FALSE: Russia complies with the commitments given to Ukraine under the Budapest Memorandum

Russian channels disseminated a statement by Maria Zakharova, spokesperson for Russia’s Ministry of Foreign Affairs. She claimed that the Kremlin complies with the Budapest Memorandum, particularly the commitment not to use nuclear weapons against Ukraine. At the same time, she alleged that some politicians in the West are proposing to return nuclear weapons to Ukraine.

However, this is false. Russia has been violating the memorandum since at least 2014 by committing acts of aggression against Ukraine. It continues to threaten Ukraine’s sovereignty in all possible ways, including nuclear threats. Western politicians are not proposing to restore Ukraine’s nuclear status.

The Budapest Memorandum, signed by Ukraine, the United Kingdom, the United States, and Russia in 1994, formalized previous agreements regarding Ukraine’s non-nuclear status. In addition to the commitment not to use nuclear weapons, the signatory countries agreed to:

• Respect Ukraine’s independence and sovereignty within its 1991 borders;
• Refrain from the threat or use of force against Ukraine’s territorial integrity or political independence;
• Avoid economic coercion that could undermine Ukraine’s sovereignty.

For the first time, consultations provided for under the memorandum were held by the United States, the United Kingdom, and Ukraine in 2014, following Russia’s occupation of Crimea. The annexation of the peninsula and Russia’s aggression in eastern Ukraine constituted violations of the memorandum.

However, in 2020, Volodymyr Zelenskyi pointed out that Russia had neglected its commitments under the memorandum in 2003 during the conflict over Tuzla Island. At that time, Russia began constructing a dam in the Kerch Strait from the Taman Peninsula to the Ukrainian island of Tuzla. These actions threatened Ukraine’s territorial integrity.

n 2016, then-Ukrainian Foreign Minister Pavlo Klimkin stated that Russia had violated most provisions of the memorandum, particularly regarding economic pressure from Russia.

In 2022, a full-scale phase of aggression began. Moreover, during the large-scale invasion, Russian officials repeatedly hinted at the possible use of nuclear weapons against Ukraine. In November 2024, Putin approved changes to Russia’s nuclear doctrine. The new provisions state that Russia may launch a nuclear strike in response to an attack on itself or Belarus by missiles or drones from a non-nuclear state supported by a nuclear state. Thus, Zakharova’s claim that the Kremlin is fulfilling its obligations under the Budapest Memorandum does not align with reality.

The claim that Western politicians are proposing to return nuclear weapons to Ukraine is also false. On November 30, The New York Times reported that the Biden administration was allegedly considering such an option. However, the media outlet later edited the article, clarifying that it had inaccurately paraphrased anonymous comments from officials. The updated text stated: “The officials suggested that the Biden administration could allow Ukraine to re-establish its nuclear arsenal, which Ukraine had agreed to surrender after the fall of the Soviet Union in exchange for security guarantees. They did not suggest that the Biden administration could return those weapons to Ukraine.”

On December 1, White House National Security Advisor Jake Sullivan confirmed that the Biden administration is not considering returning nuclear weapons to Ukraine. Ukrainian authorities reaffirm that they comply with the Treaty on the Non-Proliferation of Nuclear Weapons and have no intention of developing nuclear weapons.

Previously, we debunked the false claim that Ukraine intended to restore its nuclear arsenal.