Ukraine: Background and U.S. Policy (CRS Report for Congress)
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| Release Date |
Feb. 27, 2004 |
| Report Number |
RL30984 |
| Report Type |
Report |
| Authors |
Steven Woehrel, Foreign Affairs, Defense, and Trade Division |
| Source Agency |
Congressional Research Service |
Summary:
Since the collapse of the Soviet Union in 1991, many Western analysts have viewed a stable,
independent and sovereign Ukraine as a key element in European security, pointing to its size,
strategic location and economic potential. Those who are concerned about Russia's motives and
goals in the region see an independent Ukraine as a guarantee against the revival of a Russian empire
that would threaten the security of central Europe. Conversely, analysts worry that a weak or unstable
Ukraine could fall under Russian domination or become a focus of conflict between Russia and the
West. The spillover effects of crime, illegal immigration and other problems from an unstable
Ukraine could hurt other countries in the region. Ukraine continues to undergo a difficult transition
from communism to democracy and a free market economy. It is also undergoing a related search
for its international identity, whether as an independent central European state or as a state closely
aligned with Russia, with which most of Ukraine has close linguistic, cultural and historic ties.
A series of recent events have clouded Ukraine's relationship with the United States. In
November 2000, an audio tape produced by a former bodyguard of Ukrainian President Leonid
Kuchma purportedly captured Kuchma's orders to top officials to neutralize independent journalist
Georgiy Gongadze, whose headless, mutilated body had been found by police. In September 2002,
the United States authenticated another tape which implicated Kuchma in the possible sale of
sophisticated anti-aircraft radars to Iraq. These incidents led to a deterioration of U.S.-Ukrainian
ties. However, relations improved in 2003, when Ukraine deployed 1650 troops to Iraq as part of
a Polish-led peacekeeping force.
However, despite recent setbacks, there is a consensus among U.S. policymakers that a strong,
multi-faceted relationship with a stable, democratic, prosperous and sovereign Ukraine, integrated
with Europe and the wider world, is key to Europe's stability, a vital U.S. interest. The United States
has tried to bolster Ukraine with political support and over $3 billion in U.S. aid from FY 1992 to
FY 2001, although aid has declined in recent years. U.S. policy has had notable successes,
particularly in the areas of security policy and nuclear safety. Achievements since Ukraine's
independence in political and economic reform have been significant, but U.S. policymakers have
often been frustrated by Ukraine's slowness to reform and fight corruption. Congressional support
has remained consistent despite Ukraine's troubles.
Ukraine's current problems raise important issues for U.S. policy. One problem is how to deal
with President Kuchma and the opposition to his rule. More broadly, the United States must decide
how to better support the building of the political, economic and social infrastructure that will
provide a foundation for democracy, rule of law and a market economy in the long term. Another
problem U.S. policymakers face is how to support Ukraine's sovereignty and independence and
promote closer ties with the West. Efforts could include helping reduce Ukraine's energy
dependency on Russia, and promoting greater security ties with the United States and NATO, in the
face of possible Russian pressure against such a relationship.
