Deal or No Deal? The End of the Cold War and the U.S. Offer to Limit NATO Expansion

Abstract

Did the United States promise the Soviet Union during the 1990 negotiations on German reunification that NATO would not expand into Eastern Europe? Since the end of the Cold War, an array of Soviet/Russian policymakers have charged that NATO expansion violates a U.S. pledge advanced in 1990; in contrast, Western scholars and political leaders dispute that the United States made any such commitment. Recently declassified U.S. government documents provide evidence supporting the Soviet/Russian position. Although no non-expansion pledge was ever codified, U.S. policymakers presented their Soviet counterparts with implicit and informal assurances in 1990 strongly suggesting that NATO would not expand in post–Cold War Europe if the Soviet Union consented to German reunification. The documents also show, however, that the United States used the reunification negotiations to exploit Soviet weaknesses by depicting a mutually acceptable post–Cold War security environment, while actually seeking a system dominated by the United States and opening the door to NATO's eastward expansion. The results of this analysis carry implications for international relations theory, diplomatic history, and current U.S.-Russian relations.