Trump's full 28-point Ukraine-Russia peace plan

• A senior White House official acknowledged the plan is "not easy" for Ukraine but said the U.S. believes the war must end and that if it doesn't, Ukraine is likely to lose even more territory.

Catch up quick: The plan was drafted by Trump's envoy Steve Witkoff with input from Secretary of State Marco Rubio and Trump's son-in-law Jared Kushner.

• Witkoff also consulted with Russian envoy Kirill Dmitriev on the plan. Dmitriev told Axios he is optimistic about it because unlike past efforts, "we feel the Russian position is really being heard." President Vladimir Putin has not publicly endorsed the plan.
• After meeting Dmitriev, Witkoff and Kushner also discussed the plan with Zelensky's national security adviser, Rustem Umerov.
• U.S. Army Secretary Dan Driscoll presented the plan to Zelensky on Thursday in writing. Afterward, Zelensky said he was prepared to hold talks about it with Trump and his team.

Between the lines: Zelensky described the plan as the U.S. "vision" but not a final offer. He said Ukraine had been clear about its red lines and would give its input to make the plan "truly meaningful."

• A U.S. official also told Axios the administration sees the plan as a "live document" that can be changed based on discussions with the parties. The official claimed Ukraine was positive about many of the points during the negotiations and managed to incorporate some of its positions.
• Trump has also given his personal endorsement to the plan, the full details of which had not previously been published.
• "We are making a serious effort to find a solution that will end the war in Ukraine, the same way we ended the war in Gaza. We believe this plan is not easy but it is good for Ukraine," the senior White House official said.

Zoom in: In addition to the territorial concessions asked of Ukraine, the document says there would be a "decisive coordinated military response" in the event of further Russian incursions onto Ukrainian territory. It does not say what role the U.S. would play in such a response.

• The plan also includes economic components that would see some frozen Russian assets go toward rebuilding Ukraine, sanctions on Russia lifted, the U.S. and Russia agreeing to partner long-term in areas like AI and mining, and Russia returning to the G8.
• All parties would get amnesty for their actions during the war, presumably meaning Russian officials and soldiers could not be prosecuted for war crimes.
• The plan also calls for Ukraine to hold elections within 100 days of a deal. Zelensky told Axios in September that he wanted to hold elections once there was a ceasefire.

Worth noting: The 28 points below reflect the current U.S. plan as of Thursday, barring minor changes to the language as it has been amended. It includes annotations from Axios in italics for the purposes of clarity.

The full plan

1. Ukraine's sovereignty will be confirmed.

2. A comprehensive non-aggression agreement will be concluded between Russia, Ukraine and Europe. All ambiguities of the last 30 years will be considered settled.

3. It is expected that Russia will not invade neighboring countries and NATO will not expand further.

4. A dialogue will be held between Russia and NATO, mediated by the United States, to resolve all security issues and create conditions for de-escalation in order to ensure global security and increase opportunities for cooperation and future economic development.

5. Ukraine will receive reliable security guarantees.

• Update: A separate document details the terms of the security guarantee. The U.S. and its NATO allies would treat an attack on Ukraine as an attack on the entire "transatlantic community."

6. The size of the Ukrainian Armed Forces will be limited to 600,000 personnel.

• Note: Ukraine's army currently has 800,000-850,000 personnel, and had around 250,000 beforethe war, according to a Ukrainian official.

7. Ukraine agrees to enshrine in its constitution that it will not join NATO, and NATO agrees to include in its statutes a provision that Ukraine will not be admitted in the future.

8. NATO agrees not to station troops in Ukraine.

• Note: NATO countries including France and the U.K. have been working on separate proposals that would include small numbers of European troops on Ukrainian soil after the war. This plan appears to disregard that possibility.

9. European fighter jets will be stationed in Poland.

10. The U.S. guarantee:

• The U.S. will receive compensation for the guarantee;
• If Ukraine invades Russia, it will lose the guarantee;
• If Russia invades Ukraine, in addition to a decisive coordinated military response, all global sanctions will be reinstated, recognition of the new territory and all other benefits of this deal will be revoked;
• If Ukraine launches a missile at Moscow or St. Petersburg without cause, the security guarantee will be deemed invalid.

11. Ukraine is eligible for EU membership and will receive short-term preferential access to the European market while this issue is being considered.

12. A powerful global package of measures to rebuild Ukraine, including but not limited to:

• The creation of a Ukraine Development Fund to invest in fast-growing industries, including technology, data centers, and artificial intelligence.
• The United States will cooperate with Ukraine to jointly rebuild, develop, modernize, and operate Ukraine's gas infrastructure, including pipelines and storage facilities.
• Joint efforts to rehabilitate war-affected areas for the restoration, reconstruction and modernization of cities and residential areas.
• Infrastructure development.
• Extraction of minerals and natural resources.
• The World Bank will develop a special financing package to accelerate these efforts.

13. Russia will be reintegrated into the global economy:

• The lifting of sanctions will be discussed and agreed upon in stages and on a case-by-case basis.
• The United States will enter into a long-term economic cooperation agreement for 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.
• Russia will be invited to rejoin the G8.

14. Frozen funds will be used as follows:

• $100 billion in frozen Russian assets will be invested in US-led efforts to rebuild and invest in Ukraine;
• The US will receive 50% of the profits from this venture. Europe will add $100 billion to increase the amount of investment available for Ukraine's reconstruction. Frozen European funds will be unfrozen. The remainder of the frozen Russian funds will be invested in a separate US-Russian investment vehicle that will implement joint projects in specific areas. This fund will be aimed at strengthening relations and increasing common interests to create a strong incentive not to return to conflict.

15. A joint American-Russian working group on security issues will be established to promote and ensure compliance with all provisions of this agreement.

16. Russia will enshrine in law its policy of non-aggression towards Europe and Ukraine.

17. The United States and Russia will agree to extend the validity of treaties on the non-proliferation and control of nuclear weapons, including the START I Treaty.

• Note: New START, the last major U.S.-Russia arms control treaty, is due to expire in February.

18. Ukraine agrees to be a non-nuclear state in accordance with the Treaty on the Non-Proliferation of Nuclear Weapons.

19. The Zaporizhzhia Nuclear Power Plant will be launched under the supervision of the IAEA, and the electricity produced will be distributed equally between Russia and Ukraine — 50:50.

20. Both countries undertake to implement educational programs in schools and society aimed at promoting understanding and tolerance of different cultures and eliminating racism and prejudice:

• Ukraine will adopt EU rules on religious tolerance and the protection of linguistic minorities.
• Both countries will agree to abolish all discriminatory measures and guarantee the rights of Ukrainian and Russian media and education. (Note: Similar ideas were incorporated into Trump's 2020 Israel-Palestine peace plan).
• All Nazi ideology and activities must be rejected and prohibited.

21. Territories:

• Crimea, Luhansk and Donetsk will be recognized as de facto Russian, including by the United States.
• Kherson and Zaporizhzhia will be frozen along the line of contact, which will mean de facto recognition along the line of contact.
• Russia will relinquish other agreed territories it controls outside the five regions.
• Ukrainian forces will withdraw from the part of Donetsk Oblast that they currently control, and this withdrawal zone will be considered a neutral demilitarized buffer zone, internationally recognized as territory belonging to the Russian Federation. Russian forces will not enter this demilitarized zone.

22. After agreeing on future territorial arrangements, both the Russian Federation and Ukraine undertake not to change these arrangements by force. Any security guarantees will not apply in the event of a breach of this commitment.

23. Russia will not prevent Ukraine from using the Dnieper River for commercial activities, and agreements will be reached on the free transport of grain across the Black Sea.

24. 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 program will be implemented.
• Measures will be taken to alleviate the suffering of the victims of the conflict.

25. Ukraine will hold elections in 100 days.

26. All parties involved in this conflict will receive full amnesty for their actions during the war and agree not to make any claims or consider any complaints in the future.

27. This agreement will be legally binding. Its implementation will be monitored and guaranteed by the Peace Council, headed by President Donald J. Trump. Sanctions will be imposed for violations.

• Note: This is the same general structure Trump proposed to govern the Gaza peace agreement.

28. Once all parties agree to this memorandum, the ceasefire will take effect immediately after both sides retreat to agreed points to begin implementation of the agreement.

Go deeper: Trump peace plan for Ukraine includes NATO-style security guarantee