Millions of missing roses: flower smuggling from the Netherlands is draining Ukraine's budget

In 2025, 18,8 million roses were sent from the Netherlands to Ukraine, and only 10,2 million officially arrived. The difference of 8,6 million flowers disappeared without a trace, and this is not an isolated case. According to the temporary investigative commission of the Verkhovna Rada, such discrepancies have been observed for three years in a row, and budget losses amount to tens of millions of dollars due to unpaid duties and taxes.

How the fading of flowers scheme works

Flowers from the Netherlands arrive in Ukraine mainly through the Polish border or directly by air. Official documents record the full volume, but at customs posts in Kyiv and Odessa the real quantity often turns out to be less. Deputy Head of the State Customs Service Vladislav Suvorov stated during the VSK meeting that inspections revealed discrepancies in approximately 30% of deliveries. However, calculations by ZN.UA editor Yulia Samayeva show that for roses in 2025 the figure reached 46%, and for chrysanthemums — almost 70%.

Market experts explain: it is impossible to miss such a difference by chance. Flowers are a perishable product that requires special transportation conditions. A 40–50% reduction in volume could not have occurred due to natural losses or damage during transportation. Dutch suppliers record the full quantity upon shipment, while Ukrainian recipients receive significantly less. The difference settles on the domestic market without paying customs duties.

The role of customs officers and early warning signs

Back in 2023, the acting head of the customs service, Sergey Zvyagintsev, was repeatedly sent reports on anomalies in the import of flowers. The situation has not changed. During the meeting of the VSK in December 2025, the participants agreed with the figure of 30%, which was announced by Suvorov, without mentioning the data for previous years. The commission decided to intensify raids on suspicious cargo, but there was no talk of checking the customs officers themselves.

Such schemes are not new to the Ukrainian market. In 2024, customs already recorded an underestimation of the cost of flowers in 25% of deliveries. At that time, budget losses were estimated at $4,2 million in just one quarter. In 2026, according to preliminary estimates, the amount may double due to the growth in import volumes.

Economic consequences for Ukraine

The illegal flower market is undermining legal importers. Companies that pay all taxes lose 15–20% in price. According to the Ukrainian Florists Association, legal imports will decrease by 12% in 2025, while sales at the markets will increase. The budget will lose more than 180 million hryvnia in customs payments.

The state treasury also suffers additional losses due to non-payment of VAT. Each batch of roses worth $50, if fully legalized, brings in about $10 in taxes. With 8,6 million flowers gone, the amount of money lost exceeds $1,7 million in just one year.

International context and comparison

The Netherlands remains the largest exporter of flowers in the world. In 2025, the country sent more than 12 billion roses abroad. Ukraine ranks 8th among buyers. However, the share of "missing" deliveries in the Ukrainian direction is much higher than in Poland or Germany, where the differences do not exceed 5%.

European customs authorities use an automatic data reconciliation system with Dutch exporters. A similar mechanism has not yet been introduced in Ukraine. In 2026, the European Commission plans to strengthen control over exports to partner countries, and Ukraine may come under additional monitoring.

What the government plans for 2026

The Verkhovna Rada continues the work of the VSK. It is expected that by the end of the summer the commission will publish a full report with recommendations for strengthening control. The Customs Service promises to introduce electronic reconciliation of invoices with Dutch suppliers in the third quarter of 2026.

In parallel, discussions are ongoing on a new Customs Code, which may provide for tougher sanctions for facilitating smuggling. Experts emphasize that without punishment of specific officials, the problem will remain unresolved.