Ukrainian and European representatives reportedly presented the United States with a proposal to end the war in Ukraine during multilateral talks in London on April 23. The Telegraph reported on April 25 that the Ukrainian-European proposal contained five points about territory, security guarantees, negotiations, refusing Russian sovereignty over occupied Crimea, and the Ukrainian military and defense industrial base (DIB). Reuters published the full text of the terms that Ukrainian and European officials reportedly developed in response to the US seven-point peace plan on April 25. The proposal as presented by Reuters calls for a full, unconditional air, sea, and land ceasefire concurrently with immediate technical negotiations to implement the ceasefire, involving the United States and European countries; United States-led ceasefire monitoring with support from third countries; robust Ukrainian security guarantees absent Ukraine’s NATO accession; and for Russia to unconditionally return illegally deported Ukrainian children and detained Ukrainian civilians as well as engage in an "all-for-all" prisoner of war (POW) exchange. The proposal reportedly rejects restrictions on the Ukrainian military, calls for an ad hoc group of European states and willing non-European countries to guarantee Ukraine's security, and rejects restrictions on the deployment of any friendly forces to Ukraine.
The Ukrainian-European proposal states that Russia and Ukraine will negotiate territorial issues only after the implementation of a full and unconditional ceasefire and that these negotiations will use the current frontline as a starting framework. The Ukrainian-European proposal would reportedly provide Ukraine with "unhindered access" to the Dnipro River and control of the Kinburn Spit and Kakhovka Dam. The proposal reportedly calls for Ukraine to regain control over the occupied Zaporizhzhia Nuclear Power Plant (ZNPP) "with US involvement." The Ukrainian-European proposal also reportedly states that Ukraine’s partners will work toward a consensus on NATO membership, and that Ukraine will pursue joining the European Union (EU).
The Ukrainian-European proposal reportedly calls for the United States and Ukraine to implement the US-Ukraine minerals deal and economic cooperation agreement. The proposal states that US sanctions on Russia may be subject to "gradual easing" if a sustainable peace is achieved and may resume if Russia violates a peace agreement. The proposal reportedly calls for Ukraine’s full reconstruction and financial compensation, including using frozen Russian assets.
Reuters also published the full text of the seven-point peace proposal that US Special Envoy for the Middle East Steve Witkoff reportedly presented to Ukrainian and European officials in Paris on April 17, supporting earlier reporting about the US peace proposal. Reuters reported that the US plan demands an immediate ceasefire and direct technical negotiations between Russia and Ukraine. The US plan reportedly provides Ukraine with strong security guarantees from a coalition of European and willing non-European states but also calls for Ukraine to abandon efforts to join NATO while maintaining the option to pursue European Union (EU) membership. The US plan reportedly includes "de jure" US recognition of Russian control over occupied Crimea and de facto recognition of Russian control of Luhansk Oblast and parts of occupied Zaporizhia, Donetsk, and Kherson Oblasts. The recognition of de jure Russian sovereignty over Crimea or any other areas of Ukraine under occupation since 2014 would constitute a significant concession to Russia that should be balanced by a significant Russian concession in return.
The US plan reportedly stipulates that Ukraine will regain territory in Kharkiv Oblast and the Zaporizhia Nuclear Power Plant (ZNPP), which the United States would operate and which would supply electricity to both Russia and Ukraine. The proposed US plan would return the Kakhovka Dam and Kinburn Spit to Ukraine and guarantee Ukrainian passage on the Dnipro River. The US plan reportedly states that Ukraine and the United States will implement a mineral deal and economic partnership agreement, calls for Ukraine's full reconstruction, and offers financial compensation to Ukraine, but does not specify the funding source. The US proposal reportedly calls for lifting sanctions imposed on Russia since 2014 and resuming US-Russian economic cooperation in the energy and industrial sectors.
The newly published Reuters document supports and clarifies earlier reporting by Axios and The Telegraph of the US seven-point proposal to Ukraine, but some details remain unclear. The Reuters document affirms core details, such as territorial arrangements, Ukraine's non-accession to NATO, and the US-run operation of the ZNPP. The report also clarifies that Ukraine would regain control of the Kinburn Spit, the small part of Mykolaiv Oblast that Russia currently occupies, and the Kakhovka Dam, which spans between occupied and unoccupied Kherson Oblast. The Reuters document does not address Sumy Oblast, where Russian forces recently began conducting offensive operations, or how the United States and Ukraine would gain access to the ZNPP, given that the Kakhovka Reservoir and Dnipro River are natural barriers between current Ukrainian positions and the ZNPP. Russian forces would have to partially withdraw from either east (left) bank Kherson Oblast or permit a land bridge across the Kakhovka Reservoir under the US plan, but neither option inherently provides the strategic depth Ukraine would need to defend the ZNPP against further Russian aggression, as ISW has recently reported.
Key Takeaways:
- Ukrainian and European representatives reportedly presented the United States with a proposal to end the war in Ukraine during the multilateral talks in London on April 23.
- Reuters also published the full text of the seven-point peace proposal that US Special Envoy for the Middle East Steve Witkoff reportedly presented to Ukrainian and European officials in Paris on April 17, supporting earlier reporting about the US peace proposal.
- US Special Envoy to the Middle East Steve Witkoff met with Russian President Vladimir Putin in Moscow on April 25, reportedly to secure a major Russian concession in a future peace deal.
- That the Kremlin is not formally demanding that Ukraine cede most or all of its territory to Russia at this time is not a significant Russian concession, however.
- Russian officials continue to intensify narratives used to justify Russia's invasion of Ukraine in order to set conditions to justify future Russian aggression against European states and control European defense policy in the Kremlin's reflexive control campaign.
- Unknown actors assassinated the deputy head of the Russian General Staff's Main Operational Directorate, Lieutenant General Yaroslav Moskalik, in Balashikha, Moscow Oblast, on April 25.
- Ukrainian forces recently advanced in western Zaporizhia Oblast. Russian forces recently advanced in Sumy and Kursk oblasts and near Pokrovsk.
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