US's 28-point plan: Recognizes Russian gains, bars Ukraine from NATO
9 Min Read
A Trump-backed 28-point draft would recognize Russia’s hold on seized territories, bar Ukraine from NATO, and offer full amnesty, while creating substantial joint economic projects to guarantee peace.
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United States President Donald Trump greets Russia's President Vladimir Putin, on August 15, 2025, at Joint Base Elmendorf-Richardson, Alaska. (AP)
A 28-point draft peace proposal, produced by United States President Donald Trump's team and circulated by the White House, would require Kiev to accept sweeping territorial and political concessions in exchange for US security guarantees.
According to the document obtained by Axios, the plan would “effectively recognize Crimea, Luhansk and Donetsk as de facto Russian,” freeze control of Kherson and Zaporizhzhia along the current front line, and demand Ukrainian withdrawals from parts of Donetsk. The draft also calls for Ukraine to enshrine a permanent constitutional ban on NATO membership.
The proposal sets a timetable for rapid political normalization in Ukraine, including national elections within 100 days of an agreement, and envisages the staged lifting of sanctions tied to implementation of the deal.
Security architecture, guarantees, accountability
The draft ties Ukrainian concessions to a new security framework that would curtail Kiev’s military capacity, reportedly capping armed forces at 600,000, while promising “reliable security guarantees” from the United States and other guarantors. A central enforcement mechanism would be a new Peace Council, described in the text as chaired by Donald J. Trump, with authority to monitor compliance and impose penalties for violations.
Perhaps most contentious and alarming to European allies is the proposal’s amnesty language.
US President Donald #Trump has approved a new 28-point plan to end the war in #Ukraine, NBC News reported, citing US officials, unsettling Kiev and several US allies.
— Al Mayadeen English (@MayadeenEnglish) November 20, 2025
Reports suggested the #Russia-Ukraine ceasefire proposal includes major shifts in Washington’s approach to the… pic.twitter.com/GOto8JDQdq
“All parties involved in this conflict will receive full amnesty for their actions during the war,” the draft states.
Economic terms in the draft envision Russia’s reintegration into the global economy, joint reconstruction projects, and the use of frozen Russian assets, reportedly $100 billion, to fund Ukraine’s rebuilding, with proposed profit-sharing arrangements.
Reactions and geopolitical fallout
The plan has already provoked alarm among US allies and within Kiev. European and US officials are reported to be scrambling to understand the full implications, warning that the draft would amount to conceding major Russian gains and permanently altering NATO’s posture in Eastern Europe.
Ukraine is ready to talk
Kiev has been informed of the framework’s broad outlines, but sources told Axios it was not a party to drafting its details. Ukrainian President Volodymyr Zelensky has referred to the document as a US “vision” and stressed Kiev’s need to defend core red lines. The US is pushing Ukraine to make the deal on an "aggressive timeline."
The 28-point plan was drafted by Trump’s envoy Steve Witkoff, with input from Secretary of State Marco Rubio and Jared Kushner, Trump’s son-in-law. Witkoff also consulted Russian envoy Kirill Dmitriev, who told Axios he was optimistic because, unlike previous efforts, “we feel the Russian position is really being heard,” though President Vladimir Putin has not publicly endorsed the plan.
Following these consultations, Witkoff and Kushner discussed the proposal with Ukrainian national security advisor Rustem Umerov. US Army Secretary Dan Driscoll formally presented the plan to Zelensky on Thursday, after which Zelensky said he was prepared to hold talks with Trump’s team.
White House officials have presented the draft as a negotiable framework intended to stop the fighting and provide guarantees for both sides.
Read more: Russia announces full control over Kupyansk amid eastern advance
EU demands involvement
Meanwhile, the European Union (EU), a major backer of the Ukrainian government, has demanded involvement after being sidelined from the talks.
“For any plan to work, it needs Ukrainians and Europeans on board,” EU foreign policy chief Kaja Kallas told reporters in Brussels on Thursday.
“We have to understand that in this war, there is one aggressor and one victim,” she said, adding, “So we haven't heard of any concessions on the Russian side.”
Read more: Germany says was not briefed on reported US peace plan for Ukraine
The full plan obtained by Axios
- Ukraine's sovereignty will be confirmed.
- A comprehensive non-aggression agreement will be concluded between Russia, Ukraine and Europe. All ambiguities of the last 30 years will be considered settled.
- It is expected that Russia will not invade neighboring countries and NATO will not expand further.
- A dialogue will be held between Russia and NATO, mediated by the United States, to resolve all security issues and create conditions for de-escalation in order to ensure global security and increase opportunities for cooperation and future economic development.
- Ukraine will receive reliable security guarantees.
- The size of the Ukrainian Armed Forces will be limited to 600,000 personnel.
- Ukraine agrees to enshrine in its constitution that it will not join NATO, and NATO agrees to include in its statutes a provision that Ukraine will not be admitted in the future.
- NATO agrees not to station troops in Ukraine.
- European fighter jets will be stationed in Poland.
- The US guarantee:
The US will receive compensation for the guarantee;
If Ukraine invades Russia, it will lose the guarantee;
If Russia invades Ukraine, in addition to a decisive coordinated military response, all global sanctions will be reinstated, recognition of the new territory and all other benefits of this deal will be revoked;
If Ukraine launches a missile at Moscow or St. Petersburg without cause, the security guarantee will be deemed invalid. - Ukraine is eligible for EU membership and will receive short-term preferential access to the European market while this issue is being considered.
- A powerful global package of measures to rebuild Ukraine, including but not limited to:
The creation of a Ukraine Development Fund to invest in fast-growing industries, including technology, data centers, and artificial intelligence.
The United States will cooperate with Ukraine to jointly rebuild, develop, modernize, and operate Ukraine's gas infrastructure, including pipelines and storage facilities.
Joint efforts to rehabilitate war-affected areas for the restoration, reconstruction and modernization of cities and residential areas.
Infrastructure development.
Extraction of minerals and natural resources.
The World Bank will develop a special financing package to accelerate these efforts. - Russia will be reintegrated into the global economy:
The lifting of sanctions will be discussed and agreed upon in stages and on a case-by-case basis.
The United States will enter into a long-term economic cooperation agreement for mutual development in the areas of energy, natural resources, infrastructure, artificial intelligence, data centers, rare earth metal extraction projects in the Arctic, and other mutually beneficial corporate opportunities.
Russia will be invited to rejoin the G8. - Frozen funds will be used as follows:
$100 billion in frozen Russian assets will be invested in US-led efforts to rebuild and invest in Ukraine; The US will receive 50% of the profits from this venture.
Europe will add $100 billion to increase the amount of investment available for Ukraine's reconstruction.
Frozen European funds will be unfrozen.
The remainder of the frozen Russian funds will be invested in a separate US-Russian investment vehicle that will implement joint projects in specific areas.
This fund will be aimed at strengthening relations and increasing common interests to create a strong incentive not to return to conflict. - A joint American-Russian working group on security issues will be established to promote and ensure compliance with all provisions of this agreement.
- Russia will enshrine in law its policy of non-aggression towards Europe and Ukraine.
- The United States and Russia will agree to extend the validity of treaties on the non-proliferation and control of nuclear weapons, including the START I Treaty.
- Ukraine agrees to be a non-nuclear state in accordance with the Treaty on the Non-Proliferation of Nuclear Weapons.
- The Zaporizhzhia Nuclear Power Plant will be launched under the supervision of the IAEA, and the electricity produced will be distributed equally between Russia and Ukraine — 50:50.
- Both countries undertake to implement educational programs in schools and society aimed at promoting understanding and tolerance of different cultures and eliminating racism and prejudice:
Ukraine will adopt EU rules on religious tolerance and the protection of linguistic minorities.
Both countries will agree to abolish all discriminatory measures and guarantee the rights of Ukrainian and Russian media and education.
All Nazi ideology and activities must be rejected and prohibited. - Territories:
Crimea, Luhansk and Donetsk will be recognized as de facto Russian, including by the United States.
Kherson and Zaporizhzhia will be frozen along the line of contact, which will mean de facto recognition along the line of contact.
Russia will relinquish other agreed territories it controls outside the five regions.
Ukrainian forces will withdraw from the part of Donetsk Oblast that they currently control, and this withdrawal zone will be considered a neutral demilitarized buffer zone, internationally recognized as territory belonging to the Russian Federation.
Russian forces will not enter this demilitarized zone. - After agreeing on future territorial arrangements, both the Russian Federation and Ukraine undertake not to change these arrangements by force.
Any security guarantees will not apply in the event of a breach of this commitment. - Russia will not prevent Ukraine from using the Dnieper River for commercial activities, and agreements will be reached on the free transport of grain across the Black Sea.
- A humanitarian committee will be established to resolve outstanding issues:
All remaining prisoners and bodies will be exchanged on an 'all for all' basis.
All civilian detainees and hostages will be returned, including children.
A family reunification program will be implemented.
Measures will be taken to alleviate the suffering of the victims of the conflict. - Ukraine will hold elections in 100 days.
- All parties involved in this conflict will receive full amnesty for their actions during the war and agree not to make any claims or consider any complaints in the future.
- This agreement will be legally binding. Its implementation will be monitored and guaranteed by the Peace Council, headed by President Donald J. Trump. Sanctions will be imposed for violations.
- Once all parties agree to this memorandum, the ceasefire will take effect immediately after both sides retreat to agreed points to begin implementation of the agreement.
