Axios: What were the peace terms on Ukraine in Trump's "final offer"?

The United States presented Ukraine with a peace framework labelled as President Donald Trump’s “final offer,” according to sources who spoke to Axios.

However, following Ukraine's refusal to accept the offer, the foreign ministers of Great Britain, France, Germany and Ukraine cancelled their travel to London for a planned meeting on Ukraine.

The one-page proposal, handed to Ukrainian officials in Paris last week, includes sweeping concessions to Russia — including U.S. recognition of Crimea as Russian territory and de facto acknowledgement of Moscow’s control over vast areas occupied since the 2022 invasion.

Why it matters:

This proposal signals a dramatic shift in U.S. diplomatic posture and has stirred controversy among Kyiv officials, who reportedly view the plan as “highly biased” in favor of Russia. The White House, meanwhile, insists it is prepared to walk away from the process if a deal isn’t reached soon.

Ukrainian President Volodymyr Zelenskyy faces pressure to respond by April 23. However, Ukrainian officials have already expressed deep reservations. “The proposal says very clearly what tangible gains Russia gets, but only vaguely and generally says what Ukraine is going to get,” one source close to the government told Axios.

What Russia gets under the proposal:

1. U.S. legal recognition of Crimea as Russian territory.

2. De facto recognition of Russia's hold over almost all of Luhansk, and parts of Donetsk, Kherson, and Zaporizhzhia.

3. A binding promise that Ukraine will never join NATO — although it may be allowed to pursue EU membership.

4. Lifting of U.S. sanctions imposed since 2014.

5. Expanded economic cooperation with the U.S., particularly in energy and industry.

What Ukraine gets:

1. A vague “robust security guarantee” involving several European and possibly non-European nations — with no mention of U.S. troop involvement.

2. The return of a small Russian-occupied portion of Kharkiv oblast.

3. Unhindered navigation of the Dnieper River.

4. An unspecified package of compensation and reconstruction aid.

Other components of the plan include:

• The Zaporizhzhia nuclear power plant would be declared Ukrainian territory but operated by the U.S., supplying energy to both countries.

• A minerals agreement between Ukraine and the U.S., which Trump says will be signed on April 24.

Behind the scenes:

The proposal followed a more than four-hour meeting in Moscow between Trump’s envoy Steve Witkoff and Russian President Vladimir Putin. Following that meeting, the Financial Times reports that Putin offered to freeze the current front lines as part of a deal — a gesture some interpret as his strongest signal yet toward a potential settlement, though European officials remain wary.

Witkoff is expected to return to Moscow later this week for further talks — his fourth visit since assuming the role. However, both he and Secretary of State Marco Rubio will skip a key multinational meeting in London on April 23, where the proposal is expected to be debated.

Instead, retired General Keith Kellogg will lead the U.S. delegation.

Between the lines:

A U.S. official noted that Rubio and Witkoff developed the framework in tandem, hoping it could bring the war closer to a conclusion. However, Ukraine has reportedly shifted focus in recent hours, signaling interest in negotiating a temporary 30-day ceasefire instead of fully engaging with the Trump proposal.

“The decision was made for the secretary not to travel to London,” the official said. “The U.S. delegation will continue engaging with U.K. and Ukrainian counterparts.”

Official reaction:

“Negotiations continue and hopefully we are in the right direction,” said White House Press Secretary Karoline Leavitt on Tuesday. Secretary Rubio added in a tweet that his talks with British officials were “productive” and that he looks forward to following up post-London.

What’s next:

All eyes are now on Kyiv, where officials must respond to Washington’s proposal. While the Trump framework offers a clear end to the war on paper, its imbalance and ambiguity regarding Ukraine’s future security may make it a hard sell in both Kyiv and Europe.

By Khagan Isayev