Contested Peace: US–Kremlin 28-Point Plan Puts Ukraine Between Washington and Moscow

A U.S.-backed 28-point peace proposal reportedly drafted in consultation with the Kremlin has placed Ukraine in a precarious diplomatic position, forcing Kyiv to weigh concessions to Moscow against pressure from its most important Western backer. The plan, which Ukrainian officials say was developed without Kyiv’s participation, would accept several Russian demands that President Volodymyr Zelenskyy has repeatedly rejected — most notably formal recognition of territorial changes and limits on Ukraine’s military and security options.

Key elements of the proposal

Territorial concessions

The proposal: The document affirms Ukrainian sovereignty in principle but would treat Crimea and parts of Luhansk and Donetsk as de facto Russian territory, a position the United States would formally recognize. It would freeze the borders in the Kherson and Zaporizhzhia regions along current front lines and create demilitarized buffer zones. The plan also suggests Russia might cede some territory elsewhere — potentially parts of Sumy and areas of Kharkiv — but remains vague on specifics.

The context: Zelenskyy and many Ukrainian leaders have insisted they will not recognize occupied territory as Russian. Critics say the plan’s language is internally inconsistent: it purports to guarantee Ukraine’s sovereignty while prescribing terms that would significantly weaken it. Oleksandr Merezhko, chair of Ukraine’s parliamentary foreign affairs committee, called the proposal “a nonstarter,” suggesting it may be an opening position in a broader diplomatic strategy.

Security guarantees and NATO

The proposal: Ukraine would be required to enshrine a commitment not to join NATO in its constitution, while NATO would be asked to agree that future Ukrainian membership is off the table. The plan would limit the size of Ukraine’s armed forces to 600,000 personnel and bar NATO forces from being stationed on Ukrainian territory. It offers temporary preferential access to the European market while Kyiv implements reforms needed for EU accession, such as anti-corruption measures. The document references security guarantees from Western partners but lacks detailed mechanisms to prevent future aggression.

The context: Zelenskyy argues NATO membership offers the most durable security guarantee for Ukraine. Some NATO allies — influenced by the United States and concerned about advancing accession during active conflict — have been reluctant to rush membership while borders remain contested. The plan effectively trades a formal NATO guarantee for alternative, unspecified security commitments, a shift many in Kyiv find unacceptable.

NATO expansion

The proposal: The plan would seek a broader commitment that Russia will not invade its neighbors and would halt further NATO enlargement.

The context: NATO decisions require consensus by all members. The United States traditionally shapes NATO’s agenda and has significant influence, but the proposal signals a recalibration of U.S. policy under the current administration. Freezing NATO expansion as a formal principle is likely to be controversial among alliance members and Eastern European partners.

Accountability and legal claims

The proposal: Ukraine would be asked to relinquish claims to hold Russia legally accountable for wartime abuses and to forgo reparations claims arising from the invasion.

The context: Giving up legal claims would deny many victims the chance for reparations and judicial vindication. U.N.-backed human rights experts have characterized documented abuses, including torture of civilians and prisoners, as crimes against humanity. Political analyst Volodymyr Fesenko warned that signing the plan could be “catastrophic” for President Zelenskyy but noted that any constitutional changes — such as declaring permanent neutrality or granting official status to the Russian language — would require parliamentary approval and potentially a referendum.

Frozen Russian assets

The proposal: The plan calls for $100 billion of frozen Russian assets to be allocated to Ukraine’s reconstruction.

The context: Russian officials have strongly rejected seizure or reassignment of their frozen assets. Kremlin spokesman Dmitry Peskov warned that attempts to appropriate Russian property would prompt legal action and prosecution. How such a transfer would be legally and practically implemented is not specified in the proposal.

Reactions in Kyiv and beyond

Zelenskyy has signaled that any peace must prevent renewed aggression; he said he would coordinate closely with the European Union and the United States. Russian President Vladimir Putin welcomed the proposal as a potential basis for a final settlement if Washington can persuade Kyiv and European partners to agree. Analysts and Ukrainian officials say the text contains provisions that would limit Ukraine’s sovereignty and its ability to seek justice or protection in the future.

What’s next

Ukraine faces intense diplomatic pressure: rejecting the proposal risks alienating a powerful backer, while accepting it would require painful concessions seen by many as undermining national sovereignty. Any move to change Ukraine’s constitution would need parliamentary approval and likely a public referendum, making rapid implementation difficult. The plan raises fundamental questions about how to balance immediate security, long-term sovereignty, and justice for wartime victims.

Reporting included contributions from Dasha Litvinova. Key Ukrainian voices quoted include President Volodymyr Zelenskyy, Oleksandr Merezhko, and analyst Volodymyr Fesenko. Kremlin commentary cited Dmitry Peskov and President Vladimir Putin.