Former US President Donald Trump has put forward a sweeping 28-point peace plan aimed at ending the ongoing war between Russia and Ukraine. According to a leaked draft obtained by Axios — and later verified by a Ukrainian official, a senior US official and a source familiar with the proposal — the plan includes major concessions from Ukraine, including giving up more territory, restricting its military size, and abandoning its ambition to join NATO.
Despite these difficult conditions, President Volodymyr Zelensky has not dismissed the proposal, signalling that Kyiv is prepared to discuss the ideas with Trump’s team.
Why This Plan Matters
The leaked document suggests that the US is pressing for an agreement under a tight and “aggressive timeline.”
Key reasons the plan is drawing global attention:
It demands compromises Ukraine has previously rejected.
The US believes delaying peace could result in Kyiv losing more ground.
Both US and Russian envoys have participated in shaping the proposal.
Ukraine views the document as a starting point—not a final agreement.
A senior US official told Axios that while the proposal is “not easy” for Ukraine, Washington believes it may be the best chance to end the war.
Who Worked on the Proposal?
The peace plan was drafted by Steve Witkoff, Trump’s envoy, with strategic input from:
Marco Rubio, US Secretary of State
Jared Kushner, Trump’s son-in-law
Kirill Dmitriev, Russia’s representative, who said the Russian side feels its concerns are finally “being heard”
Following discussions in Moscow and Kyiv, US Army Secretary Dan Driscoll formally delivered the written draft to Zelensky, who later indicated his willingness to talk directly with Trump about it.
Zelensky’s Initial Reaction
President Zelensky described the plan as the American “vision” for peace, not a fixed final offer.
He confirmed that Ukraine has clear red lines and intends to provide its own amendments to ensure the proposal becomes “meaningful” and workable.
US officials also described the plan as a “live document”, still open to edits based on negotiations with all parties involved.
Key Themes of Trump’s 28-Point Peace Plan
The plan covers security guarantees, territorial arrangements, economic cooperation, nuclear safety, and post-war reconstruction.
A detailed breakdown is outlined below using simple language.
1. Security and Military Commitments
Recognition of Sovereignty
Ukraine’s sovereignty would be formally confirmed by all parties.
A New Non-Aggression Pact
Russia, Ukraine, and European partners would sign a wide-ranging non-aggression agreement.
Russia must pledge not to invade neighbouring states.
NATO must commit to halting further expansion.
Dialogue Between Russia and NATO
The US would mediate new talks centred on security concerns and de-escalation.
American Security Guarantee
Under this guarantee:
The US would provide explicit security protection for Ukraine.
Ukraine must not attack Russia; doing so would void the guarantee.
If Russia invades again, sanctions would immediately return and a coordinated military response would follow.
Any Ukrainian strike on Moscow or St Petersburg “without cause” would break the agreement.
Limit on Ukraine’s Army
Ukraine’s military would be capped at 600,000 personnel
(current estimates suggest 800,000 – 850,000 soldiers).
Ukraine Cannot Join NATO
Kyiv must constitutionally bind itself to never join NATO.
NATO must formally agree to exclude Ukraine permanently.
NATO troops cannot be stationed in Ukraine.
European Jets in Poland
Fighter jets would be based in Poland as part of a regional deterrence strategy.
2. Economic Reconstruction and Global Cooperation
The plan includes a major economic recovery package to rebuild Ukraine:
Ukraine Development Fund
Focusing on:
Technology and AI industries
Data centres
Infrastructure and energy networks
Modernisation of damaged cities
Natural resource extraction
Gas Infrastructure Partnership
The US and Ukraine would jointly rebuild and operate gas pipelines and storage hubs.
World Bank Involvement
A special global financing mechanism would be created to speed up reconstruction.
Russia’s Reintegration into the Global Economy
If the plan succeeds:
Sanctions would be lifted gradually.
Russia would sign a long-term cooperation pact with the US.
Joint ventures would be created in energy, minerals, AI, rare earth metals and Arctic projects.
Russia would be invited back into the G8.
Use of Frozen Russian Funds
$100 billion of frozen Russian assets would support Ukraine’s rebuilding.
Europe would add another $100 billion.
The US would take 50% of the profits from reconstruction investments.
Remaining frozen funds would support joint US-Russia development projects to encourage stability.
3. Nuclear Safety and Non-Proliferation
Key commitments include:
Both nations renewing nuclear arms control agreements, including the START treaty.
Ukraine reaffirming its non-nuclear status.
The Zaporizhzhia Nuclear Power Plant being restarted under IAEA supervision, with electricity split 50:50 between Russia and Ukraine.
4. Cultural and Humanitarian Measures
Education and Social Programmes
Ukraine would adopt EU standards for linguistic and religious protections.
Both sides must abolish discriminatory laws.
Media and education rights for both Russians and Ukrainians would be guaranteed.
Nazi ideology must be outlawed.
Humanitarian Committee
This committee would oversee:
Exchange of all prisoners and remains
Release of civilian hostages, including children
Family reunification efforts
Support for war-affected civilians
5. Territorial Arrangements
This is the most controversial element of the plan.
Recognised as De Facto Russian
Crimea
Luhansk
Donetsk
Frozen Lines
Kherson and Zaporizhzhia would be frozen along current lines of control.
Additional Territorial Withdrawals
Ukraine would withdraw from the parts of Donetsk it still controls.
A demilitarised buffer zone would be created, internationally acknowledging the territory as part of Russia.
Russian forces would not be allowed to enter the buffer zone.
Both sides must pledge not to change borders by force in the future.
6. Democratic Processes
Ukraine would hold national elections within 100 days of signing the agreement.
7. Amnesty and Enforcement
Full Amnesty
All parties — including soldiers and officials — would receive amnesty and immunity from future legal claims, including war crimes proceedings.
Peace Council Led by Trump
A new body called the Peace Council, chaired by Donald Trump, would oversee the deal.
Violations would trigger sanctions.
Immediate Ceasefire
Once the agreement is approved, both sides must withdraw to pre-agreed positions and the ceasefire would begin immediately.
Conclusion
Trump’s 28-point proposal lays out an ambitious, highly detailed roadmap for ending the war — but it demands painful compromises from Ukraine, major strategic shifts from NATO, and an unprecedented level of cooperation from Russia.
For now, the plan remains a draft, still being negotiated and adjusted. Zelensky says Ukraine will propose its own changes, while the US insists it wants a deal soon to prevent further loss of territory and life.
Whether this plan brings peace or sparks new tensions will depend on how each side responds in the weeks ahead.
Sources
Axios (original reporting and leaked draft verification)
Statements from US and Ukrainian officials quoted in Axios
Public remarks from President Volodymyr Zelensky
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