Switching from temporary protection to a Spanish residence permit: a complete guide to SEM 2/2026

Introduction

Can you switch from temporary protection to a residence permit without leaving Spain? Yes. Since Instruction SEM 2/2026 of 22 June 2026, people under temporary protection can apply from inside Spain for an employee permit (cuenta ajena), self-employment (cuenta propia), arraigo, the digital nomad permit or the start-up visa — as long as their protection status is still valid.

On 22 June 2026, Spain’s Secretary of State for Migration signed Instruction SEM 2/2026 — an official document that changes the rules of the game for more than 262,000 Ukrainians living in the country under temporary protection. Until then, lawyers and gestores (admin agents) had spent years answering the same question: “Can I switch from temporary protection to a standard residence permit without leaving Spain?” — and the answer was invariably “no” or “unclear”.

Now the answer has officially changed. Temporary protection is no longer a dead end. It has become a platform for switching — provided you know the rules and do not put off the switch. The EU has extended protection until 4 March 2028, but the extra year is deceptive: you can switch to another permit without leaving Spain only while your status is valid, each extension is decided separately, and the latest one already came with new conditions.

This article is a comprehensive legal analysis of SEM 2/2026: from the legal framework to a step-by-step switching procedure for every life situation.

Section I. The legal framework: what the new procedure rests on

1.1 The European foundation

Temporary protection in Spain was introduced on the basis of Directive 2001/55/CE and activated by EU Council Implementing Decision (UE) 2022/382 of 4 March 2022. In Spain it is governed by RD 1325/2003 and Orden PCM/169/2022. According to the latest Eurostat data (March 2026), a total of 4.33 million Ukrainians held temporary protection status in the EU.

Extended until 4 March 2028. By Council Implementing Decision (EU) 2026/1912 of 30 July 2026, temporary protection was extended for another year — until 4 March 2028 (art. 1). The extension applies from 5 March 2027, straight after the previous term ends (art. 3). In the same decision the Council urges member states to speed up the move of beneficiaries to other statuses (recital 21): extensions will not go on for ever.

The TIE card. Spain has not yet adopted an act extending the cards to 2028. The rule in force is Orden INT/96/2026 of 12 February 2026: it automatically extended the validity of TIE cards issued under temporary protection until 4 March 2027, with no need to obtain a new card. In 2025 and 2026 such Interior Ministry orders were issued in February, before the current term ran out.

A new condition: military obligations. Article 2 of the same decision introduces a filter for new applicants: temporary protection is granted only to those who have fulfilled their military obligations to Ukraine, with proof where required. The article applies from 5 August 2026 (art. 3 as amended by the corrigendum of 5 August 2026; the original text said 31 July). Proof is a lawful exit from Ukraine, such as an exit stamp in the passport. If the lawfulness of the exit cannot be confirmed, the applicant must provide an official document, on paper or electronic (including from the Reserv+ app), confirming fulfilment of or exemption from military obligations (recital 18). Obligations may also apply to people not subject to conscription, regardless of age or gender (recital 20).

The condition does not apply to those who held protection in an EU country on or before 4 August 2026 and keep it in that same country without interruption (art. 2, second paragraph, as corrected; the original text said 30 July). The practical takeaway for anyone preparing to switch: renouncing protection or moving with it to another EU country interrupts the status, and any new application will follow the new rules.

1.2 Spanish changes in 2026

On 15 April 2026 the BOE published Real Decreto 316/2026, which rewrote Disposición Adicional 19ª (Additional Provision 19) of the Regulation implementing LO 4/2000. By then the Regulation itself had already been rewritten in full — what exactly changed in it is covered in our overview of the new immigration regulation. The new wording is fundamentally different: beneficiaries of Decision 2022/382 may now apply for any stay and residence permits whose procedure can be initiated from within Spain.

1.3 SEM 2/2026 as guidance on application

On 22 June 2026, Secretary of State for Migration Pilar Cancela Rodríguez signed Instruction SEM 2/2026. The document does not introduce new rights — it explains exactly how to apply Disposición Adicional 19ª: which specific types of residence permit are available, how periods are counted, what happens to children and how to correctly renounce temporary protection.

The key legal mechanism on which the whole logic of the instruction is built is the principle of lex specialis derogat legi generali — the special rule (DA 19ª) takes precedence over the restrictions of the general rule (arts. 191.7 and 126.h of the Regulation).

Section II. Why switching used to be impossible

Until April 2026, Extranjería (the immigration office) everywhere refused to accept applications for modification, arraigo and residence under Law 14/2013 from people with temporary protection. The reason was the letter of the law: article 191.7 of the Regulation expressly excluded displaced persons from the modification procedure, and article 126.h) prohibited applying for arraigo by those who already held a valid stay permit.

This meant that officially you could only switch by leaving the country and obtaining a new visa at a consulate — which contradicted the practical reality of most families and created a legal trap.

RD 316/2026 and SEM 2/2026 removed both barriers at once, expressly stating that DA 19ª is an exception to both prohibitions.

Section III. What “modification” means under SEM 2/2026

It is important to understand that this is not an automatic swap of one card for another. Technically it is a new application for the relevant type of residence permit with a full set of documents, which can now be filed while in Spain and while keeping temporary protection status.

Temporary protection itself does not end when the application is filed — it runs in parallel until a decision is received. Only after the new residence permit is approved must the person formally renounce PT (temporary protection). This is a crucial nuance: you are protected by your status until the very end of the procedure.

Section IV. General conditions for switching

Regardless of the type of residence permit chosen, several basic conditions must be met to switch:[^1][5]

• A valid TIE issued under temporary protection (concedida al amparo Decisión 2022/382)
• Being in Spain at the time of application
• Staying within the limit on absences set for the specific type of residence permit applied for
• No serious breaches of public order or criminal convictions preventing a residence permit
• Meeting the substantive requirements of the specific route

Section V. Option 1 — Switching to an employee work permit (Cuenta Ajena)

5.1 Legal basis

SEM 2/2026 (Instruction One) expressly allows PT beneficiaries to apply for a modificación de autorización to residencia y trabajo (residence and work) under article 191 of the Regulation. The restriction in para. 7 of the same article does not apply.

5.2 Requirements for cuenta ajena

• An employment contract with a Spanish employer (indefinido, i.e. permanent, or a plazo, fixed-term, of sufficient length)
• A salary not below the set threshold (usually tied to the minimum interprofessional wage — SMI)
• The occupation stated in the contract must correspond to the Catálogo de Ocupaciones de Difícil Cobertura (shortage occupation list) or general labour market conditions
• In most cases the employer takes part in the procedure (files the solicitud or provides documents)

5.3 Validity of the residence permit

The term depends on how long you have lived in Spain (art. 191 of RD 1155/2024). Less than a year — the permit is issued for 1 year and all the employer requirements are checked (art. 74). At least a year with a permit that already allowed you to work — the requirements are those of a renewal (art. 80), and the permit is issued for 4 years.

5.4 Who it suits

Those who are already working under an employment contract in Spain. Employers hiring Ukrainians with temporary protection can now also initiate the modification on behalf of their employee — without waiting for the protection period to run out.

Section VI. Option 2 — Switching to a self-employment/autónomo permit (Cuenta Propia)

6.1 Legal basis

Under the same Instruction One of SEM 2/2026, the same conditions of article 191 apply to residencia y trabajo por cuenta propia (self-employment). The prohibition in para. 7 of art. 191 is lifted here too.

6.2 Requirements for cuenta propia

• Registration as an autónomo (RETA) or setting up an SL with proven commercial activity
• Planned or actual economic activity whose viability must be justified
• Income sufficient to live on (usually not below the SMI)
• For some activities — professional licences or registration with a professional association

How this status works day to day — contributions, reporting and the difference from an SL — is described in our breakdown of cuenta propia and the overview of autónomo in Spain.

6.3 Practical switching formats

• A freelancer already working with clients under PT → becomes an autónomo and applies for cuenta propia
• A small business owner → registers an SL and, if necessary, becomes an autónomo-sueldo (salaried company director)
• An online entrepreneur with income → cuenta propia or digital nomad (see Option 4)

Worth bearing in mind: registering as an autónomo creates an obligation to pay the cuota (social security contribution) from day one. The switching plan should be aligned with tax planning while the documents are still being prepared.

Section VII. Option 3 — Switching through the various types of arraigo

7.1 What SEM 2/2026 changed for arraigo

Until 2026, people with temporary protection could not apply for arraigo: article 126.h) bars applications from anyone holding a valid permit. The Ministry’s instruction SEM 2/2026 of 22 June 2026 (section SEGUNDA) excludes art. 126.h) for temporary protection beneficiaries and establishes that the entire period under temporary protection counts towards the two-year stay required for arraigo under art. 126.b).

This means that Ukrainians who arrived in March 2022 already have more than enough time in Spain for most types of arraigo. All five types and their conditions are covered in our guide to residence through settlement in Spain.

7.2 Arraigo social

Main requirements:

• 2 years of continuous stay in Spain (time under temporary protection counts in full); absences of no more than 90 days in total
• No criminal record in Spain or in the countries where you lived for 5 years before arriving
• Either relatives holding permits in Spain (spouse, registered partner, parents or children) and means of at least 100% of IPREM, or a social integration report (informe de integración social) from the autonomous community or town hall

An employment contract is not required for arraigo social — this route is for those with family in Spain or who can prove integration.

7.3 Arraigo sociolaboral

It suits those who have an employer: you need a signed employment contract (or several) for at least 20 hours a week at no less than the minimum wage in proportion to the hours; fixed-term contracts must add up to more than 90 days. Past work, including informal work, is not required and does not by itself give grounds.

7.4 Arraigo socioformativo

For those who study. For holders of temporary protection, Instruction SEM 2/2026 (Cuarta) does not apply article 127.d of the regulation to socioformativo — the article that requires an integration report and an eligible programme: it is enough to prove studies under article 52.1.

This route is covered separately, with the requirements for programmes and timelines: arraigo socioformativo.

7.5 Arraigo familiar and de segunda oportunidad

• Arraigo familiar — for parents or guardians of a minor who is a national of another EU/EEA country or Switzerland, and for a relative supporting an EU citizen with a disability; parents of Spanish children get a separate permit for relatives of Spanish citizens
• Arraigo de segunda oportunidad (second chance) — for those who held an ordinary permit in the last two years that was not renewed for reasons unrelated to public order

Section VIII. Option 4 — Switching to residence under Law 14/2013 (DNV, startup visa and others)

8.1 What Ley 14/2013 offers PT beneficiaries

Instruction Five of SEM 2/2026 covers all residence permits under Ley 14/2013 de apoyo a los emprendedores (the Entrepreneurs Law) that allow applications from within Spain. Before RD 316/2026 these statuses had to be processed at a consulate in the country of origin or previous residence — which in effect excluded most PT beneficiaries.

8.2 Digital Nomad Visa

One of the most sought-after statuses for online entrepreneurs and freelancers:

• Carrying out professional or business activity using remote technology for clients and companies mainly outside Spain
• Minimum income — 200% of the SMI (with additional thresholds for family members)
• No criminal record, health insurance, clean tax status
• When applied for from Spain, the permit is issued for up to 3 years and renewed for two-year periods (art. 74 quinquies of Law 14/2013)

A special bonus for PT beneficiaries: having already lived in Spain for several years, they understand the tax system better, are often already registered as autónomos and are ready for the procedure.

8.3 Startup visa (Ley Startup)

For entrepreneurs building an innovative business with a scalable model:

• The project must be approved as innovative by ENISA (or another authorised body)
• The permit is issued for 3 years and renewed for 2 (art. 69 of Ley 14/2013 as amended by the Startups Law 28/2022)

Renewal here is not a formality: ENISA assesses whether the project is carrying on real activity, and if it is not, it is wiser not to renew but to switch to another status — both paths are covered in the article on renewing a startup visa and changing the type of residence permit.

8.4 Altamente cualificados (highly qualified) and other statuses

Highly qualified professionals, executives of multinational companies, investors — all of them can now also apply from within Spain without leaving the country.

Section IX. Children and family members

9.1 Children born in Spain

SEM 2/2026 (Instruction Three) establishes that article 159 of the Regulation applies to children born in Spain to parents with PT. A crucial nuance: the six-month deadline for applying for the child’s residence starts running only from the moment the parent switches to another type of residence permit — not earlier. This means there is no need to rush the child’s paperwork until the parent’s switch is complete.

9.2 Children arriving from abroad and dependent minors

For children not born in Spain, article 160 of the Regulation (reagrupación familiar, family reunification) applies. The key concessions SEM 2/2026 grants to this category:

• Exemption from the requirement of two years’ prior residence
• Exemption from the requirement to prove financial means
• Exemption from the requirement to have suitable housing

Important: an application for the child’s residence permit can be filed even before the parent has received the new residence permit — this is expressly allowed by Instruction Three.

9.3 Switching for family members of a Spanish citizen

Instruction Five expressly mentions as an available option residencia temporal de familiares de personas con nacionalidad española (temporary residence for family members of Spanish nationals). The general procedure set out in chapter VII of title IV of the Regulation applies.

Section X. Residence time for Larga Duración: how years of temporary protection count towards permanent residence

10.1 Before SEM 2/2026: legal uncertainty

Whether years under temporary protection count towards the five-year period for Larga Duración (long-term residence) remained a matter of dispute for a long time. Some advisers said no; there was no official guidance.

10.2 The position of SEM 2/2026 (Instruction Six)

The document gives a definitive answer:

The entire period of stay under temporary protection counts towards the five-year period of continuous legal residence required for national long-term residence (larga duración nacional). The instruction says nothing about the EU version (larga duración-UE).

If a person has switched to another type of residence permit, both periods are added together. That is: 3 years of PT + 2 years of cuenta propia = 5 years → entitlement to Larga Duración.

10.3 The maths for those who arrived in 2022

A Ukrainian who received protection in March 2022 will have more than 4 years of legal stay by June 2026. Less than a year remains until the 5-year threshold for permanent residence. With a smooth switch to another type of residence permit — without gaps — they can reach Larga Duración even before the protection itself expires on 4 March 2028.

Those who arrived later also benefit: time under PT does not “burn out” but accumulates.

Section XI. The procedure for renouncing temporary protection

11.1 Why dual status is impossible

SEM 2/2026 (Instruction Seven) establishes that after receiving a new residence permit, a PT beneficiary must file a formal renunciation of temporary protection. Legal basis: art. 24.1.d) of RD 1325/2003 and art. 9 of Orden PCM/169/2022.

11.2 How to renounce, step by step

1. Receive the resolución approving the new residence permit
2. Apply to the competent authority (usually the Brigada Provincial de Extranjería or the authority that issued the PT) with a request for renuncia expresa (express renunciation)
3. Obtain a resguardo (receipt) confirming the renunciation request was filed
4. Present this receipt when collecting the new TIE under the main residence permit

Critically important: the renunciation is filed after the new residence permit is approved, not before. Filing it earlier means voluntarily giving up protection without any guarantee of getting a new status.

Section XII. Risks and common mistakes

12.1 Expecting an “automatic card swap”

There is nothing automatic about it. Switching requires active steps: choosing a route, gathering documents, filing an application and going through the procedure. Those who expect the state to offer a “package” of its own accord risk finding themselves in limbo when protection ends. That date is now 4 March 2028, but it rests on yearly decisions of the EU Council, not on a guarantee.

12.2 Starting preparation late

At the end of March 2026, 262,830 people held temporary protection. If even a third of them start working on switching at the same time in the last months before protection ends — now early 2028 — Extranjería will be overloaded: processing times will grow and appointments will be booked up months ahead.

12.3 Breaking the continuity of stay

Long absences from Spain can undermine the residence period for arraigo or Larga Duración. When preparing to switch, check well in advance whether your travel history fits within the limits allowed for the chosen route.

12.4 Family members’ statuses out of sync

If your spouse or children have different periods of stay and different statuses, the switch needs to be planned for everyone at once; otherwise one successful switch can create problems for other family members.

12.5 Choosing the wrong route

Applying for arraigo without sufficient integration time, without a contrato or proyecto de actividad, is a common mistake that leads to refusal and lost time. Choosing a route requires analysing the specific situation, not following “popular advice from the internet”.

Section XIII. How to choose the best route: comparison table

Type of residence permit	Key condition	Preparation time	When to start
Cuenta ajena	Employment contract	1–3 months	Now, if you have a contract
Cuenta propia / autónomo	Registration + income	2–4 months	Immediately
Arraigo social	2 years + family with permits and income, or informe	3–6 months	Immediately
Arraigo socioformativo	Training + 2 years of residence	3–4 months	Immediately
DNV (digital nomad)	Remote income from foreign clients	2–4 months	Immediately
Startup visa	Innovative project + ENISA approval	4–8 months	Immediately
Residence permit for a family member of a Spanish citizen	Family tie	2–4 months	Depends on the situation

Section XIV. Practical document checklists

Universal package for any switch

• A valid international passport + copies of all pages
• A valid TIE under temporary protection + a copy
• Empadronamiento (municipal registration) — an up-to-date Volante (certificate)
• Criminal record certificate from Spain (Registro Central de Penados) and from the country of origin
• Proof of stay: evidence of continuous presence in Spain (empadronamiento records, medical visits, bank statements, etc.)

Additionally for cuenta ajena

• Employment contract (contrato de trabajo) with the employer
• The employer’s viability: a Seguridad Social extract, Modelo 200/202 for the last year
• Employer’s documents: CIF (tax ID), escritura de constitución (articles of incorporation), latest cotizaciones (contribution records)

Additionally for cuenta propia / autónomo

• Certificate of registration with RETA or escritura de constitución of the SL
• Alta en Hacienda (Modelo 036/037)
• Objet social / descripción de actividad
• Business plan (memoria explicativa) with an income forecast
• Documents proving you have clients or contracts

Additionally for arraigo social

• Documents on relatives holding permits and means of at least 100% of IPREM or an informe de integración social (from the autonomous community or town hall)
• Proof of the residence period (2 years): empadronamiento, medical records, children’s school documents, etc.

Additionally for DNV

• Contrato con empresa extranjera (contract with a foreign company) or documents proving income from foreign clients
• Proof of income: account statements, invoices, tax returns
• Health insurance covering Spain

Section XV. Frequently asked questions (FAQ)

Can I return to temporary protection if my residence permit is refused?
Yes — until a formal renuncia is filed, PT status remains valid. A refusal of the residence permit does not automatically end temporary protection.

Can I apply on several routes in parallel?
Not recommended: each application is a separate procedure, and parallel applications can create legal conflicts. The best approach is to choose one route after consulting a lawyer.

How are absences counted when preparing for arraigo or Larga Duración?
For arraigo: two years of continuous stay, with absences of no more than 90 days in total (Ministry instruction SEM 1/2025). For Larga Duración: no more than 6 months in a row and no more than 10 months in total over the five-year period, unless special routes provide otherwise.

What happens to the right to work while the application is pending?
While temporary protection is valid, the right to work is retained. If the new residence permit also carries this right, the continuity of employment is not at risk.

Do I need an apostille on a criminal record certificate from Ukraine?
Yes, legalisation (an apostille) and a certified translation into Spanish are normally required. Given the current situation in Ukraine, obtaining this document is one of the most sensitive stages and needs to be planned well in advance.

Will the residence permit be issued for 2 years if I already have 3+ years of protection?
The term of the new residence permit is determined by the conditions of the specific permit (for example, cuenta propia — 1 year for the first permit, 4 years once renewed; arraigo social — 1 year; a digital nomad permit obtained in Spain — up to 3 years). The length of the previous status does not directly affect the term of the new permit — but it does count towards the accumulated residence period for Larga Duración.

Conclusion: acting now means staying in control of your situation

SEM 2/2026 is not just a technical document. It is a real window of opportunity that the Spanish state has opened for hundreds of thousands of people who fled the war and have integrated into Spanish society.

Temporary protection, which only a year ago seemed like a “ceiling”, is today a starting point for obtaining full residence and, eventually, permanent residence.

But this window will not stay open for ever: protection has been extended until 4 March 2028, but extensions are decided one year at a time, the EU Council is already urging a faster move to other statuses, and Extranjería is an administrative body with limited capacity. Those who start the process today will choose their status calmly, gather documents without stress and come out of the transition period with the right TIE in hand.[^4][10]

Those who wait until the last months before protection ends risk joining the queue together with all the other 262,000+ people — and losing not only time but also the continuity of their residence period for permanent residence.

This article is for information only and is based on official Spanish legal documents: Real Decreto 316/2026, Instrucción SEM 2/2026 of 22.06.2026, Disposición Adicional 19ª to the Reglamento LO 4/2000, Council Implementing Decision (EU) 2026/1912 and Orden INT/96/2026. Every case is individual: the details, timelines and set of documents depend on the specific situation. To develop a personal switching strategy, it is advisable to get an individual consultation with a specialist.

References

1. Instrucciones – Migraciones – Instrucciones SEM 1/2026 sobre la transición desde el estatus de persona beneficiaria de una autoriz…
2. SEM 2/2026 
3. Council Implementing Decision (EU) 2026/1912 of 30 July 2026 and its corrigendum (OJ, 5.8.2026)
4. Orden INT/96/2026 of 12 February — extension of TIE validity (BOE)