Where the line is drawn matters
I am going to go out on a limb. Broadly speaking, the Ukraine war can end with three outcomes:
- Complete Russian withdrawal from the 2013 borders of Ukraine.
- Partition of Ukraine, with Crimea and perhaps some other slices of the south and east annexed by Russia.
- Russian victory.
Note that these are outcomes. They say nothing about the path, which could include war, political change in Moscow or Kyiv, or negotiations. Outcome 2. looks much more likely today than 1. or 3., but there really is no telling. Let’s assume for current purposes that Russia remains under the control of Putin, or someone with similar territorial ambitions. Let’s also assume that a pro-EU government remains in Kyiv. What are the implications from the American perspective of these possible outcomes?
Complete Russian withdrawal
Complete Russian withdrawal would leave Ukraine still at risk. It would want to join the EU, for which it has already applied, and NATO. The former is a real possibility, provided Ukraine reforms its politics and economy to qualify. But the latter is unlikely. It would require all NATO members to agree. Several will be reluctant.
This circle can be squared, as it has been during wartime. NATO would need to provide security guarantees to Ukraine ensuring the kind of support Ukraine has received since February. This would ideally include not just ammunition and equipment, but also training, intelligence, logistics, funding, and political solidarity. A Ukrainian win will not be cost free.
Partition
The costs will be higher if Ukraine is partitioned. Putin would claim victory. Russia would be an even greater continuing military threat. NATO would need to arm “rump” Ukraine to repel another potential Russian invasion and repress the kind of “hybrid warfare” Moscow would continue to conduct inside Kyiv-controlled territory. NATO would also need to counter Moscow’s intensified hybrid warfare campaigns in member state Hungary or non-member state Moldova.
Partition of Ukraine would also encourage Moscow to expand its support for partition elsewhere, especially the Balkans. There Serbian President Vucic would welcome expanded Russian support for his “Serbian world” efforts, which entail de facto or de jure partition of Kosovo, Montenegro, and Bosnia and Herzegovina. Kazakhstan, where there is a large Russian population, might also be at risk.
Russian victory
Russian victory, achieved by either military or political means, would entail the incorporation of all of Ukraine into the Russian sphere of influence. Kyiv would be, like Minsk, subject to Moscow’s suzerainty. It would loyally follow Moscow’s foreign policy directives. Russia would likely garrison troops in Ukraine, which would be mostly disarmed.
Ukraine’s subjagation would put not just Hungary and Moldova at risk from hybrid warfare but also Poland, the Baltics, and other NATO members (possibly Romania and Slovakia) from Russian conventional as well as unconventional attack. Maintaining NATO solidarity would become more difficult as Moscow threatens these newer neighbors while leaving the older NATO members untouched.
Where the line is drawn matters
American diplomacy since the end of the Cold War has aimed for a Europe “whole and free.” That isn’t happening. The Ukraine war is drawing a new line. The question is whether that new line will go through or encompass Ukraine. If it does, NATO will pay a higher price. The cost will be lower, but still substantial, if Ukraine as a whole can complete its Western ambitions.
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