Inside the Trump Administration’s 28‑Point Russia‑Ukraine Peace Draft: Terms, Trade‑Offs and Next Steps

U.S. officials working with the Trump administration have circulated a 28‑point draft framework intended to halt the Russia‑Ukraine war by trading significant Ukrainian concessions for a ceasefire and Western‑backed reconstruction. The draft, shared publicly by a Ukrainian opposition politician and confirmed by White House sources, would require Ukraine to cede control or accept the de facto recognition of Crimea and large parts of the Donbas, renounce NATO membership, cap its armed forces, and accept other security and economic terms in return for guarantees and aid.

Background

The document is described by U.S. officials as a working draft produced after outreach to both Russian and Ukrainian interlocutors. It has been discussed in diplomatic contacts involving President Trump’s envoy Steve Witkoff, Russian adviser Kirill Dmitriev, and Ukrainian officials including Rustem Umerov. U.S. Army Secretary Dan Driscoll also raised the plan during a visit to Kyiv, where President Volodymyr Zelenskyy said he outlined Ukraine’s red lines and agreed to continue talks.

Key provisions

Immediate ceasefire

The draft states a ceasefire would take effect immediately upon mutual acceptance of the agreement, freezing hostilities while political and security arrangements are implemented.

Territorial recognition and frozen front lines

The proposal calls for the U.S. and other parties to treat Crimea, Donetsk and Luhansk as de facto Russian territory. It would also freeze the conflict along existing lines in Kherson and Zaporizhia oblasts, effectively leaving cities such as Mariupol under Russian control and preserving a land corridor between Russia and Crimea. Some parts of Donetsk currently held by Ukraine would be designated as neutral buffer zones without Russian troops, according to the draft.

Military limits

Ukraine would be required to cap its armed forces at 600,000 personnel. Current estimates cited by Ukrainian officials place active ranks above that figure, while earlier estimates were much lower.

No NATO membership, but EU access

The draft would require Ukraine to amend its constitution to rule out joining NATO. NATO would pledge not to admit Ukraine and to refrain from deploying troops on Ukrainian territory under the deal. At the same time, the plan preserves Ukraine’s right to pursue European Union membership and provides interim access to the EU single market.

U.S. security guarantee

The framework promises a U.S.‑led, "decisive coordinated military response" and the reimposition of sanctions if Russia invades again; recognition of new Russian territory and other benefits would be revoked in that event. The draft does not specify the precise nature or scope of the military measures, and the guarantee would be void if Ukraine initiated an attack on Russian territory or launched strikes on major Russian cities.

Elections and governance

The plan calls for Ukraine to hold national elections within 100 days of agreement. It also proposes mutual amnesties for wartime actions and measures to return civilian detainees, including children.

Economics, sanctions and frozen assets

The draft outlines a reconstruction and development package for Ukraine, including urban rebuilding, a tech development fund, and investment in energy and minerals. It proposes using roughly $100 billion of frozen Russian assets to finance Ukrainian recovery, with an expected additional $100 billion contribution from European partners. Sanctions on Russia would be negotiated for staged relief; assets beyond the initial $100 billion could be directed into a joint U.S.‑Russia investment vehicle.

Security architecture and other provisions

The agreement envisions a multinational Peace Council to monitor and enforce the deal, proposed to be chaired by President Trump. Other elements include a Russia‑NATO security dialogue, a U.S.‑Russia security working group, extensions of arms control treaties, a non‑aggression pact among Russia, Ukraine and European states, and a requirement that Ukraine remain a non‑nuclear state. The draft also guarantees Ukraine’s commercial use of the Dnipro River and calls for education programs aimed at reducing prejudice. It further suggests Russia’s eventual return to the Group of Eight.

Reactions, risks and next steps

European governments have said they were not involved in drafting the proposal and have not been fully briefed. Kyiv has repeatedly rejected territorial concessions and has insisted that Crimea not be recognized as Russian; those positions make the draft politically difficult for Ukraine. U.S. officials describe the document as a working draft subject to negotiation and revision, and diplomatic conversations with multiple parties are ongoing.

White House press statement: The plan was crafted to reflect the realities of a long conflict and to seek a "win‑win scenario" that provides security guarantees, reconstruction funding, and a path for both sides to benefit.

Whether the draft can be adjusted to meet Ukraine’s key conditions — and whether European partners will accept its trade‑offs — remains unclear. The plan presents a comprehensive package of territorial, military, political and economic measures intended to freeze the war and enable recovery, but several central proposals conflict with public Ukrainian red lines and are likely to provoke strong debate among allies.