The 28-Point U.S. Draft Framework for Ending the Russia–Ukraine War

The United States has circulated a 28-point draft framework intended to create a pathway toward ending the Russia–Ukraine war.
The document is still under negotiation and has not been finalized, but publicly available reports provide enough detail to summarize its major components.
Below is a clear, structured breakdown of the key elements.

1. General Principles & Oversight
1. Creation of a “Peace Council”

A joint U.S.-led Peace Council, chaired by the U.S. President, would monitor compliance with the agreement.

2. Enforcement Through Sanctions

Violations by either country would trigger automatic re-imposition of international sanctions.

3. Broad Non-Aggression Agreement

Russia, Ukraine, and European partners would sign a comprehensive non-aggression pact.

4. International Monitoring Mechanisms

Neutral observers would verify troop movements, borders, and demilitarized zones.

2. Territorial Arrangements
5. Crimea Recognized as De Facto Russian

International legal recognition is not required, but parties would accept that Crimea remains under Russian control.

6. Luhansk and Donetsk Regions De Facto Russian

All territories currently occupied, plus those listed in the framework, would remain under Russian administration.

7. Withdrawal of Ukrainian Forces From Eastern Donetsk

Ukraine would withdraw from areas of Donetsk it still controls, creating a buffer zone.

8. Demilitarized Buffer Zone

The buffer zone would be recognized internationally as Russian territory, though Russian forces cannot enter it.

9. Freezing the Front Line in Kherson and Zaporizhzhia

Current lines of control in these regions would remain unchanged.

10. Russia Returns Some Occupied Territories Elsewhere

Russia would withdraw from certain territories in the northeast and south not included in its five annexed regions.

3. Security Guarantees
11. Security Guarantees for Ukraine

The United States and selected partners would give Ukraine conditional security assurances.

12. Revocation of Guarantees if Ukraine Initiates Aggression

Security guarantees become void if Ukraine launches attacks on major Russian cities without cause.

13. Coordinated Military Response to Russian Violation

If Russia violates the agreement, the U.S. and partners commit to a rapid joint military response.

14. Prohibition of NATO Troops in Ukraine

NATO would not deploy troops inside Ukraine under this framework.

4. Ukraine’s Future Status
15. Ukraine Agrees Not to Join NATO

Ukraine would amend its constitution to remove NATO membership as a national objective.

16. NATO Formally Commits Not to Admit Ukraine

NATO would add a statute confirming Ukraine will not be admitted.

17. Ukraine Eligible for EU Membership

The plan supports Ukraine’s EU integration path.

18. Preferential Access to EU Markets

Ukraine receives temporary preferential access to European markets during evaluation.

5. Military Limitations
19. Ukrainian Armed Forces Capped at 600,000

Ukraine’s military size would be limited to 600,000 active personnel.

20. No Restriction on Ukraine’s Weapons Development

The plan does not limit Ukraine’s domestic weapons programs or long-range missile development.

21. European Fighter Jets Stationed in Poland

European air assets would reinforce regional security from outside Ukraine’s borders.

6. Political Reforms & Governance
22. Ukrainian Elections Within 100 Days

National elections would be held after the signing of the agreement, even under wartime conditions.

23. Media & Education Rights Protected

Both Russia and Ukraine must abolish discriminatory policies and guarantee rights of Russian- and Ukrainian-language media and schools.

7. Humanitarian & Legal Matters
24. Return of Detained Civilians and Children

All civilian detainees, deported children, and hostages must be returned to their home country.

25. Exchange of Prisoners of War

Both sides exchange POWs and remains of the deceased.

26. General Amnesty

All parties receive amnesty for wartime actions; future claims or prosecutions are waived.

8. Economic & Reconstruction Components
27. Use of Frozen Russian Assets

$100 billion in frozen Russian assets are contributed to Ukraine’s reconstruction:

50% of investment profits go to the United States

Europe contributes an additional $100 billion

Remaining assets go into a joint U.S.–Russia investment vehicle

28. Restoration of Russia Into Global Economic Structures

If Russia complies fully:

Sanctions are gradually lifted

Russia is invited to rejoin the G8

Russia is reintegrated into global markets