‘Not Another Budapest Memorandum’ – Kyiv Seeks US Security Guarantees Backed by Congress

President Volodymyr Zelensky said Thursday, Oct. 22, that Ukraine is negotiating detailed security guarantees with the US modeled on NATO’s Article 5, insisting that any American commitments must be backed by Congress to prevent a repeat of the failed Budapest Memorandum.

Speaking at a joint press conference with Finnish Prime Minister Petteri Orpo, Zelensky outlined a comprehensive security framework combining direct US guarantees, NATO membership and a European-led Coalition of the Willing with American backing, all built around a strong, adequately funded Ukrainian military.

“We are discussing not the Budapest Memorandum, not a piece of paper – with all due respect to those who signed it – but detailed security guarantees from the United States, backed by a vote in the US Congress,” Zelensky said.

The Ukrainian president was responding to a journalist who questioned whether Kyiv could trust new American security commitments after the 1994 Budapest Memorandum failed to protect Ukraine from Russian aggression.

Zelensky stressed that Ukraine needs enforceable commitments supported by concrete defense capabilities rather than political assurances that could prove ineffective in the event of another Russian invasion.

He confirmed that the proposals remain under discussion with Washington, with no final agreement yet announced.

‘We gave up everything that guaranteed our security’

Zelensky pointed to Ukraine’s experience under the 1994 Budapest Memorandum, under which Kyiv surrendered the nuclear weapons inherited from the Soviet Union in exchange for security assurances from Russia, the US and Britain.

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Russia subsequently violated those commitments by occupying Crimea in 2014 and launching its full-scale invasion in February 2022.

“We gave up everything that guaranteed Ukraine’s security,” Zelensky said.

He argued that Ukraine cannot afford another arrangement lacking clear obligations and credible mechanisms to deter renewed Russian aggression.

NATO, US guarantees and European coalition

Zelensky outlined three complementary security arrangements: NATO membership, bilateral American guarantees modeled on Article 5, and a European-led Coalition of the Willing backed by Washington.

He stressed that these mechanisms should reinforce one another rather than be treated as competing alternatives.

“We are talking about a comprehensive set of guarantees,” he said.

The president emphasized that all three would depend on Ukraine maintaining a strong, properly equipped military capable of defending the country against future attacks.

‘Our army is the foundation of security’

Zelensky said Ukraine and its Western partners had already calculated the personnel requirements and financing needed to maintain a powerful military after the war.

“All these guarantees are possible on the basis of a strong Ukrainian army,” he said.

He warned that Ukraine could not finance its defense needs entirely from its own budget without sacrificing national reconstruction.

International support would therefore be essential not only for maintaining the armed forces but also for rebuilding infrastructure, restoring education, supporting veterans and helping displaced Ukrainians return home.

‘Even Russia needs Ukraine in NATO’

Zelensky also argued that Ukraine’s membership in NATO would strengthen European security and could ultimately benefit Russia by reducing the risk of another war.

“We, with our army, are important for NATO, just as NATO is very important for Ukrainian security,” he said.

“I believe that, frankly, even the Russians need Ukraine’s accession to NATO,” Zelensky added. “Because it would provide them with greater security than Ukraine remaining outside NATO.”