EditUkraine unveils the 20-point peace proposal under discussion with the U.S.
Despite some progress, Kyiv and Washington still have not found common ground on the territorial issues
President Volodymyr Zelenskyy outlined for the first time the main points of a draft 20-point framework peace proposal discussed by Ukraine and the United States, which he said could become the basis of future agreements to end war with Russia.
After weeks of talks to modify an earlier 28-point draft seen as supporting many of Russia’s main demands, Zelenskyy said that most positions had been brought significantly closer. Ukraine and the United States still had not reached consensus on two main points: control of territory and the Zaporizhzhia nuclear power plant, Zelenskyy said, calling for talks with U.S. President Donald Trump to resolve them.
Below are the points of the draft proposal as unveiled by Zelenskyy and shared by his office on Wednesday.
- Ukraine’s sovereignty will be reaffirmed.
- This point will envisage a full and unquestionable non-aggression agreement between Russia and Ukraine. It specifies that to sustain long-term peace, a monitoring mechanism will be established to oversee the line of contact through space-based unmanned monitoring, to ensure early notification of violations, and to resolve conflicts.
- Ukraine will receive robust security guarantees.
- Ukraine will maintain its armed forces at their present strength of 800,000 personnel. The earlier U.S. draft had called for Ukraine to reduce the size of its forces.
- The United States, NATO, and European countries will provide Ukraine with security guarantees that mirror Article 5, the mutual-defence clause of NATO’s founding treaty.
- Russia will formalise a policy of non-aggression towards Europe and Ukraine in all necessary laws and all required documents on ratification, including ratification by an overwhelming majority vote in the State Duma.
- Ukraine will become an EU member at a specifically defined date. Ukraine will also receive short-term preferential access to the European market.
- Ukraine will receive a strong global development package, which will be defined in a separate agreement on investment and future prosperity.
- Several funds will be established to address economic recovery, the reconstruction of damaged areas and regions, and humanitarian issues. The objective will be to mobilize $800 billion to help Ukraine fully realize its potential.
- Ukraine will accelerate the process of concluding a free-trade agreement with the United States. Zelenskyy said the U.S. position was that if Washington were to grant free trade access to Ukraine, it aimed to offer similar terms to Russia.
- Ukraine will confirm that it will remain a non-nuclear state, in accordance with the Treaty on the Non-Proliferation of Nuclear Weapons.
- The Zaporizhzhia nuclear power plant. Zelenskyy said no agreement had yet been reached with the United States on the issue of Europe’s biggest nuclear power plant, which is located near the front line in territory now controlled by Russian forces. Zelenskyy said the U.S. proposal was for the plant to be operated jointly by Ukraine, the United States, and Russia, each holding equal stakes in a joint enterprise, with the Americans acting as the chief managers. Kyiv’s proposal was for the plant to be operated by a 50-50 joint enterprise involving only the United States and Ukraine, with Ukraine receiving half of the energy produced and the United States independently allocating the other half.
- Ukraine and Russia commit to implementing educational programmes in schools and across society that promote understanding and tolerance toward different cultures and eliminate racism and prejudice. Ukraine will implement European Union rules on religious tolerance and the protection of minority languages.
- Territory: Zelenskyy said that this was the most complex point, and as yet unresolved. Russia wants Ukraine to withdraw troops from territory Ukraine still controls in the eastern Donetsk region. Kyiv wants fighting to be halted at current battle lines. Washington has proposed demilitarised zones and a free economic zone in the part of the Donetsk region that Kyiv controls.
- After reaching an agreement on future territorial arrangements, both Russia and Ukraine undertake not to alter these agreements by force.
- Russia will not obstruct Ukraine from using the Dnipro River and the Black Sea for commercial purposes. A separate maritime agreement and an access agreement will be concluded, covering freedom of navigation and transport. The Kinburn Spit, along the Dnipro’s outlet to the sea, will be demilitarized.
- A humanitarian committee will be established to resolve outstanding issues. All remaining prisoners of war will be exchanged on the principle of All for All. All civilian detainees and hostages will be returned, including children. Provisions will be made to address the suffering of victims from the conflict.
- Ukraine must hold elections as soon as possible after the signing of the agreement.
- This agreement will be legally binding. Its implementation will be monitored and guaranteed by a Peace Council, chaired by President Trump. Ukraine, Europe, NATO, Russia, and the United States will be part of this mechanism. Sanctions will apply in case of violations.
- Once all parties agree to this agreement, a full ceasefire will take effect immediately.
The most difficult issue
The creation of a free economic zone in Donbas could be a format that accommodates the positions of both Ukraine and Russia, Zelenskyy said in a conversation with journalists, reported by EUalive’s parter Suspilne.
According to him, Russia demands the withdrawal of Ukrainian troops from Donetsk Oblast, while the United States is seeking a solution that also respects Ukraine’s stance against such a withdrawal.
“We believe that a free economic zone represents a potential opportunity for a sovereign state to choose this path,” the President stated.
He emphasized that Ukraine insists on the term “potential economic zones,” as there are currently two main options for territorial arrangements in a possible peace agreement. The first is to fix the current line of contact at the moment the agreement is signed.
“If we hold our positions where we stand now, then we can reach an agreement. That’s why the wording refers to ‘potential zones.’ But if there is no agreement to ‘hold where we stand,’ there are only two alternatives: either the war continues, or we must decide on something involving all these potential economic zones,” Zelenskyy explained.
One “small but necessary” economic zone would be established in the city of Energodar, which would be demilitarized. A second, larger free economic zone could be created in part of Donetsk Oblast, but only after Ukraine receives firm security guarantees. This would be formalized in a separate agreement involving Ukraine, the United States, and Russia.
“Here in Donbas, we control about 25% of the territory, while the rest is temporarily occupied by Russia. If we create a free economic zone in this area, it would effectively establish a demilitarized zone – meaning heavy forces are withdrawn 40 kilometres back, though the distance could be 5, 10, or 40 kilometres. For example, if Kramatorsk and Sloviansk become part of a free economic zone, Russian troops would have to pull back accordingly by 5, 10, or 40 kilometres. In the areas from which our troops withdraw, Ukrainian administration and police would operate. Where Russian forces are currently positioned, their administration would remain,” Zelenskyy said.
Given Russia’s history of breaking agreements, the President noted that the current contact line would effectively become a de facto free economic zone, with international forces deployed to ensure order and security.
“If we move toward a potential free economic zone in Donbas, we have made clear that, under Ukrainian law, we cannot implement this – even potentially – without a special procedure. This would require a referendum to determine whether the people agree to such a path, especially if the choice is framed as ‘this or continued war.’ I told them (the American side): if you want a referendum, the entire peace document must be put to a vote – not just isolated free economic zones. People should vote on the full agreement: yes or no,” Zelenskyy said.
He stressed that any referendum could only take place after a guaranteed 60-day ceasefire; otherwise, it would lack legitimacy.
“An illegitimate referendum would divide the country. A referendum is inherently challenging, but it can also unify. Yet who would participate in a referendum under artillery fire?” he asked.
Zelenskyy added that Ukrainians living in occupied territories would not be able to vote.
“Let’s be honest – they do not get to decide how we end the war. That would simply be wrong, in my view,” he concluded.
As outlined in paragraph 14 of Ukraine’s current peace plan “in the event of a decision to create such a [free economic] zone, it will require special approval by the Ukrainian parliament or a referendum.” Zelenskyy noted, however, that while parliament could pass a specific law on the zone, “a referendum would of course provide greater certainty for the entire situation.”
Russian President Vladimir Putin has been briefed about contacts with President Donald Trump’s envoys on U.S. proposals for a possible Ukrainian peace deal and Moscow will now formulate its position, the Kremlin said on Wednesday.
Kremlin spokesman Dmitry Peskov said that envoy Kirill Dmitriev had briefed Putin on the trip to Miami for contacts with Trump’s envoys.
But Peskov refused to be drawn on Russia’s reaction to the proposals, or the exact format of the documents, saying that the Kremlin was not going to communicate via the media.
“All the main parameters of the Russian side’s position are well known to our colleagues from the United States,” Peskov told reporters.
No matter how many rounds of peace talks are held, Russia shows no signs of backing down from its maximalist initial positions, which effectively amount to transforming Ukraine into a vassal state.
With Reuters and Suspilne, edited by g.g.
Caption: Ukrainian President Volodymyr Zelensky (C) arrives for a press conference on the occasion of Diplomatic Service Day in Kyiv, Ukraine, 22 December 2025, amid the Russian invasion. During the briefing, Zelensky responded to journalists’ questions regarding peace negotiations mediated by the United States. EPA/SERGEY DOLZHENKO
Updated: December 25, 2025 - 09:09
