The United States has drafted a 28 point framework for a potential peace agreement in Ukraine after holding undisclosed talks with Russian negotiators, according to reporting from Axios. The proposal, shaped largely without early input from Kyiv or European allies, is understood to require Ukraine to give up additional territory in the east. US officials have privately argued that the areas in question are likely to fall under Russian control if the fighting continues.
The approach has drawn strong criticism, with Ukrainian officials and supporters expressing concern that the document resembles a US Russia plan for Ukraine rather than one led by Ukraine itself. The talks, held at the end of October, involved US envoy Steve Witkoff meeting his Russian counterpart for three days before Ukrainian officials were brought into the process. Axios reports that Kyiv has now been briefed but had no role in shaping the discussions.
US leader Donald Trump, who appointed Witkoff to pursue a settlement, said he viewed ending the war as achievable due to what he described as his past relationship with the Russian dictator Vladimir Putin. Trump noted that he was “disappointed” in Putin’s recent actions, while insisting he had resolved several conflicts before and wanted to resolve this one as well.
The framework reportedly mirrors the structure of earlier mediation efforts in Gaza, using similar intermediaries, including Qatar and Turkey. According to US officials quoted by Axios, the strategy was to begin talks with the stronger party, in this case Russia, and negotiate a set of proposals that Moscow might accept before presenting them to Ukraine. The US official said Washington believes Ukraine has limited leverage and risks losing more ground on the battlefield.
The draft plan is divided into four main areas covering peace arrangements in Ukraine, security guarantees, the wider security environment in Europe, and future US relations with both Russia and Ukraine. While the most contentious elements relate to territory, the provisions on security commitments appear far less developed. The United States is said to be considering a pledge to prevent further Russian aggression in Europe, though it is unclear whether this would involve military assets or only political assurances.
Russia is seeking steps toward normalisation with Washington, including improved economic relations. The US document also outlines longer term ideas for stability in Europe. However, the immediate territorial provisions remain the most controversial.
Under the proposal, Ukraine would cede the entire Donbas region, consisting of Donetsk and Luhansk. Russia currently controls around eighty six per cent of this territory and would take full control under the US plan. Areas that remain contested would become a demilitarised zone under Russian sovereignty. Two other regions targeted by Russia since the full scale invasion in 2022 would see the current lines of control effectively frozen.
A simplified overview based on Axios’ reporting is outlined below:
| Region | Current Russian Control (approx.) | Proposed Status in US plan |
|---|---|---|
| Donetsk & Luhansk (Donbas) | 86 percent | Full control transferred to Russia; contested areas demilitarised under Russian sovereignty |
| Zaporizhzhia & Kherson (parts) | Mixed control | Lines frozen where they are, possible small adjustments |
Ukraine would not be asked to legally recognise Russia’s claim to these territories, but would be expected to accept that it will not regain them through military action. The United States and Russia would formally recognise the Donbas as Russian. It is unclear which other countries might follow, though many key European supporters of Ukraine, including the United Kingdom, France and Germany are unlikely to endorse such recognition.
In addition to the territorial demands, Ukrainian sources told Axios that the plan includes limitations on Ukraine’s military after the war, including possible restrictions on long range weapons. These ideas reportedly echo long standing Russian demands. US officials did not directly confirm this element, but any requirement for Ukraine to reduce military capability would be strongly resisted by Kyiv and its European partners.
The draft has caused further unease because European governments have been largely excluded from the process. Trump has repeatedly criticised NATO allies for what he views as inadequate defence spending, and his team appears to be prioritising mediation partners used in the Gaza negotiations rather than long standing European interlocutors. The United Kingdom, France and Germany have been pushing their own framework for peace, which the US official quoted by Axios dismissed as unacceptable to Russia.
Ukraine’s President Volodymyr Zelensky met Turkish officials today, and senior US defence officials are due to meet Ukrainian leaders in Kyiv shortly. A planned meeting between Zelensky and Witkoff was cancelled, with differing explanations from the two sides. US officials said Zelensky was unwilling to engage seriously with the draft plan, while Ukrainian sources have suggested they saw little usefulness in a proposal they view as undermining their sovereignty.
There are indications that not all parts of the US government support the Witkoff initiative, with some officials assuring Ukrainian representatives that it is not the only track being considered in Washington. Trump, however, has empowered Wirtz to pursue negotiations directly.
How far the draft plan progresses remains uncertain. Ukraine continues to insist that it will not accept territorial losses imposed under pressure, and European partners are unlikely to back an agreement that strengthens Russia’s position in the region.
