Trump's 28-point plan for ending the Ukraine conflict

Reports emerging on November 19, 2025, from sources like Axios, The New York Times, and Reuters describe a 28-point plan for ending the Ukraine conflict that was secretly drafted by U.S. and Russian officials. According to these reports, the proposal was developed by the Trump administration with Russia's cooperation but without the direct involvement of Ukraine. 

The plan's specific details are not public, but news reports based on unnamed officials have outlined its reported key provisions. The terms are similar to many of Russia's long-standing demands, which Kyiv has previously rejected as non-starters. 

Reported provisions of the plan 

Territorial concessions 

• Russia would gain de facto control of the eastern Ukrainian regions of Luhansk and Donetsk (the Donbas). Ukraine would not be required to publicly acknowledge this.
• The U.S. and the international community would recognize Crimea and the Donbas as Russian territory.
• In the frontline regions of Kherson and Zaporizhzhia, the current lines of control would be mostly frozen, with Russia returning some land.
• One reported variant suggests a "cash-for-land" lease, where Russia would pay a rental fee for de facto control of the Donbas region.
• The issue of formal recognition of the territorial changes would be deferred for several decades. 

Military reductions and restrictions 

• Ukraine would be forced to significantly reduce the size of its military, potentially by as much as 60%.
• Kyiv would be required to give up long-range missiles or any weapons that can reach deep inside Russian territory, such as Moscow or St. Petersburg.
• Foreign troops would be banned from Ukrainian soil, eliminating the possibility of an international peacekeeping force.
• NATO countries would be prohibited from keeping military aircraft in Ukraine. 

Political and cultural changes 

• Russian would be recognized as an official state language in Ukraine.
• The local branch of the Russian Orthodox Church would be granted official status. 

Other conditions 

• Ukraine would reportedly receive security guarantees from the U.S. in exchange for these concessions, though the specific nature of these guarantees has not been detailed.
• In a move to incentivize Russia, the U.S. would lift many sanctions on Moscow, with energy cooperation potentially resuming over time.
• Ukraine would be required to abandon its NATO aspirations for several years. 

Context of the plan's development

• According to reports from Axios and others, the plan was inspired by the 20-point peace roadmap for the conflict between Israel and Hamas.
• The negotiations for the plan were reportedly led by Trump's envoy Steve Witkoff and involved discussions with Russian envoy Kirill Dmitriev.
• Ukrainian President Volodymyr Zelenskyy's national security adviser, Rustem Umerov, was reportedly briefed on the plan.
• The drafting of the plan reportedly took place without Ukrainian or European involvement, sparking concern among allies.