So there is no real debate about what is happening on Ukraine’s borders. The firepower is there to see, and that is part of Mr. Putin’s coercion strategy. The only remaining mystery is what Mr. Putin plans to do with them. At first, U.S. officials thought he planned to use them to intimidate Ukraine’s government, force it to abandon its ambitions to join NATO at some undetermined time in the future, and stop its drift toward the West.
Understand the Escalating Tensions Over Ukraine
Card 1 of 5A brewing conflict. Antagonism between Ukraine and Russia has been simmering since 2014, when the Russian military crossed into Ukrainian territory, annexing Crimea and whipping up a rebellion in the east. A tenuous cease-fire was reached in 2015, but peace has been elusive.
A spike in hostilities. Russia has been gradually building up forces near its border with Ukraine, and the Kremlin’s messaging toward its neighbor has hardened. Concern grew in late October, when Ukraine used an armed drone to attack a howitzer operated by Russian-backed separatists.
Preventing an invasion. Russia called the strike a destabilizing act that violated the cease-fire agreement, raising fears of a new intervention in Ukraine. Since then, the United States, NATO and Russia have been engaged in a whirlwind of diplomacy aimed at averting that outcome.
The Kremlin’s position. President Vladimir V. Putin of Russia, who has increasingly portrayed NATO’s eastward expansion as an existential threat to his country, said that Moscow’s growing military presence on the Ukrainian border was a response to Ukraine’s deepening partnership with the alliance.
Rising tension. Western countries have tried to maintain a dialogue with Moscow. But the Biden administration warned that the U.S. could throw its weight behind Ukraine in case of an invasion. France, Germany and Poland also warned Russia of consequences if it launched incursions into Ukraine.
Then, after Mr. Putin issued a proposed “treaty’’ in December, it seemed he had a bigger plan: to evict the United States and NATO forces from former Soviet bloc nations that have joined NATO, and roll back the world order created after the Soviet collapse 31 years ago. Two weeks ago, the American assessment changed again: Mr. Putin, intelligence and military officials said, was aiming at Kyiv, the capital of Ukraine, after concluding that cyberattacks and subversion alone were unlikely to displace the government. Only a full-scale invasion would do that.
So the Biden administration is trying to test Mr. Putin’s bottom line. If the issue can be resolved by negotiating a new arms control pact that addresses Mr. Putin’s concerns about two antimissile emplacements in Poland and Romania, or rules around military exercises held by Russia and NATO, then there is room for deal making, the two men have said. And they have said there is room to renegotiate the Minsk agreement, a set of commitments made by Ukraine and Russia after the annexation of Crimea. Those have been selectively ignored, on both sides.
But it seems unlikely to longtime American officials and many of the European diplomats filtering into Munich that Mr. Putin has gone to all this expense and all this effort, and put his legacy on the line, just to paint inside the lines of the existing order. He wants to upturn it.
Since Mr. Putin came to power 20 years ago, “Russia has been challenging that system,’’ Angela Stent, a Brookings Institution scholar and the former national intelligence officer for Russia and Eurasia, wrote recently in Foreign Affairs. “The current crisis is ultimately about Russia redrawing the post-Cold War map and seeking to reassert its influence over half of Europe, based on the claim that it is guaranteeing its own security.”