EU leaders push back on U.S. peace plan shaped by Russian contact, reject army cap for Ukraine
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Macron, von der Leyen, Costa, Starmer, Merz and Takaichi in Johannesburg, Nov. 22, 2025 (Photo: HENRY NICHOLLS/Pool via REUTERS)
European leaders have proposed key revisions to a
controversial U.S.-backed peace plan for Ukraine that has drawn sharp criticism
for including potential limits on Ukraine’s military and major territorial
concessions, The
Washington Post reported on Nov. 22, citing a copy of the document.
The plan — which multiple sources say was initially drafted
with input from Russian sovereign wealth fund chief Kirill Dmitriev and later
championed by Trump special envoy Steve Witkoff — has triggered concern across
Europe and in Kyiv. Witkoff has reportedly been urging quick acceptance of the
plan, which he presented as a Trump-endorsed framework for ending the war.
In response, European leaders prepared a counterproposal
rejecting any restrictions on the Armed Forces of Ukraine. According to the Post,
the revised draft also demands the return of the Zaporizhzhya Nuclear Power
Plant and the Kakhovka Dam to Ukrainian control, guarantees “free passage”
along the Dnipro River, and restores Ukrainian control over the Kinburn Spit.
The proposal states that any other territorial disputes
should be resolved only after a ceasefire is in place.
Senior EU officials — including representatives from France,
Germany, and the United Kingdom — are expected to attend peace negotiations in
Geneva on Nov. 23.
On Nov. 22, during the G20 summit in Johannesburg, more than
10 European leaders prepared their counterproposal and described the
Trump-circulated plan as a “basis that requires additional work.”
French President Emmanuel Macron and German Chancellor
Friedrich Merz were among the leaders who signed a joint statement warning that
the proposed military restrictions “would leave Ukraine vulnerable to future
attacks.”
Earlier, Bild reported that European leaders opposed at least
four core provisions of the peace plan reportedly developed under U.S.
coordination. According to the outlet, European governments reject any
requirement that Ukraine cede territory in Donbas or Crimea to Russia or reduce
the size of its military. The report also said Merz planned to tell Trump
representatives that any “security guarantees” from Russia “may not be worth
the paper they are written on.”
On Nov. 21, British Prime Minister Keir Starmer, Macron, and
Merz expressed support for Ukraine after discussing the U.S.-backed plan with
President Volodymyr Zelenskyy.
Russia’s 28-point “peace plan”
On Nov. 20, Zelenskyy was handed a 28‑point draft peace plan
developed under the direction of Witkoff. According to multiple reports, the document
was based in part on proposals from Dmitriev, the Kremlin-aligned head of
Russia’s Direct Investment Fund, who met with Witkoff in Miami in late October.
U.S. officials insist the plan reflects American interests, though its origins
have raised questions among lawmakers and allies.
According to Axios, the plan calls for Ukraine to give up
non-occupied areas of Donetsk Oblast, reduce the size of its armed forces to
600,000 troops, freeze the front line in Zaporizhzhya and Kherson oblasts, lift
sanctions on Russia, and accept NATO-style collective security guarantees. It
also proposes distributing frozen Russian assets and forming a so-called “Peace
Council.”
On Nov. 21, Zelenskyy told Ukrainians that the country is
under intense pressure and may soon face a difficult choice: “to lose dignity
or to lose a key partner.” He vowed to propose alternatives and ensure that
Ukraine’s national interests are reflected in any final deal.
Trump has told advisers he wants Zelenskyy to agree to the
deal by Thanksgiving — Nov. 27. Reuters reported that U.S. officials warned
Kyiv that intelligence and weapons deliveries could be suspended if it refuses
to support the plan. A senior official later disputed that characterization,
saying intelligence support would not be cut off.
Russian dictator Vladimir Putin claimed he had also received
the plan via channels with the U.S. administration and described it as
“modernized after Alaska.”
According to Bloomberg, several of Ukraine’s closest
European allies rejected key elements of the draft after speaking directly with
Zelenskyy. EU officials reportedly view the proposal as a path to Ukrainian
capitulation and are working on a competing support framework.
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