More than a dozen years after achieving independence, Ukraine continues to undergo a difficulttransition to democracy and a free market economy. It is also undergoing a related search for itsidentity, as either an independent, central European state or as a close partner of Russia, with whichmost of Ukraine has close linguistic, cultural, religious and historic ties. 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. Those who are concerned about Russia's motives and goals in the region see an independent Ukraine as a guarantee against the revival of Russian power that could threaten the security ofcentral Europe. Conversely, analysts worry that a weak or unstable Ukraine could fall under Russiandomination or become a focus of tension between Russia and the West. However, concernsremain about the possible proliferation of weapons technologies and spillover effects of crime, illegalimmigration and other problems. InNovember 2000, an audio tape produced by a former Kuchma bodyguard purportedly capturedKuchma's orders to top officials to neutralize independent journalist Georhiy Gongadze, whoseheadless, mutilated body had been found by police. While Ukraine's reluctance to give up nuclear weapons on itsterritory irritated U.S. policymakers, it may have also helped to form the current U.S. policyconsensus that a strong, multi-faceted relationship with a stable, democratic, prosperous andsovereign Ukraine, integrated with Europe and the wider world, is key to Europe's stability, a vitalU.S. In August 2003, Ukraine deployed 1,650 troops toparticipate in a Polish-led peacekeeping division in south-central Iraq. The United States is also cooperating with Kiev to promote closer ties between Ukraine and NATO. U.S. aid to Ukraine has been substantially reduced in recent years. U.S. aid to Ukraine has had notable successes, particularly in the security sphere and with regard to nuclear safety. Achievements in political and economicreform have been significant, but less clear-cut. However, U.S. policymakershave often been frustrated by Ukraine's slowness to reform some areas of its economy and fightcorruption. One is Ukraine's perceived strategic importance in U.S. interests in Europe. Policy Issues

Ukraine's current problems raise important issues for U.S. policy. A related issue is how to deal with the Ukrainian opposition. Should the United States support Yushchenko as the leader of the opposition? These analysts call on the United States to focus on helping to build the political,economic and social infrastructure that will provide a foundation for democracy, rule of law andeconomic reform in the medium and long-term. Another problem U.S. policymakers face is how to shore up Ukraine's sovereignty and independence and promote closer ties with the West. Ukraine's sovereignty would be bolstered if the United States and other Westerncountries could help Ukraine deal with such issues as Ukraine's energy dependency on Russia.
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 andgoals in the region see an independent Ukraine as a guarantee against the revival of a Russian empirethat would threaten the security of central Europe. Conversely, analysts worry that a weak or unstableUkraine could fall under Russian domination or become a focus of conflict between Russia and theWest. The spillover effects of crime, illegal immigration and other problems from an unstableUkraine could hurt other countries in the region. Ukraine continues to undergo a difficult transitionfrom communism to democracy and a free market economy. It is also undergoing a related searchfor its international identity, whether as an independent central European state or as a state closelyaligned 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 LeonidKuchma purportedly captured Kuchma's orders to top officials to neutralize independent journalistGeorgiy 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 ofsophisticated anti-aircraft radars to Iraq. These incidents led to a deterioration of U.S.-Ukrainianties. However, relations improved in 2003, when Ukraine deployed 1650 troops to Iraq as part ofa 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, integratedwith Europe and the wider world, is key to Europe's stability, a vital U.S. interest. The United Stateshas tried to bolster Ukraine with political support and over $3 billion in U.S. aid from FY 1992 toFY 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'sindependence in political and economic reform have been significant, but U.S. policymakers haveoften been frustrated by Ukraine's slowness to reform and fight corruption. Congressional supporthas 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 decidehow to better support the building of the political, economic and social infrastructure that willprovide a foundation for democracy, rule of law and a market economy in the long term. Anotherproblem U.S. policymakers face is how to support Ukraine's sovereignty and independence andpromote closer ties with the West. Efforts could include helping reduce Ukraine's energydependency on Russia, and promoting greater security ties with the United States and NATO, in theface of possible Russian pressure against such a relationship.