Ukraine is urging the European Union to assume a more assertive role in sanctioning Russia, following signals that Washington under President Donald Trump is stepping back from coordinated measures.
A confidential Ukrainian white paper, seen by Reuters and to be presented to EU officials next week, proposes a broad array of new sanctions, including asset seizures and penalties targeting buyers of Russian oil.
The 40-page document outlines Kyiv’s vision for the EU to become the central actor in sanctioning Moscow, as doubts grow over the United States’ commitment. Ukrainian officials hope the paper will prompt the EU to reconsider its traditional reliance on transatlantic alignment and take bolder, independent steps.
Among the most significant proposals is a legal mechanism to fast-track the confiscation of frozen Russian state and private assets, with the proceeds redirected to Ukraine. Under this proposal, sanctioned individuals would be allowed to seek reparations from the Russian state, rather than the EU.
Also included are calls for “secondary sanctions” targeting foreign companies – notably those in India and China – that continue to purchase Russian oil or supply Moscow with technology derived from EU sources. While secondary sanctions have long been considered too politically sensitive by European governments, Kyiv argues they are necessary to close existing loopholes and increase economic pressure on the Kremlin.
The paper also recommends a shift away from the current unanimity requirement for EU sanctions decisions, which allows any single member state to veto measures. Instead, it urges greater use of qualified majority voting – a move likely to meet resistance from some capitals but one which Ukraine views as essential to prevent delays and political obstruction.
The timing of the document’s release is notable. It follows a phone call earlier this week between President Trump and President Vladimir Putin, after which the White House confirmed no additional U.S. sanctions would be introduced “at this stage.” European leaders, who had been urging Washington to tighten measures in response to the ongoing conflict in Ukraine, were left disappointed.
Following the Trump-Putin call, the White House reportedly informed Kyiv and several European capitals that it preferred to allow diplomatic channels more time. Nevertheless, on Tuesday the EU and the UK introduced new restrictions independently, targeting Russian financial institutions and dual-use goods.
In contrast to the Biden administration, which had maintained close coordination with the EU on sanctions strategy, Trump’s return has brought uncertainty. According to the Ukrainian white paper, the U.S. has “ceased participation in nearly all intergovernmental platforms focused on sanctions and export control.” It also cites the disbanding of a federal taskforce on sanctions enforcement and the reallocation of key staff as further evidence of Washington’s retreat.
While two substantial U.S. sanctions packages are reportedly in draft – one from the administration and another from Senator Lindsey Graham – it remains unclear whether Trump will endorse either. This uncertainty, Kyiv warns, has already slowed the pace of multilateral coordination and should not be allowed to stall European action.
“On the contrary, it should catalyse the EU to assume a leading role in this domain,” the document states.
Senior Ukrainian officials have expressed concern that the American shift may embolden sceptical EU member states to press for sanctions relief. “American withdrawal from the sanctions regime would be a huge strike on the unity of the EU. Huge,” one senior official told.
While recognising that the EU cannot fully replicate the global economic influence of U.S. sanctions – particularly given the centrality of the dollar – Ukraine’s position is that strong and consistent European sanctions could still deter investors from re-engaging with Russia.
Craig Kennedy, a Russian energy analyst at Harvard’s Davis Center, told: “Europe holds a lot more cards than you’d think.” He noted that, even without the U.S., EU restrictions could effectively limit the scope of Russian financial and energy sector recovery.
Publicly, President Volodymyr Zelenskyy’s administration has refrained from directly criticising Washington. Kyiv has instead opted to frame its proposals as a means to “strengthen European leadership” rather than as a reaction to U.S. policy reversals.
Nevertheless, the subtext of the document is clear: with American policy in flux, Ukraine sees the European Union as the only credible avenue for sustained economic pressure on the Kremlin.
The paper is expected to be formally presented during consultations in Brussels next week. With the conflict continuing to impose significant political, financial, and humanitarian costs, Ukraine’s appeal is likely to trigger renewed debate over the EU’s strategic posture and the durability of the Western sanctions consensus.
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