Moscow has indicated that European governments will not participate in the next round of negotiations over the war in Ukraine, despite their central role in financing Kyiv, supplying military assistance and shaping the continent’s security arrangements. The Kremlin’s position raises questions about whether any agreement negotiated principally by Washington, Moscow and Kyiv could be implemented without substantial European involvement.

Russia has ruled out European participation in the next round of trilateral talks with Ukraine and the United States, while suggesting that the negotiations could be delayed by developments on the battlefield and the continuing conflict in the Middle East.

Yuri Ushakov, foreign policy adviser to Russian President Vladimir Putin, said on 29 October that Moscow had not agreed to a specific date for further consultations and that European representatives were not being considered for inclusion.

Ushakov maintained that preparations concerned representatives of Russia, Ukraine and the United States.

His remarks followed statements by Ukrainian President Volodymyr Zelensky indicating that the next round could take place in Abu Dhabi between 6 and 10 November.

The Kremlin has not confirmed those dates.

The disagreement comes as European governments seek a more substantial role in diplomatic efforts concerning a conflict whose eventual settlement would have direct consequences for their security, defence expenditure and relations with Russia.

Moscow Sets Its Conditions

Ushakov’s position was particularly explicit when discussing European participation.

Speaking to Russian media on 28 October, he suggested that European representatives were free to travel to the proposed venue but would not be invited to join the negotiations.

His remarks were subsequently reinforced by a statement that European involvement was not under consideration.

The Kremlin adviser also linked the timing of the next meeting to developments in the Middle East, where the US-Israeli conflict with Iran has complicated Washington’s diplomatic and military priorities.

Ushakov said that conditions on the Ukrainian battlefield would also influence when negotiations could resume.

These explanations give Moscow considerable latitude over the timetable while leaving uncertainty about the practical arrangements for the next meeting.

They do not, however, establish that Washington and Kyiv have accepted Russia’s preferred arrangements for every subsequent stage of negotiations.

Technical consultations between three parties and broader discussions over a European security settlement are not necessarily the same diplomatic process.

Europe Wants a Place at the Table

The Russian position contrasts with statements from the leaders of Britain, France and Germany, who have maintained that European governments must participate in discussions concerning Ukraine’s future security.

Their argument rests partly on the responsibilities that European countries would be expected to assume after any agreement.

European states have provided substantial financial, military and humanitarian assistance to Ukraine since Russia launched its full-scale invasion in February 2022.

They have also introduced successive sanctions against Russia, expanded defence expenditure and debated arrangements for security guarantees intended to discourage renewed hostilities.

Any settlement that required changes to European sanctions, military deployments or financial assistance would therefore depend on decisions taken by European governments and institutions.

Neither Moscow nor Washington could independently commit the European Union to lifting sanctions or authorise European states to deploy forces.

This distinction limits the practical significance of excluding European officials from a negotiating session.

An agreement could be discussed without European participation, but implementing provisions that require European action would demand further negotiations.

The Donbas Question Remains Unresolved

The principal obstacle continues to concern territory and the conditions under which military operations would end.

Russia has maintained its demand that Ukraine relinquish territory in the eastern Donbas region, including areas remaining under Ukrainian control.

Kyiv has rejected the surrender of territory as a precondition for ending the war.

The proposed negotiations are consequently expected to concentrate on technical issues where limited agreements may be more achievable.

These include possible arrangements concerning energy infrastructure, maritime security, the exchange of prisoners and the return of Ukrainian children taken to Russia or Russian-controlled territory.

Such measures could produce humanitarian or economic benefits without resolving the central territorial dispute.

However, their implementation would require monitoring arrangements and sufficient confidence that the parties would honour their commitments.

The temporary humanitarian ceasefire around Oleshky, in the Kherson region, offers a narrowly defined example of cooperation between Russian and Ukrainian representatives.

It does not demonstrate that a broader political agreement is within reach.

The American Role

Washington remains the principal external mediator in the current negotiating format.

That position reflects American diplomatic influence and its capacity to engage directly with both Moscow and Kyiv.

However, the United States is simultaneously managing military commitments in the Middle East and domestic political pressures ahead of the 3 November congressional elections.

These competing priorities may affect the pace of diplomatic engagement.

For Russia, a negotiating framework centred on Washington offers the possibility of addressing wider bilateral issues alongside the conflict in Ukraine.

For Ukraine, American participation remains important because US decisions concerning military assistance and security commitments could influence the durability of any settlement.

Europe’s position is more complicated. Its governments possess substantial economic leverage, but their influence over the negotiating agenda depends on coordination with Washington and Kyiv.

Negotiating Without Europe Has Practical Limits

The immediate dispute concerns who participates in the next round of talks.

The longer-term question is which parties would be responsible for implementing a settlement.

A ceasefire might initially involve arrangements agreed by military and diplomatic representatives of Russia and Ukraine, supported by the United States.

A more comprehensive agreement could involve sanctions, reconstruction finance, security guarantees, troop deployments and Ukraine’s future relationship with European institutions.

Those issues cannot be settled on behalf of European governments without their consent.

Moscow’s attempt to restrict participation may therefore succeed at the level of an initial negotiating format while proving more difficult to sustain during discussions about implementation.

For the moment, neither the date nor the outcome of the proposed Abu Dhabi meeting is certain.

What has become clearer is the divergence between Russia’s preferred negotiating structure and Europe’s determination to influence the security arrangements that would follow the war.

A planned meeting between Ukraine, Russia, and the U.S. in Abu Dhabi will focus on de-escalating Russia's war, President Volodymyr Zelensky told reporters on Oct. 27, as Moscow seemingly agreed to resume talks with Kyiv after a pause of more than eight months.

Although Ukrainian officials do

Vladimir Putin’s insistence that Ukraine surrender its remaining positions in Donetsk is not simply a dispute over territory. It is a demand that could dismantle Ukraine’s principal defensive barrier in the east, hand Moscow a military advantage it has struggled to achieve through years of fighting, and establish a precedent for further territorial concessions. The latest diplomatic contacts with European leaders have brought this question back to the centre of negotiations.

There are two ways for Russia to capture the remaining Ukrainian-held cities of Donbas. One is to fight its way through heavily fortified defensive positions, accepting substantial casualties, equipment losses and an uncertain timetable. The other is to secure their evacuation through diplomatic negotiations.

The second would achieve an important Russian military objective without requiring Moscow to bear the full cost of a prolonged offensive.

This distinction helps explain why Vladimir Putin continues to insist that Ukrainian forces withdraw from the remaining government-controlled territory of Donetsk region before a comprehensive settlement can be negotiated.

It also raises a more consequential question: would surrendering Donbas bring the war closer to an end, or would it improve Russia’s position in any subsequent confrontation?

A diplomatic opening without a strategic concession

The issue returned to prominence on 27 October when Finnish President Alexander Stubb and Norwegian Prime Minister Jonas Gahr Støre held a rare telephone conversation with Putin.

According to the Finnish president’s official statement, the call followed discussions in Oslo on 20 October involving Ukrainian President Volodymyr Zelenskyy and US presidential envoy Steve Witkoff.

The Nordic leaders sought to advance preparations for renewed American-mediated negotiations, expected in Abu Dhabi in November. They emphasised that they were acting on behalf of their respective countries rather than representing Europe collectively.

Stubb described the exchange as “frank and substantive”, arguing that direct communication with Moscow was necessary to address the security consequences of the war.

However, the Kremlin’s account offered little indication of movement on the fundamental disagreements.

Moscow insisted that any durable peace must fully accommodate Russian interests. A source close to the Kremlin told Reuters that Putin had reiterated his refusal to compromise on the objective of controlling the entire Donbas.

Following the conversation, Zelenskyy confirmed that the Nordic leaders had briefed him and stressed to Putin the need for concrete measures to reduce attacks on Ukrainian energy infrastructure.

The diplomatic process has therefore resumed without resolving the territorial dispute at its centre.

The military significance of the remaining Donbas

The territory Russia is demanding includes some of Ukraine’s most important surviving defensive positions.

Since fighting began in eastern Ukraine in 2014, Ukrainian forces have constructed and reinforced an extensive defensive system centred on Sloviansk, Kramatorsk, Druzhkivka and Kostiantynivka.

Known as the fortress belt, this network combines urban areas, industrial facilities, transport infrastructure, prepared defensive positions and terrain that complicates offensive operations.

The military importance of this system extends far beyond the administrative boundaries of Donetsk.

According to the Institute for the Study of War, surrendering these positions would allow Russian forces to occupy heavily defended territory without undertaking the prolonged operations otherwise required to capture it.

In its 26 October battlefield assessment, the institute continued to identify the capture of this defensive belt as Russia’s principal military objective in Donetsk. Ukrainian forces retained positions in parts of Kostiantynivka, while Russian operations towards other major cities remained contested.

The implications of a negotiated Ukrainian withdrawal would be substantial.

Russia could occupy the fortified urban corridor, reorganise its forces, establish new logistics routes and potentially redirect formations towards other sectors.

Ukraine, meanwhile, would have to construct or reinforce defensive positions further west, potentially under pressure and in less favourable terrain.

The resulting military imbalance would not necessarily lead to another Russian offensive. But it would change the conditions under which any renewed hostilities might take place.

That is why territory cannot be assessed solely by its surface area. A relatively small section of the front can possess strategic value disproportionate to its size.

Why Moscow prefers a negotiated withdrawal

Russia’s insistence on Donetsk also reflects the limits of what its military has achieved.

Despite years of fighting, Moscow has not secured complete control of the region. Successive offensives have produced territorial gains, but at considerable cost and without the rapid breakthrough originally anticipated.

US Secretary of State Marco Rubio recently acknowledged the central importance of the remaining Ukrainian-held territory.

In an interview published by the US State Department, Rubio characterised the dispute as centred on territory Russia wants but has been unable to capture militarily, while recognising Ukraine’s sovereignty and long-term security concerns.

His remarks demonstrate how Donbas has become the principal territorial obstacle in Washington’s diplomatic calculations.

For Moscow, however, concentrating negotiations on this specific demand offers an additional advantage.

If Ukraine refuses to withdraw, the Kremlin can argue that Kyiv is preventing progress towards peace. If Ukraine agrees, Russia obtains strategically valuable territory without the military costs associated with conquering it.

The demand therefore serves a dual purpose: it establishes a public explanation for the absence of an agreement while offering Russia an immediate military benefit should negotiations succeed on its terms.

The problem with treating Donbas as the final concession

The central weakness in any settlement built around a Ukrainian withdrawal is the assumption that control of Donbas represents the limit of Russia’s territorial ambitions.

Moscow’s previously declared objectives suggest a more complicated picture.

In June 2024, Putin demanded Ukrainian withdrawal from four regions claimed by Russia: Donetsk, Luhansk, Zaporizhzhia and Kherson. Moscow does not fully control these regions, despite claiming to have annexed them in September 2022.

Russia has also demanded restrictions on Ukraine’s military capabilities and future security relationships.

As EU Today previously reported, renewed diplomatic engagement has not produced a clear abandonment of the Kremlin’s wider objectives.

Consequently, transferring the remaining territory of Donetsk would not necessarily satisfy Moscow’s other demands.

There is a significant difference between conceding territory as part of an enforceable settlement and withdrawing from defensive positions as a precondition for negotiating one.

In the first case, territorial arrangements form part of a wider agreement establishing obligations, verification procedures and security guarantees.

In the second, one party makes a potentially irreversible military concession before knowing whether an agreement will ultimately be reached.

This asymmetry is particularly important where the proposed concession directly affects the withdrawing country’s ability to defend itself.

The strategy of incremental gains

One interpretation of Moscow’s approach is that it reflects a strategy of incremental territorial expansion rather than an attempt to achieve all its objectives through a single decisive offensive.

After Russia failed to capture Kyiv in 2022, its military campaign increasingly concentrated on taking territory through successive, often prolonged operations.

The diplomatic equivalent would involve securing one concession, consolidating the resulting advantage and subsequently presenting additional demands.

Under such a scenario, Russia could obtain control of the remaining Donetsk territory, establish new positions closer to Dnipropetrovsk region and later argue that further territorial or security arrangements were necessary to protect its newly acquired frontier.

Moscow has already used the language of protective buffer zones to justify military operations elsewhere in Ukraine.

There is no evidence establishing that such a sequence would inevitably follow a Donbas settlement. Nevertheless, the possibility must be considered when assessing the military consequences of a withdrawal.

The concern is not merely that Russia might violate a future agreement. It is that the agreement itself could alter the strategic balance in ways that make renewed military pressure more effective.

There is also an internal Ukrainian dimension.

An agreement requiring the evacuation of cities defended for years would create substantial political controversy. Disagreements over territorial concessions, security guarantees and the credibility of Western commitments could complicate domestic political stability.

For Moscow, such divisions might provide another means of influencing Ukraine without immediate military escalation.

Donbas and the wider question of Ukrainian sovereignty

Donbas has considerable political significance for Putin beyond its military value.

The conflict in eastern Ukraine began in 2014, following Russia’s annexation of Crimea. Donetsk and Luhansk became central to the Kremlin’s justification for intervention, and their incorporation into Russia was later proclaimed as part of the 2022 annexations.

Control of the entire region would allow Putin to present a tangible achievement after years of warfare.

Yet the Kremlin’s objectives have never been confined exclusively to Donbas.

Putin has repeatedly questioned Ukraine’s historical and political independence, while Russian negotiating demands have extended to the country’s military posture, international alliances and internal political arrangements.

These positions suggest that territorial control forms part of a broader attempt to determine Ukraine’s strategic orientation.

A settlement that ends fighting in Donetsk without resolving these wider disagreements might therefore suspend the conflict rather than settle its underlying causes.

What the next negotiations must establish

The planned talks in Abu Dhabi will test whether Moscow is prepared to distinguish between its territorial demands and the conditions necessary for a sustainable ceasefire.

An immediate halt to hostilities along existing lines would preserve the military status quo while allowing negotiations to proceed.

Russia has resisted this approach, arguing that a temporary ceasefire could enable Ukraine to rebuild its forces without resolving the conflict.

Ukraine, by contrast, argues that withdrawing from fortified territory without credible guarantees would expose it to renewed attack.

Neither side can be expected to disregard the military implications of the proposed arrangements.

For European governments, the principal question is consequently not simply whether Ukrainian and Russian representatives can be brought back to the negotiating table.

It is whether any agreement can prevent the territorial settlement from becoming the starting position for another war.

Stubb and Støre’s conversation with Putin demonstrated that diplomatic communication remains possible. It did not establish that Moscow is prepared to abandon its existing territorial objectives.

The distinction matters.

Putin’s demand for Donbas offers Russia two potential advantages: a justification for continuing the war if Kyiv refuses, and a substantial military gain if Kyiv accepts.

That does not prove the Kremlin has already decided to resume hostilities after a negotiated withdrawal. It does, however, explain why the terms, sequencing and enforceability of any agreement are as consequential as the territory itself.

The essential question facing negotiators is therefore not only whether Russia can obtain Donbas through diplomacy rather than force.

It is whether the price of that concession would be a lasting peace — or a weaker Ukrainian defensive position if peace fails.

Dawn breaks under rainfall in Kramatorsk, a Ukrainian stronghold under Russian threat on the eastern front. What makes it harder for drones to fly becomes an opportunity for Russian infantry to try to gain ground. These are, in any case, small skirmishes. EL PAÍS reports this from a military command post in Kramatorsk based on images captured by drones on October 15. The front line shows hardly any change and the war is stuck in a complex tangle as the fifth anniversary of the full-scale invasion approaches. Kyiv has also recently suffered serious setbacks: at home, with attacks across around 20 of its regions, and internationally, the blow represented by the United States’ overt alignment with Russia.

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Russia is ready to resume three-way talks with Ukraine and the US, Russian President Vladimir Putin claimed in an interview with Pavel Zarubin of state broadcaster VGTRK, published on 22 October. He said they should settle security for both countries after a final peace deal, not a brief pause.

Putin spoke a day after he hosted US envoy Steve Witkoff in St. Petersburg and Ukrainian President Volodymyr Zelenskyy said he would accept freezing the war along the front line. In May, Kremlin spokesman Dmitry Peskov named Ukraine’s withdrawal from Donbas and Zaporizhzhia and Kherson oblasts as the only condition for peace. Any new round would start from that gap: Kyiv offers to stop where the armies stand, while Moscow’s last stated terms demanded more land.

Talks in November

Putin stated that Moscow and Washington had agreed Russia was ready to resume trilateral contacts. He added that he generally agreed with a US point that European security architecture should also be discussed.

On 21 October, Kremlin aide Yuri Ushakov stated that the sides had settled on mid-November, with Abu Dhabi as the likely venue.

"Historical Russia"

In a 21 October Fox News interview, asked about a freeze leaving Ukraine 75% or more of its land, Zelenskyy answered: “Yes, right now, we have to freeze.”

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