Reuters has seen the text of proposals on how to end Russia’s war in Ukraine, submitted by US envoy Steve Witkoff to European officials at talks in Paris on the 17th of April, as well as the text of proposals submitted to the US side by Ukrainian and European officials at talks in London on Wednesday.
The proposals reveal US President Donald Trump’s efforts to end the war quickly and also reveal how “virtual diplomacy” is taking place.
While some differences have already been revealed by sources close to the talks, the documents seen by Reuters set out the differences in full detail for the first time.
THE MAIN DIFFERENCES IN THE TWO TEXTS ARE OVER THE SEQUENCE IN WHICH THE ISSUES OF TERRITORY, THE LIFTING OF SANCTIONS ON RUSSIA, SECURITY GUARANTEES AND THE SIZE AND CAPABILITIES OF THE UKRAINIAN ARMED FORCES WILL BE ADDRESSED.
The text, which was handed over by Witkoff to European officials in Paris and in turn to the Ukrainians, was described by US Secretary of State Marco Rubio as a “broad framework” for defining the differences between the parties. A second text was drafted a week later during talks between Ukrainian and European officials in London and passed to the American side, the sources said.
On territory, the Witkoff proposals provide for de jure US recognition of Crimea as Russian territory, as well as de facto recognition of Russian control over Luhansk and the Russian-controlled parts of Zaporizhzhia, Donetsk and Kherson oblasts. While Ukraine regains territory in the Kharkiv region.
In contrast, the Europe-Ukraine document postpones detailed discussions on territory until after the ceasefire and does not mention that Russian control over any Ukrainian territory is recognised.
Both documents state that Ukraine, with US involvement, is regaining control of the Zaporizhzhia nuclear power plant as well as the Kakhovka dam, is able to pass the Dnipro unhindered and is gaining control of the Kinburn spit.
As regards Ukraine’s long-term security, the Witkoff document states that Ukraine will have “strong security guarantees” and that European and other friendly countries will be able to maintain security guarantees. The document does not give details on this issue, but it does say that Kyiv will not seek to join NATO. However, Ukraine can seek EU membership if it so wishes.
The EU-Ukraine document is more specific, stating that no restrictions will be imposed on Ukrainian forces and that Ukraine’s allies will be able to deploy their armed forces on Ukrainian territory for security guarantees – a provision that is likely to irk Moscow. The document points out that Ukraine continues on its path towards the EU while there is no consensus among allies on NATO membership.
It proposes strong security guarantees for Kyiv, including from the US, through an “Article 5-like agreement”, a reference to NATO’s mutual defence clause.
On economic measures, the Witkoff proposals state that the agreement under discussion will lift sanctions that have been in place against Russia since its annexation of Crimea in 2014.
The counter-proposals state that sanctions will be “gradually eased after a sustainable peace has been achieved” and that sanctions can be reinstated if Russia violates the terms of the peace agreement.
The Europe-Ukraine paper also proposes that Ukraine receives financial compensation for war damage from frozen Russian assets abroad. The Witkoff text says only that Ukraine will receive financial compensation, without specifying the source of the money.
President Volodymyr Zelenskyy said on Thursday that he believed that the document with the proposals, which was drafted during talks in London on Wednesday, was now on Trump’s desk.
The diplomacy is the most concerted effort to stop hostilities since Russia invaded in the early months of February 2022.