The present severed from the past is easily misunderstood. In discussions of the Russia-Ukraine war, not enough is made of the historical facts that, at the end of the Cold War, the newly independent Ukraine promised not to join NATO, and NATO promised not to expand to Ukraine.
Not enough is made of the fact that Article IX of the 1990 Declaration of State Sovereignty of Ukraine, “External and Internal Security,” says that Ukraine “solemnly declares its intention of becoming a permanently neutral state that does not participate in military blocs….” That promise was later enshrined in Ukraine’s constitution, which committed Ukraine to neutrality and prohibited it from joining any military alliance: that included NATO.
Nor is enough made of the fact that in 1990 and 1991, the Bush administration gave assurances to Gorbachev – assurances that arguably reached the level of a deal – that NATO would not expand east of Germany, including to Ukraine.
But even less is made of what the Clinton administration later promised Yeltsin nor of what the U.S. already knew at the time of where plans of NATO expansion to Ukraine would lead.
Recently declassified documents clearly show that, between 1993 and 2000, the U.S. already knew that a cornered Boris Yeltsin was distraught about NATO expansion and about the West’s broken promise, that expansion to Ukraine was a red line, and that if Russia ever enforced that red line, the U.S. would respond forcefully.
Though Czechia, Hungary and Poland were invited to begin accession talks in 1997 and joined NATO in 1999, a secret October 1994 policy paper, written by National Security Advisor Anthony Lake and entitled “Moving Toward NATO Expansion,” makes it clear that the decision to expand NATO had already been made by that time. The paper explicitly keeps “the membership door open for Ukraine.”
Interestingly, though Russia is always publicly painted as a predatorial nation with imperial ambitions, a confidential 1993 cable states that most Eastern European states seek NATO membership “not [because they] feel militarily threatened by Russia” but because they believe “that NATO membership can help stave off the return of authoritarian forces” in their own countries. Though the cable makes the exception that Ukraine and the Baltic states may feel threatened by Russia.
Hellbound and Down 