Introduction and Contribution:

The ongoing Russo-Ukrainian War has been one of the most devastating conflicts of the 21st century. Since Russia’s 2022 invasion, Ukraine has experienced not only mass casualties but immense cultural destruction, as well as the forcible deportation and adoption of thousands of Ukrainian children to Russian families. Ending the war requires understanding its causes, particularly from the point of view of Vladimir Putin and other key Russian decision-makers. 

Some observers of Russian and global politics — as well as Putin and his allies — have claimed that the prospect of Ukraine joining NATO caused the war. The argument here is that as a superpower, Russia could not tolerate the security implications of a country on its border joining a rival alliance. Russia’s war, then, was a preventive one — less a choice than a strategic necessity. Any superpower in such a situation would do the same.

In “NATO Did Not Cause Putin’s Imperial War,” James Goldgeier and Brian D. Taylor convincingly challenge the NATO hypothesis, showing it to be more a piece of Kremlin propaganda than a plausible account of Putin’s decision-making process. Instead, the authors draw our attention to Putin’s most deeply held and longstanding beliefs: that Ukraine is not a legitimate nation state, that Ukrainians would not freely associate with the West and its alliances (unless they were being manipulated), and that dominating Ukraine is essential to Russia reclaiming its status as a global superpower, one that is constantly disrespected by the West. 

As many social scientists focus on improving the causal power of their statistical inferences, Goldgeier and Taylor helpfully focus our attention on the beliefs and reasons of political actors who cause political outcomes such as wars and revolutions. More importantly, the authors provide a starting point for thinking about ending the Russo-Ukrainian war, one focused not on the distraction that is NATO arguments but on Putin’s imperial ambitions.

Pitfalls of the NATO Explanation:

The authors begin by noting that NATO enlargement clearly played a role in the deterioration of relations between Russia and the West over the past 25 years. In part, this is because many Russian elites — owing to their imperialistic beliefs, more on this below — never accepted that former Soviet Republics were free to join the alliance. However, NATO enlargement was but one item in a long list of Russian grievances, some based in reality and others fictional. These include the 2003-04 Color Revolutions — mainly reflecting widespread domestic sentiment, not Western machinations — and alleged American support for the 2011-13 Russian protests in the aftermath of Putin’s rigged elections, which were similarly homegrown.

There is good evidence that Putin and his inner circle neither feared NATO aggression nor believed that Ukraine could realistically join the alliance. After George W. Bush’s failed bid for Ukrainian membership in 2008, no American president has seriously entertained or pushed for Ukraine’s admission. NATO took minimal action after Russia’s 2014 invasion of Ukraine, before which time Ukrainians themselves didn’t support joining the alliance (likely because they anticipated the negative consequences for Russia-Ukraine relations). NATO itself has worked against admitting Ukraine; indeed, much of its security assistance has been designed to make it possible for Ukraine to defend itself without formal admission. What’s more, no country bordering Russia joined NATO after 2004 until Finland did so in 2023.

When Putin decided on war in 2021, his invasion plan was based on the assumption that victory would be quick and easy, evidencing his lack of concern for NATO intervention. Further, he knew that NATO lacked the troops and would be extremely wary of confronting nuclear Russia. 

Putin’s Imperial Beliefs and Goals:

For several decades, Putin has expressed the belief that Ukraine is not a genuine nation-state and that Russia both gave away and was “robbed” of much of its territory. One of Putin’s key goals is arguably to rebuild Russian greatness via imperial conquest. The West is not merely intervening in Eastern European politics but, according to Putin, actively working to downgrade Russia to a second-class country and undermine its sovereignty. Putin views the war as key to reversing Russia’s declining status.

Because Putin and his inner circle view Ukraine to be a natural part of Russia, the possibility that Ukrainians would freely tie their fortunes to the West is inconceivable — Ukrainian elites must have been tricked, co-opted, or bribed. Some Russian propagandists have even described the war as one of “Russians killing Russians.”

Putin’s imperialism is not only confined to privately held beliefs. During COVID-19, he spent a great deal of time reading historical texts to prepare a 5000-word article on the alleged historic inseparability of Russia and Ukraine. What could such an undertaking have to do with NATO expansion?

Russia’s wartime conduct also provides strong evidence for the imperialism explanation. As mentioned above, Russia has gone to great lengths to destroy Ukrainian culture. It has rejected multiple peace deals that would have prevented Ukraine from joining NATO. Putin saw these as failing to address the conflict’s “root causes,” arguably a euphemism for Ukrainian sovereignty. Instead, Russian conditions for peace include making Russian an official language, disbanding “nationalist” political parties, and ensuring the influence of Moscow’s Orthodox Church. These conditions smack of Russian chauvinism.

Of course, elites’ imperial beliefs do not necessarily lead to war. And indeed, Putin initially sought to control Ukraine through political measures, such as election interference. However, the authors argue that when President Volodymyr Zelenskyy seized the assets of a key Putin ally, Putin realized his position was weakening. Russian security officials then assured Putin — likely out of fear — that overthrowing Ukraine’s government would be easy. This flawed decision-making process led to war. Readers will come away struck by how many lives have been lost while policy and scholarly debates remained focused on the NATO hypothesis.

*Brief prepared by Adam Fefer.

What’s the most exciting finding from your research, and why does it matter for democracy and development?

In the mid-1990s, I worked in the U.S. government at the State Department and the National Security Council, focusing on Russia and European security. One of the major issues at the time was whether NATO should expand to include countries in Central and Eastern Europe. I later wrote a book on that decision, which was published in 1999.

One of the most important things I found was that NATO enlargement didn’t come from a single formal decision by the president and his cabinet. Instead, it developed gradually, driven by individuals who believed strongly in the policy and worked to move it forward over time. It was a much more incremental and contested process than people often assumed.

What was especially significant was that policymakers saw NATO enlargement as a way to promote democracy and strengthen the rule of law in Central and Eastern Europe. By offering countries the prospect of membership, they hoped to encourage democratic reforms and political stability. I think NATO enlargement had a profound impact on democratic development in the region, and my research helped explain how and why that policy came about.

What have been some of the most challenging aspects of conducting research in this field, and how did you overcome them?

Much of my work sits at the intersection of political science and history, and one of the biggest challenges is studying relatively recent events, where records are often incomplete. When you study earlier historical periods, you have access to archives and official records, but when you study more recent foreign policy decisions, much of that material is still classified.

Because of that, I’ve relied heavily on interviews with policymakers and officials. Interviews are incredibly valuable, but they also have limitations. People remember events differently, and often present events in a light that best reflects their own role or perspective, which is why it’s important to interview multiple people and compare their accounts to develop a more accurate understanding of what happened.

I’ve also used the Freedom of Information Act to obtain declassified documents, although that process can take many years. Some requests I filed for my 1999 book didn’t produce results until I was working on later books in 2003 and even 2008. But over time, those documents helped confirm and strengthen my understanding of how key decisions were made. Doing this kind of research requires patience, but it’s essential if you want to understand how foreign policy actually develops.

How has the field changed since you started, and what gives you hope?

The field has changed quite a bit since I finished my PhD in 1990. One major shift was that after the Cold War ended, there was less emphasis on area studies and regional expertise. When I was trained, people were expected to combine theoretical work with deep knowledge of particular regions, which is now less common. 

What gives me hope is the current generation of students. Many students today are highly capable of integrating knowledge of politics and history with technological expertise. Especially at places like Stanford, students have the opportunity to combine social science knowledge with new technologies. I think that combination will shape the future of the field.

What gaps still exist in your research, and what projects are you currently working on?

I’m currently working on a project with Michael McFaul and Elizabeth Economy on great power competition, focusing on how major powers try to influence the foreign policy orientation of smaller states. It’s an important issue, especially given the current international environment.

I’ve also continued working on NATO enlargement and its long-term consequences. When I published my book on NATO expansion in 1999, I didn’t expect that these issues would still be so central decades later. But NATO enlargement continues to shape relations between Russia, Europe, and the United States, particularly in light of Russia’s war against Ukraine. Hence, understanding how those earlier decisions connect to current events remains a major focus of my work.

What advice would you give to students interested in this field?

Students should focus on topics that genuinely interest them. You can’t predict what will be important five or ten years from now. Choosing a topic solely because you think it will be important in the future isn’t a good strategy if you’re not truly interested in it. Instead, study subjects that motivate you and that you feel compelled to understand. Unexpected events can suddenly make your area of interest highly relevant. Passion and curiosity are essential for meaningful research.

What book would you recommend to students interested in international relations?

I recommend Robert Jervis’s Perception and Misperception in International Politics, published in 1976. Jervis was one of the most brilliant scholars in international relations and had a major influence on the field.

His book explores how leaders interpret and misinterpret the world, and how those perceptions shape international relations. It combines insights from politics, psychology, and history, and helps explain why cooperation between states is often difficult. It’s an excellent starting point for anyone who wants to understand the role of leadership and perception in international politics.