---
title: "Kremlin Returns to 2021 Ultimatums: ISW Reveals Russia’s Agenda in Abu Dhabi Talks"
description: "ISW reports that at the Abu Dhabi talks, Moscow has returned to its 2021 ultimatums, demanding a revision of Europe's security architecture before settling the war. Russia's position contradicts Kushner's statements on national sovereignty and NATO's central role."
date: 2026-11-11T06:48:37.409Z
lang: en
url: https://xab.info/en/posts/kremlin-returns-to-2021-ultimatums-abu-dhabi
tags: [russia, nato, ukraine-war, abu-dhabi-talks, european-security, isw, kushner, lavrov]
author: "Alexander Buran"
publisher: "XAB.info"
---

# Kremlin Returns to 2021 Ultimatums: ISW Reveals Russia’s Agenda in Abu Dhabi Talks

![Russian President Vladimir Putin speaking at an official event](https://xab.info/media/2026/11/11/kreml-ultimatums-2021-abu-dhabi-isw/kreml-ultimatums-2021-abu-dhabi-isw-1.webp)

## Key Points

- ISW records Moscow's return to 2021 ultimatum demands during trilateral talks in Abu Dhabi
- Lavrov stated that Europe's security architecture must be agreed upon before settling the war in Ukraine
- Russian demands essentially grant it veto power over NATO expansion and restrict states' sovereign choices
- Kushner's stance on preserving national sovereignty and NATO's central role contradicts the Kremlin's course
- The EU insists on stopping the war before discussing security; Zelenskyy outlined three conditions for dialogue

Amid ongoing trilateral negotiations between Russia, the US, and Ukraine in Abu Dhabi, the Institute for the Study of War (ISW) has published an analytical report noting Moscow's return to the ultimatum demands it previously issued to Washington and NATO in December 2021. According to RBC-Ukraine, institute analysts point out that the Kremlin is attempting to use the trilateral consultation format not so much to resolve the conflict in Ukraine as to revise the entire European security system. Analysts cite a key indicator of this course: a statement by Russian Foreign Minister Sergey Lavrov, who asserted that before proceeding to settle the war in Ukraine, it is necessary to agree on Europe's future security architecture, calling this approach "completely reasonable."

### Return to Ultimatums: What Exactly Moscow Demands

According to ISW, a similar position was voiced by an unnamed source within the Russian delegation at the Abu Dhabi talks. The source stated that ending the war in Ukraine is merely one item in a broader discussion on European security, which, according to Moscow's design, should become the main topic of negotiations. On the first day of consultations in Abu Dhabi, the Russian delegation, as reported by RBC-Ukraine sources, explicitly brought up its proposals for altering the security architecture that Vladimir Putin presented to Joe Biden in December 2021. Key points include rejecting further NATO expansion and restricting Western military cooperation with Ukraine.

### Practical Meaning of Demands: Veto Power over Alliance Policy

ISW analysts emphasize that the statements regarding European security architecture refer to Russia's December 2021 demands for NATO to halt the deployment of new weapons and military personnel in states that joined the Alliance after 1997. In essence, this grants Russia veto power over NATO policy and restricts the sovereign choices of states wishing to join the North Atlantic Alliance. Thus, Moscow is effectively attempting to embed a mechanism into the final documents of the negotiation process that would allow it to block decisions made by sovereign member states of the Alliance.

### Washington’s Position: Sovereignty and NATO's Central Role

ISW notes that the Kremlin recently resumed its initial demands on NATO, which directly contradict statements by U.S. President's Special Envoy Jared Kushner. Kushner stated that every country must retain its sovereignty and authority over its security and alliances following peace talks to end the war in Ukraine, and that NATO will remain the central structure. At the same time, Washington is also promoting the idea of a pan-European security pact: Kushner stated that the US wants to build a security architecture that will prevent the war from restarting. However, as analysts note, Moscow's approach and Washington's approach to the substance and sequence of these negotiations differ fundamentally.

### European Caution and Kyiv’s Position

In the EU, the proposal to build a new security architecture was met with caution. According to Bloomberg, Europe insists that Russia must first stop the war and only then move on to discussing security issues. Meanwhile, Ukrainian President Volodymyr Zelenskyy outlined three steps after which, in his view, a dialogue on European security with Russia is possible. Thus, Kyiv and Brussels are establishing a sequence opposite to the one promoted by Moscow: first, a cessation of hostilities, followed by discussions on security guarantees.

### ISW Assessment: “Cognitive Warfare” and Substitution of Causes

In the concluding part of the report, ISW analysts conclude that the Kremlin has spent years trying to justify its aggression against Ukraine using a fictitious threat from NATO. Moscow claims that Ukraine's potential membership in the Alliance allegedly threatened Russia's security and was one of the "root causes" of the war that peace talks must eliminate. At the same time, according to ISW's assessment, NATO has never posed a threat to Russia's security. "The Kremlin's prolonged cognitive warfare campaign, falsely accusing NATO and Ukraine of threatening Russia's sovereignty, aims to justify Russia's efforts to regain control over former Soviet states and does not reflect Russia's genuine security concerns," the institute's analysts summarized.

## Accounts differ

### Sequence and Substance of European Security Negotiations

- **Russian side (Lavrov, Russian delegation):** It is first necessary to agree on Europe's future security architecture and then proceed to settle the war in Ukraine; demands rejection of NATO expansion and restrictions on Western military cooperation with Ukraine ([rbc.ua](https://www.rbc.ua/ukr/news/kreml-povernuvsya-ultimatumiv-2021-roku-isw-1794379117.html))
- **USA (Special Envoy Jared Kushner):** Every country must retain sovereignty and authority over its security and alliances after peace talks; NATO will remain the central structure ([rbc.ua](https://www.rbc.ua/ukr/news/kreml-povernuvsya-ultimatumiv-2021-roku-isw-1794379117.html))
- **EU (according to Bloomberg):** Russia must first stop the war and then move on to discussing security issues ([rbc.ua](https://www.rbc.ua/ukr/news/kreml-povernuvsya-ultimatumiv-2021-roku-isw-1794379117.html))

*Where they agree:* Trilateral negotiations are taking place in Abu Dhabi; all parties are discussing Europe's security architecture

## Fact-Check & Sources

- [Кремль вернулся к ультиматумам 2021 года: ISW объяснил настоящий замысел РФ на переговорах](https://www.rbc.ua/ukr/news/kreml-povernuvsya-ultimatumiv-2021-roku-isw-1794379117.html) - Primary source. Contains quotes from Lavrov, the position of an unnamed source within the Russian delegation, ISW analysis, statements by Kushner, and Bloomberg data on the EU's stance. All facts are attributed.

## FAQ

### What exactly is Russia demanding at the Abu Dhabi talks?

According to ISW and RBC-Ukraine sources, the Russian delegation is putting forward demands from Putin's December 2021 proposal package: halting NATO expansion, restricting Western military cooperation with Ukraine, and agreeing on Europe's security architecture prior to a war settlement.

### What is the U.S. position on these demands?

U.S. President's Special Envoy Jared Kushner stated that every country must maintain sovereignty over its security and alliances, and that NATO will remain the central structure. The U.S. also promotes a pan-European security pact, but without granting veto power to any single party.

### How is the EU reacting to Moscow's proposals?

According to Bloomberg, Europe has met the proposals with caution and insists that Russia must first stop the war before transitioning to security discussions.

### What is "cognitive warfare" in the context of the ISW report?

ISW uses this term to describe the Kremlin's multi-year campaign blaming NATO and Ukraine for threatening Russia's sovereignty. Analysts believe this rhetoric is designed to justify Russia's efforts to restore control over former Soviet states.