28-Point Trump Ukraine-Russia Peace Plan
The following represents the complete 28-point framework presented by the Trump administration to Ukrainian President Volodymyr Zelensky on November 20, 2025. This plan was drafted by Special Envoy Steve Witkoff in collaboration with Russian negotiator Kirill Dmitriev, with input from Secretary of State Marco Rubio and Jared Kushner.
The Complete 28 Points
- Immediate Cessation of Hostilities
All parties agree to an immediate ceasefire along current battle lines. This represents the foundational requirement that must be accepted before any other provisions take effect.
- Comprehensive Non-Aggression Agreement
A comprehensive non-aggression agreement will be concluded between Russia, Ukraine, and Europe. All ambiguities and disputes of the last 30 years will be considered permanently settled, effectively drawing a line under three decades of post-Soviet tensions.
- Mutual Security Commitments
Russia commits not to invade neighboring countries, while NATO pledges not to expand further. This freezes the current NATO membership at existing levels and prevents any future enlargement, particularly regarding Ukraine and Georgia.
- Russia-NATO Dialogue Mechanism
A formal dialogue will be established between Russia and NATO, mediated by the United States, to resolve all security issues and create conditions for de-escalation. This aims to ensure global security and increase opportunities for cooperation and future economic development.
- Prohibition on Ukraine's NATO Membership
Ukraine agrees never to join NATO. This represents a permanent abandonment of Ukraine's NATO aspirations, which have been a central foreign policy goal since 2014.
- European Union Membership Rights
Ukraine's right to join the European Union will be confirmed and fast-tracked. Ukraine will receive immediate access to the European market pending full membership, providing economic integration even before political accession is complete.
- Military Size Restrictions
Ukraine's military will be capped at 600,000 personnel. This represents approximately a 25 percent reduction from current force levels and includes all active-duty military branches.
- Prohibition on Foreign Military Presence
No foreign troops or military bases will be permitted on Ukrainian territory. This effectively prevents any European or international peacekeeping force from being deployed to monitor the ceasefire or provide security guarantees.
- Security Guarantees for Ukraine
In the event of future Russian aggression against Ukraine, there will be a "decisive coordinated military response" from the United States and European allies. Any attack on Ukraine would be viewed as an attack on the "transatlantic community." However, this guarantee is voided if Ukraine invades Russia or launches missiles at Moscow or St. Petersburg. Recognition of new Russian territory and other benefits would also be canceled in case of Russian violation.
- U.S.-Russia Nuclear Treaties Extension
The United States and Russia will agree to extend the validity of treaties on the non-proliferation and control of nuclear weapons, including the START I Treaty, maintaining strategic stability between the nuclear superpowers.
- Creation of Joint Security Working Group
A joint U.S.-Russia security working group will be established to address ongoing security concerns and build confidence between the former Cold War adversaries.
- G8 Readmission for Russia
Russia will be readmitted to the Group of Eight (G8), reversing its expulsion following the 2014 annexation of Crimea and restoring its participation in this forum of major economic powers.
- Ukraine Development Fund
Creation of a Ukraine Development Fund to invest in fast-growing industries, including technology, data centers, and artificial intelligence. The United States will cooperate with Ukraine to jointly rebuild, develop, modernize, and operate Ukraine's gas infrastructure, including pipelines and storage facilities. Joint efforts will rehabilitate war-affected areas for the restoration, reconstruction, and modernization of cities and residential areas.
- Use of Frozen Russian Assets
One hundred billion dollars (US$100 billion) from frozen Russian Central Bank assets will be allocated for Ukrainian reconstruction. The European portion of frozen funds will be returned to Russia, while the remainder will be invested in a joint U.S.-Russian fund.
- European Reconstruction Fund
Europe will raise an additional 100 billion dollars for Ukrainian reconstruction, matching the contribution from frozen Russian assets.
- U.S.-Russia Economic Cooperation
The United States will enter into long-term economic cooperation agreements with Russia for mutual development in areas of energy, natural resources, infrastructure, artificial intelligence, data centers, rare earth metal extraction projects in the Arctic, and other mutually beneficial corporate opportunities. Sanctions will be lifted in stages on a case-by-case basis.
- Return to Global Economy
Both Ukraine and Russia will be provided financial opportunities to rejoin and participate fully in the global economy, with pathways for normalized trade relations and investment.
- Ukraine's Non-Nuclear Status
Ukraine agrees to remain a non-nuclear state in accordance with the Treaty on the Non-Proliferation of Nuclear Weapons, permanently forgoing any nuclear weapons development.
- Zaporizhzhia Nuclear Power Plant
The Zaporizhzhia Nuclear Power Plant will be relaunched under the supervision of the International Atomic Energy Agency (IAEA), and the electricity produced will be distributed equally between Russia and Ukraine on a 50-50 basis.
- Educational and Cultural Programs
Both countries undertake to implement educational programs in schools and society aimed at promoting understanding and tolerance of different cultures and eliminating racism and prejudice. Specific provisions include:
- Ukraine will adopt EU rules on religious tolerance and protection of linguistic minorities
- Both countries will abolish all discriminatory measures and guarantee rights of Ukrainian and Russian media and education
- All Nazi ideology and activities must be rejected and prohibited
- Territorial Arrangements
This represents the most controversial element of the plan:
- Crimea, Luhansk, and Donetsk will be recognized as de facto Russian territory, including by the United States
- Kherson and Zaporizhzhia will be frozen along the line of contact, meaning de facto recognition of Russian control over occupied portions
- Russia will relinquish other agreed territories it controls outside these five regions
- Ukrainian forces will withdraw from the part of Donetsk Oblast they currently control; this withdrawal zone will become a neutral demilitarized buffer zone, internationally recognized as territory belonging to the Russian Federation, though Russian forces will not enter this demilitarized zone
- Prohibition on Forcible Territorial Changes
After agreeing on future territorial arrangements, both the Russian Federation and Ukraine undertake not to change these arrangements by force. Ukraine specifically agrees not to use military force to reclaim territories recognized as Russian under this agreement.
- Freedom of Navigation and Commerce
Russia will not prevent Ukraine from using the Dnipro River for commercial activities, and agreements will be reached on the free transport of grain across the Black Sea, ensuring Ukraine's agricultural exports can continue unimpeded.
- Humanitarian Committee and Prisoner Exchange
A humanitarian committee will be established to resolve outstanding issues:
- All remaining prisoners and bodies will be exchanged on an "all for all" basis
- All civilian detainees and hostages will be returned, including children
- A family reunification program will be implemented
- Measures will be taken to alleviate the suffering of victims of the conflict
- Elections in Ukraine
Ukraine will hold presidential and parliamentary elections within 100 days of the agreement's signing, despite millions of citizens being displaced or living under occupation.
- Universal Amnesty
All parties involved in this conflict will receive full amnesty for their actions during the war and agree not to make any claims or consider any complaints in the future. This effectively grants immunity for all potential war crimes committed during the conflict.
- Legal Binding and Monitoring
This agreement will be legally binding. Its implementation will be monitored and guaranteed by the Peace Council, headed by President Donald J. Trump. Sanctions will be imposed for violations, though specific enforcement mechanisms remain undefined.
- Ceasefire Implementation
Once all parties agree to this memorandum, the ceasefire will take effect immediately after both sides retreat to agreed points to begin implementation of the agreement. This means the ceasefire is contingent on acceptance of all 28 points and completion of initial withdrawals, not immediate upon signature.
Additional Context
Several provisions contain sub-elements not captured in the simple numbering. The plan notably includes requirements that Russian become a second official language in Ukraine and that restrictions on the Russian Orthodox Church be lifted. The framework explicitly models its implementation on the recent Israel-Hamas ceasefire agreement, with President Trump personally chairing the Peace Council responsible for monitoring compliance.
The plan represents what the Institute for the Study of War characterizes as essentially demanding Ukraine's full capitulation to Russia's original war demands, as it contains no meaningful Russian concessions while requiring extensive Ukrainian territorial, military, and sovereignty sacrifices. The framework was negotiated without Ukrainian or European participation initially, though the Trump administration describes it as a "living document" subject to modification based on party feedback.
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