Around the world, there is a struggle between supporters of liberal democracy and authoritarian forces. We must win it.”
The plan wants Sweden to participate fully in the EU's crime-fighting and the EU level is given clearer mandate against international crime and terrorism.
Plan documents: 2022 manifesto · party programme
Reasoning and quotes
The plan wants Sweden to participate fully in the EU's crime-fighting and the EU level is given clearer mandate against international crime and terrorism. It also requires that Sweden is driving force for as comprehensive a sanctions regime as possible against Russia, which directly affects a state-backed actor like the Wagner group. Updating the EU's legal framework so that such groups can be terrorism-listed thus aligns with the plan.
Original (Swedish)
Planen vill att Sverige deltar fullt ut i EU:s brottsbekämpning och att EU-nivån ges tydligare mandat mot internationell brottslighet och terrorism. Den kräver också att Sverige är pådrivande för en så heltäckande sanktionsregim som möjligt mot Ryssland, vilket direkt träffar en statsunderstödd aktör som Wagnergruppen. Att uppdatera EU:s rättsliga ramverk så att sådana grupper kan terroristlistas ligger därför i linje med planen.
- stronger EU tools against terrorismdecisive»Sverige ska delta fullt ut i EU:s brottsbekämpning och den europeiska polismyndigheten Europol ska ges ett tydligare operativt mandat att bekämpa internationell brottslighet och terrorism.« (2022 manifesto ↗)“Sweden shall participate fully in the EU's crime-fighting and the European police agency Europol shall be given a clearer operational mandate to combat international crime and terrorism.”
- comprehensive sanctions against Russia»Sverige ska vara pådrivande för att så breda globala koalitioner som möjligt bygger ut en så heltäckande sanktionsregim mot Ryssland som möjligt.« (2022 manifesto ↗)“Sweden shall be driving force for as broad global coalitions as possible to build as comprehensive a sanctions regime against Russia as possible.”
- international cooperation against crime»I ett samhälle med öppnare gränser krävs också starkare internationell samverkan mot brott.« (party programme ↗)“In a society with more open borders, stronger international cooperation against crime is also required.”
- extremism as threat to democracy»högerextremismen och den islamistiska extremismen utgör ett hot mot demokratin« (party programme ↗)“right-wing extremism and Islamist extremism constitute a threat to democracy”
The plan takes no explicit position on what the committee actually decided — often because the committee's reason was procedural. The stance is derived and fully cited, but it does not show the party broke a commitment.
The plan requires close EU cooperation to counter serious cross-border crime and identifies terrorism as a threat Sweden must be able to address.
Plan documents: party programme
Reasoning and quotes
The plan requires close EU cooperation to counter serious cross-border crime and identifies terrorism as a threat Sweden must be able to address. Updating the EU's legal framework so that state-supported groups can be terrorism-listed is in line with this. The plan emphasizes at the same time that powers shall be clearly delineated and the courts' position strong, which corresponds to the requirement for rule-of-law guarantees.
Original (Swedish)
Planen kräver ett nära EU-samarbete för att motverka allvarlig gränsöverskridande brottslighet och pekar ut terrorism som ett hot Sverige måste kunna möta. Att uppdatera EU:s rättsliga ramverk så att statsunderstödda grupper kan terroristlistas ligger i linje med detta. Planen betonar samtidigt att befogenheter ska vara tydligt avgränsade och domstolarnas ställning stark, vilket motsvarar kravet på rättssäkerhetsgarantier.
- EU cooperation against crimedecisive»Det krävs ett nära samarbete på EU-nivå för att« (party programme ↗)“Close cooperation at EU level is required to”
- capacity against terrorism»möta angrepp från internationell kriminalitet, terrorism, cyberkrigföring« (party programme ↗)“counter attacks from international crime, terrorism, cyber warfare”
- delineated powers»dess befogenheter ska vara tydligt avgränsade, och skyddet för den« (party programme ↗)“its powers shall be clearly delineated, and protection for”
- rule of law and courts»Domstolarnas ställning ska vara stark och självständig.« (party programme ↗)“The courts' position shall be strong and independent.”
The plan takes no explicit position on what the committee actually decided — often because the committee's reason was procedural. The stance is derived and fully cited, but it does not show the party broke a commitment.
The counter-proposal wants the EU's regulations to be changed so that state-sponsored groups like IRGC and the Wagner Group can be designated as terrorist organisations.
Plan documents: 2022 manifesto
Reasoning and quotes
The counter-proposal wants the EU's regulations to be changed so that state-sponsored groups like IRGC and the Wagner Group can be designated as terrorist organisations. The plan commits to prohibiting participation in organisations with violent activities and to strengthening the Security Police's ability to protect democracy, and points out security as one of the areas where the EU should act together. That legislation shall be adapted so that more are held to account is a stated line in the plan.
Original (Swedish)
Motförslaget vill att EU:s regelverk ändras så att statsunderstödda grupper som IRGC och Wagnergruppen kan terroristlistas. Planen åtar sig att förbjuda deltagande i organisationer med våldsbejakande verksamhet och att stärka Säkerhetspolisens förmåga att skydda demokratin, och pekar ut säkerhet som ett av de områden där EU ska agera gemensamt. Att lagstiftningen ska anpassas så att fler ställs till svars är en uttalad linje i planen.
- prohibition against organisations with violent activitiesdecisive»Förbjuda deltagande i organisationer med våldsbejakande verksamhet samt förbjuda deltagande i kriminella gäng« (2022 manifesto ↗)“Prohibit participation in organisations with violent activities and prohibit participation in criminal gangs”
- security as an EU task»EU:s fokus ska ligga på att lösa problem som Sverige inte kan hantera ensamt, till exempel handel, klimat, migration och säkerhet.« (2022 manifesto ↗)“The EU's focus should be on solving problems that Sweden cannot handle alone, such as trade, climate, migration and security.”
- strengthened security service»Stärka Säkerhetspolisen för att öka deras förmåga att skydda den liberala demokratin och landets alla medborgare« (2022 manifesto ↗)“Strengthen the Security Police to increase their ability to protect liberal democracy and the country's all citizens”
- measures against hybrid threats»Införa en handlingsplan med konkreta åtgärder mot hybridhot och cyberattacker« (2022 manifesto ↗)“Implement an action plan with concrete measures against hybrid threats and cyberattacks”
The plan takes no explicit position on what the committee actually decided — often because the committee's reason was procedural. The stance is derived and fully cited, but it does not show the party broke a commitment.
The plan requires that participation in and association with terrorist organizations be prohibited and that European cooperation against Islamist organizations, hybrid threats and terrorism be strengthened.
Plan documents: 2022 manifesto
Reasoning and quotes
The plan requires that participation in and association with terrorist organizations be prohibited and that European cooperation against Islamist organizations, hybrid threats and terrorism be strengthened. Updating EU's regulatory framework so that state-supported groups such as IRGC and the Wagner Group can be terrorist-listed is precisely such a tightening. The plan also wants Sweden to push for clear sanctions against Russia and Belarus.
Original (Swedish)
Planen kräver att deltagande i och samröre med terrororganisationer förbjuds och att det europeiska samarbetet mot islamistiska organisationer, hybridhot och terrorism förstärks. Att uppdatera EU:s regelverk så att statsunderstödda grupper som IRGC och Wagnergruppen kan terroristlistas är just en sådan skärpning. Planen vill dessutom att Sverige driver på för tydliga sanktioner mot Ryssland och Belarus.
- tightened EU work against terrorismdecisive»Förstärka det europeiska samarbetet mot islamistiska organisationer, hybridhot och terrorism« (2022 manifesto ↗)“Strengthen European cooperation against Islamist organizations, hybrid threats and terrorism”
- prohibition of terrorist association»Förbjuda deltagande i, och samröre med, terrororganisationer.« (2022 manifesto ↗)“Prohibit participation in and association with terrorist organizations.”
- combat international terrorism»Bekämpa internationell terrorism och islamism« (2022 manifesto ↗)“Combat international terrorism and Islamism”
- clear sanctions»Sverige bör verka för tydliga sanktioner mot Turkiet, Belarus, Ryssland och andra länder med en negativ utveckling.« (2022 manifesto ↗)“Sweden should work for clear sanctions against Turkey, Belarus, Russia and other countries with a negative development.”
The stance rests on the quoted commitment in the party's own documents; the actual vote deviated. Click the quote to verify it in the document.
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Sources and documents
- The committee report on riksdagen.se (2024/25:UU10)
- Committee report full text (HC01UU10)
- Per-MP voting data (API)
- Case status (API)
Documents under consideration
- Motion 2024/25:138 — Turkiets utrikespolitik av Magnus Jacobsson (KD)
- Motion 2024/25:1429 — Vissa frågor om Kuba av Markus Wiechel m.fl. (SD)
- Motion 2024/25:1432 — Terrorlistning av belarusiska säkerhetsorganisationer av Markus Wiechel m.fl. (SD)
- Motion 2024/25:1433 — Säkerhetspolitik av Aron Emilsson m.fl. (SD)
- Motion 2024/25:1438 — Internationella relationer och mänskliga rättigheter av Markus Wiechel m.fl. (SD)
- Motion 2024/25:22 — Befästningsarbeten längs EU:s östra gräns av Magnus Jacobsson (KD)
- Motion 2024/25:25 — Fortsatt stöd till Ukraina av Magnus Jacobsson (KD)
- Motion 2024/25:3023 — Försvar och samhällets krisberedskap av Peter Hultqvist m.fl. (S)
- Motion 2024/25:3030 — Sverigedemokraternas biståndspolitik av Yasmine Eriksson m.fl. (SD)
- Motion 2024/25:3038 — Stärkt beredskap och ett robustare samhälle av Daniel Helldén m.fl. (MP)
- Motion 2024/25:3107 — Internationell samverkan av Morgan Johansson m.fl. (S)
- Motion 2024/25:3162 — Internationellt samarbete i en utmanande tid av Kerstin Lundgren m.fl. (C)
- Motion 2024/25:3355 — med anledning av skr. 2024/25:115 Verksamheten i Europeiska unionen under 2024 av Håkan Svenneling m.fl. (V)
- Motion 2024/25:387 — Separat avtal mellan EU och de belarusiska demokratiska krafternas institutioner som en del av det förnyade östliga partnerskapet av Björn Söder och Markus Wiechel (båda SD)
- Motion 2024/25:395 — EU:s avtal med och finansiering av Kubas regim av Björn Söder och Markus Wiechel (båda SD)
- Motion 2024/25:516 — Målsättning att göra EU till renodlad frihandelsunion av Josef Fransson (SD)
- Motion 2024/25:522 — Stöd för ett fritt och demokratiskt Belarus av Magnus Berntsson (KD)
- Motion 2024/25:524 — Stöd för demokrati och mänskliga rättigheter på Kuba av Magnus Berntsson (KD)
- Motion 2024/25:528 — Konfliktmineraler och deras offer av Gudrun Brunegård (KD)
- Motion 2024/25:868 — Sveriges stöd för Ukrainas frihet och vägval mot Europa av Magnus Berntsson (KD)
Source: The Swedish Parliament