KIEV, Ukraine — In keeping with a provision of a recent cease-fire agreement with separatists, the Ukrainian government submitted a draft law to Parliament on Monday that would grant “special status” to the breakaway Donetsk and Luhansk regions for three years.

The main points include amnesty for those who participated in the “events” in those regions; the right to use Russian as an official language; the election of local councils; funds for social and economic development from the state budget; and the right to form local police forces.

But it is not clear that the law, if it passes, would be acceptable to the separatist leaders or their patron in Moscow, President Vladimir V. Putin.

One of the sticking points in future negotiations involving Russia is expected to be the degree of autonomy, with Moscow pushing from the beginning of the conflict for a federal system that would allow for the regions to maintain independent foreign relations. Some analysts say that the Kremlin is seeking a system that would allow the east to veto attempts by Kiev to draw closer to the West.