November 23, 2025
A 28-point proposal intended to end the war in Ukraine — presented by the United States and reportedly drafted with input from Moscow — has provoked sharp debate in Kyiv, Washington and European capitals. Critics argue the plan awards many Russian demands while imposing painful concessions on Ukraine. Senators at the Halifax International Security Forum said Secretary of State Marco Rubio described the document as a Russian “wish list” given to a U.S. mediator. Rubio and the State Department maintain the text was produced by the United States, incorporating input from both Russia and Ukraine.
Main elements of the proposal
Territorial arrangements
– The draft reiterates Ukraine’s sovereignty in principle but would treat Crimea and the Luhansk and Donetsk areas as de facto Russian territory; it would require Ukraine to withdraw from parts of those regions it currently controls.
– Front lines in Kherson and Zaporizhzhia would be frozen, with a neutral buffer zone established along those boundaries.
– Russia would give up control of other occupied territories outside the five core regions, possibly including parts of Sumy and Kharkiv, though the specifics are not yet clear.
– Russian troops would be required to withdraw from portions of Kharkiv and Dnipropetrovsk regions.
– The Zaporizhzhia nuclear power plant would be brought back online, with electricity shared evenly between Russia and Ukraine.
Security guarantees
– Ukraine would abandon plans to join NATO and forbid stationing of NATO forces on its territory.
– NATO would commit to halting further expansion.
– The plan would cap Ukraine’s armed forces at 600,000 personnel; Russia had previously sought reductions to below 100,000.
– Russia would pledge not to invade other neighboring states.
War crimes, ideology and legal limits
– Kyiv would be asked to drop initiatives aiming to pursue legal proceedings proving Russian war crimes.
– The text calls for a ban on “Nazi ideology or activity,” without explicitly naming Ukraine, as part of broader political provisions.
Frozen assets, sanctions and reconstruction funds
– Some $100 billion in Russian assets frozen by Western governments would be directed into a reconstruction fund for Ukraine, with neither Russia nor Ukraine having sole control over how the money is spent.
– Ukraine would be barred from seeking war reparations.
– Russia would be eligible to rejoin the G8 and would see sanctions eased gradually.
Elections
– The proposal would require Ukraine to hold national elections within 100 days.
Political fallout and reactions in the United States
A bipartisan group of U.S. senators criticized the draft as rewarding Russian aggression and described many of its provisions as unacceptable. Senator Jeanne Shaheen labeled it “a Russian proposal,” while Senator Mike Rounds said the Trump administration “was not responsible for this release in its current form” but wanted to use it as a basis for talks. Independent Senator Angus King likened the document to the appeasement of 1938.
President Donald Trump set a deadline for Ukrainian President Volodymyr Zelenskyy to accept the plan, saying, “He’s going to have to approve it,” though Trump later added that the draft was not his final offer. Zelenskyy stopped short of an outright rejection, insisting on fair treatment for Ukraine and saying he would “work calmly” with Washington and partners during “one of the most difficult moments in our history.”
Rubio and State Department response
Senator Rubio pushed back on fellow lawmakers’ characterizations, posting on X that the “peace proposal was authored by the US” and framed as a negotiation outline that reflects input from Russia and prior and ongoing contributions from Ukraine. State Department spokesman Tommy Pigott called the senators’ remarks “blatantly false,” reiterating that the United States authored the proposal with input from both sides.
European and Ukrainian diplomatic reaction
Germany, France and the United Kingdom plan to press the United States to revise the text. Security officials from the E3 will meet EU, U.S. and Ukrainian counterparts in Geneva to discuss the proposal. French President Emmanuel Macron said the plan needs broader consultation, while German Chancellor Friedrich Merz emphasized the importance of backing Ukraine and warned that a Ukrainian defeat would have political consequences across Europe. Macron, Merz and Ukrainian officials acknowledged that the draft contains elements relevant to a lasting peace but said significant additional work and wider consultation are required.
Context and next steps
The proposal has raised particular alarm over provisions that would force Kyiv to cede territory, limit its military capabilities, bar NATO membership and restrict legal accountability for alleged Russian war crimes. Allies are divided on whether the draft can serve as a legitimate starting point: some call for substantial revisions and a more inclusive consultative process, while the U.S. administration says the document is a negotiation framework built on input from all parties. Further meetings in Geneva and additional diplomatic engagement are expected as allies try to reconcile differences and determine whether a common path toward negotiations can be found.