Overview of Trump administration’s 28-point peace plan that Zelenskyy called it a “difficult choice…
The Trump administration’s 28-point peace plan, drafted primarily by U.S. special envoy Steve Witkoff with input from Kremlin representative Kirill Dmitriev during late October meetings in Miami, aims to end the Russia-Ukraine war. The framework, described as a “live document” open to revisions, was presented to Ukrainian President Volodymyr Zelenskyy on November 20, 2025, with a reported Thanksgiving (November 27) deadline for key concessions. It heavily favors Russian demands, requiring Ukraine to cede territory, limit its military, and forgo NATO membership in exchange for U.S. security guarantees and reconstruction aid. Russia would receive phased sanctions relief and economic reintegration.
The plan has drawn sharp criticism: Zelenskyy called it a “difficult choice” risking Ukraine’s “dignity and freedom,” European leaders labeled it “capitulation,” and analysts warn it could invite future Russian aggression by locking in gains without Moscow’s withdrawal. Putin has expressed cautious support, calling it a potential “basis for a final settlement.”
Key Provisions: The 28 Points
The plan is structured around sovereignty, security, territorial, economic, and humanitarian elements. Below is a summarized table of all 28 points, based on the leaked draft verified by multiple outlets.
| Point | Category | Summary |
|---|---|---|
| 1 | Sovereignty | Reconfirm Ukraine’s sovereignty over its recognized borders (excluding concessions in later points). |
| 2 | Non-Aggression | Comprehensive non-aggression pact between Russia, Ukraine, and Europe, resolving “ambiguities of the last 30 years.” |
| 3 | Security Expectations | Russia commits not to invade neighbors; NATO halts further expansion. |
| 4 | Dialogue | U.S.-moderated Russia-NATO talks to address security concerns and promote de-escalation/economic ties. |
| 5 | Guarantees | Ukraine receives “robust” U.S. security guarantees post-war. |
| 6 | Military Limits | Ukraine’s armed forces capped at 600,000 personnel (current: ~850,000). |
| 7 | NATO Ban | Ukraine enshrines permanent non-NATO status in its constitution; NATO amends bylaws to bar Ukraine’s entry. |
| 8 | Troop Restrictions | No NATO troops stationed in Ukraine. |
| 9 | Regional Deployment | European (e.g., British/French) fighter jets stationed in Poland. |
| 10 | Guarantee Conditions | U.S. guarantee details: Compensation to U.S.; void if Ukraine invades Russia or strikes Moscow/St. Petersburg; reinstated sanctions and revoked benefits if Russia invades Ukraine. |
| 11 | EU Path | Ukraine eligible for EU membership with short-term European market access. |
| 12 | Reconstruction | Global redevelopment package: Ukraine Development Fund for tech/AI/data centers; U.S.-Ukraine partnership on gas infrastructure; joint urban/mineral redevelopment; World Bank financing. |
| 13 | Russia Reintegration | Phased sanctions relief; U.S.-Russia economic cooperation in energy, AI, Arctic resources; Russia invited back to G8. |
| 14 | Frozen Assets | $100B of frozen Russian assets for Ukraine reconstruction (U.S. takes 50% profits; Europe matches $100B); remainder in U.S.-Russia investment fund. |
| 15 | Enforcement | Joint U.S.-Russia security taskforce for compliance. |
| 16 | Russian Commitment | Russia legislates non-aggression toward Europe/Ukraine. |
| 17 | Nuclear Treaties | Extend U.S.-Russia START nuclear non-proliferation treaties. |
| 18 | Non-Nuclear | Ukraine reaffirms non-nuclear status under NPT. |
| 19 | Nuclear Plant | IAEA supervises Zaporizhzhia plant restart; 50/50 power split between Russia/Ukraine. |
| 20 | Cultural/Tolerance | Education programs promoting tolerance; repeal discriminatory measures for Russian/Ukrainian media/education; ban Nazi ideology; adopt EU religious/linguistic minority rules. |
| 21 | Territories | De facto Russian recognition of Crimea, full Donbas (Luhansk/Donetsk, including Ukrainian-held parts); freeze Kherson/Zaporizhzhia at current lines; Russia relinquishes other occupied areas (e.g., parts of Kharkiv); Ukrainian-held Donetsk portion becomes demilitarized buffer zone under Russian sovereignty. |
| 22 | Territorial Stability | No force to alter future borders; breaches void security guarantees. |
| 23 | Trade Access | Russia allows Ukraine’s commercial use of Dnieper River; Black Sea grain shipments freed. |
| 24 | Humanitarian | Committee for prisoner/hostage exchanges (“all for all”), family reunifications, victim support. |
| 25 | Elections | Ukraine holds presidential elections within 100 days. |
| 26 | Amnesty | Full amnesty for wartime actions; no further claims/grievances. |
| 27 | Oversight | Legally binding; monitored by Peace Council chaired by President Trump; sanctions for violations. |
| 28 | Ceasefire | Immediate ceasefire upon agreement; troops withdraw to implementation positions. |
Implications and Reactions
- For Ukraine: Cessions could total ~20% of territory (Crimea + full Donbas + frozen lines), plus military/NATO restrictions, seen as “creeping capitulation.” Zelenskyy plans counter-proposals with EU allies (e.g., Britain, France, Germany) emphasizing sovereignty.
- For Russia: Gains territory and economic relief without full withdrawal; Putin views it positively but demands “flexibility” from Kyiv.
- U.S./Trump: Positions Trump as global peacemaker (mirroring Gaza deal); White House insists it’s balanced, with Ukraine influencing some points.
- Europe/NATO: Alarm over exclusion from drafting; France’s FM: “Peace cannot mean capitulation.” EU prepares alternative plan. Germany, France, UK, Italy coordinate at G20.
The plan’s fate hinges on Zelenskyy’s response by November 27; rejection could halt U.S. aid, per reports.
