Ukraine has rejected key elements of a US-backed peace plan with Russia due to disagreements over the management of the Zaporizhzhia Nuclear Power Plant and territorial concessions in occupied regions, as negotiations stall amid ongoing security concerns at the facility.
President Volodymyr Zelensky stated that Ukraine cannot accept joint management of the Zaporizhzhia Nuclear Power Plant by Ukraine, the United States, and Russia, fearing it would legitimise Moscow’s occupation seized in 2022, while disputes also centre on territories in Donetsk, Luhansk, Zaporizhzhia, and Kherson oblasts.
Stalemate in Peace Negotiations
According to the Kyiv Independent, the most contentious issues in the US-backed peace framework involve the proposed trilateral operation of the Zaporizhzhia Nuclear Power Plant, Europe’s largest nuclear facility located in the occupied city of Enerhodar, which produced around 20 per cent of Ukraine’s electricity before Russia’s full-scale invasion. Under the plan, Ukraine, the United States, and Russia would jointly manage the plant and share economic benefits, but Ukraine fears this would effectively legitimise Russia’s control, which it seized in 2022 and continues to hold. President Zelensky warned that Russia believes it can ensure the plant is operated by them, potentially framing their involvement as a humanitarian necessity linked to restoring water supplies in occupied territories.
As reported by the Kyiv Independent, Zelensky stressed that pre-war joint enterprises with Russia often left Ukraine vulnerable to Moscow’s leverage, and he insisted that the Kakhovka Dam and Kakhovka Hydroelectric Power Plant, essential for the safe operation of Zaporizhzhia, must be rebuilt, with Russia showing no intention of funding it. Zelensky said the dam could be rebuilt as a joint regional prosperity project with a similar operational structure, but Ukraine demands full demilitarisation of the entire area, including the nuclear plant, Enerhodar, and Kakhovka facilities.
Historical Context of Zaporizhzhia Seizure
The OECD Nuclear Energy Agency reports that the Zaporizhzhia Nuclear Power Plant, with its six reactors, has faced repeated safety threats since Russia took control in March 2022. On 4 March 2022, the plant was shelled, resulting in a fire that was extinguished without impacting essential equipment, after which management fell under orders from the Russian forces commander. By 25 August 2022, Ukraine’s nuclear operator Energoatom indicated its staff continued operations under extremely stressful conditions, while the State Nuclear Regulatory Inspectorate of Ukraine lost oversight of nuclear safety at the site.
Ongoing Safety Incidents and IAEA Efforts
The OECD Nuclear Energy Agency further details that on 19 October 2022, Energoatom reported the detention of Zaporizhzhia’s Head of Information Technology, Oleh Kostyukov, and Assistant to the plant’s Director, Oleh Oshek, by Russian personnel. Negotiations by the International Atomic Energy Agency with Russia and Ukraine to establish a nuclear safety and security protection zone around the facility were ongoing as of 28 October 2022. More recently, on 6 December 2025, the 750 kV external power line Dniprosvska and the back-up 330 kV Ferosplavna-1 line supplying the plant were cut at 3:21 local time, exacerbating power supply vulnerabilities. On 11 July 2024, IAEA experts noted 1,300 metres of trenches dug near the plant, heightening risks.
Territorial and Leadership Reactions
Provision 14 of the peace plan addresses territories in Donetsk, Luhansk, Zaporizhzhia, and Kherson oblasts, which Zelensky has described as the most difficult issue, according to the Kyiv Independent. Russian President Vladimir Putin stated that the US and Russia are discussing managing the Zaporizhzhia plant and using infrastructure in occupied Kherson for water supply to Crimea, as reported by the Kyiv Post. The plant, near Enerhodar on the Dnipro River, remains a flashpoint, with Ukraine insisting on full demilitarisation and Russia pushing for operational control. Zelensky highlighted Russia’s reluctance to rebuild critical infrastructure like the Kakhovka Dam, destroyed in 2023, which previously supplied cooling water to the plant.
The Kyiv Post notes that Putin framed these discussions as practical steps for regional stability, contrasting with Ukraine’s position that any joint management risks permanent Russian dominance. Energoatom has repeatedly warned of the plant’s precarious status, with all reactors offline but requiring constant power for safety systems, amid frequent disconnections reported by the OECD Nuclear Energy Agency.
In summary, the peace talks remain deadlocked over Zaporizhzhia management and territorial provisions, with recent power line cuts on 6 December 2025 underscoring persistent safety risks at the facility, as documented by the OECD Nuclear Energy Agency, Kyiv Independent, and Kyiv Post.
