Is it not also the case that the revolution in the Ukraine provided an exceptional opportunity to put a plan like this into operation? I have no doubt that the Russians have long considered the possibility of agitating ethnic Russians in neighboring countries as an excuse for intervention; that's too obvious a ploy to overlook... but the general breakdown in order and government capability certainly provided an exceptional opportunity to move.
It struck me the other day that if the Ukrainian government believes that a substantial majority in the east wants to remain part of the Ukraine, wouldn't it make sense to preempt the Russians by having their own referendum, with international observers (including Russians) and a real effort to assure that only Ukrainian citizens vote? Obviously the would have to be confidence in the outcome, but if you have the confidence, it could be a useful proactive step.
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