Europe is increasingly uneasy about its absence from recent Russia-Ukraine peace talks. The latest round of negotiations in Abu Dhabi was brokered by the United States without direct participation from the European Union. In response, there have been growing discussions within the EU about appointing a special envoy to engage directly with Moscow.

For much of the Ukraine war, the EU's approach toward Russia has focused on applying economic pressure and military support for Ukraine. The United States and Turkey have taken a role at the forefront of talks. Any move to talk directly with President Vladimir Putin through a coordinated EU envoy would represent a tactical shift.

Economist and policy expert Elina Ribakova says that European participation is essential to avoid sidelining regional interests. "Without Europe, we could have already seen 'peace' whereby Russia, with the help of the US, gets Ukraine to make concessions," she told DW, adding, "that would undermine its sovereignty and expose other countries in the region to Russian assertions of its perceived entitlement to the ‘sphere of influence' in Eastern Europe."

At the same time, it is unclear what EU diplomacy with Russia would actually achieve. Ribakova notes that engaging with Moscow would be first and foremost a symbolic move, but could eventually have some more tangible outcomes.

Divisions emerge among EU members

Any European diplomatic push, however, is complicated by internal divisions. Member states differ sharply in their assessments of how to handle Russia. French President Emmanuel Macron has advocated maintaining channels of dialogue with Moscow, even after repeated diplomatic setbacks. Recently, France sent a top diplomat to meet his Russian counterpart. 

Germany, however, has often adopted a more cautious tone. During the recent Munich security conference, German Chancellor Friedrich Merz expressed hesitation about dealing with Russia. "If it makes sense to talk, we are ready to talk, but the Russians have to concede that they are really willing to talk about a ceasefire and then about a peace plan,” he said.

Eastern European countries fear that premature concessions could embolden Moscow. Hungary and Slovakia continue to depend on Russian energy despite its war on Ukraine.

Ribakova, who works for the Peterson Institute for International Economics, the Brussels think tank Bruegel and as vice-president for foreign policy at the Kyiv School of Economics, says this disagreement does not necessarily imply weakness. "Divisions are not bad," she argues. "Some of the countries might want to side with the US and (some others with) Russia, but these are still far from the majority in the EU," she said. "As a result, there will be pressure from the EU — even if not in full unison — to acknowledge Ukraine's interests."

Yet not all analysts are convinced that appointing a special envoy would clarify Europe's strategy. Kristi Raik of the International Centre for Defence and Security said the EU first needs to clearly define its objectives before engaging with Moscow.

Ribakova, however, argues that "in an ideal world, it would be great to see the EU unified, but we don't live in an ideal world."

She said that a Europe consisting of different clubs is enough to protect Ukraine's and European interests at the moment. "I'd be more worried about a unified position that would allow Putin to annex with impunity parts of Ukraine that Russian army hasn't even conquered." 

These ongoing tensions reflect a broader debate about how the EU operates on the international stage. As Ribakova says, the bloc's diversity makes full consensus difficult: "The countries are truly diverse. So as a compromise I do like the idea of European unity on certain issues as members of clubs by interest.” Such flexible coalitions may offer a strategic path forward when unanimity seems difficult.

What will the EU do next?

Even as discussions about whether to step forward diplomatically intensify, the EU is preparing its 20th package of sanctions against Russia to mark the fourth anniversary of its invasion of Ukraine.

The 20th package covers energy, trade and financial services. According to European Commission President Ursula von der Leyen, Russia's energy revenues dropped by 24% in 2025. "This confirms what we already knew; our sanctions work, and we will continue to use them until Russia engages in serious negotiations with Ukraine for a just and lasting peace,” she said.

Editing by: Jess Smee