Biden wants Ukraine to improve its political and legal systems.
To meet one of the three main criteria for entry into NATO, a European nation must demonstrate a commitment to democracy, individual liberty and support for the rule of law. While Ukrainian leaders say they have met that threshold, some American and European officials argue otherwise.
In a 2020 analysis, Transparency International, an anticorruption watchdog, ranked Ukraine 117th out of 180 countries on its corruption index, lower than any NATO nation.
Officials in European nations with stronger liberal governance — notably in Sweden and Finland — have also floated the possibility of joining NATO, despite years of determined nonalignment. That is a discussion “we are ready to do,” Victoria J. Nuland, the State Department’s under secretary for political affairs, told journalists on Tuesday. “Obviously, they are longtime, established, stable democracies.”
She signaled that might not be the case with Ukraine. “That conversation would be slightly different than it is with countries that are making the transition to democratic systems and dealing with intensive problems of corruption and economic reform and democratic stability, etc.,” Ms. Nuland said.
Her comments echoed those of Mr. Biden on his 2014 visit to Ukraine. “To be very blunt about it, and this is a delicate thing to say to a group of leaders in their house of parliament, but you have to fight the cancer of corruption that is endemic in your system right now,” Mr. Biden told Ukrainian officials then.
Some Western officials also question whether Ukraine could meet a second set of criteria: contributing to the collective defense of NATO nations. But Ukraine sent troops to the U.S.-led wars in Iraq and Afghanistan.
“There are steps that Ukraine needs to take,” Jen Psaki, the White House press secretary, said in September after President Volodymyr Zelensky of Ukraine met with Mr. Biden in the Oval Office. “They’re very familiar with these: efforts to advance rule of law reforms, modernize its defense sector and expand economic growth.”
NATO wants to avoid greater Russian hostility.
After annexing Crimea, Mr. Putin invaded eastern Ukraine and gave military aid to a separatist insurgency there. He did something similar in Georgia in 2008. The message has been clear: If these two nations join NATO, the United States and European countries will have to grapple directly with ongoing Russian-fueled conflicts.
Russia could also impose other costs on Europe, such as withholding gas exports. And Germany and many other NATO nations prefer to choose their battles with Russia, given its proximity and Mr. Putin’s aggressive nature. They know he and other Russian officials are obsessed with Ukraine.
Given all that, Ukraine would almost certainly be unable to meet the third main criterion to join NATO: approval from all 30 members.
“The principal objection would be: Does such a move actually contribute to the stability in Europe, or would it contribute to destabilization?” said Douglas E. Lute, a former U.S. ambassador to NATO. “I think it’s indisputable there wouldn’t be consensus among the 30 members, even though all allies agree that Ukraine has the right to aspire to become a NATO member.”
Stephen M. Walt, a professor of international affairs at the Harvard Kennedy School of Government, said that even in the 1990s, when NATO enlargement was first proposed, many prominent American strategists opposed it for this reason. “That was the concern all along — it wouldn’t be easy to do this in a way that wouldn’t threaten Russia,” he said.
Ukrainian leaders have waffled on NATO membership.
Ukrainian leaders have not always pushed hard to join NATO, and that has shaped the American approach.
Former President Viktor Yushchenko wanted entry into the alliance, but Ukrainians became more reluctant after Russia invaded Georgia. His successor, Viktor Yanukovych, dropped any drive for membership and promoted closer ties with Russia, even agreeing to allow Moscow to continue leasing a Black Sea naval port in Crimea.
During the Obama administration, American officials encouraged Ukraine to sign a formal association agreement with the European Union rather than try to join NATO. Mr. Putin pressured Mr. Yanukovych to reject the agreement, which led to the Euromaidan protests in 2013 that eventually ousted Mr. Yanukovych.
“A lot of the U.S. policy has been quite reactive due to circumstances,” said Fiona Hill, a Russia expert at the Brookings Institution who was a senior director for Europe and Russia on the National Security Council under President Donald J. Trump. “It has also changed due to changes in Ukraine itself toward this.”
“By now, you’ve got much more sentiment in Ukraine for joining NATO,” she added.
Mr. Zelensky has pressed Mr. Biden repeatedly on membership, including during his visit to the White House in September. “I would like to discuss with President Biden here his vision, his government’s vision of Ukraine’s chances to join NATO and the time frame for this accession, if it is possible,” he said as he sat next to Mr. Biden.
Mr. Biden blew past those comments without responding.