The Trump administration is promoting a 28-point draft peace plan to end the war in Ukraine that would require Kyiv to forgo NATO membership and accept major territorial concessions to Russia. The proposal, which U.S. officials say is a negotiable framework rather than a final offer, has sparked anger in Ukraine and concern among European allies, who warn it could leave the country vulnerable even as it offers large-scale reconstruction funding and an end to active hostilities.
On November 24, 2025, senior U.S. officials were still defending a 28-point draft peace plan aimed at resolving the war in Ukraine, presenting it as Washington’s most detailed attempt yet to end the conflict through negotiations.
According to reporting by outlets including Axios, NBC News and Reuters, the draft was developed with the approval of President Donald Trump and circulated to both Kyiv and Moscow in November. Media accounts and a summary of the document describe it as a broad framework that touches on territory, security guarantees, future NATO arrangements and economic ties between Russia, Ukraine, the United States and Europe.
Public reports indicate the plan would require significant concessions from Ukraine. Under versions of the draft described by multiple news organizations and outlined in a widely cited summary of the 28 points, Ukraine would agree to enshrine in its constitution that it will not join NATO and to accept a cap of about 600,000 personnel for its armed forces. The proposal also calls for a prohibition on foreign troops and bases on Ukrainian territory and would bar NATO from stationing forces in the country, while offering conditional security assurances that a future Russian attack would prompt a coordinated military response from the United States and European allies.
On territory, reporting by CBS News and other outlets says the draft foresees Ukraine relinquishing control of Crimea and the entire Donbas region to Russia, while freezing front lines in parts of Kherson and Zaporizhzhia. A detailed summary of the plan further indicates that areas of Donetsk province currently held by Kyiv would be vacated by Ukrainian forces and turned into a demilitarized buffer zone, recognized as belonging to Russia but without Russian troops entering the zone.
The document also includes provisions on sanctions and economic reintegration. Summaries of the plan describe a phased lifting of Western sanctions on Moscow and steps to restore Russia’s role in global economic forums, including readmission to the Group of Eight, in exchange for compliance with the agreement. The plan envisions a large reconstruction program for Ukraine, including the creation of a Ukraine Development Fund and the use of frozen Russian assets. One detailed account of the draft specifies that $100 billion in frozen Russian central bank assets would be directed toward Ukrainian reconstruction, alongside additional European funding.
Humanitarian and political measures form another part of the proposal. Reporting on the draft says it calls for broad wartime amnesties, prisoner exchanges on an “all for all” basis, the return and reunification of civilians including children taken to Russia, and the relaunch of the Zaporizhzhia nuclear power plant under international supervision. The plan also envisages nationwide elections in Ukraine within about 100 days of an agreement being signed.
In return, Ukraine would gain a cease-fire and the prospect of ending active hostilities, along with access to substantial reconstruction financing. The draft would allow Kyiv to pursue membership in the European Union and to obtain limited security guarantees from the United States and European partners, framed as coordinated responses and the reimposition of sanctions if Russia were to launch another invasion. However, these assurances would fall short of NATO’s mutual-defense commitments.
Reaction in Ukraine has been largely negative, according to Ukrainian and international media coverage. Critics in Kyiv have described the draft as heavily tilted toward Russian interests and tantamount to pressure on President Volodymyr Zelenskyy to accept what some have called a path to “capitulation.” Ukrainian officials have publicly rejected ceding territory seized by Russia and warned that the constraints on NATO and long-term security policy could undermine the country’s sovereignty.
European allies have also voiced reservations. In a joint statement cited by CBS News, leaders from the European Union and several G7 and European states said the U.S. draft contains “important elements” for a possible settlement but stressed that it “requires additional work.” Separately, European governments have backed an alternative text that follows the structure of the U.S. proposal but places greater emphasis on Ukraine’s right to choose its own alliances and insists that any peace deal must not legitimize territory taken by force.
President Zelenskyy and his advisers have been consulting closely with partners including France and the United Kingdom as negotiations over the framework continue. Public comments from Kyiv underscore a dilemma between securing an end to the fighting and preserving what officials describe as Ukraine’s dignity, territorial integrity and long-term security. U.S., Ukrainian and European officials have signaled that the 28-point document remains a draft subject to change, and that further talks will be needed to determine whether any version of it can form the basis of a final peace agreement.
