What is the 28-point peace plan proposed by the U.S. for Ukraine? 美國向烏克蘭提出的 28 點和平計畫是什麼? By Johnson Choi, Nov 24 2025

The U.S. “28-point” peace plan is a draft proposal that came to light in November 2025, aimed at ending (or at least de-escalating) the Russia-Ukraine war. This proposal is quite controversial, as many of its terms are close to Russian demands, with some even seen as requiring very painful concessions from Ukraine. Below are the key contents, criticisms, and reactions.

Main Contents of the 28-Point Plan (Compiled from various media reports):

1. Reaffirmation of Ukrainian Sovereignty – The plan formally affirms Ukraine’s sovereignty.
2. Comprehensive Non-Aggression Pact – A non-aggression pact to be signed by Russia, Ukraine, and Europe to address long-standing security ambiguities.
3. No Further NATO Expansion (Including No Admission of Ukraine) – The plan stipulates that NATO will not admit Ukraine in the future.
4. NATO-Russia Dialogue – Establishment of a security dialogue mechanism between NATO and Russia, mediated by the U.S., to reduce tensions.
5. Security Guarantees for Ukraine – But with multiple conditions attached.
6. Limitation of Ukrainian Military Size – The Ukrainian military would be capped at 600,000 personnel.
7. Ukrainian Constitution to Renounce NATO Membership – Ukraine must constitutionally enshrine never joining NATO, and NATO must formally commit not to admit Ukraine.
8. No Deployment of NATO Troops on Ukrainian Territory.
9. European Fighter Jets Can Be Deployed in Poland, but Not in Ukraine.
10. U.S. Security Commitment – The U.S. promises a “decisive, coordinated military response” and reinstatement of sanctions if Russia invades again, but guarantees can be revoked if Ukraine initiates an attack against Russia.
11. Ukraine Must Hold National Elections Within 100 Days.
12. Reconstruction Funding Source – Use frozen Russian assets (approximately $100 billion) for Ukraine’s reconstruction.
13. Distribution of Reconstruction Profits – The U.S. would receive 50% of the profits from reconstruction projects.
14. Establishment of a U.S.-Russia Joint Investment Fund – Using remaining frozen Russian assets.
15. Russia’s Reinstatement to the G8 – The plan allows for Russia’s gradual reintegration into major economic organizations.
16. Creation of a Neutral Buffer Zone – For example, designating parts of the Donetsk region still under Ukrainian control as demilitarized zones.
17. Constitutional and Governance Reforms – Including anti-corruption reforms and other conditions in exchange for closer EU trade and economic integration.
18. Zaporizhzhia Nuclear Power Plant Under IAEA Supervision, with electricity output shared 50/50 between Russia and Ukraine.
19. Amnesty for Wartime Actions – Amnesty for actions during the war by all parties (highly controversial).
20. Exchange and Release of Detainees – Including the return of civilians and children.
21. Long-term Arms and Nuclear Weapons Restrictions Agreement – Continuation of U.S.-Russia arms control agreements; Ukraine remains non-nuclear.
22. Guarantee of Ukrainian Commercial Shipping Rights on the Dnieper River – Russia is prohibited from obstructing it.
23. Cultural and Educational Programs – Promotion of cross-cultural education programs to “eliminate ethnic prejudice.”
24. U.S.-Russia Economic Cooperation – Including cooperation in AI, mining, and infrastructure.
25. Russia’s Reintegration into the Global Economy – Gradual lifting of sanctions.
26. Establishment of a “Peace Commission” – To oversee the implementation of the agreement.
27. Permanent Neutrality for Ukraine – Formally established in the constitution (echoing the NATO clause).
28. Comprehensive Security Dialogue Framework – Covering NATO, Russia, and the U.S. to prevent future conflicts.

Main Criticisms and Risks:

· Risk of Territorial Concessions: Many believe this plan forces Ukraine to accept the current territorial status quo under Russian occupation (Crimea, parts of Donbas).
· Renunciation of NATO Aspirations: Ukraine is forced to permanently abandon NATO membership, seen as a major long-term security loss.
· Military Cap Limit Weakens Defense Capability: A 600,000 troop cap might be insufficient for long-term defense against Russia.
· Ambiguity in U.S. Security承诺: The conditional nature of the承诺 and lack of a clear enforcement mechanism.
· U.S. Taking 50% of Reconstruction Profits Sparks Criticism: Criticized as “profit-oriented peace.”
· Amnesty for War Crimes Highly Controversial: Could hinder accountability for war crimes.
· Europe Questions the Plan’s Pro-Russia Bias: Several European leaders stated the plan requires “significant modifications.”
· Risk of Russia’s Rapid Reintegration into the International System: Could weaken deterrence against future Russian aggression.

Current Status and Reactions:

· Russia: The Kremlin stated it has not yet engaged in in-depth discussions with the U.S.;
· Ukraine: Zelenskyy expressed willingness to “discuss” but has not yet endorsed it;
· EU / G7: View this plan as a “basis” but require “major adjustments” before acceptance.

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Why is it so controversial?

· It demands numerous concessions from Ukraine, while Russia’s concessions are fewer.
· The issues of NATO and sovereignty touch upon Ukraine’s most core national interests.
· It lacks a reliable security guarantee mechanism.
· It involves amnesty for Russian war crimes and its rapid return to the international stage.

美國向烏克蘭提出的 28 點和平計畫是什麼？

「28 點」的美國和平方案是在 2025 年 11 月曝光的一份草案，用來結束（或至少降溫）俄烏戰爭。這份提案相當具爭議性，因為其中許多條款接近俄羅斯的要求，有些甚至被視為烏克蘭需要做出非常痛苦的讓步。以下是主要內容、批評和反應。

28 點計畫主要內容（根據多家媒體報導彙整）
1. 重申烏克蘭主權 —— 計畫正式確認烏克蘭的主權。
2. 全面不侵略協議 —— 由俄羅斯、烏克蘭和歐洲簽署的不侵略協議，用來解決長期的安全模糊問題。
3. 北約不再擴張（包含不接納烏克蘭） —— 方案規定北約未來不得吸收烏克蘭。
4. 北約—俄羅斯對話 —— 在美國斡旋下，建立北約與俄羅斯的安全對話機制以降溫。
5. 給予烏克蘭安全保障 —— 但附帶多項條件。
6. 限制烏克蘭軍力規模 —— 烏克蘭軍隊將被限制在 60 萬人。
7. 烏克蘭憲法放棄加入北約 —— 烏克蘭須在憲法中寫明永不加入北約，北約也須正式承諾不接納烏克蘭。
8. 不得部署北約軍隊在烏克蘭領土。
9. 歐洲戰機可部署於波蘭，但不可部署於烏克蘭。
10. 美國的安全承諾 —— 若俄羅斯再次入侵，美國承諾採取「果斷協同的軍事回應」並恢復制裁，但若烏克蘭主動攻擊俄國，保證條件可被取消。
11. 烏克蘭需在 100 天內舉行全國選舉。
12. 重建資金來源 —— 利用凍結的俄羅斯資產（約 1000 億美元）重建烏克蘭。
13. 重建利益分配 —— 美國將獲得重建項目 50% 的利潤。
14. 設立美俄共同投資基金 —— 使用剩餘的俄羅斯凍結資產。
15. 俄羅斯重返 G8 —— 計畫允許俄羅斯逐步重新加入主要經濟組織。
16. 建立中立緩衝區 —— 例如：將烏軍仍控制的部分頓涅茨克地區劃為非軍事區。
17. 憲法改革與治理改革 —— 包含反腐改革與其他條件，以換取更強的歐盟經貿接軌。
18. 扎波羅熱核電站由 IAEA 監管，發電量由俄烏各 50% 使用。
19. 戰爭行為大赦 —— 各方在戰爭期間的行為可獲大赦（極具爭議）。
20. 交換與釋放被拘留者 —— 包含遣返平民與兒童。
21. 長期軍備與核武限制協議 —— 延續美俄軍控協議；烏克蘭維持無核化。
22. 保障烏克蘭對第聶伯河的商業航運權 —— 俄羅斯禁止阻撓。
23. 文化與教育計畫 —— 推動「消除種族偏見」的跨文化教育項目。
24. 美俄經濟合作 —— 包含 AI、礦業與基建合作。
25. 俄羅斯重新融入全球經濟 —— 逐步解除制裁。
26. 建立「和平委員會」 —— 監督協議執行。
27. 烏克蘭永久中立化 —— 在憲法中正式確立（與北約條款呼應）。
28. 全面安全對話架構 —— 涵蓋北約、俄羅斯與美國，防止未來衝突。

主要批評與風險
• 領土讓渡風險：許多人認為此計畫等於逼烏克蘭接受俄羅斯佔領的領土現狀（克里米亞、頓巴斯部分地區）。
• 放棄北約意願：烏克蘭被迫永遠放棄加入北約，被視為長期安全重大損失。
• 軍力上限限制防衛能力：60 萬軍隊可能不足以長期抵禦俄國。
• 美國安全承諾模糊：承諾條件可被取消，缺乏清晰執行機制。
• 美國抽取 50% 重建收益引發非議：被批評為「利益導向型和平」。
• 戰爭罪行大赦具高度爭議：可能阻礙戰爭罪責追究。
• 歐洲質疑方案偏俄：多個歐洲領導人表示方案需「大量修改」。
• 俄羅斯快速重返國際體系風險：可能削弱對俄羅斯未來侵略的威懾。

目前狀況與反應
• 俄羅斯：克里姆林宮表示尚未與美國深入討論；
• 烏克蘭：澤倫斯基表示願意「討論」，但尚未支持；
• 歐盟 / G7：視此方案為「基礎」，但需「重大調整」後才能接受。

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為什麼爭議巨大？
• 要求烏克蘭做出大量讓步，而俄羅斯的讓步較少。
• 北約與主權議題觸及烏克蘭最核心國家利益。
• 缺乏可靠的安全保證機制。
• 涉及俄羅斯戰爭罪責大赦與快速回歸國際舞台。