Russia had long been concerned with the decline in its self-regarded sphere of influence in the former Soviet republics which were aligning themselves with the West economically and politically, although they were obstinately dissatisfied with the existing security architecture and NATO expansion.
The demands, issued during a period of high tensions during which about 100,000 Russian troops were massed on Ukraine's borders, were widely seen as an ultimatum and attempt by Russia to exert pressure and influence on Western countries.
[4] Russian military actions, including the First Chechen War, were among the factors driving Central and Eastern European countries, particularly those with memories of similar Soviet offensives, to push for NATO application and ensure their long-term security.
"[8][9][10] Despite this, NATO expansion became a point of contention for Russia, particularly under Vladimir Putin, who asserted that it was a breach of assurances made by Western leaders in the early 1990s, and as a strategic encirclement aimed at undermining its security.
With numerous Western European countries dependent on Russia for energy, particularly Germany which was a major benefactor of the Nord Stream 2 pipeline, Putin believed that NATO was too divided and would not stand in his way.
[12] Putin initially attempted to install a pro-Russian government in Kyiv, including the poisoning of pro-Western presidential candidate Viktor Yushchenko, but this backfired due to the Orange Revolution.
[14] US intelligence also uncovered Russian false flag operations and disinformation campaigns in occupied Donbas that aimed to create a justification for the invasion in January and early February 2022.
[12] On 15 December 2021, Putin submitted "specific proposals" on Russia's demands for security guarantees from the West to U.S. Assistant Secretary of State Karen Donfried.
[15] Two days later, on 17 December, the Russian Ministry of Foreign Affairs published the demands in the form of two draft treaties with NATO and the U.S., proposing limits on their influence and activities in Europe.
[16] Russian Deputy Foreign Minister Sergei Ryabkov said that "The line pursued by the United States and NATO over recent years to aggressively escalate the security situation is absolutely unacceptable and extremely dangerous".