The European Union is demanding that Russia withdraw its troops not only from Ukraine but also from Belarus, Georgia, Armenia and Moldova’s breakaway Transnistria region as part of any comprehensive peace deal.
The proposal is outlined in an internal discussion paper distributed to EU member states by the bloc’s top diplomat, Kaja Kallas, and seen by RFE/RL. The document is set to be discussed by EU ambassadors on Tuesday, Feb. 17, and may be debated further by foreign ministers on Feb. 23.
The document sets out what Brussels believes Moscow must concede in ongoing US-mediated negotiations to end the war in Ukraine.
Ban on Russian military presence
The paper calls for a “ban of Russian military presence and deployments in Belarus, Ukraine, Republic of Moldova, Georgia and Armenia,” as well as the removal of any nuclear weapons from Belarus.
Russian forces have long been stationed in Georgia’s breakaway regions of Abkhazia and South Ossetia, in Moldova’s Transnistria, at bases in Armenia, and in Belarus, which served as a launchpad for the 2022 invasion.
The document argues that if Ukraine is asked in negotiations to limit troop levels or demilitarize certain areas, Russia should face comparable obligations.
It also rejects any “de jure” recognition of occupied Ukrainian territories and calls for their demilitarization.
EU seeks seat at the table
Neither the EU nor its member states are formally represented in the US-led negotiations.
The paper states that there can be no lasting peace “without the EU at the negotiating table” and without considering the bloc’s core security interests.
European officials have expressed frustration at being sidelined, particularly as the EU remains Ukraine’s largest financial backer and reported peace proposals include Ukrainian EU membership by 2027.
Reparations and accountability
Beyond troop withdrawals, the paper calls for reparations for war damage, no blanket amnesty for war crimes, and full access for international investigators.
It also states that Russia must comply with international law and that domestic legislation cannot override treaty obligations.
The EU has frozen roughly €210 billion ($247 billion) in Russian sovereign assets, though member states have yet to agree on full confiscation.
Ukraine’s EU path
The debate comes as President Volodymyr Zelensky has pushed for Ukraine to be technically ready for EU accession by 2027.
European Commission President Ursula von der Leyen has floated the idea of a phased or “reversed” enlargement model, under which Ukraine could join before gaining full voting and funding rights.
However, accession requires unanimous approval from all 27 member states, and several capitals remain cautious about accelerating the process.
By tying Russian troop withdrawals from Belarus, Georgia, Armenia and Transnistria to any settlement, Brussels is signaling that, in its view, a Ukraine deal must address the broader European security landscape.