UN Independent International Commission of Inquiry on Ukraine: latest report finds that Russian authorities had committed war crimes and crimes against humanity by attacking civilians and vital energy infrastructure
The UN Independent International Commission of Inquiry on Ukraine has investigated the impact on civilians of large-scale attacks by Russian armed forces on Ukraine's energy infrastructure, particularly during the severe winter of 2025-2026, as well as their cumulative effect since autumn 2022, in a new report submitted to the UN General Assembly (A/81/440).
The Commission was established by the Human Rights Council on 4 March 2022 through resolution 49/1 to investigate all alleged violations and abuses of human rights, violations of international humanitarian law and related crimes in the context of the Russian Federation's aggression against Ukraine. Its mandate was most recently extended on 31 March 2026.
Over the years, the frequency, intensity and geographic range of systematic waves of attacks, involving hundreds of drones and missiles at a time, have increased, inflicting significant damage on Ukraine's energy sector. Last winter, with temperatures dropping to minus 21°C, millions of people in Ukraine faced lengthy outages of heating, electricity, water and gas and had to endure intolerable living conditions. Prolonged exposure to cold, deprivation of basic utilities and the constant need to devise survival strategies have placed considerable strain on civilians' physical and mental health.
According to the Commission's assessment, the Russian commanders who ordered the attacks knew that the heating facilities they targeted in large civilian agglomerations were indispensable to the civilian population, particularly in winter. Russian authorities have also made official declarations concerning further attacks and referred to a plan to carry them out. The Commission concluded that they committed the war crime of intentionally directing attacks against civilian objects.
The evidence collected demonstrates that the attacks on Ukraine's energy infrastructure were carried out with intent and pursuant to a state policy to deprive the civilian population of electricity and other essential energy-dependent services and to cause suffering. The Commission concluded that the Russian authorities have committed the crime against humanity of other inhumane acts.
The Commission also examined attacks by Ukrainian armed forces on energy infrastructure in the Russian Federation and in the occupied areas of Ukraine. However, it was unable to investigate the impact of such attacks further, as the Russian Federation neither granted access nor responded to the Commission's requests for information.
Furthermore, the Commission investigated the recruitment of foreign nationals to serve in the Russian armed forces and found compelling evidence that Russian authorities have trafficked persons from 29 countries. Trafficking was carried out through deception and coercion, in coordination with agents or agencies operating in different countries and regions. These agents or agencies presented themselves as legitimate, Government-endorsed businesses, processed visas and travel documents for groups of recruits and, in some cases, travelled with them. Soon after arrival, however, the men were forced to sign contracts in Russian with the Ministry of Defence of the Russian Federation. The Commission noted a high degree of coordination between agents operating around the world and the Russian authorities.
The Commission reiterates that international law prohibits attacks against civilians and civilian objects and calls for such attacks to stop. It also calls for all trafficked persons to be discharged from the Russian armed forces.