On 25 February 2025, the Verkhovna Rada of Ukraine adopted in the first and final reading the Law of Ukraine “On the Ratification of the Council of Europe Convention on Offences relating to Cultural Property” (the Nicosia Convention).

The Nicosia Convention offers a broad range of mechanisms for protecting cultural property — a particularly important step in today’s context, as Ukraine’s cultural heritage continues to be systematically targeted by the aggressor.

​​Ukraine views the Convention as a legal basis for extradition or mutual legal assistance in criminal matters related to the offences outlined therein. The central authorities designated by Ukraine as responsible for international cooperation in criminal proceedings under the Convention are as follows:

• The Ministry of Justice of Ukraine — for requests during judicial proceedings;
• The Office of the Prosecutor General — for requests during pre-trial investigations;
• The National Anti-Corruption Bureau of Ukraine — for requests for mutual legal assistance in criminal proceedings where it is conducting the pre-trial investigation.

The ratification of this Convention marks a decisive step in countering the criminal actions of the Russian Federation, which is systematically destroying Ukraine’s cultural heritage.

This is especially relevant in the context of Russia’s occupation of Crimea, where the occupation administration is conducting large-scale illegal archaeological excavations and damaging cultural landmarks. Among the most significant sites is the Khan’s Palace in Bakhchysarai, officially recognized in Ukraine as a national monument and included on UNESCO’s Tentative List. The palace is undergoing systematic destruction under the guise of so-called restoration work. In addition, the Russian occupation administration is issuing construction permits to companies lacking licenses to work with museum-grade cultural heritage sites, leading to the irreversible loss of historical monuments.

A particular threat is posed by the unlawful actions of the occupying state on the temporarily occupied territory of the Autonomous Republic of Crimea and the city of Sevastopol, including:

• large-scale illegal archaeological excavations;
• the destruction and damage of historical sites, notably the Khan’s Palace, which is on UNESCO’s Tentative List and is suffering irreversible harm under the pretext of restoration;
• the mass removal of cultural property from Crimean museums to the Russian Federation;
• aggressive urban development carried out without regard for the protection standards of cultural heritage sites.

The Nicosia Convention establishes a broad scope of liability for offences related to cultural property, including:

• theft and other forms of unlawful appropriation of cultural assets;
• illegal excavations and the removal of artefacts;
• unlawful import and export of cultural property;
• acquisition of ownership, market placement, and falsification of documentation;
• destruction and damage of movable and immovable cultural property.

The Convention also establishes liability for posting advertisements online for the sale of unlawfully acquired cultural property and obliges parties to verify the legal provenance of cultural objects.

Ukraine’s ratification of this Convention will strengthen international legal support for holding Russia accountable for the destruction and theft of our cultural heritage. It will help block illicit transactions, complicate the sale of stolen artifacts, and facilitate the return of looted cultural property.

At the same time, the provisions of the Convention outline a range of measures to be implemented at the national level to enhance the effectiveness of cultural property protection.

Alongside the ratification of the Convention, the Verkhovna Rada of Ukraine has proposed amendments to several laws, including the Laws of Ukraine “On the Export, Import, and Return of Cultural Property,” “On Culture,” and “On Electronic Commerce.” The ratification of the Nicosia Convention is also in line with the recommendations of the Parliamentary Assembly of the Council of Europe’s Resolution “Countering the Erasure of Cultural Identity in War and Peace.”

The necessary legislative amendments are to be introduced through the adoption of the draft law “On Amendments to Certain Laws of Ukraine in Connection with the Ratification of the Council of Europe Convention on Offences relating to Cultural Property.”

The draft law expands the list of objects recognised as cultural property. It now includes antique items over 100 years old, artistic assemblages, rare documents, excise tax stamps, as well as items of ethnographic, archaeological, and historical value.

One of the key changes is the strengthening of controls over the import and export of cultural property. The legislation prohibits the import of items that are under search, obtained through illegal archaeological excavations, or exported in violation of the laws of other states (these must be returned to the state of origin). Moreover, if cultural property exported from Ukraine is not returned within 90 days after the agreed period expires, it is considered to have been unlawfully exported.

The adoption of this law by Ukraine is critically important for tracking crimes committed by the Russian Federation in Crimea and other temporarily occupied territories, and for the eventual return of Ukraine’s cultural heritage.

The Mission of the President of Ukraine in the Autonomous Republic of Crimea has been actively involved in developing recommendations for parliamentary and inter-committee hearings, particularly on matters related to the reintegration of Crimea’s regional cultural space. As part of this work, the Mission has consistently supported the proposals for ratifying the Council of Europe Convention on Offences relating to Cultural Property.