New Contribution Rate for Individual Contributions for Ukrainians under Temporary Protection in the Netherlands: Overview of Changes from October 1, 2025

Since the beginning of russia's full-scale invasion of Ukraine in 2022, the Netherlands has provided temporary protection to thousands of Ukrainian refugees in accordance with the Tijdelijke wet opvang ontheemden Oekraïne (Temporary Law on the Reception of Displaced Persons from Ukraine). This protection includes access to municipal shelters (opvang), financial assistance (leefgeld), and other social services. However, to ensure fairness and encourage integration, the Dutch government introduced a system of individual contributions (eigen bijdrage) in 2024—an obligatory payment for part of the living expenses. The individual contribution was first introduced in 2024 through amendments to the Regeling opvang ontheemden Oekraïne (RooO), published on June 24, 2024 (Staatscourant 2024-20260), and came into effect on July 1, 2024. Initially, it was limited to payment for utilities, but from October 1, 2025, this system underwent significant changes: the contribution became higher and broader, covering not only utilities but also general operational costs of the shelter. This article provides an overview analysis of the innovations, conditions of application, exceptions for reducing the contribution, and the procedure for appealing its amount, based on official regulations and recommendations.

Implementation of the New Rate: What Changed from October 1, 2025?

Prior to October 1, 2025, the individual contribution for Ukrainians in municipal shelters was limited to payment for utilities (gas, water, electricity) in the amount of up to €105 per adult (maximum €210 per household with two adults). Additionally, a contribution for meals could be charged (up to €252.18 per person if prepared in the shelter or delivered to it). The total maximum amount for a household with two adults and meals was €714.26 per month.

From October 1, 2025, the contribution has been expanded to include general operational costs of the shelter, encompassing not only utilities but also costs for support, maintenance of premises, etc. The new maximum rate:

- €244.22 per month per adult (18 years and older) for operational costs (maximum €488.44 per household with two adults or more).

- Additionally €252.18 per person for meals, if provided (maximum €504.36 per household).

- Total maximum amount for a household with two adults and meals—€992.80 per month.

These changes are ostensibly aimed at making the system fairer, encouraging employment, and reducing the burden on municipal budgets. The contribution is charged only to those who have income, and municipalities gained access to data on net income from July 1, 2025, for accurate calculation.

Conditions for Applying the Contribution

The individual contribution applies under the following conditions:

- Subjects of payment: Adults (18 years and older) Ukrainian displaced persons residing in municipal shelters (gemeentelijke opvang) and holding temporary protection status.

- Sources of income: The contribution is charged if there is net income from work, unemployment benefits (WW-uitkering), long-term illness or disability benefits (ziektewet-uitkering).

- Income threshold: The contribution is imposed only if net income exceeds 115% of the leefgeld norm (after possible deductions) plus the contribution amount. This "115% norm" was introduced to encourage work—to avoid situations where employment leads to a complete loss of assistance. The origin of the 115% norm has not yet been established, as previously a 100% norm was used; possibly the +15% was accounted for Ukrainians personally, but this requires clarification from the Government, from which it is unlikely to obtain a substantiated response.

- Calculation: The municipality calculates the contribution based on declared income data and household composition. Refugees are obligated to report changes in income or family composition within 2 weeks of the municipality's request; otherwise, the right to leefgeld may be lost, and the full contribution may be charged. Municipalities, in accordance with RooO (articles 7 and 13), regularly request information on changes in income (e.g., from work, WW-uitkering, or ziektewet-uitkering) for calculating the contribution and leefgeld. However, municipalities do not automatically inquire about expenses, as the basic calculation is based solely on income. Expenses become relevant only for exceptions (bijzondere omstandigheden), and refugees must themselves initiate their consideration by submitting a motivated request for review of the individual contribution. This can be a significant drawback, as high expenses (e.g., for treatment, debts, or other ongoing obligations) are not considered by default, which may lead to unfairness if not declared.

- Collection: The contribution is imposed from the first day of the month following the month when income exceeded the threshold. Payment is monthly, by the 20th for the following month; in case of non-payment, the municipality sends a reminder, and then may involve collectors or a bailiff (deurwaarder).

If income is below the threshold, the contribution is not charged.

Origin and Justification of the 115% Threshold

The 115% threshold was officially introduced through amendments to the Regeling opvang ontheemden Oekraïne (RooO—Regulation on the Reception of Displaced Persons from Ukraine). These amendments were published in the Staatscourant (official government gazette) on August 28, 2025, under number 2025-29797 and came into effect on October 1, 2025. They were made by the Minister for Asylum and Migration (Minister voor Asiel en Migratie) and are part of a broader package that includes an increase in the contribution itself. Prior to this, from July 2024, the individual contribution existed, but without a clearly defined 115% threshold at the national level—municipalities could apply their own rules, leading to inequality. The new threshold unified the system across the country, based on recommendations from the Vereniging Nederlandse Gemeenten (VNG—Association of Dutch Municipalities), which emphasized the need for standardization to avoid differences between municipalities.

The justification for the 115% threshold is set out in the explanatory memorandum to the RooO amendments and in official communications from the Rijksoverheid (Dutch government). Main reasons:

- Avoiding large income gaps (inkomensverschillen): Without a threshold, people with income slightly above the leefgeld norm (financial assistance) could lose all assistance, leading to situations where working became unprofitable. The 115% threshold ensures that after partial or full deduction of the contribution and/or leefgeld, the person still has at least 115% of the base norm. This reduces "income cliffs," where crossing the threshold sharply worsens the financial situation. For example, for a single adult without meals, the leefgeld norm is €314.84, contribution €244.22; full deduction applies only if income exceeds 115% of the sum (€559.06), i.e., €642.92.

- Encouraging employment and self-sufficiency (zelfredzaamheid): The 15% threshold acts as a "work bonus" (werkbonus), making work attractive. The government refers to experience with the system for asylum seekers (asielzoekers), where similar mechanisms are already applied, to align conditions for Ukrainians with other groups. This supports integration into Dutch society and reduces the burden on the budget.

- Maintaining public support: Increasing the contribution and introducing the threshold is justified by the need to balance assistance and contributions from recipients to keep societal support sustainable. Studies from VNG and government reports (e.g., from 2023–2024) point to issues with the previous system, where the absence of a threshold led to inequality and complaints from municipalities (interestingly, complaints from Ukrainians were not considered).

- Choice of 115% specifically: This percentage is higher than the previous minimum of 100% to provide a larger "buffer" and avoid sharp losses. It is based on models similar to social assistance in the Netherlands (bijstand), where similar thresholds (e.g., 100–120%) are used to avoid poverty traps, as described in government reports on social policy.

These arguments are not based on specific empirical studies (e.g., academic), but on practical recommendations from VNG and experience from implementing the contribution since 2024, where issues with motivation to work were identified.

Exceptions and Conditions for Reducing the Contribution

Not everyone falls under full payment; there are exceptions and possibilities for reduction:

- Low income: If net income does not exceed 115% of the leefgeld norm plus the contribution, the contribution does not apply or is charged partially. Municipalities may, on a case-by-case basis, partially deduct leefgeld and partially charge the contribution, without exceeding the norm.

- Disproportionate disadvantage: The municipality has discretion not to charge the contribution or to reduce it, on a case-by-case basis, if it leads to disproportionate difficulties (bijzondere omstandigheden). For example, due to high medical expenses, debts, or other financial problems. Refugees may submit a motivated request to the municipality for exemption or reduction.

- Household composition: For families with children, the contribution is limited to the household maximum, but children under 18 do not pay.

- Other exceptions: Does not apply to asylum seekers without status or those living in private housing. Municipalities may also consider temporary income or one-time payments.

These exceptions provide flexibility and protect vulnerable groups.

Detailed Explanation of Bijzondere Omstandigheden (Special Circumstances) and How to Prove Them:

"Bijzondere omstandigheden" is an exception provided for in Article 2b of RooO, which allows the municipality not to charge the contribution or to reduce it if it leads to "disproportionate disadvantage" (onevenredig nadeel). This is a flexible tool for considering individual situations where the standard calculation is unfair.

What expenses may lead to disproportionate difficulties?

- Medical expenses: High bills for treatment, medications, or therapy, especially if not covered by insurance (e.g., dentistry or psychological help for war-traumatized individuals).

- Debts and financial problems: Accumulated debts from Ukraine or in the Netherlands, fines, or loan payments.

- Transportation expenses: Regular trips for work, study, or medical visits, if they exceed the norm.

- Educational expenses: School supplies for children, Dutch language courses, or professional training.

- Temporary expenses: One-time costs, such as repairs to items or urgent purchases for integration.

- Others: Family circumstances, such as care for sick relatives, or expenses due to injury/disability.

These expenses must be "bijzondere"—i.e., non-standard and significant, which cannot be reduced or avoided, making payment of the contribution impossible without harm to basic needs.

How to Prove and Submit?

1. Submit a request: Write a motivated letter (verzoek) to the municipality (college van burgemeester en wethouders), indicating the circumstances and why the contribution is disproportionate. Send by email or mail.

2. Evidence: Attach documents such as bills (facturen), medical certificates (medische verklaringen), bank statements (bankafschriften), proof of debts, or letters from organizations. The more evidence, the better—they must be current and relevant.

3. Review: The municipality evaluates based on the principle of evenredigheid (proportionality) under the Awb (General Administrative Law Act). They may request additional information or conduct an interview. The decision is an administrative act that can be appealed (bezwaar, then beroep).

4. Assistance: Seek free legal aid (rechtsbijstand) through the Raad voor Rechtsbijstand or organizations like the Ukrainian Legal Chamber in the Kingdom of the Netherlands for drafting the request.

If the municipality refuses, appeal within 6 weeks to the administrative court. This mechanism protects vulnerable groups but requires initiative from the refugee.

Procedure for Appealing the Amount of the Individual Contribution:

The municipality's decision on the contribution amount is an administrative act (beschikking), so it is appealed under the Algemene wet bestuursrecht (Awb—General Administrative Law Act). Procedure:

1. Bezwaar (objection): Within 6 weeks from the date of receiving the decision, submit a written objection to the body that made the decision (usually the college van burgemeester en wethouders of the municipality). The objection must be motivated: indicate why the contribution amount is incorrect (e.g., error in income calculation, failure to consider exceptions). The municipality reviews the objection within 6–12 weeks and may hold a hearing.

2. Beroep (appeal): If the objection is rejected, within 6 weeks, submit an appeal to the administrative court (rechtbank, bestuursrecht sector). Court fees (griffierecht) must be paid, but exemptions are possible for low-income individuals. The court checks the legality of the decision.

3. Hoger beroep (higher appeal): If dissatisfied—to the Raad van State (Council of State) within 6 weeks.

4. Additional support: Refugees may apply for free legal aid (rechtsbijstand) through the Raad voor Rechtsbijstand if they meet income criteria. It is recommended to consult a lawyer or organizations like the Ukrainian Legal Chamber in the Kingdom of the Netherlands.

In case of non-payment without appeal, the municipality may initiate collection through court, but appeal suspends enforcement actions.

The changes to the individual contribution from October 1, 2025, reflect a balance between supporting Ukrainian refugees and encouraging their integration into Dutch society. Although the contribution has become higher, the 115% norm and exceptions protect those with low incomes. Refugees are advised to report changes in income promptly and contact municipalities for clarifications. For detailed information, refer to the official Rijksoverheid website or local municipal regulations.