Vladimir Putin's 20-Year March to War in Ukraine-and How the West Mishandled It - WSJ - 0 views
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For nearly two decades, the U.S. and the European Union vacillated over how to deal with the Russian leader as he resorted to increasingly aggressive steps to reassert Moscow’s dominion over Ukraine and other former Soviet republics.
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A look back at the history of the Russian-Western tensions, based on interviews with more than 30 past and present policy makers in the U.S., EU, Ukraine and Russia, shows how Western security policies angered Moscow without deterring it.
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t also shows how Mr. Putin consistently viewed Ukraine as existential for his project of restoring Russian greatness.
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The North Atlantic Treaty Organization made a statement in 2008 that Ukraine and Georgia would one day join, and over nearly 14 years never followed through on membership. The EU drew up a trade deal with Ukraine without factoring in Russia’s strong-arm response. Western policies didn’t change decisively in reaction to limited Russian invasions of Georgia and Ukraine, encouraging Mr. Putin to believe that a full-blown campaign to conquer Ukraine wouldn’t meet with determined resistance—either internationally or in Ukraine, a country whose independence he said repeatedly was a regrettable accident of history.
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The roots of the war lie in Russia’s deep ambivalence about its place in the world after the end of the Soviet Union
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Viewed from elsewhere in Europe, NATO’s eastward enlargement didn’t threaten Russia’s security. NATO membership is at core a promise to collectively defend a member that comes under attack. The alliance agreed in 1997 not to permanently station substantial combat forces in its new eastern members that were capable of threatening Russian territory. Russia retained a massive nuclear arsenal and the biggest conventional forces in Europe.
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Mr. Putin thought of Russian security interests more broadly, linking the preservation of Moscow’s influence in adjacent countries with his goals of reviving Russia’s global power and cementing his authoritarian rule at home.
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U.S. intelligence learned in 2005 that Mr. Putin’s government had carried out a broad review of Russian policy in the “near abroad,” as the Kremlin termed former Soviet republics. From now on, Russia would take a more assertive approach and vigorously contest perceived U.S. influence.
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Mr. Bush asked Mr. Putin why he thought the end of the Soviet Union had been the greatest tragedy of the 20th century. Surely the deaths of more than 20 million Soviet citizens in World War II was worse, Mr. Bush said. Mr. Putin replied that the USSR’s demise was worse because it had left 25 million Russians outside the Russian Federation, according to Ms. Rice, who was present.
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Perceptions changed in January 2007, when Mr. Putin vented his growing frustrations about the West at the annual Munich Security Conference. In a long and icy speech, he denounced the U.S. for trying to rule a unipolar world by force, accused NATO of breaking promises by expanding into Europe’s east, and called the West hypocritical for lecturing Russia about democracy. A chill descended on the audience of Western diplomats and politicians at the luxury Hotel Bayerischer Hof, participants recalled.
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“We didn’t take the speech as seriously as we should have,” said Mr. Ischinger. “It takes two to tango, and Mr. Putin didn’t want to tango any more.
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“I need a MAP. We need to give the Ukrainian people a strategic focus on the way ahead. We really need this,” Mr. Yushchenko said, Ms. Rice recalled. Ms. Rice, who was initially uncertain about having Ukraine in NATO, gave a noncommittal answer. When the request was debated in the National Security Council, Mr. Bush said NATO should be open to all countries that qualify and want to join.
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Try as it might, the White House couldn’t overcome German and French resistance to offering a MAP to Ukraine and Georgia.
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Berlin and Paris pointed to unsolved territorial conflicts in Georgia, low public support for NATO in Ukraine, and the weakness of democracy and the rule of law in both.
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Ms. Merkel, remembering Mr. Putin’s speech in Munich, believed he would see NATO invitations as a direct and deliberate threat to him, according to Christoph Heusgen, her chief diplomatic adviser at the time. She was also convinced Ukraine and Georgia would bring NATO no benefits as members, Mr. Heusgen said.
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Ms. Rice, a Soviet and Russia expert, said Mr. Putin wanted to use Ukraine, Belarus and Georgia to rebuild Russia’s global power, and that extending the shield of NATO membership could be the last chance to stop him. German and French officials were skeptical, believing Russia’s economy was too weak and dependent on Western technology to become a serious threat again.
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In the final session, Ms. Merkel debated in a corner of the room with leaders from Poland and other eastern members of NATO, who advocated strenuously on behalf of Ukraine and Georgia. Lithuanian President Valdas Adamkus strongly criticized Ms. Merkel’s stance, warning that a failure to stop Russia’s resurgence would eventually threaten the eastern flank of the alliance.
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“We agreed today that these countries will become members of NATO,” it read. But it didn’t say when. And there was no MAP.
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Many of Ukraine’s supporters were heartened. But some officials in Bucharest feared it was the worst of both worlds. NATO had just painted a target on the backs of Ukraine and Georgia without giving them any protection.
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Mr. Putin joined the summit the next day. He spoke behind closed doors and made clear his disdain for NATO’s move, describing Ukraine as a “made-up” country.
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“He then became a fervent nationalist,” said Mr. Heusgen. “His great anxiety was that Ukraine could become economically and politically successful and that the Russians would eventually ask themselves ‘Why are our brothers doing so well, while our situation remains dire?’ ”
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Mr. Putin’s show of military force backfired politically. He had won control of Crimea and part of Donbas, but he was losing Ukraine.
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divisions manifested themselves during Ukraine’s bitterly fought elections and during the Orange and Maidan revolutions. But they receded after 2014. Many Russophone Ukrainians fled from repression and economic collapse in separatist-run Donbas. Even eastern Ukraine came to fear Russian influence. Mr. Putin was doing what Ukrainian politicians had struggled with: uniting a nation.
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Mr. Putin never tried to implement the Minsk accords, said Mr. Heusgen, the German chancellery aide, because their full implementation would have resolved the conflict and allowed Ukraine to move on.
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At a conversation at the Hilton Hotel in Brisbane, Australia, during a G-20 summit in late 2014, Ms. Merkel realized that Mr. Putin had entered a state of mind that would never allow for reconciliation with the West, according to a former aide.
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The conversation was about Ukraine, but Mr. Putin launched into a tirade against the decadence of democracies, whose decay of values, he said, was exemplified by the spread of “gay culture.”
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The Russian warned Ms. Merkel earnestly that gay culture was corrupting Germany’s youth. Russia’s values were superior and diametrically opposed to Western decadence, he said
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He expressed disdain for politicians beholden to public opinion. Western politicians were unable to be strong leaders because they were hobbled by electoral pressures and aggressive media, he told Ms. Merkel.
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Ms. Merkel’s policy reflected a consensus in Berlin that mutually beneficial trade with the EU would tame Russian geopolitical ambitions.
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The U.S. and some NATO allies, meanwhile, began a multiyear program to train and equip Ukraine’s armed forces, which had proved no match for Russia’s in Donbas.
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The level of military support was limited because the Obama administration figured that Russia would retain a considerable military advantage over Ukraine and it didn’t want to provoke Moscow.
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President Trump expanded the aid to include Javelin antitank missiles, but delayed it in 2019 while he pressed Ukraine’s new president, Volodymyr Zelensky, to look for information the White House hoped to use against Democratic presidential hopeful Joe Biden and Mr. Biden’s son, an act for which he was impeached.
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in telephone conversations from 2020 onward, Mr. Macron noticed changes in Mr. Putin. The Russian leader was rigorously isolating himself during the Covid-19 pandemic, requiring even close aides to quarantine themselves before they could meet him.
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The man on the phone with Mr. Macron was different from the one he had hosted in Paris and the Riviera. “He tended to talk in circles, rewriting history,” recalled an aide to Mr. Macron.
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The U.S. no longer saw Europe as a primary focus. Mr. Biden wanted neither a “reset” of relations with Mr. Putin, like President Obama had declared in 2009, nor to roll back Russia’s power. The NSC cast the aim as a “stable, predictable relationship.” It was a modest goal that would soon be tested by Mr. Putin’s bid to rewrite the ending of the Cold War.
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In early 2021, Mr. Biden became the latest U.S. president who wanted to focus his foreign policy on the strategic competition with China, only to become entangled in events elsewhere.
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When Mr. Zelensky met with Mr. Biden in Washington in September, the U.S. finally announced the $60 million in military support, which included Javelins, small arms and ammunition. The aid was in line with the modest assistance the Obama and Trump administrations had supplied over the years, which provided Ukraine with lethal weaponry but didn’t include air defense, antiship missiles, tanks, fighter aircraft or drones that could carry out attacks.
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U.S. national security officials discussed the highly classified intelligence at a meeting in the White House on Oct. 27. Director of National Intelligence Avril Haines warned that Russian forces could be ready to attack by the end of January 2022.
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On Nov. 17, Ukraine’s defense minister, Oleksii Reznikov, urged the U.S. to send air defense systems and additional antitank weapons and ammunition during a meeting at the Pentagon, although he thought the initial Russian attacks might be limited.
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Gen. Mark Milley, the chairman of the Joint Chiefs of Staff, told Mr. Reznikov that Ukraine could be facing a massive invasion.
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Work began that month on a new $200 million package in military assistance from U.S. stocks. The White House, however, initially held off authorizing it, angering some lawmakers. Administration officials calculated arms shipments wouldn’t be enough to deter Mr. Putin from invading if his mind was made up, and might even provoke him to attack.
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The cautious White House approach was consistent with Defense Secretary Lloyd Austin’s thinking. He favored a low-profile, gradual approach to assisting Ukraine’s forces and fortifying NATO’s defenses that would grow stronger in line with U.S. intelligence indications about Russia’s intent to attack.
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A paramount goal was to avoid a direct clash between U.S. and Russian forces—what Mr. Austin called his “North Star.”
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On Dec. 27, Mr. Biden gave the go-ahead to begin sending more military assistance for Ukraine, including Javelin antitank missiles, mortars, grenade launchers, small arms and ammunition.
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Three days later, Mr. Biden spoke on the phone with Mr. Putin and said the U.S. had no plan to station offensive missiles in Ukraine and urged Russia to de-escalate. The two leaders were on different wavelengths. Mr. Biden was talking about confidence-building measures. Mr. Putin was talking about effectively rolling back the West.
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Gen. Mingus had fought in Iraq and Afghanistan, been wounded and earned a Purple Heart, and he spoke frankly about the challenges Russian forces would face. Invading a territory was one thing, but holding it was another, and the intervention could turn into a yearslong quagmire, he said. The Russians showed no reaction.
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Mr. Macron found Mr. Putin even more difficult to talk to than previously, according to French officials. The six-hour conversation went round in circles as Mr. Putin gave long lectures about the historical unity of Russia and Ukraine and the West’s record of hypocrisy, while the French president tried to bring the conversation back to the present day and how to avoid a war.
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Mr. Scholz argued that the international order rested on the recognition of existing borders, no matter how and when they had been created. The West would never accept unraveling established borders in Europe, he warned. Sanctions would be swift and harsh, and the close economic cooperation between Germany and Russia would end. Public pressure on European leaders to sever all links to Russia would be immense, he said.
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Mr. Putin then repeated his disdain for weak Western leaders who were susceptible to public pressure.
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Mr. Zelensky said Mr. Putin couldn’t be trusted to uphold such an agreement and that most Ukrainians wanted to join NATO. His answer left German officials worried that the chances of peace were fading. Aides to Mr. Scholz believed Mr. Putin would maintain his military pressure on Ukraine’s borders to strangle its economy and then eventually move to occupy the country.
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Mr. Putin said he had decided to recognize the independence of separatist enclaves in eastern Ukraine. He said fascists had seized power in Kyiv, while NATO hadn’t responded to his security concerns and was planning to deploy nuclear missiles in Ukraine.
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“We are not going to see each other for a while, but I really appreciate the frankness of our discussions,” Mr. Putin told Mr. Macron. “I hope we can talk again one day.”