On the EU position on the proposed plan and EU engagement towards a just and lasting peace for Ukraine

B100549/2025

European Parliament resolution on the EU position on the proposed plan and EU engagement towards a just and lasting peace for Ukraine

(2025/3001(RSP))

The European Parliament,

– having regard to the Charter of the United Nations, including Article 4(2) thereof,

– having regard to its previous resolutions on Ukraine,

– having regard to the 28-point plan on Ukraine authorised by the United States, which was presented to the Ukrainian authorities on 20 November 2025,

– having regard to the joint statement on the United States-Ukraine meeting of 23 November 2025,

– having regard to the counter-proposal on a peace plan for Ukraine drafted by the United Kingdom, Germany and France, which was presented on 23 November 2025,

– having regard to the diplomatic negotiations between the United States, Ukraine and European partners held in Switzerland on 23 and 24 November 2025,

– having regard to Rule 136(2) of its Rules of Procedure,

A. whereas in the fourth year of the full-scale Russian invasion, and 11 years since its illegal occupation of Crimea and parts of the Donetsk and Luhansk regions, the Russian Federation has not been able to conquer Ukraine despite its brutal methods; whereas the support provided by the free world has been sufficient to ensure Ukraine’s survival, but not enough to help Ukraine regain the territories occupied by Russia; whereas Ukraine, its army and its citizens have shown unwavering determination in successfully defending the country;

B. whereas Russia, through its aggression, has violated international law and its multilateral and bilateral commitments, including the Budapest Memorandum; whereas the efforts led by certain European capitals to freeze the conflict, including through the Minsk agreements, have yielded no results; whereas without genuine security guarantees, including those provided by the United States, peace in Ukraine is impossible;

C. whereas Russia’s neo-imperial policy has included demands concerning the European security order, as reflected in its 2021 pre-war demands, which constituted de facto blackmail against the collective West; whereas, alongside its kinetic actions, Russia is conducting cognitive warfare aimed at convincing primarily the United States, but also key European countries, that only serious security concessions to Moscow would make it possible to preserve peace in Europe; whereas any (de facto unilateral) concessions from the United States, NATO, the EU or Ukraine would serve Russia’s interests and enable Moscow to maintain tensions and pressure on Europe in order to reshape the security architecture to its advantage;

D. whereas the US administration put forward a proposal, the 28-point plan for peace, to Ukraine; whereas the United States and Ukraine engaged in talks following the release of the 28-point plan on 23 November to further discuss the proposal; whereas following the talks, both sides reaffirmed that any future agreement must fully respect Ukraine’s sovereignty and ensure a durable and just peace; whereas following the talks, both sides prepared an updated and refined peace framework that will continue to be worked on by Ukraine and the United States, in close coordination with European partners; whereas, reportedly, ‘significant changes’ have been made to the initial 28-point plan;

E. whereas the counter-proposal prepared by the United Kingdom, Germany and France provides, inter alia, that Ukraine’s military will be capped at 800 000 personnel during peacetime, that Ukraine’s ability to join NATO will depend on the consensus of all NATO members, that the United States will provide robust security guarantees that mirror NATO’s Article 5, that Russian sovereign assets will remain frozen until Russia compensates Ukraine for the damage caused, that Russian’s reintegration into the world economy will be progressive, and that negotiations on territorial swaps will start from the line of contact;

1. Recognises the central role of US President Donald Trump and the US administration in efforts towards achieving peace for Ukraine; recognises that the initial 28-point plan needs further work in order to guarantee a just, lasting and comprehensive peace for Ukraine in the face of Russian aggression; emphasises that Russia must be held accountable and responsible for its aggression against Ukraine, and that it must be adequately deterred from repeating its aggression in the future, which must be reflected in the peace solution; notes the ineffectiveness of certain sanction mechanisms and related liabilities, and calls for the inclusion of explicit and enforceable consequences for any potential non-compliance with the peace agreement;

2. Recognises the ongoing efforts of the Ukrainian and US administrations towards improving the 28-point plan, which have thus far resulted in a draft of an updated and refined peace framework; welcomes the readiness of US President Trump to preside over the body entrusted with supervising the observance and preservation of peace; supports the continued talks on a peace solution, and notes the flexibility in negotiations in the 28-point plan and the space for EU involvement within the same framework; emphasises, in this context, that the EU should work together with Ukraine and the United States towards a common proposal for peace; reaffirms that any deliberations on the future of Ukraine must be conducted with Ukraine from the outset, and that any negotiations that will have an impact on the security situation of Europe must involve the EU and its Member States; notes the repeated violations of peace and international agreements by the Russian Federation, including those concerning Ukraine; reiterates its position that any negotiations on peace can start only after an effective ceasefire has been implemented along the line of contact;

3. Recalls its position that Ukrainian territory temporarily occupied by Russia will not be recognised by the EU and its Member States; reaffirms that a peace deal must respect Ukraine’s sovereignty, independence, recognition and territorial integrity, preserving its pre-2014 borders and emphasising their legitimacy; condemns Russia’s war of aggression, emphasising that it constitutes an unlawful and impermissible way of asserting control over territory;

4. Supports the approach of peace through strength; reiterates its calls for the immediate delivery of long-overdue, previously announced and urgently needed weapons systems, such as Taurus missiles, as promised by the German leadership, in significant quantities;

5. Emphasises the necessity of real, sufficient security guarantees for Ukraine in order to prevent any future violations of Ukrainian sovereignty and avoid a repeat of Russia’s aggression; highlights the central role of the United States in guaranteeing peace; reiterates, given the current security volatility in Europe, the importance of maintaining NATO and US military presence on the eastern flank as a crucial component of the region’s stability; refuses any Russian role in negotiating the presence of NATO forces anywhere within NATO territory; emphasises that, should a just peace be reached between Ukraine and Russia, the United States, together with the EU, its Member States and like-minded partners such as the United Kingdom, Canada and Japan, will have a crucial role to play as guarantors of its implementation;

6. Underlines that a just and lasting peace between Ukraine and Russia must preserve Ukraine’s ability to defend its sovereignty, independence and territorial integrity; notes Ukraine’s right to seek and form alliances and partnerships; emphasises that the allocation of frozen Russian assets to Ukraine’s reconstruction and defence is a means of ensuring Russia is held accountable and provides financial compensation for the destruction it has caused in Ukraine; strongly reaffirms that there must be full accountability for the war crimes committed by Russia, its allies and its proxy forces against Ukraine and the Ukrainian people; demands that Russia release all prisoners of war and imprisoned Ukrainian civilians; reaffirms that all Ukrainian children abducted by Russia must be returned, and that all Russian forces must withdraw from the internationally recognised territory of Ukraine;

7. Instructs its President to forward this resolution to the Council, the Commission, the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy, the governments and parliaments of the Member States, the President, Government and Verkhovna Rada of Ukraine and the Secretary-General of the United Nations.