A series of reports in Axios, Financial Times, The Guardian, Al Jazeera, Newsweek, AP and other international outlets reveal that Donald Trump’s team has been circulating a draft “28-point peace plan” for ending the war in Ukraine. The proposal — developed largely in private channels — appears to have been shaped without Ukraine or European partners at the table, prompting widespread concern in Kyiv, Brussels, and several major European capitals.
According to these reports, the framework was drafted primarily by Trump’s envoy and long-time associate Steve Witkoff, together with Kirill Dmitriev, a Kremlin-linked financier sanctioned by the United States and closely connected to Russia’s political elite. The discussions took place between U.S. and Russian intermediaries, bypassing both Ukraine and the European Union — a fact that has already raised alarms among diplomats and security experts across the continent.
Although the full document has not been made public, the key elements described by multiple newsrooms follow a consistent pattern. The plan would require Ukraine to cede the rest of the Donbas, including areas still under Kyiv’s control. Some versions reportedly include a “cash-for-land” or long-term “lease” model that would grant Russia effective control over Ukrainian territory it has not legally annexed.
Beyond territorial concessions, the plan envisions a significant demilitarisation of Ukraine. Reports suggest Ukraine’s armed forces would be reduced by roughly half, capped at around 50 to 60 percent of current strength. Kyiv would also have to relinquish long-range missile capabilities, accept a rollback of U.S. military assistance, and agree to a complete ban on foreign troops, NATO aircraft, international brigades, or future Western deployments on Ukrainian soil.
The proposal also extends into political and cultural spheres. It reportedly demands recognition of the Russian language as an official state language in Ukraine and formal status for the Russian Orthodox Church — elements long used by the Kremlin as instruments of influence across the region.
In return for these extensive concessions, Ukraine and Europe would receive unspecified U.S. “security guarantees.” Critics note that these resemble a weakened version of the Budapest Memorandum, whose promises Russia violated in 2014 when it annexed Crimea. The vagueness of these guarantees, combined with the scope of the concessions demanded of Ukraine, has fuelled concerns that the proposal amounts to a managed capitulation rather than a credible peace framework.
Analysts across international media point out that the reported provisions align almost point-for-point with Russia’s maximalist demands: recognition of its territorial claims in Donetsk, Luhansk, Kherson, and Zaporizhzhia; long-term limits on Ukraine’s military capabilities; and effective constraints on the country’s Western integration. European foreign ministers have publicly stated that they were not consulted, insisting that any peace process must include Ukraine and Europe as essential participants.
Ukrainian officials, civil society actors, and regional analysts have already characterised the proposal as “capitulation dressed as peace,” warning that it would deprive Ukraine of the ability to defend itself while effectively rewarding Russian aggression.
Civil Today Editorial Desk & Jabir Deralla
with research assistance from ChatGPT
The 28-Point “Peace Plan” in Brief
Who drafted the plan?
- Steve Witkoff, Trump’s envoy and long-time associate, and
- Kirill Dmitriev, a Kremlin-linked financier sanctioned by the U.S. and closely connected to the Russian leadership.
Key elements of the plan
1. Territorial concessions
- Ukraine would have to cede the remaining parts of the Donbas still under its control.
- Some versions describe a “cash-for-land” or lease arrangement, effectively granting Russia long-term authority over parts of Ukrainian territory it has illegally annexed.
2. Demilitarisation of Ukraine
- Ukraine’s military would be reduced by around half, capped at roughly 50–60% of its current manpower.
- Kyiv would be required to relinquish long-range missile capabilities and accept major reductions in Western military assistance.
- No foreign troops (including NATO contingents), international brigades, or Western aircraft could be present or deployed in Ukraine.
3. Political and cultural concessions
- Russian language be recognised as an official state language;
- The Russian Orthodox Church be granted a protected or formalised status in Ukraine.
Both elements mirror long-standing pressure points Moscow has used for political influence and destabilisation campaigns.
4. Vague “security guarantees”
In exchange for these concessions, the U.S. would offer unspecified security guarantees to Ukraine and Europe. Critics argue this resembles a weakened version of the Budapest Memorandum, which Russia violated in 2014 when it annexed Crimea.
5. Alignment with Russia’s maximalist demands
- Recognition of Russia’s claimed control over Donetsk, Luhansk, Kherson, and Zaporizhzhia;
- Severe restrictions on Ukraine’s military growth;
- A long-term limit on Ukraine’s integration with NATO and the EU.
Ukraine and Europe left out
European governments stated they were not consulted. Foreign ministers from EU countries insist that:
- Ukraine must be the primary author of any peace agreement;
- European states must be included, given the direct impact on continental security.
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