Supporting the commitment to a comprehensive, just and lasting peace for Ukraine and the security of the European continent
Addendum to the report
| Doc. 16311 Add.
| 26 January 2026
- Committee
- Committee on Political Affairs and Democracy
- Rapporteur :
- Mr Piero FASSINO,
Italy, SOC
- Origin
- Addendum to the report Doc. 16311, approved by the committee on 26 January 2026. 2026 - First part-session
1 Proposed amendments
to the draft resolution
Amendment A
Replace paragraph 1 with the following paragraph:
“The
Parliamentary Assembly welcomes diplomatic efforts deployed by the
United States, Ukraine and its Europeans allies to end Russia's
war of aggression against Ukraine, which since 24 February 2022, has
taken the form of an illegal, unprovoked and unjustified full-scale
military invasion. The Assembly denounces Russia's lack of genuine
willingness to end this war and strongly condemns the intensification
of violence and suffering to which it is subjecting Ukraine. As
this war of aggression enters its fourth year, the Assembly renews
its call for a comprehensive, just and lasting peace, also dignified and
solid, essential to the security and stability of Ukraine and the
entire European continent. The Assembly considers that the outcome
of the war of aggression against Ukraine will have a significant impact
on the future of European and global security and stresses that
the security of Ukraine is indivisible from that of Europe.”
Amendment B
Replace paragraph 2 with the following paragraph:
“The
Assembly deplores Russia's refusal to agree to an immediate ceasefire
as a prerequisite for genuine negotiations, and the serious escalation
of its war of aggression against Ukraine, by committing ever more
war crimes and violations of human rights and international humanitarian
law. Russia is intensifying its drone and missile attacks on civilian
infrastructure, including massive strikes on Kyiv, Dnipro and Kharkiv,
resulting in numerous civilian casualties. As a harsh winter sets
in, Russia continues to relentlessly target the country's critical
infrastructure and energy networks in an attempt to undermine the
population's exceptional resilience. The Assembly condemns in particular
Russia's brutal attacks with the Oreshnik ballistic missile, which
also pose a dangerous threat to the security of the continent. The
Assembly stresses that Russia will be held accountable for its full-scale
war of aggression against Ukraine. Russia is also endangering the
nuclear security of Ukraine and Europe, notably by occupying and
militarising the Zaporizhzhia nuclear power plant.”
Amendment C
Replace paragraph 7 with the following paragraph:
“The
Assembly welcomes the unprecedented initiatives taken by Europeans
and their allies to strengthen defence and security of Ukraine and
Europe, in particular the “Coalition of the Willing”, and the progress
made on robust security guarantees for a solid and lasting peace
in Ukraine, which should be activated as soon as a ceasefire comes
into force. It also welcomes initiatives to uphold European democracies,
such as the New Democratic Pact for Europe launched by the Secretary
General of the Council of Europe, which aims to strengthen democratic
security within the member States of the Organisation, as part of
a comprehensive approach to security that respects international
law.”
Amendment D
After paragraph 7, insert the following paragraph:
“The
Assembly deplores Russia's rejection of the security guarantees
proposed to date by Ukraine's allies, including the United States,
and strongly condemns Russia's unacceptable claims, particularly over
sovereign Ukrainian territory and the Zaporizhzhia nuclear power
plant, which are hindering any meaningful progress towards a just,
solid and lasting peace in Ukraine.”
Amendment E
In paragraph 8, replace the words «with the United States
and its allies» with the following words:
“between like-minded States”
Amendment F
After paragraph 8, insert the following paragraph:
“With
regard to the recognition of Russia's responsibility for its aggression
against Ukraine, the Assembly welcomes the adoption, at the Diplomatic
Conference in The Hague on 16 December 2025, of the Convention
establishing an International Claims Commission for Ukraine (CETS
No. 229), within the framework of the
Council of Europe, and its signature by 35 countries and the European
Union. It calls for the swift establishment of this International
Commission.”
Amendment G
In paragraph 9.3, replace the words “as a precondition for”
with the following word:
Amendment H
In paragraph 9.11, after the words “ensure that any negotiations
and agreements”, insert the following words:
“support the principle of Russia's
responsibility, in accordance with the principles of State responsibility under
international law and”
Amendment I
In paragraph 10, replace the words: “Furthermore, with a view
to supporting the commitment to the security of the continent” with
the following words:
“Furthermore, with a view to supporting the
commitment to European security in a context where international
law is being seriously challenged worldwide,”
Amendment J
Before paragraph 10.1, insert the following paragraph:
“to
strengthen their unity and commitment to upholding international
law and multilateralism”
Amendment K
In paragraph 10.1, after the words “to strengthen and adapt”,
insert the following word:
Amendment L
In paragraph 11.1, after the words “by signing and ratifying
without delay the”, delete the word:
2 Explanatory memorandum
by Mr Piero Fassino, rapporteurNote
2.1 Introduction
2. In light of developments on this matter since then, I wish
to table a number of amendments aimed at strengthening and updating
the draft resolution.
2.2 Escalation of
violence and crimes committed by Russia in Ukraine
3. Russia continues to refuse
an immediate ceasefire and to relentlessly target Ukraine’s critical infrastructure
and energy networks. On 9 January 2026, the Ukrainian authorities
reported a strike carried out with an Oreshnik hypersonic ballistic
missile on Lviv – near the border with Poland, a North Atlantic
Treaty Organization (NATO) country – as well as a massive missile
and drone attack, particularly on Kyiv,
Note marking a new and dangerous escalation
of Russian violence in Ukraine. These attacks caused major disruptions
to electricity, heating and water supplies, at a time when the country
is experiencing a harsh winter. The Mayor of Kyiv, Mr Klitschko,
called on residents who were able to do so to temporarily leave
the city. This escalation demonstrates once again that Russia is
not sincerely committed to peace negotiations, that it is seeking Ukraine's
capitulation and that it is defying Ukraine's allies. Furthermore,
at the end of December 2025, Russia indicated that it had placed
Oreshnik missiles stationed in Belarus on combat duty.
2.3 2026: what outcome
for the peace negotiations?
4. Diplomatic efforts by the United
States, Ukraine and its European allies to end Russia's war of aggression
against Ukraine continued in early 2026 on the basis of a list of
discussion points, which has not yet been made public and whose
number appears to be changing.
5. Faced with the initial American proposals, which were considered
too close to Russian interests and detrimental to a just and lasting
peace, Ukraine's European allies continued to mobilise to exert
influence over the negotiations led by the United States and reiterated,
alongside Ukraine, the need for a just and lasting peace, also dignified
and solid. Following European contributions to the initial plan,
Russian officials referred to a new draft that “departs from Moscow's
positions”.
6. A lasting peace requires robust security guarantees for Ukraine,
particularly from the United States and its main European allies,
especially if Ukraine, for the sake of compromise in the peace negotiations,
were to put on hold, for the time being, the question of its NATO
membership, which requires the unanimous agreement of its members.
7. On 6 January 2026, in the
“Paris
Declaration – Robust Security Guarantees for a Solid and Lasting Peace
in Ukraine”, “the members of the Coalition of the Willing, Ukraine
and the United States” – represented by Steve Witkoff and Jared
Kushner – reaffirmed their “commitment to a just and lasting peace
in Ukraine”. They confirmed that ensuring the sovereignty and lasting
security of Ukraine shall be an integral part of a peace agreement”
and expressed their readiness to “commit to a system of politically
and legally binding guarantees that will be activated once a ceasefire
enters into force, in addition to bilateral security agreements.” These security
guarantees will include the following elements: participation in
a proposed US-led ceasefire monitoring and verification mechanism;
support for the Armed Forces of Ukraine; a multinational force for
Ukraine, made up from contributions from willing nations; binding
commitments to support Ukraine in the case of a future armed attack
by Russia in order to restore peace; and a commitment to deepen
long-term defence co-operation with Ukraine. France, the United
Kingdom and Ukraine also signed a Declaration of intent
Note relating to the “deployment
of multinational forces in support of the defence, reconstruction
and strategic sustainability of Ukraine”. To date, however, Russia
has categorically rejected these proposals.
8. The United States and Ukraine, which is now participating
in the discussions, subsequently announced that progress had been
made in negotiations on a future peace agreement with Russia. However,
the Ukrainian president indicated that the peace plan discussed
with the United States still has several outstanding issues, particularly
the territorial issue, and could involve concessions that would
be particularly difficult for Ukraine to accept. He reiterated that
it would ultimately be up to the Ukrainian people to decide on any
territorial concessions, if any, particularly in the hypothetical
event of a withdrawal of the army from the rest of the Donetsk region
or the creation of a demilitarised free economic zone in Donbas,
administered by Ukraine and secured by international forces. The
issue of the Zaporizhzhia nuclear power plant, occupied and claimed
by Russia but central to Ukraine's sovereignty and energy reconstruction,
also appears to be among the unresolved issues. It should be noted
that the future peace plan under negotiation would, to date, provide
for Ukraine's accession to the European Union and the organisation
of future elections in Ukraine. An initial document also mentioned
an amnesty clause for all acts committed during the war. This clause
has been strongly challenged by Ukraine's allies. The negotiations
and a peace agreement must uphold the principle of Russia's responsibility
(accountability), in accordance with international law (see below).
9. Russia's claims over the territory of Ukraine, a sovereign
State, remain contrary to international law and the interests of
a just and lasting peace. Faced with Russia's intransigence on the
territorial issue in particular, and the dangerous escalation of
its attacks against Ukraine, especially with the Oreshnik ballistic
missile, Ukraine's European allies are largely in favour of increased
diplomatic and economic pressure on Russia. European leaders have
also opened the door to discussions with Russia when the time is
right.
2.4 The Council of
Europe's support as regards Russia's accountability
10. As the Assembly reiterated
in October 2025, Russia must bear the legal consequences of all
its internationally wrongful acts committed in and against Ukraine.
It must make full reparation for all the damage, loss or injury
caused by these breaches of international law to the State of Ukraine
and all natural and legal persons concerned. This is in accordance
with the principles of State responsibility under international
law and in line with United Nations General Assembly Resolution
ES-11/5 of 14 November 2022.
Note
11. Progress in accountability reached a decisive milestone with
the adoption, on 16 December 2025, of the new Council of Europe
Convention establishing an International Claims Commission for Ukraine
(CETS No. 229). This convention, signed by 35 States and the European
Union at a diplomatic conference held in The Hague, reflects unprecedented
political support for the principle of Russia's responsibility for
its war of aggression. It is open to non-European States, which
makes it possible to broaden the coalition of countries demanding
accountability and reparations. The International Claims Commission
is the second pillar of a comprehensive compensation mechanism,
following the establishment of the Register of Damage for Ukraine in
2023. The Commission will be mandated to examine these claims and
determine the amount of compensation on a case-by-case basis. The
Convention will enter into force after ratification by 25 signatories and
the guarantee of sufficient funding, which is essential for the
Commission to become operational quickly. The Assembly should also
support the establishment of a compensation fund, the third pillar
of a comprehensive compensation mechanism.
Note In addition, work is continuing
on the establishment of a Special Tribunal for the Crime of Aggression
against Ukraine.
Note
2.5 European Union
support for Ukraine
12. On 19 December 2025, the European
Council reached an agreement to grant Ukraine a loan of €90 billion
over the next two years. This loan, which Ukraine will have to repay
once it has received reparations from Russia, will be financed by
EU borrowing on the financial markets. The European Council, on
the other hand, failed to overcome differences over a 'reparation
loan' based on the Russian frozen assets.
13. With regard to Ukraine's accession process to the European
Union, on 10 December 2025, the Ukrainian Government and the European
Commission agreed on a 10-point action plan
Note aimed at accelerating Ukraine's progress
and reaffirming the European Union's support for Ukraine in this
process.
