Mr. Yanukovych’s initial election victory was marred by allegations of fraud and voter intimidation, triggering weeks of street protests and strikes that were dubbed the Orange Revolution. Ukraine’s supreme court ordered a new vote, which pro-Western candidate Viktor Yushchenko won.
The Kremlin saw the Orange Revolution as U.S.-sponsored destabilization aimed at pulling Ukraine out of Moscow’s orbit—and as a prelude to a similar campaign in Russia itself.
To ease Moscow’s concerns, the Bush administration outlined the limited financial support it had given to Ukrainian media and nongovernmental organizations in the name of promoting democratic values. It totaled $14 million. The White House thought the modest sum was consistent with Mr. Bush’s “freedom agenda” of supporting democracy but hardly enough to change the course of history.
The gesture only confirmed Russian suspicions. “They were impressed at the result that they thought we got for $14 million,” recalled Tom Graham, the senior director for Russia on Mr. Bush’s National Security Council.
Three months after losing Ukraine’s government to a pro-Western president, Mr. Putin decried the breakup of the Soviet Union as “the greatest geopolitical catastrophe of the century.”
He didn't think grassroots politics was possible nor legitimate.
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.
Ukrainian officials heard the message too. When President Yushchenko’s chief of staff, Oleh Rybachuk, visited the Kremlin in November 2005, he discussed the Orange Revolution with Mr. Putin. Mr. Rybachuk described the street protests as an indigenous movement of Ukrainians who wanted to choose their own political course.
Mr. Putin brusquely dismissed the notion as nonsense. He said he had read all of his intelligence services’ reports and knew the movement had been orchestrated by the U.S., the EU and George Soros, Mr. Rybachuk recalled in an interview.
At a separate encounter, 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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Mr. Zelensky, a former comic and political outsider, had won a landslide election victory in 2019 on a promise to clean up corruption and end the war in Donbas. But he aroused Mr. Putin’s scorn at their first and so far only meeting, a December 2019 summit in Paris where French President Emmanuel Macron and Ms. Merkel tried to break the impasse on implementing the Minsk accords.
Mr. Zelensky bluntly rejected Russia’s interpretation of the accords, recalled a senior French official who was present. “The Russians were furious,” the official said. Eventually, Messrs. Putin and Zelensky agreed on a new cease-fire and to exchange prisoners. Many present thought the Russian leader loathed his new Ukrainian counterpart, the official said.
Mr. Macron sought a rapprochement with Mr. Putin, even suggesting he could be a partner for Europe in managing China. He invited Mr. Putin to the Palace of Versailles and to his summer residence in the Fort of Brégançon on the French Riviera. Their conversations were mostly cordial and businesslike, according to French officials.
But 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.
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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When Mr. Zelensky met with Mr. Biden in Washington in September [2021], 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.
Soon afterward, U.S. intelligence agencies learned that Russia was planning a military mobilization around Ukraine that was vastly greater than its spring exercise.
National security adviser Jake Sullivan posed several questions, including why Russia would take such a military action at that time, what the U.S. could do to harden Ukraine and how the U.S. might try to dissuade Mr. Putin. The gathering decided to send Mr. Burns on his mission to Moscow.
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.
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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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.
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.
On Jan. 9, as U.S. intelligence indications pointed ever-more-clearly to a full-blown invasion of Ukraine, Deputy Secretary of State Wendy Sherman met Mr. Ryabkov and a Russian general for dinner in Geneva. Ms. Sherman brought along Lieutenant General James Mingus, the chief operations officer on the Pentagon’s Joint Staff, whom she hoped might encourage the Russians to think twice about their invasion plan.
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In mid-January, Mr. Burns made a secret trip to Kyiv to see Mr. Zelensky. The U.S. now had even more information about Russia’s plan of attack, including that it involved a rapid strike toward Kyiv from Belarus. The CIA director provided a vital piece of intelligence that helped Ukraine significantly in the first days of the war: He warned that Russian forces planned to seize Antonov Airport in Hostomel, near the Ukrainian capital, and use it to fly in troops for a push to take Kyiv and decapitate the government.
European leaders made last-ditch attempts to talk Mr. Putin down. Mr. Macron visited the Kremlin on Feb. 7, where he was made to sit at the far end of a 20-foot table from the socially isolating Russian dictator.
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. Putin opened the meeting with a forceful litany of complaints about NATO, meticulously listing weapons systems stationed in alliance countries near Russia. Mr. Putin then talked about his research on Russian history going back a millennium, about which he had written a lengthy essay last summer.
He told Mr. Scholz that Russians, Ukrainians and Belarusians were one people, with a common language and a common identity that had only been divided by haphazard political interventions in recent history.
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. Scholz made one last push for a settlement between Moscow and Kyiv. He told Mr. Zelensky in Munich on Feb. 19 that Ukraine should renounce its NATO aspirations and declare neutrality as part of a wider European security deal between the West and Russia. The pact would be signed by Mr. Putin and Mr. Biden, who would jointly guarantee Ukraine’s security.
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.