'Painful concessions': Zelenskyy on Donald Trump's 28-point Russia-Ukraine peace plan; what's proposed

The United States and Russia have reportedly drafted a 28-point framework to end the Russia-Ukraine war, a plan that would require Kyiv to concede both weapons and territory.

While Washington has not formally announced the proposal and Moscow has publicly denied its existence, Ukrainian President Volodymyr Zelenskyy confirmed on Thursday that his office has received the draft.


He said he will speak with US President Donald Trump in the coming days about the “existing diplomatic opportunities” outlined in the plan, which calls for what he described as “painful concessions” to bring an end to the Kremlin’s invasion.

“Ukraine needs peace and Ukraine will do everything so that no one in the world can say we are upending diplomacy. This is important,” Zelenskyy was quoted as saying by the Guardian. He added that the government would avoid any “rash” statements as it evaluates the proposal.

Reports suggest the sweeping 28-point proposal mirrors many of the demands Moscow issued shortly after its full-scale invasion in early 2022. The draft was reportedly crafted by Russian and US officials with backing from Trump, while Kyiv was left out of the process entirely. One European diplomat said they only became aware of the plan when they “turned on the news.”

What is in the proposed plan

Recognition of Russian control and political conditions
According to a copy of the proposal cited by Bloomberg, Ukraine would be required to recognize Crimea, Luhansk and Donetsk as de facto Russian, a position the United States would also adopt. The plan further obliges Kyiv to hold national elections within 100 days and to abandon any attempt to join Nato. The proposal also sets a limit on the size of Ukraine’s military, restricting it to 600,000 service members.

Conditional US security guarantees
The draft provides for a US security guarantee for Ukraine, but only in exchange for compensation to Washington. It also stipulates that the United States would receive half of the profits allocated for Ukraine’s reconstruction and investment. Once sanctions on Moscow are lifted, the proposal envisions the United States entering a new economic partnership with Russia.

Sweeping concessions and Nato restrictions

The concessions demanded are extensive and would require buy-in from countries excluded from the recent talks. Ukraine would not only have to renounce Nato membership but would also be required to embed that renunciation in its constitution. The plan additionally calls for Russia’s reinstatement into the Group of Eight, a symbolic step aimed at ending its international isolation, though several current members oppose the move.

Major financial benefits for Washington
The proposal also sets out significant financial advantages for the United States. Around $100 billion in frozen Russian assets would be redirected to US-led reconstruction efforts in Ukraine, with Washington taking 50 per cent of the profits. Any remaining frozen assets would be transferred to a joint US–Russia investment fund.

The proposal echoes many of Moscow’s maximalist demands and crosses multiple Ukrainian red lines, requiring a sharp reversal from Zelenskyy, who has repeatedly said that ceding territory is not an option.

It would also likely face resistance from Ukraine’s European partners, who have long argued that they must be included in any negotiations, given the wider security consequences for the continent, especially along Nato’s eastern flank.

It remains unclear how much room Zelenskyy has to resist the proposal or whether the United States might use its military aid and intelligence support as pressure to secure Kyiv’s compliance. According to White House Press Secretary Karoline Leavitt, members of Trump’s national security team have been in contact with both Russian and Ukrainian officials, and the president supports the plan in its current form.

“I’m not going to litigate the details of this plan as it’s ongoing and it’s in flux, but the President supports this plan,” Leavitt was quoted as saying by Bloomberg. “It’s a good plan for both Russia and Ukraine and we believe that it should be acceptable to both sides.”