U.S. peace plan for Ukraine

U.S. peace plan for Ukraine

Context	Ending the Russo-Ukrainian war
Drafted	November 19, 2025 (2025-11-19)
Mediators	United States
Parties

In November 2025, an outline of a United States-backed framework to end the Russo–Ukrainian War emerged.

The version of the plan first published was reportedly created in high-level United States-Russia discussions. This first version's provisions would recognize Russian control over Crimea, Luhansk, and Donetsk, including areas that its military has not occupied yet, while freezing the status of Kherson and Zaporizhzhia at the line of contact. The terms would cap the Ukrainian armed forces, preclude NATO membership for Ukraine, and provide the country with security guarantees. It also includes measures for economic cooperation, reconstruction, and humanitarian issues such as a prisoner exchange.

Ukraine's European allies submitted a counter-proposal.

Background

Some sources have linked aspects of the plan to ideas discussed during high-level United States–Russia August 2025 meeting in Anchorage. NBC News reported that, according to a senior U.S. official, President Trump approved a 28‑point draft peace plan after weeks of negotiations, and that, according to that official, U.S. interlocutors discussed the proposal with Russian representatives and Ukrainian officials — including Rustem Umerov, who reportedly agreed to most of the draft with some modifications; President Zelenskyy's office said he had received a draft from the American side.

Timeline

• November 19, 2025 — Initial media reporting: Axios published reporting on a 28-point draft it said it had obtained and verified, describing provisions including limits on NATO membership, caps on Ukraine's armed forces, and territorial arrangements.

• November 19, 2025 — U.S. Army delegation arrives in Kyiv: U.S. Secretary of the Army Daniel P. Driscoll, U.S. Army chief of staff General Randy George, commander of U.S. Army Europe-Africa General Chris Donahue, commander of Security Assistance Group Ukraine Lt. General Curtis Buzzard, and sergeant major of the Army Michael Weimer, arrived in Kyiv on a visit described by the U.S. Army Col. Dave Butler as a fact finding mission to "meet with Ukrainian officials and discuss efforts to end the war".

• November 21–22, 2025 — Wider coverage and partner reactions: International outlets published analyses of the draft and reported that European partners called for additional work to ensure any plan would be acceptable to Ukraine and its allies.

• November 22, 2025 — U.S. clarification: President Trump said the reported draft was not a "final offer to Ukraine", indicating negotiations and revisions could continue.

• November 23, 2025 — Geneva talks planned: Media outlets reported discussions planned in Geneva involving U.S., Ukrainian and European officials to examine and potentially amend the draft.

Plan

Reporting indicates the draft addresses several broad areas, such as territory and borders, security guarantees, military limitations, and measures for implementation and verification. On territory and borders, outlets reported provisions that would recognise changes to control over some occupied areas as part of a settlement. Coverage also described security guarantees that include a "decisive coordinated military response" in the event of further Russian incursions and specifies that Ukraine would not join NATO under the terms reported.

On 23 November, the United Kingdom, France and Germany issued the text of a counter-proposal following the structure of the US plan, with changed wording, though deleting one point on Russian and NATO expansion.

The main points of the original plan were as follows:

• Ukraine’s sovereignty would be confirmed;
• The size of the Ukrainian Armed Forces would be limited to 600,000 personnel;
• Ukraine would agree to enshrine in its constitution that it would not join NATO. NATO would agree not to station troops in Ukraine. Russia would not invade neighbouring countries and NATO would not expand further;
• Ukraine would get reliable security guarantees. The US would receive compensation for the security guarantee;
• A comprehensive non-aggression agreement would be concluded between Russia, Ukraine and Europe. All ambiguities of the last 30 years would be considered settled.
• Ukraine would be eligible for EU membership and would receive short-term preferential access to the European market while this issue is being considered;
• Russia would enshrine in law its policy of non-aggression towards Europe and Ukraine;
• The United States and Russia would agree to extend the validity of treaties on the non-proliferation and control of nuclear weapons, including the START I Treaty;
• Russia would be reintegrated into the global economy, by lifting sanctions and rejoining the G8. The United States would enter into a long-term economic cooperation agreement with Russia for the 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;
• Regarding territories, Crimea, Luhansk and Donetsk would be recognised as de facto Russian, including by the United States, while Kherson and Zaporizhzhia would be frozen along the line of contact, which would mean de facto recognition along the line of contact;
• A powerful global package of measures to rebuild Ukraine: The creation of an Ukraine Development Fund to invest in fast-growing industries, including technology, data centres, and artificial intelligence. The United States would cooperate with Ukraine to jointly rebuild, develop, modernise, and operate Ukraine’s gas infrastructure, including pipelines and storage facilities. Joint efforts to rehabilitate war-affected areas for the restoration, reconstruction and modernisation of cities and residential areas. Infrastructure development. Extraction of minerals and natural resources. The World Bank would develop a special financing package to accelerate these efforts;
• The Zaporizhzhya Nuclear Power Plant would be launched under the supervision of the IAEA, and the electricity produced will be distributed equally between Russia and Ukraine - 50:50;
• 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 programme will be implemented. Measures will be taken to alleviate the suffering of the victims of the conflict;
• Ukraine would hold elections in 100 days.

Reactions

• Ukraine: The Ukrainian government sent a senior team led by Andriy Yermak to Geneva and participated in talks to examine the U.S. proposal.

See also

• Peace negotiations in the Russo-Ukrainian war (2022–present) § 2025 developments
• Russo–Ukrainian War
• Foreign relations of the United States
• Ukraine–United States relations
• Russia–United States relations
• 2025 Russia–United States summit