Ukraine discussion fails to end deadlock

PARIS – The United States and Russia agreed Sunday that the crisis in Ukraine requires a diplomatic resolution, but four hours of talking between U.S. Secretary of State John Kerry and Russian Foreign Minister Sergey Lavrov failed to break a tense deadlock over how to proceed.

Kerry and Lavrov advanced far different proposals on how to ease tensions and calm the situation, particularly as Russia continues to mass troops along its border with the former Soviet republic. As he called for Moscow to begin an immediate pullback of the troops, Kerry also ruled out discussion of Russia’s demand for Ukraine to become a loose federation unless Ukrainians are at the table.

“The Russian troop buildup is creating a climate of fear and intimidation in Ukraine,” Kerry said after the meeting, which was held at the Russian ambassador’s residence. “It certainly does not create the climate that we need for dialogue.”

The U.S. believes the massing of tens of thousands of Russian soldiers, ostensibly for military exercises, along the border is an attempt to intimidate Ukraine’s new leaders and to create a bargaining chip with the United States and the European Union.

Kerry noted that even if the troops remain on Russian soil and do not enter Ukraine, they create a negative atmosphere.

“The question is not one of right or legality,” he said. “The question is one of strategic appropriateness and whether it’s smart at this moment of time to have troops massed on the border.”

U.S. officials said Kerry proposed a number of ideas on troop withdrawals from the border and that Lavrov, while making no promises, told him he would present the proposals to the Kremlin.

At a separate news conference, Lavrov made the case for Moscow’s idea of Ukraine as a federalized nation with its various regions enjoying major autonomy from the government in Kiev. Russia says it is particularly concerned about the treatment of ethnic Russians and Russian speakers who live in southern and eastern Ukraine.

Lavrov said Ukraine can’t function as a “unified state” and should be a loose federation of regions that are each allowed to choose their own economic, financial, social, linguistic and religious models.

He said every time Ukraine has elected a new president, the country has adopted a new constitution, proving that “the model of a unified state doesn’t work.”

Ukrainian officials are wary of decentralizing power, fearing that pro-Russia regions would hamper its Western aspirations and potentially split the country apart. However, they are exploring political reforms that could grant more authority to local governments.

The U.S. has been coy about the federation proposal. Washington has encouraged ongoing political and constitutional reform efforts that the government in Kiev is now working on. U.S. officials insist that any changes to Ukraine’s governing structure must be acceptable to the Ukrainians.

Kerry said the federation idea had not been discussed in any serious way during his meeting with Lavrov “because it would have been inappropriate to do so without Ukrainian input.”

“We will not accept a path forward where the legitimate government of Ukraine is not at the table,” Kerry said.

Lavrov denied that Moscow wants to “split Ukraine.”

“Federation does not mean, as some in Kiev fear, an attempt to split Ukraine,” he said. “To the contrary, federation … answers the interests of all regions of Ukraine.”

Lavrov said he and Kerry did agree to work with the Ukrainian government to improve rights for Russian-speaking Ukrainians and disarm “irregular forces and provocateurs.”

Sunday’s meeting was hastily arranged 48 hours after U.S. President Barack Obama and Russian President Vladimir Putin spoke by phone in a conversation in which Obama urged Putin to withdraw his troops from the border with Ukraine. Putin asserted that Ukraine’s government is allowing extremists to intimidate ethnic Russians and Russian-speaking civilians with impunity, something Ukraine insists is not happening.

That call did little to reassure U.S. officials that Russia is not planning to invade Ukraine after its annexation of Crimea that the West has condemned as illegal.