Supporting the commitment to a comprehensive, just and lasting peace for Ukraine and the security of the European continent
- Author(s):
- Parliamentary Assembly
- Origin
- Assembly
debate on 27 January 2026 (4th sitting) (see Doc. 16311 and addendum, report of the Committee on Political Affairs and Democracy,
rapporteur: Mr Piero Fassino). Text adopted
by the Assembly on 27 January 2026 (4th sitting).
1. The Parliamentary Assembly welcomes
the diplomatic efforts of the United States, Ukraine and its European
allies to end Russia’s war of aggression against Ukraine, which
started in 2014 and 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 full-scale
war of aggression enters its fourth year, the Assembly renews its
call for a comprehensive, just and lasting peace that is also dignified
and stable, and which is 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.
2. 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, through the
increasing number of war crimes and violations of human rights and
international humanitarian law it has committed. 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 target relentlessly 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. The Assembly further notes that
Russia’s systematic attacks on civilian infrastructure constitute
a deliberate policy of terror and inhuman treatment aimed at spreading
fear among civilians, as confirmed by the European Court of Human
Rights in the case Ukraine and the Netherlands
v. Russia.
3. The Assembly condemns any action of the Russian Federation
that may be regarded as a crime of genocide, crime against humanity,
war crime or crime of aggression within the meaning of the Rome
Statute of the International Criminal Court, in view of the scale
and systematic nature of such violations committed by military personnel
and other officials of the Russian Federation in Ukraine, or by
its officials against citizens of Ukraine who have been forcibly
detained on the territory of the Russian Federation (in particular,
servicemen of the Defence Forces of Ukraine who are prisoners of
war and civilian hostages to whom the norms of international humanitarian
law apply). The member States of the Council of Europe should adhere
to the principle of universal jurisdiction with respect to crimes
falling under the jurisdiction of the Rome Statute of the International
Criminal Court, conduct investigations and ensure the prosecution
of those who have committed international crimes within the framework
of their respective national jurisdictions.
4. The Assembly condemns the countless crimes and violations
of international law committed by Russia, notably its systematic
policies of forcibly transferring and deporting civilians, including
children, from the temporarily occupied Ukrainian territory, as
well as its co-ordinated operations to empty this territory of its Ukrainian
population. These crimes and violations have been denounced in a
report by the Independent International Commission of Inquiry on
Ukraine to the United Nations General Assembly, which explicitly
refers to them as “crimes against humanity”. The Assembly further
notes that these measures are implemented with the ultimate aim
of altering the demographic composition of the occupied territories
in order to justify illegitimately, before the international community,
the Russian Federation’s claims over them. The Assembly also condemns
the political indoctrination and militarisation of Ukrainian children
and young people under Russian control, including in camps; the
deliberate destruction of Ukrainian identity and cultural assimilation; and
the inhumane treatment and widespread torture of Ukrainian prisoners
of war and civilian detainees. In this context, the Assembly underlines
the European Court of Human Rights’ conclusion in the case Ukraine and the Netherlands v. Russia that
the changes made to the education system were primarily aimed at
enforcing the Russification of the population in the occupied territories
and at separating these territories from Ukraine.
5. Furthermore, the Assembly is deeply concerned by the intensification
of Russian provocations and threats on the European continent, such
as violations of the airspace of European States, the organisation
of sabotage and the deployment of its hybrid warfare in Europe.
Such escalation demands a clear and decisive response, including
concrete measures, to ensure the security of the European continent.
6. The Assembly reaffirms its unwavering commitment to Ukraine’s
sovereignty, independence and territorial integrity within its internationally
recognised borders, including its territorial waters, and to Ukraine’s European
future, as well as its commitment to peace and democratic security
in Europe. It reaffirms its solidarity with the Ukrainian people,
pays tribute to their courage and resilience and calls for the immediate return
of prisoners of war, illegally detained civilians and forcibly transferred
and deported children, as well as the safe return of forcibly displaced
persons.
7. While the security threats facing Europe are without precedent
since 1945, the Assembly acknowledges the evolution of the transatlantic
relationship between Europe and the United States, prompting the
European continent to mobilise in support of Ukraine and to ensure
its own security and resilience. The Assembly considers it essential
that the Council of Europe member States and their allies, notably
the United States, join forces in the face of the threats posed
by Russia to Europe and global security.
8. The Assembly welcomes the unprecedented initiatives taken
by Europeans and their allies to strengthen the defence and security
of Ukraine and Europe, in particular the “coalition of the willing”,
and the progress made on robust security guarantees for a stable
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.
9. 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, stable and lasting peace in Ukraine.
10. The Assembly believes that the European security architecture
must be swiftly adjusted and reinforced, particularly to support
Ukraine and counter the hybrid warfare deployed by Russia. The Assembly
believes that this architecture must be based on both a strong bond
of trust between like-minded States and a European defence and security
system, and that it must also fully incorporate democratic security,
embodied on the continent primarily by the Council of Europe.
11. 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 the signature of the treaty by 35 countries and the European
Union. It calls for the swift establishment of this international
commission.
12. In the light of these considerations, with respect to peace
negotiations and any possible agreement aimed at ending hostilities,
the Assembly, referring to its relevant resolutions, urges Council
of Europe member and observer States, as well as the European institutions
and relevant international partners, to:
12.1 develop unwavering European commitment and greater unity
beyond Europe, including with the United States, in support of Ukraine
and a comprehensive, just and lasting peace, which is essential
for the security and stability of the entire European continent,
where the aggressor is not rewarded but held accountable for its
crimes;
12.2 increase their support for Ukraine, including political,
economic and military support, to strengthen Ukraine’s position
in peace negotiations and defend regional security and European
values;
12.3 demand an immediate and complete ceasefire, and genuine
negotiations, because Ukraine must not be forced to negotiate under
bombardment, and prevent Russia from resuming fighting at a later date;
12.4 ensure that any negotiations aimed at ending hostilities
involve Ukraine and its European allies, and respect Ukraine’s right
to determine its own future, including its sovereign right to continue
its integration into the European Union and its membership of other
international organisations, as Ukraine has the sovereign right
to choose its own security arrangements;
12.5 ensure that these negotiations include the necessary effective
legally binding security guarantees for Ukraine and all of Europe,
in order to prevent any future aggression by Russia, and support
ongoing European efforts to provide part of such security guarantees,
while emphasising the United States’ vital role in these efforts;
12.6 recognise that Ukraine’s process of accession to the European
Union constitutes a security guarantee and an important contribution
to the European security architecture;
12.7 oppose any enforcement of territorial concessions on Ukraine
that are contrary to the principles of international law and the
interests of peace, and reject any recognition of the temporarily
occupied territory of Ukraine as Russian, which would legitimise
a change of borders by force;
12.8 ensure that humanitarian issues – in particular the exchange
of prisoners of war and release of illegally detained civilians,
the return of forcibly transferred and deported children and displaced
persons – are included in any negotiation process and agreement.
The Assembly stresses the importance of the full and rapid return
of these persons and, pending such agreements, recalls its
Resolution 2606 (2025) “Support
for political negotiations to enforce exchange and release of prisoners
of war”. The Assembly also calls for recognition that a comprehensive,
just and lasting peace should also be anchored in the international
human rights framework, as specified by the Council of Europe Commissioner
for Human Rights;
12.9 ensure that monitoring of the implementation of future
peace agreements, involving the United States and European allies,
is provided for in the agreements;
12.10 ensure that sanctions against Russia are lifted only gradually,
with the lifting of sanctions being conditional upon compliance
with international law and any peace agreements, when Russia’s war
of aggression stops and a comprehensive, just and lasting peace
is restored. These sanctions should also include individual prosecution
of those persons who are responsible for ordering, facilitating
or benefitting from illegal actions, including the arbitrary arrest
of Ukrainians, their persecution, deportation or forcible transfer;
their enforced disappearance, torture and other ill-treatment; and
their unfair trials and long-term imprisonment;
12.11 ensure that the release of political prisoners in Russia,
detained for speaking out against the illegal invasion of Ukraine,
is provided for in the agreements;
12.12 ensure that any negotiations and peace agreements support
the principle of Russia’s responsibility, in accordance with the
principles of State responsibility under international law, and provide
for the necessary funds for accountability mechanisms and the reconstruction
of Ukraine, including through the use of frozen Russian sovereign
assets where appropriate.
13. Furthermore, with a view to supporting the commitment to European
security in a context where international law is being seriously
challenged worldwide, the Assembly, referring to its
Resolution 2622 (2025) “Russia:
new threats to European democracies” calls on the member States
of the Council of Europe, as well as the European institutions and
relevant international partners, to:
13.1 strengthen their unity and commitment to upholding international
law and multilateralism;
13.2 strengthen and adapt rapidly the European security architecture,
as well as the North Atlantic Treaty Organization (NATO) strategies,
to the needs of Ukraine and to new threats, and strengthen nuclear
security in Europe and support for the International Atomic Energy
Agency;
13.3 support the States most exposed to Russian military or
hybrid threats, particularly those near Russia, Ukraine or the Baltic
Sea, and provide the European security architecture with an adaptable
and flexible multilateral geographical framework that enables contributing
States to work together effectively, regardless of whether they
belong to the European Union or other organisations, while ensuring
the cohesion of the European continent;
13.4 develop a comprehensive security approach that fully incorporates
democratic security, recognising that only this type of approach,
which also respects international law, can protect European democracies,
their institutions and their values in the face of the continent’s
growing militarisation, as highlighted by the Secretary General
of the Council of Europe.
14. With regard to Russia’s accountability, the Assembly welcomes
the unique role of the Council of Europe, in particular through
the European Court of Human Rights, the Register of Damage Caused
by the Aggression of the Russian Federation against Ukraine and
the work to establish the International Claims Commission for Ukraine
and the Special Tribunal for the Crime of Aggression against Ukraine.
The Assembly, referring to its relevant resolutions and opinions,
calls on Council of Europe member and observer States, and like-minded States,
to:
14.1 expedite the establishment
of a comprehensive accountability system, including by signing and ratifying
without delay the Convention establishing an International Claims
Commission for Ukraine, and by intensifying efforts to establish
the third component of the international compensation mechanism, namely
an international compensation fund, which could be funded by repurposing
and transferring frozen Russian sovereign assets where appropriate;
14.2 ensure that all three components of the international
compensation mechanism, namely the Register of Damage Caused by
the Aggression of the Russian Federation against Ukraine, the future international
claims commission and the future international compensation fund,
are mandated to accept and assess claims relating to damage, loss
and injury resulting from Russia’s aggression against Ukraine since
19 February 2014, including those arising from the illegal occupation
and attempted annexation of the Autonomous Republic of Crimea and
the city of Sevastopol, as well as parts of the Donetsk and Luhansk
regions, with a view to ensuring comprehensive, consistent and effective compensation
for victims;
14.3 following the landmark signing of the agreement between
the Council of Europe and Ukraine on the establishment of the Special
Tribunal for the Crime of Aggression against Ukraine on 25 June
2025, work without delay towards the establishment of the Enlarged
Partial Agreement on the Management Committee of the Special Tribunal
for the Crime of Aggression against Ukraine, join it as soon as possible,
in accordance with their national procedures, to ensure its viability,
including in budgetary terms, and conclude co-operation agreements
with the future special tribunal;
14.4 strengthen accountability mechanisms for all war crimes,
crimes against humanity and other violations of international law
by Russia, and take the necessary measures;
14.5 increase diplomatic and economic pressure on Russia, until
Russia stops its war of aggression and until a comprehensive, just
and lasting peace is restored, in accordance with
Resolution 2622 (2025),
in particular by reinforcing the current European and American sanctions regime
against Russia, its allies and their political and military leaders,
including measures in response to violations of the airspace of
sovereign States, violations of maritime sovereignty and measures against
the Russian shadow fleet.
15. With regard to the resilience, reconstruction and democratic
security of Ukraine, the Assembly commends Ukraine for its achievements
in implementing the Council of Europe Action Plan for Ukraine “Resilience,
Recovery and Reconstruction” 2023-2026, and for the progress it
has made in the process of accession to the European Union, despite
the immense challenges posed by Russia’s illegal, unprovoked and unjustified
full-scale military invasion. It invites Council of Europe member
and observer States, as well as the European institutions and relevant
international partners, to:
15.1 support
more strongly Ukraine’s democratic resilience, including its capacity
to effectively protect human rights, the rule of law and democracy,
and more particularly parliamentary, local and regional democracy,
as well as its capacity to effectively combat corruption, which
is essential in the context of its process of accession to the European
Union;
15.2 support Ukraine’s process of accession to the European
Union, recognising that the integration process provides a strong
incentive to pursue relevant reforms and a guarantee of security.
