Volodymyr Zelensky in Kyiv on 23 December 2025. Photo: Zelensky / Telegram
Ukrainian President Volodymyr Zelensky has for the first time publicly set out the contents of a 20-point draft peace plan being discussed with the US, Europe and Russia, RBC-Ukraine has reported.
Speaking to reporters on Wednesday, Zelensky said that the core 20-point document was being developed alongside separate draft agreements. These include a three-party security guarantee pact involving Ukraine, the US and Europe, a bilateral security deal with Washington, and a “roadmap for prosperity” focused on Ukraine’s post-war recovery and economic development.
The draft plan covers a range of issues, including a commitment to Ukraine’s sovereignty and an unequivocal non-aggression agreement between Russia and Ukraine, with monitoring along the line of contact. It also proposes a cap on the size of Ukraine’s military set at 800,000 troops during peacetime.
Zelensky said the plan envisaged “strong” security guarantees for Ukraine, similar to NATO’s Article 5, from the US, NATO and Europe in case of repeat aggression by Russia. According to RBC-Ukraine, the guarantees would be revoked if Ukraine were to attack Russia or fire on Russian territory without provocation.
The draft deal also includes a provision for Ukraine to join the European Union as part of the security guarantees, with Kyiv seeking to set a specific accession date.
Territorial issues remain among the most difficult elements of the plan, Zelensky said. According to RBC-Ukraine, Russia is demanding that Ukraine fully withdraw from the eastern Donetsk region, while the US has proposed creating a “free economic zone” there as a possible compromise.
If no agreement is reached on maintaining the current line of contact, Ukraine would hold a referendum on the creation of a free economic zone and other elements of the plan. Zelensky said this would require at least 60 days, and “a real ceasefire” would be required for the vote to take place.
No compromise has yet been reached on the Zaporizhzhia Nuclear Power Plant in southeastern Ukraine, which is currently under Russian control. Zelensky said Washington was proposing joint management of the plant by Ukraine, the US and Russia, while Kyiv wants Moscow excluded from its management.
The plan also sets out to establish a humanitarian committee to address unresolved issues, including prisoner-of-war exchanges, the return of civilian hostages, including children and political prisoners, and other humanitarian concerns.
Under the proposals, Ukraine is expected to hold elections as soon as possible after the agreement is concluded, while full implementation of security guarantees would be contingent on ratification by Ukraine’s parliament or approval in a nationwide referendum, Zelensky said.
