The Trump administration’s 28-point draft proposal to finally end the Russian invasion of Ukraine would require Ukrainian President Volodymyr Zelenskyy’s government to make significant concessions, but also includes NATO-style security guarantees for Ukraine, according to a senior US official.
The plan, which is still a draft and could change, was presented in kyiv on Thursday morning. (See full draft below)
The plan was drafted by Trump envoy Steve Witkoff, with input from Secretary of State Marco Rubio, the White House press secretary and a senior U.S. administration official confirmed Thursday.
US President Donald Trump greets Ukrainian President Volodymyr Zelensky outside the West Wing of the White House on October 17, 2025 in Washington, DC. President Trump, fresh from a ceasefire agreement between Israel and Hamas, will host President Zelensky for a bilateral lunch in the Cabinet Room in hopes of advancing a peace deal between Russia and Ukraine.
Win Mcnamee/Getty Images
The plan would force kyiv to give up additional territory in the east, limit the size of its army and accept that it will never join NATO, among a host of other elements that will be painful for the war-torn country to accept.
Although the Trump administration’s plan requires significant concessions from Ukraine, one of the security guarantees that will be provided to it is based on the principles of Article 5 of the North Atlantic Treaty. Under the proposed plan, American and European allies would consider an attack on Ukraine as an attack on the “transatlantic community”, according to a senior US administration official.
Details of the draft plan were first reported by Axios.
Steve Witkoff, US special envoy for the Middle East, speaks during the America Business Forum at the Kaseya Center in Miami, Florida, United States, on November 6, 2025.
Marco Bello/Reuters
Officially, the 28-point peace plan states that “Ukraine will receive reliable security guarantees.”
the eldest The official confirmed that one of those security guarantees is a NATO-style security guarantee, meaning the United States and its allies could respond with military force if Russia attacks Ukraine in the future.
That could be seen as a huge and unprecedented victory for Ukraine and Zelenskyy, who for years have sought long-term collective defense protection from NATO allies.
The plan was presented to Zelenskky on Thursday, the US official said.
“This plan was drawn up immediately after conversations with one of the most senior members of President Zelensky’s administration, Rustem Umerov, who accepted most of the plan, after making several modifications, and presented it to President Zelensky.” the senior US administration official told ABC News.
US President Donald Trump meets with Ukrainian President Volodymyr Zelensky (L) in the Cabinet Room of the White House in Washington, DC, on October 17, 2025.
Tom Brenner/AFP via Getty Images
White House press secretary Karoline Leavitt said in a statement provided to ABC News that the plan reflects the complex situation and that both Russia and Ukraine will gain more than they give.
“As the Trump Administration has made clear, any agreement must provide full security and deterrence guarantees for Ukraine, Europe and Russia to ensure an end to the war, as well as financial opportunities for Ukraine to rebuild and for Russia to rejoin the global economy, to the benefit of the people of both countries,” Leavitt said in the statement. “This plan was put together to reflect the realities of the situation… to find the best win-win scenario, where both sides gain more than they have to give.”
In his afternoon speech Thursday, Zelenskyy said he had a “very serious conversation” with U.S. officials who laid out what he called a “vision” for ending the war.
In his comments, Zelenskyy reiterated that Ukraine needs a real peace that will not be broken.
“I summarized what is of fundamental importance for us. And we agreed that the teams will work on these proposals to make them real,” Zelenksky said in his speech. “We will not make harsh statements and are committed to clear and honest work: Ukraine, the United States and our friends and partners in Europe and the world.”
The full plan, according to a draft obtained by ABC News:
1. The sovereignty of Ukraine will be confirmed.
2. A comprehensive non-aggression agreement will be concluded between Russia, Ukraine and Europe. All the ambiguities of the last 30 years will be considered resolved.
3. It is expected that Russia will not invade neighboring countries and that NATO will not expand further.
4. A dialogue between Russia and NATO, mediated by the United States, will be maintained to resolve all security issues and create the 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 Armed Forces of Ukraine will be limited to 600,000 troops.
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 American guarantee:
— The United States 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 agreement will be revoked;
— If Ukraine launches a missile against Moscow or St. Petersburg without any reason, the security guarantee will be considered invalid.
11. Ukraine can become a member of the EU and will receive short-term preferential access to the European market while this issue is being examined.
12. A powerful global package of measures to rebuild Ukraine, including, among others:
— The creation of a Ukrainian Development Fund to invest in fast-growing industries, including technology, data centers and artificial intelligence.
— The United States will cooperate with Ukraine to rebuild, develop, modernize and jointly operate Ukraine’s gas infrastructure, including gas 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 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 mining 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 United States will receive 50% of the profits of this company. 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 an independent US-Russia investment vehicle that will implement joint projects in specific areas. This fund will aim to strengthen relationships and increase common interests to create a strong incentive not to return to conflict.
15. A joint Russian-American 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 nuclear nonproliferation and control, 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 commissioned under the supervision of the IAEA and the electricity produced will be distributed equally between Russia and Ukraine: 50:50.
20. Both countries commit to implementing educational programs in schools and society aimed at promoting understanding and tolerance of different cultures and eliminating racism and prejudice:
— Ukraine to adopt EU rules on religious tolerance and protection of linguistic minorities.
— Both countries will agree to abolish all discriminatory measures and guarantee Ukrainian and Russian media and education rights.
— All Nazi ideology and activities must be rejected and prohibited.
21. Territories:
— Crimea, Luhansk and Donetsk will be recognized as de facto Russian, even by the United States.
— Kherson and Zaporizhia will be frozen along the line of contact, which will mean de facto recognition along the line of contact.
— Russia will give up other agreed-upon territories it controls outside the five regions.
— Ukrainian forces will withdraw from the part of the Donetsk Oblast that they currently control, and this withdrawal zone will be considered a neutral demilitarized and buffer zone, internationally recognized as territory belonging to the Russian Federation. Russian forces will not enter this demilitarized zone.
22. After agreeing to future territorial agreements, both the Russian Federation and Ukraine undertake not to change them by force. Any security guarantee will not apply in the event of failure to comply with this commitment.
23. Russia will not prevent Ukraine from using the Dnieper River for commercial activities and agreements will be reached on the free transportation of grain across the Black Sea.
24. A humanitarian committee will be established to resolve outstanding issues:
— All remaining prisoners and corpses will be exchanged on an “all for all” basis.
— All detained civilians 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 entertain 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. Penalties will be imposed for violations.
28. Once this memorandum is accepted by all parties, the ceasefire will take effect immediately after both parties withdraw to the agreed points to begin the implementation of the agreement.
