President Volodymyr Zelensky publicly outlined the contents of a draft 20-point framework document intended to serve as the basis for ending Russia’s war against Ukraine. 

Speaking to journalists, Zelensky stressed that the document is a political framework rather than a finalized peace treaty and that its provisions remain subject to negotiation. 

He described it as a multilateral political document involving Ukraine, the United States, European partners, and Russia, reflecting largely a joint Ukrainian-American position, with some elements still unresolved.

Zelensky said Kyiv and Washington have “significantly moved closer” to finalizing the documents, even though consensus has not yet been reached on all issues. 

He emphasized that the framework is designed to establish binding principles for ending the war, followed by additional agreements covering security guarantees, reconstruction, and enforcement mechanisms.

Security Guarantees and Military Balance

At the core of the draft is a reaffirmation of Ukraine’s sovereignty and a legally binding non-aggression commitment between Ukraine and Russia. 

The document proposes the creation of a long-term monitoring mechanism along the line of contact, using space-based and unmanned surveillance to provide early warning of violations and help manage incidents.

One of the most consequential provisions fixes the size of Ukraine’s armed forces at 800,000 personnel in peacetime. 

In parallel, the framework envisages strong external security guarantees for Ukraine from the United States, NATO, and European signatories, explicitly modeled on Article 5-style collective defense commitments. 

Russia, for its part, would be required to codify a policy of non-aggression toward Ukraine and Europe in domestic legislation, including ratification by a large majority in the State Duma.

Ukraine also reaffirms its non-nuclear status under the Nuclear Non-Proliferation Treaty, closing off any ambiguity about future deterrence options while placing greater weight on external guarantees.

Territory, Energy, and Access

Territorial issues remain the most sensitive and least resolved part of the framework. 

Zelensky outlined multiple options rather than a single agreed position. 

One option would recognize the existing line of contact in Donetsk, Luhansk, Zaporizhzhia, and Kherson regions as a de facto line, to be monitored by international forces. 

Another option envisages a demilitarized free economic zone in the Donbas, potentially subject to a nationwide referendum in Ukraine. 

Zelensky said these questions would ultimately require decisions at the level of national leaders.

Energy infrastructure also features prominently. The Zaporizhzhia nuclear power plant would be jointly operated by Ukraine, the United States, and Russia under the framework, although Zelensky made clear that Kyiv is unwilling to engage in direct commercial relations with Russia on this issue and that operational details remain under discussion.

The draft further guarantees Ukraine unrestricted commercial access to the Dnipro River and the Black Sea. 

It calls for a separate maritime agreement covering freedom of navigation and trade, and предусматривает demilitarization of the Kinburn Spit to reduce risks to shipping.

Reconstruction, Economy, and Political Transition

Economically, the framework outlines an ambitious reconstruction and development agenda. 

It proposes the creation of multiple funds to address rebuilding, humanitarian needs, and economic recovery, with a target of raising up to $800 billion through a mix of equity, grants, debt instruments, and private-sector contributions. 

Ukraine would also accelerate negotiations on a free trade agreement with the United States and receive privileged short-term access to European markets, alongside a clearly defined timeline for European Union membership.

Humanitarian provisions include a comprehensive exchange of all remaining prisoners of war, the return of civilian detainees and hostages, including children and political prisoners, and the establishment of a dedicated humanitarian committee to resolve outstanding cases.

Politically, Ukraine commits to holding elections as soon as possible after the agreement enters into force. 

The entire framework would be legally binding and overseen by a “Peace Council” chaired by U.S. President Donald Trump, tasked with guaranteeing implementation and responding to violations. 

Once all parties agree, a full and immediate ceasefire would take effect.

Zelensky said Russia’s response to the draft was expected later on December 24 following consultations with the American side, adding that Kyiv is ready for leader-level talks to resolve the most sensitive issues.