— Ukrainian President Volodymyr Zelenskyy outlined a revised, U.S.-backed peace draft in Kyiv that contemplates Kyiv pulling its forces back from territory claimed by Moscow in eastern Ukraine. The proposal would turn much of the Donbas — currently held by Russian forces — into a demilitarized “free economic zone,” while preserving Western security guarantees comparable to NATO’s Article 5. Zelenskyy said Kyiv opposes any unilateral withdrawal but acknowledged the plan presents a choice between continued war or negotiated arrangements on economic zones and safeguards. He added that a final deal would require parliamentary ratification and a nationwide referendum in Ukraine.
Key Takeaways
- The draft, negotiated between U.S. and Ukrainian teams, envisions Kyiv withdrawing troops from eastern territories claimed by Russia and designating much of Donbas as a demilitarized free economic zone.
- The updated text retains security guarantees from the U.S., NATO and European partners described as equivalent to Article 5; sanctions would be restored if Russia re-invades.
- The original Trump administration proposal was a 28-point document negotiated earlier in December by U.S. envoy Steve Witkoff and Russian officials; the latest version is substantially revised.
- The plan accepts Ukraine’s eventual EU accession, affirms Kyiv’s right to seek reparations from Russia, and proposes dedicated investment instruments for reconstruction funding.
- A joint Ukrainian-Russian-American administration for the Zaporizhzhia nuclear plant is proposed; Kyiv has signaled strong reluctance but conditional willingness to cooperate on strategic infrastructure.
- Enerhodar, occupied by Russian forces, is named as a potential demilitarization candidate, contingent on a legally binding local referendum.
- The text calls for school curricula and regulations to promote tolerance of minority languages and religions, a provision Kyiv says is necessary for EU integration but may conflict with de-Russification policies.
Background
The draft is an updated version of a Trump administration peace blueprint that Kyiv and many European officials initially rejected as overly favorable to Moscow. That first 28-point document — negotiated earlier this month by U.S. intermediary Steve Witkoff and Russian interlocutors — prompted intense scrutiny in Kyiv and Brussels. After trilateral discussions in Miami this past weekend, U.S. and Ukrainian negotiators produced a revised text that Zelenskyy briefed reporters about in Kyiv on Tuesday.
Russia has insisted on a range of territorial and security guarantees since its full-scale invasion in 2022; Moscow’s forces now occupy large parts of Donetsk, Luhansk and sections of Zaporizhzhia and Kherson regions. Western partners have supplied Ukraine with weapons and sanctions pressure on Russia, while stopping short of direct alliance mutual-defense commitments. The revised proposal attempts to thread a narrow diplomatic path: offering security assurances from Western states while addressing Moscow’s demand for recognition of control over certain eastern areas via demilitarized zones.
Main Event
Zelenskyy told reporters the updated draft would demilitarize the Donbas region — the majority of which is currently under Russian military control — and convert it into a “free economic zone” without Ukrainian or Russian forces present. He emphasized Ukraine’s formal opposition to withdrawing its military, calling the idea one of Russia’s central demands, but framed the proposal as presenting two stark alternatives: continued war, or negotiated arrangements including economic zones.
The president said the current draft preserves security guarantees from the United States, NATO and European partners comparable to Article 5, and that the package includes a clause restoring global sanctions should Russia launch a new invasion. Zelenskyy also noted a safeguard that would void guarantees if Ukraine mounted an unprovoked attack against Russia. He said Washington removed earlier language that would have required the U.S. to receive compensation for providing guarantees.
Among other provisions, the text would obligate Russia to legally adopt a non-aggression stance toward Ukraine and Europe, recognize Ukraine’s prospective EU accession, and explicitly preserve Kyiv’s ability to demand reparations. It calls for new investment mechanisms to fund post-conflict reconstruction. The draft also proposes joint management of the Zaporizhzhia nuclear power plant by Ukrainian, Russian and American authorities — a highly contentious point given intense fighting around the site.
Zelenskyy singled out the city of Enerhodar, occupied by Russian forces, as a possible candidate for demilitarization if the U.S. insists on creating economic zones. He stressed that any such status would require a local referendum to be legally valid. The plan further recommends changes to education programs to promote tolerance of different cultures and asks Ukraine to adopt EU regulations protecting minority languages and religions — steps Kyiv says are prerequisites for EU membership but which may complicate its de-Russification efforts.
Analysis & Implications
The draft represents a significant diplomatic gamble for Kyiv. Accepting demilitarized economic zones in areas largely occupied by Russian forces would amount to de facto concessions on territorial control, even if Kyiv retains legal claims and a pathway to EU accession. For Western backers, the attraction lies in locking in multilateral security guarantees that fall short of alliance membership but aim to deter future aggression through coordinated sanctions and collective response mechanisms.
Domestically, the proposal exposes political tensions. Zelenskyy must weigh the strategic calculus of pausing active combat in the east against the political risk of appearing to cede sovereignty. Any plan that hinges on referendums in occupied areas will face credibility challenges: holding free, fair votes under occupation is logistically and legally fraught. Kyiv’s insistence on parliamentary ratification and a national referendum reflects an attempt to anchor legitimacy at home even as negotiators explore compromise.
Internationally, the joint administration model for critical infrastructure like Zaporizhzhia raises safety and sovereignty questions. Kyiv’s reluctance is understandable: the plant has been at the center of fierce fighting and radiological risk. U.S. participation may be intended to provide oversight and reassure Kyiv, but Russia’s involvement in any management structure will be a flashpoint for opposition both in Ukraine and among its Western partners.
Economically, designating a free economic zone across parts of Donbas could attract investment and provide reconstruction financing channels — if security stabilizes. However, reconstruction depends on predictable governance, rule of law and a credible security environment. Absent those, investor confidence will remain weak and the zone could become a contested or corrupt jurisdiction rather than a growth engine.
Comparison & Data
| Document | Key features | Origin |
|---|---|---|
| Original Trump proposal | 28 points; widely seen as favorable to Moscow | Negotiated by U.S. envoy Steve Witkoff (December 2025) |
| Revised U.S.-Ukraine draft | Demilitarized Donbas, Article-5–style guarantees, joint NPP admin, EU accession pathway | Updated after trilateral Miami talks (December 2025) |
The original document counted 28 items and was negotiated earlier in December; the revised text keeps certain security guarantees while adding economic and institutional arrangements intended to make the package more acceptable in Kyiv. The practical difference is that the updated draft explicitly ties reconstruction instruments and EU accession recognition to a multilateral guarantee structure that the original text either omitted or framed differently.
Reactions & Quotes
“There are two options: either the war continues, or something will have to be decided regarding all potential economic zones.”
Volodymyr Zelenskyy, President of Ukraine
Zelenskyy framed the choice to reporters as stark: continued conflict or negotiated, legally anchored compromises over economic zones. He reiterated that Kyiv formally objects to troop withdrawals but is engaging with the draft as one possible path to immediate safety and reconstruction.
“If Russia invades Ukraine, in addition to a coordinated military response, all global sanctions against Russia will be restored.”
Volodymyr Zelenskyy, President of Ukraine
This statement summarizes the draft’s enforcement logic: Western guarantees would trigger swift economic penalties and coordinated defense measures in response to renewed aggression. Zelenskyy also said guarantees could be voided if Kyiv initiated unprovoked attacks, a provision intended to limit escalation risk and reassure partner states.
“A peace deal is closer than ever.”
Donald J. Trump, former U.S. President (public comment)
Trump’s public optimism has been cited in discussions of the plan’s momentum. The original proposal bearing ties to his administration remains a point of political contention, and his comment has been used by supporters to argue that negotiated settlement is within reach, while critics warn about concessions embedded in the early draft.
Unconfirmed
- Whether a legally verifiable, free and fair referendum could be held in Enerhodar or other occupied localities under current conditions remains unresolved.
- The operational details and legal framework for joint management of the Zaporizhzhia nuclear plant have not been published and remain subject to negotiation.
- Exact triggers, timing and scope for the restoration of global sanctions in the event of a renewed Russian offensive are not yet specified in public drafts.
Bottom Line
The revised U.S.-Ukraine draft marks a delicate attempt to reconcile Kyiv’s territorial claims with a practical, enforceable security architecture backed by Western partners. It offers Ukraine formal pathways to EU accession, reconstruction financing, and Article-5–style assurances while posing difficult political trade-offs over troop deployments and local governance in occupied eastern areas.
For Kyiv, the critical decisions ahead will balance immediate civilian safety and economic recovery against long-term sovereignty and national cohesion. Any final agreement will hinge on detailed legal text, international enforcement mechanisms, and whether Ukrainian institutions and the public accept the compromises required to secure a ceasefire.
Sources
- Politico — news media: reporting on Zelenskyy briefing and draft text (original source for this report)