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This article was automatically translated from the original Turkish version.
A 28-point peace plan aimed at ending the war in Ukraine by Donald Trump exists as a draft text that became public in the third week of November 2025. The plan is not a legally binding international agreement that has been ratified and signed by the parties; rather, it emerged as a “draft peace project” negotiated between representatives of Russia and the United States and approved by the U.S. administration. The content of the document reached the public through news reports and statements issued on different days in November 2025, and within this context the plan was extensively discussed in the international press between 20 and 22 November 2025.
During the drafting process, special negotiators acting on behalf of the Trump administration on the U.S. side and high-level figures representing Russia played key roles. Notably, Steve Witkoff, an American businessman and special envoy, and Kirill Dmitriev, linked to Russia’s economic and political circles, are cited as principal actors in shaping the draft. The document was prepared as a result of negotiations between the United States and the Russian Federation; the Ukrainian side was not involved in the preparatory stages and received the finalized text afterward. Consequently, the 28-point document has not acquired the status of a legally binding agreement. It is regarded as a draft peace plan approved by the Trump administration, produced through U.S.-Russia negotiations, and presented for acceptance by Ukraine and other parties.
1. Ukraine’s sovereignty will be confirmed.
2. A comprehensive non-aggression pact will be signed between Russia, Ukraine and Europe. All uncertainties relating to the past 30 years will be considered resolved.
3. Russia is expected to refrain from occupying neighboring countries and NATO is expected to refrain from further expansion.
4. In order to resolve all security issues and ensure global security, while enhancing cooperation and future economic development opportunities, a dialogue will be conducted between Russia and NATO under the mediation of the United States.
5. Ukraine will receive reliable security guarantees.
6. The size of the Ukrainian Armed Forces will be capped at 600,000 personnel.
7. Ukraine agrees to constitutionally guarantee that it will not join NATO, and NATO agrees to amend its charter to include a provision that Ukraine will not be admitted as a member in the future.
8. NATO agrees not to deploy troops in Ukraine.
9. European combat aircraft will be deployed in Poland.
10. United States guarantee:
11. Ukraine will be deemed eligible for European Union membership, and during this evaluation it will gain short-term preferential access to the European market.
12. A strong global package of measures will be implemented for Ukraine’s reconstruction, including but not limited to:
13. Russia will be reintegrated into the global economy:
14. Frozen assets will be used as follows:
15. A joint U.S.–Russia security working group will be established to encourage and ensure compliance with all provisions of this agreement.
16. Russia will enshrine its policy of non-aggression toward Europe and Ukraine in domestic law.
17. The United States and Russia will agree to extend the validity of agreements on the Non-Proliferation and Control of Nuclear Weapons, including the START I Treaty.
18. Ukraine accepts its status as a non-nuclear-weapon state under the Treaty on the Non-Proliferation of Nuclear Weapons.
19. The Zaporizhzhia Nuclear Power Plant will be operated under the supervision of the International Atomic Energy Agency (IAEA), and the electricity generated will be shared equally between Russia and Ukraine, at a 50 percent to 50 percent ratio.
20. Both countries commit to implementing educational programs in schools and throughout society aimed at fostering understanding and tolerance toward different cultures and eliminating racism and prejudice:
21. Territorial arrangements:
22. After reaching agreement on future territorial arrangements, the Russian Federation and Ukraine commit not to alter these arrangements by the use of force. Any violation of this commitment will invalidate all security guarantees.
23. Russia will not obstruct Ukraine’s use of the Dnipro River for commercial activities, and agreements will be established to ensure the free passage of grain shipments through the Black Sea.
24. A humanitarian committee will be established to resolve remaining issues:
25. Ukraine will hold elections within 100 days.
26. All parties involved in this conflict will receive full amnesty for actions committed during the war and agree not to make any future claims or evaluate any complaints.
27. This agreement will be legally binding. Its implementation will be monitored and guaranteed by the Peace Council under the presidency of Donald J. Trump. Sanctions will be applied for violations.
28. Upon all parties reaching this agreement, a ceasefire will take effect immediately after both sides commit to the agreed points, and implementation of the agreement will commence.
The United States side views Donald Trump’s approved 28-point peace plan as aimed at halting the war, securing Ukraine’s sovereignty within defined borders, and preventing the conflict from reigniting. Trump stated that Ukrainian President Volodymyr Zelenskyy had come “reasonably close” to accepting the plan, describing it as a practical package of solutions that takes into account the military and political realities on the ground, even if it is not ideal for either side.
Trump announced on a television program that Ukraine had until 27 November to accept the plan, thereby positioning it as a concrete proposal tied to a specific timeline rather than an open-ended negotiation document. In response to Ukraine’s concerns about territorial loss, he noted that Ukraine “has already lost territory” and that approximately 25,000 people have died in the past month alone, characterizing the situation as “out of control” and a “sea of blood,” and justifying acceptance of the peace plan as a means to prevent further losses.
The U.S. administration summarized the core criteria of the peace plan as “stopping the killings, preserving Ukraine’s sovereignty, producing an outcome minimally acceptable to both sides, and maximizing the likelihood that the war will not resume.” A decisive military victory on the ground is seen as unrealistic; approaches advocating unlimited military aid or sanctions to achieve an unconditional outcome are labeled as “fantastical.”
Russian President Vladimir Putin, in a meeting with the National Security Council that was broadcast on television, stated that Moscow possesses the full text of the plan and is prepared to treat it as the foundation of a final peace agreement. Putin indicated that the plan is a substantially updated version of a draft previously discussed with the Trump administration around the Alaska summit, and that it incorporates Russia’s demands. Despite certain difficulties and points of contention, he affirmed that Russia is “generally agreeable” to these proposals and ready to demonstrate the “flexibility” expected of it.
However, Putin is believed to have adopted a narrative that places responsibility for the plan’s failure on Ukraine. Following the Alaska summit, he claimed that the Trump administration had paused the process because Washington could not secure Kyiv’s approval, arguing that Ukraine had rejected the peace draft and that the Ukrainian government and its European allies still harbor “illusions” that they can inflict a strategic defeat on Russia on the battlefield. In this framework, Moscow presents the draft as an acceptable baseline from its perspective but attributes the lack of progress in the peace initiative to the stance of Ukraine and its Western supporters.
Putin’s statements also reveal a strategy that treats the plan as a diplomatic tool backed by military pressure. The Russian president stated that if Ukraine refuses to engage with the proposals, the Russian armed forces will continue capturing additional cities and will resort to the use of force to achieve its war objectives.
The Ukrainian government evaluates Donald Trump’s 28-point peace plan as an extremely demanding draft, presented under immense pressure and posing severe challenges to Ukraine’s core interests. President Volodymyr Zelenskyy, in an address to the nation following the plan’s announcement, stated that Ukraine was facing “one of the most difficult moments in its history,” forced into a painful choice between “losing its honor or risking the loss of a key partner,” between accepting the 28 harsh conditions or enduring an “extremely harsh winter.” With these remarks, Zelenskyy framed the draft as a high-cost option for Ukraine in terms of security, foreign policy, and internal political stability.
Nevertheless, Kyiv bases its official position on not openly rejecting the pursuit of peace. Zelenskyy emphasized that Ukraine will work “calmly and swiftly” with the United States and other partners to find a way to end the war, is prepared to negotiate on the plan, but remains determined to safeguard Ukraine’s core interests and dignity. The president declared that “Ukraine will never be sold,” clarifying that his role in advancing the process is to present arguments, attempt to persuade, and propose alternatives, but that this does not equate to Ukrainian surrender.
Another notable aspect of Zelenskyy’s statements is Ukraine’s concern for its international image. The president stated that Ukraine would “not allow the enemy to claim that Ukraine does not want peace, that it is sabotaging the process, or that it is unprepared for diplomacy,” adopting a preventive narrative to avoid being portrayed as the party opposed to peace. In this context, while Ukraine critically assesses the content of Trump’s plan, it is pursuing a diplomatic strategy of remaining at the table to modify, soften, and bring the draft closer to its own red lines rather than rejecting it outright.
Ukraine’s position also reflects its desire to coordinate closely with its main European allies. In joint consultations with the leaders of Germany, France, and the United Kingdom, Zelenskyy underscored the goal of “long-term protection of vital European and Ukrainian interests,” emphasizing that a possible line of compromise could serve as a starting point, but that the Ukrainian Armed Forces must retain their capacity to effectively defend the country’s sovereignty.
European Union institutions and leading European capitals approach the U.S.-proposed 28-point peace plan for Ukraine with caution, conditionality, and largely regard it as a draft “requiring substantial revision.” While the EU原则上 supports all diplomatic efforts to end the war, it insists that any such effort must be consistent with Ukraine’s sovereignty, territorial integrity, and the Charter of the United Nations. European leaders have placed the plan on the agenda of the G20 Summit, but have clarified that at this stage it is merely a proposal open for discussion, not a formally submitted document or an agreed-upon agreement within the EU.
European Commission President Ursula von der Leyen stated during her remarks at the G20 Summit in South Africa that she would address the alleged plan prepared by the United States with Russia both with European leaders and within the framework of summit discussions, and that she would consult directly with Ukrainian President Volodymyr Zelenskyy. Von der Leyen clearly affirmed that the European Union would not consider any solution formula that excluded Ukraine or lacked its approval, emphasizing: “No decision on Ukraine can be made in the absence of Ukraine.” European Council President Antonio Costa also stressed that no formal plan had been submitted to the Union, making detailed evaluation premature; however, he underscored the EU’s firm commitment to providing Ukraine with “unwavering support” based on the principles of the UN Charter.
UK Prime Minister Keir Starmer, in the context of the Trump-backed plan, emphasized that the fundamental principle must be Ukraine’s sovereignty and right to determine its own future, stating: “Ukraine must determine its own future.” Italian Prime Minister Giorgia Meloni and German Chancellor Friedrich Merz, during a telephone conversation, treated the US proposal as a subject for “initial assessment,” reaffirming the need to support ongoing negotiation efforts and to uphold the goal of achieving a fair and lasting peace in the interest of all of Europe. The statement noted that the plan’s reference to robust security guarantees was welcomed as one of the essential pillars of European and transatlantic stability, while other elements required further detailed examination.
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November 22, 2025
Peace Plan Provisions
November 22, 2025
Statements by the Parties