U.S. and Ukraine Narrow Differences on Peace Draft — Donbas Control and Zaporizhzhia Plan Still Divide Talks

The United States and Ukraine have reached agreement on many core elements of a draft peace plan aimed at ending the nearly four-year war, Ukrainian President Volodymyr Zelenskyy said, but sharp disagreements remain over territorial control in Donetsk and Luhansk and the future management of the Zaporizhzhia nuclear power plant.

Overview of the Draft

Zelenskyy briefed reporters Tuesday (his remarks were embargoed until Wednesday morning) and said the proposal largely reflects Ukraine’s priorities, combining political and commercial measures designed to protect security and unlock economic opportunities. Kremlin spokesman Dmitry Peskov said Moscow will announce its position after receiving details from Russian presidential envoy Kirill Dmitriev.

Territorial Disputes: Donetsk and Luhansk

At the heart of the negotiations is the contested Donbas region. Zelenskyy described the issue as “the most difficult point.” Russia continues to press broad demands — including that Ukraine cede remaining parts of Donbas not under Russian control — a demand Kyiv rejects. Russia currently controls most of Luhansk and roughly 70% of Donetsk.

The U.S. has proposed transforming disputed areas into free economic zones as a way to bridge positions. Ukraine insists any such arrangement must be ratified by a referendum, calls for demilitarization, and wants an international force to guarantee security. The draft recommends freezing the contact line across five regions once an agreement is signed; Ukraine says referendums should follow a 60-day cessation of hostilities to allow voting.

Zaporizhzhia Nuclear Plant: A Major Sticking Point

The fate of the Zaporizhzhia nuclear power plant — Europe’s largest, currently under Russian occupation — remains unresolved. The U.S. proposed a tripartite consortium with Ukraine, the U.S. and Russia each holding an equal (roughly 33%) stake and the U.S. acting as primary manager. Ukraine rejected that model as unrealistic after the conflict and instead proposed a U.S.-Ukraine joint venture in which the American partner would control how its share is allocated (effectively preventing direct Russian benefit).

Zelenskyy said discussions about the plant lasted about 15 hours and stressed the need for massive investment to restore safe operations, including repairs to the adjacent dam.

Security Guarantees and Monitoring

The draft contains an annex proposing robust security guarantees for Ukraine modeled on NATO’s Article 5, obligating partners to respond to renewed aggression. A bilateral document with the United States would outline conditions for assistance and include a ceasefire-monitoring mechanism using satellite imagery and early-warning systems to enable rapid response to violations.

Other Key Provisions

• Ukraine’s peacetime army level is referenced at 800,000 in the draft.
• The plan envisions accelerated free-trade arrangements, privileged short-term access to European markets, and a comprehensive development package to attract roughly $800 billion in equity, grants, loans and private investment for reconstruction and modernization.
• The draft requires Ukraine to hold elections after signing the agreement.
• Kyiv seeks immediate release of all prisoners taken since 2014 and the return of civilian detainees, political prisoners and children.
• The draft proposes withdrawal of Russian forces from several regions and deployment of international units along the contact line to monitor implementation.

"We did not reach a consensus with the American side on the territory of the Donetsk region and on the ZNPP. But we have significantly brought most of the positions closer together," Zelenskyy said.

What Comes Next

Major unresolved items — notably Points 12 and 14, covering the Zaporizhzhia plant and territories along the eastern contact line — are expected to be escalated to leaders’ level talks. Diplomats will need to agree how far frontline troops would withdraw, where international forces would be stationed, and the exact terms of any free economic zone or demilitarized status, all while preserving Ukraine’s sovereign decision-making through referendums.

The draft represents a significant step toward compromise on many issues, but the most sensitive territorial and nuclear-safety questions remain the central obstacles to a final agreement.