WASHINGTON (AP) — President Donald Trump’s 28-point draft proposal to end Russia’s war in Ukraine has been presented in Kyiv.
Washington and Moscow worked together on the draft, and it offers terms more favorable to Russia by calling for Ukraine to cede territory, avoid joining NATO and more. The Associated Press obtained a copy of the draft proposal Thursday.
Here is Trump’s proposal, verbatim:
1. Ukraine’s sovereignty will be confirmed.
2. A comprehensive non-aggression agreement will be concluded between Russia, Ukraine and Europe. All ambiguities of the last 30 years will be considered settled.
3. It is expected that Russia will not invade neighboring countries and NATO will not expand further.
4. A dialogue will be held between Russia and NATO, mediated by the United States, to resolve all security issues and create conditions for de-escalation in order to ensure global security and increase opportunities for cooperation and future economic development.
5. Ukraine will receive reliable security guarantees.
6. The size of the Ukrainian Armed Forces will be limited to 600,000 personnel.
7. Ukraine agrees to enshrine in its constitution that it will not join NATO, and NATO agrees to include in its statutes a provision that Ukraine will not be admitted in the future.
8. NATO agrees not to station troops in Ukraine.
9. European fighter jets will be stationed in Poland.
10. The U.S. guarantee:
— The U.S. will receive compensation for the guarantee;
— If Ukraine invades Russia, it will lose the guarantee;
— If Russia invades Ukraine, in addition to a decisive coordinated military response, all global sanctions will be reinstated, recognition of the new territory and all other benefits of this deal will be revoked;
— If Ukraine launches a missile at Moscow or St. Petersburg without cause, the security guarantee will be deemed invalid.
11. Ukraine is eligible for EU membership and will receive short-term preferential access to the European market while this issue is being considered.
12. A powerful global package of measures to rebuild Ukraine, including but not limited to:
— The 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 to rehabilitate war-affected areas for the restoration, reconstruction and modernization of cities and residential areas.
— Infrastructure development.
— Extraction of minerals and natural resources.
— The World Bank will develop a special financing package to accelerate these efforts.
13. Russia will be reintegrated into the global economy:
— The lifting of sanctions will be discussed and agreed upon in stages and on a case-by-case basis.
— The United States will enter into a long-term economic cooperation agreement for mutual development in the areas of energy, natural resources, infrastructure, artificial intelligence, data centers, rare earth metal extraction projects in the Arctic, and other mutually beneficial corporate opportunities.
— Russia will be invited to rejoin the G8.
14. Frozen funds will be used as follows:
— $100 billion in frozen Russian assets will be invested in US-led efforts to rebuild and invest in Ukraine;
— The US will receive 50% of the profits from this venture. Europe will add $100 billion to increase the amount of investment available for Ukraine’s reconstruction. Frozen European funds will be unfrozen. The remainder of the frozen Russian funds will be invested in a separate US-Russian investment vehicle that will implement joint projects in specific areas. This fund will be aimed at strengthening relations and increasing common interests to create a strong incentive not to return to conflict.
15. A joint American-Russian working group on security issues will be established to promote and ensure compliance with all provisions of this agreement.
16. Russia will enshrine in law its policy of non-aggression towards Europe and Ukraine.
17. 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.
18. Ukraine agrees to be a non-nuclear state in accordance with the Treaty on the Non-Proliferation of Nuclear Weapons.
19. The Zaporizhzhia Nuclear Power Plant will be launched under the supervision of the IAEA, and the electricity produced will be distributed equally between Russia and Ukraine — 50:50.
20. 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:
— Ukraine will adopt EU rules on religious tolerance and the protection of linguistic minorities.
— Both countries will agree to abolish all discriminatory measures and guarantee the rights of Ukrainian and Russian media and education.
— All Nazi ideology and activities must be rejected and prohibited.
21. Territories:
— Crimea, Luhansk and Donetsk will be recognized as de facto Russian, including by the United States.
— Kherson and Zaporizhzhia will be frozen along the line of contact, which will mean de facto recognition along the line of contact.
— Russia will relinquish other agreed territories it controls outside the five regions.
— Ukrainian forces will withdraw from the part of Donetsk Oblast that they currently control, and this withdrawal zone will be considered a neutral demilitarized buffer zone, internationally recognized as territory belonging to the Russian Federation. Russian forces will not enter this demilitarized zone.
22. After agreeing on future territorial arrangements, both the Russian Federation and Ukraine undertake not to change these arrangements by force. Any security guarantees will not apply in the event of a breach of this commitment.
23. Russia will not prevent Ukraine from using the Dnieper River for commercial activities, and agreements will be reached on the free transport of grain across the Black Sea.
24. 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 the victims of the conflict.
25. Ukraine will hold elections in 100 days.
26. 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.
27. 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.
28. 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.
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WASHINGTON (AP) — President Donald Trump's plan for ending the war in Ukraine would cede land to Russia and limit the size of Kyiv's military, according to a draft obtained Thursday by The Associated Press.
The proposal, originating from negotiations between Washington and Moscow, appeared decidedly favorable to Russia, which started the war nearly four years ago by invading its neighbor. If past is prologue, it would seem untenable for Ukrainian President Volodymyr Zelenskyy, who has opposed Trump's previous calls for territorial concessions.
There has also been resistance from European leaders, who are likely to decry the U.S. peace push as rewarding Russian President Vladimir Putin for his aggression, leaving him emboldened rather than defeated.
For example, the proposal would not only bar Ukraine from joining NATO but would also prevent the alliance's future expansion. Such a step would be a significant victory for Moscow, which views NATO as a threat.
Putin would also gain ground he has been unable to win on the battlefield. Under the draft, Moscow would hold all the eastern Donbas region, even though approximately 14% still remains in Ukrainian hands. Ukraine's military, currently at roughly 880,000 troops, would be reduced to 600,000.
The proposal opens the door to lifting sanctions on Russia and returning it to what was formerly known as the Group of Eight, which includes many of the world’s biggest economies. Russia was suspended from the annual gathering in 2014 following its annexation of Crimea, a strategically important peninsula on the northern coast of the Black Sea that is internationally recognized as part of Ukraine.
Proposal increases pressure on Zelenskyy
The U.S. team began drawing up the plan soon after U.S. special envoy Steve Witkoff held talks with Rustem Umerov, a top adviser to Zelenskyy, according to a senior administration official who was not authorized to comment publicly and spoke on the condition of anonymity. The official added that Umerov agreed to the majority of the plan, after making several modifications, and then presented it to Zelenskyy.
U.S. Army Secretary Dan Driscoll was also in Kyiv on Thursday and discussed the latest draft with Zelenskyy, according to a senior administration official. Zelenskyy offered a measured statement on social media about it but did not directly speak to the substance of the proposal.
“Our teams — of Ukraine and the United States — will work on the provisions of the plan to end the war. We are ready for constructive, honest and swift work,” he wrote.
Under the proposal, Russia would commit to making no future attacks, something the White House views as a concession. In addition, $100 billion in frozen Russian assets would be dedicated to rebuilding Ukraine.
However, handing over territory to Russia would be deeply unpopular in Ukraine. It also would be illegal under Ukraine’s constitution. Zelenskyy has repeatedly ruled out such a possibility.
Russia would also be allowed to keep half of the power generated by Europe’s largest nuclear power plant, Zaporizhzhia, which it captured from Ukraine early during the war.
The draft calls for a “Peace Council” that Trump will oversee. The council is an idea that Trump snatched from his lengthy peace plan aimed at bringing about a permanent end to war between Israel and Hamas in Gaza.
If either Ukraine or Russia violated the truce once enacted, it would face sanctions.
U.S. Rep. Don Bacon, R-Neb., an Air Force veteran, rejected the emerging plan. “Unacceptable,” he posted on social media. “It is a 1938 Munich,” referring to a diplomatic agreement aimed at securing peace with Nazi Germany but widely viewed as paving the way for World War II.
European diplomats urge wider consultations
Secretary of State Marco Rubio and Witkoff have been quietly working on the peace plan for a month, receiving input from both Ukrainians and Russians on terms that are acceptable to each side, White House press secretary Karoline Leavitt said Thursday. Witkoff and Kirill Dmitriev, a close adviser to Putin, have been key to drafting the proposal.
As reports about the draft emerged, blindsided European diplomats insisted they and Ukraine must be consulted.
European leaders have already been alarmed this year by indications that Trump’s administration might be sidelining them and Zelenskyy in its push to stop the fighting. Trump’s at-times conciliatory approach to Putin has fueled those concerns, but Trump adopted a tougher line last month when he announced heavy sanctions on Russia’s vital oil sector that come into force Friday.
“For any plan to work, it needs Ukrainians and Europeans on board,” European Union foreign policy chief Kaja Kallas said at the start of a meeting in Brussels of the 27-nation bloc’s foreign ministers. She also suggested that the draft would be too favorable toward Moscow.
“We haven’t heard of any concessions on the Russian side," Kallas said.
German Foreign Minister Johannes Wadephul said he talked by phone Thursday with Witkoff and Turkish Foreign Minister Hakan Fidan to discuss “our various current efforts to end Russia’s war of aggression against Ukraine and thus finally put an end to the immeasurable human suffering.”
Ukraine’s deputy U.N. Ambassador Khrystyna Hayovyshyn told the U.N. Security Council that Kyiv has officially received Trump’s draft peace plan and is ready “to work constructively,” but she stressed Ukraine’s “red lines.”
“There will never be any recognition, formal or otherwise, of Ukrainian territory temporarily occupied by the Russian Federation as Russian,” she said. “Our land is not for sale.”
“Ukraine will not accept any limits on its right to self-defense or on the size and capabilities of our armed forces, nor will we tolerate any infringement on our sovereignty, including our sovereign right to choose the alliances we want to join,” Hayovyshyn added.
Trump has long pushed for end to war
It was not clear whether European foreign ministers had seen the peace plan, which was first reported by Axios.
Although they appeared caught by surprise, some elements of the plan were not new. Trump said last month that the Donbas region should be “cut up,” leaving most of it in Russian hands.
However, the administration's previous diplomatic efforts this year to stop the fighting have so far come to nothing. A summit between Trump and Putin in Alaska did not result in a breakthrough over the summer, and plans for them to meet again in Budapest, Hungary, did not come to fruition.
Trump frequently complained that the negotiations involving Ukraine were taking longer than other conflicts where he helped mediate.
“I thought that was going to be my easy one because I have a good relationship with President Putin,” he said this week. “But I’m a little disappointed in President Putin right now.”
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Madhani reported from Washington. Associated Press journalists Edith M. Lederer at the United Nations, Sam McNeil in Brussels, Samya Kullab in Kyiv and Katie Marie Davies in Manchester, England, contributed to this report.