Controversial 28‑Point Trump Plan Would Cede Donbas to Russia and Limit Ukraine’s Military

The Trump administration has put forward a 28‑point proposal intended to end the war in Ukraine. The draft would grant broad territorial concessions to Russia while offering Ukraine an undefined U.S. security guarantee. Officials say the plan was compiled after consultations with Ukrainian defense officials, but neither Kyiv nor Moscow has formally accepted the proposal.

Key provisions

The proposal, as described by sources familiar with the draft, includes the following major elements:

• Territorial changes: Parts of the Donbas — including territory in Donetsk oblast currently held by Ukrainian forces — would be recognized as part of Russia. That zone would be designated a demilitarized buffer area; the draft says Russian troops would not be permitted to enter the buffer.
• Frozen front lines: Fronts around Kherson and Zaporizhzhia would remain frozen, effectively leaving expanded Russian control at those lines.
• Military limits: Ukraine would face constraints on the size and posture of its armed forces under the agreement.
• Domestic politics: Ukraine would be required to hold national elections within 100 days of signing the deal.
• Reconstruction funding: The plan proposes using about $100 billion in frozen Russian assets for Ukraine’s reconstruction. Under the draft, the United States would receive 50% of any profits generated from that reconstruction effort; the mechanism for creating and distributing "profits" is not defined. An additional $100 billion in support from Europe is envisioned, though the document does not specify the institutional source.
• Return of civilians: The agreement would mandate the return of all captured civilians, including thousands of children reportedly taken from occupied areas.
• EU path: Ukraine would be permitted to pursue EU membership, a route complicated by existing opposition from Hungary.
• Security guarantee: The United States would pledge a security guarantee promising that a renewed Russian attack would trigger a "decisive, coordinated military response" and that the territorial arrangements in the deal would be voided — but the proposal does not define what that response would entail.

Reactions and current status

Kyiv has not formally accepted the draft. The Ukrainian presidential office said the country seeks peace and remains open to substantive proposals that could bring the conflict to an end, and indicated a willingness to work constructively with the U.S. and international partners. A U.S. administration spokesperson defended the plan as an effort to provide security guarantees and pathways for reconstruction while reintegrating Russia into the global economy.

"This plan was crafted to reflect the realities of the situation, after years of a devastating war, to find the best win‑win scenario," said White House press secretary Karoline Leavitt.

Uncertainties, legal questions and concerns

Several key details remain vague or legally problematic:

• How would recognition of territory align with international law and Ukraine’s sovereignty?
• What legal mechanism would authorize the use of frozen Russian assets for reconstruction, and how would "profits" be defined and allocated?
• How would limits on Ukraine’s military be monitored and enforced, and who would guarantee compliance?
• What operational definition and triggers would determine a "decisive, coordinated military response" from the U.S. and partners?
• European institutions have not publicly endorsed the plan, and it is unclear which European actors would supply the additional funding envisioned.

What comes next

At this stage the proposal is a draft: it has not produced formal acceptances from Kyiv or Moscow, and major international partners have not publicly backed it. If negotiations proceed, the plan’s ambiguities — especially around territory, enforcement mechanisms and financing — will be central issues in any talks.