The Wall Street Journal reports:

In Ukraine, President Yushchenko was struggling to fulfill the hopes of the Orange Revolution that the country could become a prosperous Western-style democracy. Fractious politics, endemic corruption and economic stagnation sapped his popularity.

Mr. Yushchenko sought to anchor Ukraine’s place in the West. At the World Economic Forum in Davos in January 2008, he met with Ms. Rice, by then the U.S. Secretary of State, and implored her for a path to enter NATO. The procedure for joining the alliance was called a Membership Action Plan, or MAP.

“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.

A NATO summit was set for April 2008 in Bucharest, in the vast Palace of the Parliament built for Romania’s former Communist dictator Nicolae Ceauşescu. The alliance’s summits are usually well scripted in advance. Try as it might, the White House couldn’t overcome German and French resistance to offering a MAP to Ukraine and Georgia.

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.

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.

Ms. Merkel told Mr. Putin in advance that NATO wouldn’t invite Ukraine and Georgia to join, because the alliance was split on the issue, but the Russian leader remained nervous, Mr. Heusgen recalled.

As the NATO summit approached, Mr. Bush held a videoconference with Ms. Merkel, but it soon became clear that no consensus would be reached beforehand.

“Looks like a shootout at the OK Corral,” Mr. Bush said, according to James Jeffrey, the president’s deputy national security adviser at the time.

Ms. Merkel was flummoxed by the American reference and turned to her interpreter, who confessed that he, too, had no idea what the U.S. president meant.

Over dinner in Bucharest, Mr. Bush made his case for giving Ukraine and Georgia a MAP—to no avail. The next day, Ms. Rice and national security adviser Stephen Hadley tried to find a compromise with their German and French counterparts.

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.

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.

Mr. Bush asked Ms. Rice to go join the animated discussion. The only common language among Ms. Merkel, the east European leaders and Ms. Rice was Russian. So a compromise statement was negotiated in Russian and then drafted in English, Ms. Rice said.

“We agreed today that these countries will become members of NATO,” it read. But it didn’t say when. And there was no MAP.

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. [Continue reading…]