Trump’s 28-Point Ukraine–Russia Peace Blueprint Presses Kyiv For Major Concessions

President Donald Trump advanced Thursday a sweeping 28-point plan aimed at ending the war in Ukraine, a proposal that would require Kyiv to surrender additional territory, limit its military, and formally rule out NATO membership, according to a draft obtained by Axios and confirmed by multiple U.S. and Ukrainian officials.

The administration is pushing Ukraine to engage on what one official described as an “aggressive timeline,” even though the draft includes several provisions Kyiv has firmly rejected before. Still, President Volodymyr Zelensky said after receiving the document on Thursday that he is prepared to discuss it with Trump’s team.

The plan was originally drafted by Trump’s envoy Steve Witkoff, with input from Secretary of State Marco Rubio and Trump’s son-in-law Jared Kushner. Witkoff also consulted Russian envoy Kirill Dmitriev, who told Axios he is “optimistic” because Moscow feels “the Russian position is really being heard,” though President Vladimir Putin has not officially endorsed the proposal.

Following meetings with Dmitriev, Witkoff and Kushner briefed Zelensky’s national security adviser, Rustem Umerov, before U.S. Army Secretary Dan Driscoll presented the full written plan to Zelensky on Thursday. Zelensky later emphasized that the document reflected the U.S. “vision,” not a final deal, and said Ukraine would provide its own input.

A U.S. official described the plan to Axios as a “live document” open to amendment, while insisting that Washington views it as balanced and expects Ukraine to respond seriously and quickly. Trump has personally endorsed the proposal, the full details of which had not been published until now.

Beyond territorial concessions, the draft includes a pledge of a “decisive coordinated military response” if Russia violates the agreement by invading Ukraine again, though it does not clarify what role the United States would play. The plan also outlines economic incentives: partial use of frozen Russian assets to rebuild Ukraine, staged lifting of sanctions on Moscow, long-term U.S.–Russia economic cooperation, and Russia’s return to the G8.

The framework calls for broad amnesty for all parties in the conflict, meaning Russian officials and soldiers would not face prosecution for war-related actions. It also mandates Ukrainian elections within 100 days of a deal—a timeline Zelensky previously said he would consider once a ceasefire takes hold.

Below is a summary of the 28-point plan as reflected in the current draft:

1–5: Security Architecture
The plan confirms Ukraine’s sovereignty, establishes a Russia-Ukraine-Europe non-aggression pact, freezes NATO expansion, and sets up a U.S.-mediated dialogue between Russia and NATO. Ukraine would receive explicit U.S. security guarantees, a first in these negotiations.

6–10: Military Limits and Guarantees
Ukraine’s armed forces would be capped at 600,000 troops. Kyiv would enshrine in its constitution that it will not join NATO, and NATO would formally bar future Ukrainian membership. European fighter jets would be based in Poland. Complex conditionality defines when U.S. guarantees apply, or are revoked.

11–14: Economic Integration and Reconstruction
Ukraine would receive preferential access to European markets and a major reconstruction package featuring investments in technology, energy infrastructure, and natural resources. Sanctions relief for Russia would proceed in stages, and Moscow would gain long-term economic partnerships with the U.S. and Europe. One hundred billion dollars in frozen Russian assets would be directed toward Ukraine’s rebuilding, with Europe matching that amount.

15–20: Oversight, Arms Control, Nuclear Issues, and Social Policies
A joint U.S.–Russia security group would monitor compliance. Russia must codify non-aggression toward Ukraine and Europe. Nuclear treaties would be extended, including the soon-to-expire New START framework. Ukraine remains a non-nuclear state, and the Zaporizhzhia nuclear plant would operate under IAEA supervision with power shared equally. Both countries must implement educational and cultural protections, ban discriminatory measures, and reject Nazi ideology.

21–23: Territorial Arrangements and Trade
Crimea, Luhansk, and Donetsk would be recognized de facto as Russian, including by the United States. Kherson and Zaporizhzhia would be frozen along current lines of contact. Ukraine would withdraw from parts of Donetsk it still controls, with that area becoming an internationally recognized demilitarized buffer zone belonging to Russia, though Russian troops would not enter it. A commitment not to change borders by force would become binding. Moscow would guarantee Ukraine’s commercial use of the Dnieper River and allow grain shipments across the Black Sea.

24–26: Humanitarian Measures and Amnesty
All prisoners, bodies, civilian detainees, and abducted children would be exchanged on an “all for all” basis. A family reunification program would begin, and all sides would receive full amnesty for wartime actions.

27–28: Implementation and Ceasefire
A legally binding agreement would be enforced by a Peace Council chaired by President Trump, with sanctions applied for violations. A ceasefire would begin immediately once both sides move to agreed positions.

The draft marks the most detailed articulation yet of Trump’s proposed settlement, setting the stage for what could become the most consequential diplomatic effort of his presidency. Whether Ukraine, Russia, and Europe will accept the sweeping terms, and whether they can be implemented, remains uncertain as discussions intensify.