The first information about the plan was revealed by Axios on Wednesday, 18 November 2025, in an article titled “Scoop: U.S. secretly drafting new plan to end Ukraine war,” and its details appeared two days later in an article titled “Trump’s full 28-point Ukraine–Russia peace plan.”
Photo: Office of the President of Ukraine
Here is the version of the plan published by Axios, which verified it with officials from Ukraine and the United States, as well as with a source familiar with the matter. The administration emphasizes that the draft may change following consultations with the parties.
- Ukraine’s sovereignty will be affirmed.
- A comprehensive non-aggression agreement will be concluded between Russia, Ukraine, and Europe. All ambiguities from the last 30 years are considered resolved.
- Russia is expected not to invade neighboring countries, and NATO will not expand further.
- Russia and NATO – through the United States – will engage in dialogue to resolve all security issues and create conditions for de-escalation to ensure global security and increase opportunities for cooperation and future economic development.
- Ukraine will receive strong security guarantees.
- The size of the Armed Forces of Ukraine will be limited to 600,000 troops.
- Ukraine agrees to amend its constitution to state that it will not join NATO, and NATO agrees that Ukraine will not be admitted to the Alliance in the future.
- NATO agrees that its troops will not be stationed in Ukraine.
- European fighter jets will be stationed in Poland.
- The United States guarantees that:
- The U.S. will receive compensation for the security guarantee.
- If Ukraine invades Russia, it will lose its guarantees.
- If Russia invades Ukraine, in addition to a firm, coordinated military response, all global sanctions will be reimposed, recognition of any new territory will be withdrawn, and all other benefits from this agreement will be revoked.
- If Ukraine launches a missile at Moscow or St. Petersburg without cause, the security guarantee becomes null and void.
- Ukraine may join the EU and will receive short-term preferential access to the European market while the application is under review.
- A major global package for the reconstruction of Ukraine, including:
- Establishing a Ukraine Development Fund, investing in fast-growing industries such as technology, data centers, and artificial intelligence;
- U.S.–Ukraine cooperation on reconstruction, development, modernization, and operation of Ukraine’s gas infrastructure (pipelines and storage facilities);
- Joint efforts to rebuild and modernize cities and residential areas damaged by the war;
- Infrastructure development;
- Extraction of minerals and natural resources;
- A special World Bank financing package to accelerate these efforts.
- Russia will be reintegrated into the global economy:
- Sanctions relief will be discussed and agreed upon step by step, case by case;
- The U.S. will sign a long-term economic cooperation agreement with Russia in areas such as energy, natural resources, infrastructure, AI, data centers, and rare-earth mining projects in the Arctic;
- Russia will be invited back into the G8.
- Frozen assets will be used as follows:
- $100 billion in frozen Russian assets will be invested in U.S.-led reconstruction and investment projects in Ukraine;
- The United States will receive 50% of the profits from these projects. Europe will contribute $100 billion to enlarge the reconstruction investment pool. Frozen European funds will be unfrozen. Remaining frozen Russian assets will be invested in a separate U.S.–Russia investment fund for joint projects in specified areas, aimed at strengthening ties and shared interests to deter future conflict.
- A joint U.S.–Russia security working group will be established to promote and oversee compliance with all provisions of the agreement.
- Russia will legally formalize its non-aggression policy toward Europe and Ukraine.
- The U.S. and Russia will agree to extend non-proliferation and nuclear arms-control treaties, including START I.
- Ukraine agrees to remain a non-nuclear state, in accordance with the Nuclear Non-Proliferation Treaty.
- The Zaporizhzhia Nuclear Power Plant will be restarted under IAEA supervision, with electricity production shared equally between Russia and Ukraine.
- Both countries commit to educational and social programs promoting understanding and tolerance between cultures and eliminating racism and prejudice:
- Ukraine will adopt EU rules on religious tolerance and protection of linguistic minorities. Both sides will remove discriminatory measures and guarantee rights of Ukrainian and Russian media and education;
- All Nazi ideology and activities must be rejected and banned.
- Territories:
- Crimea, Luhansk, and Donetsk oblasts will be recognized as de facto Russian, including by the United States.
- Kherson and Zaporizhzhia oblasts will be frozen along the line of contact, meaning de facto recognition of control along that line. Russia will withdraw from other agreed-upon territories it controls outside these five regions.
- Ukrainian forces will withdraw from parts of Donetsk oblast they currently control; this withdrawal zone will be recognized internationally as a neutral demilitarized buffer zone belonging to the Russian Federation. Russian forces will not enter this zone.
- After territorial arrangements are agreed upon, both Russia and Ukraine commit not to alter these borders by force. Security guarantees will not apply if either side violates this commitment.
- Russia will not obstruct Ukraine’s commercial use of the Dnipro River, and agreements will be reached on free transport of grain through the Black Sea.
- A humanitarian commission will be established to resolve outstanding issues:
- All remaining prisoners and bodies will be exchanged on an “all for all” basis. All detained civilians and hostages, including children, will be released.
- Family reunification programs will be implemented. Measures will be taken to ease the suffering of victims.
- Ukraine will hold elections within 100 days.
- All parties will receive full amnesty for actions committed during the war and agree not to pursue claims or grievances in the future.
- The agreement will be legally binding, monitored and guaranteed by a Peace Council chaired by President Donald J. Trump. Sanctions will be imposed for violations.
- Once all parties agree to the memorandum, a ceasefire will take effect immediately after both sides withdraw to agreed positions and begin implementing the agreement.
