This paper examines the likely trajectory of the Ukraine war moving forward.1 I will address two main questions.
First, is a meaningful peace agreement possible? My answer is no. We are now in a war where both sides – Ukraine and the West on one side and Russia on the other – see each other as an existential threat that must be defeated. Given maximalist objectives all around, it is almost impossible to reach a workable peace treaty. Moreover, the two sides have irreconcilable differences regarding territory and Ukraine’s relationship with the West. The best possible outcome is a frozen conflict that could easily turn back into a hot war. The worst possible outcome is a nuclear war, which is unlikely but cannot be ruled out.
Second, which side is likely to win the war? Russia will ultimately win the war, although it will not decisively defeat Ukraine. In other words, it is not going to conquer all of Ukraine, which is necessary to achieve three of Moscow’s goals: overthrowing the regime, demilitarizing the country, and severing Kyiv’s security ties with the West. But it will end up annexing a large swath of Ukrainian territory, while turning Ukraine into a dysfunctional rump state. In other words, Russia will win an ugly victory.
Before I directly address these issues, three preliminary points are in order. For starters, I am attempting to predict the future, which is not easy to do, given that we live in an uncertain world. Thus, I am not arguing that I have the truth; in fact, some of my claims may be proved wrong. Furthermore, I am not saying what I would like to see happen. I am not rooting for one side or the other. I am simply telling you what I think will happen as the war moves forward. Finally, I am not justifying Russian behavior or the actions of any of the states involved in the conflict. I am just explaining their actions.
Now, let me turn to substance.
To understand where the Ukraine war is headed, it is necessary to first assess the present situation. It is important to know how the three main actors – Russia, Ukraine, and the West – think about their threat environment and conceive their goals. When we talk about the West, however, we are talking mainly about the United States, since its European allies take their marching orders from Washington when it comes to Ukraine. It is also essential to understand the present situation on the battlefield. Let me start with Russia’s threat environment and its goals.
It has been clear since April 2008 that Russian leaders across the board view the West’s efforts to bring Ukraine into NATO and make it a Western bulwark on Russia’s borders as an existential threat. Indeed, President Putin and his lieutenants repeatedly made this point in the months before the Russian invasion, when it was becoming clear to them that Ukraine was almost a de facto member of NATO. 2 Since the war began on 24 February 2022, the West has added another layer to that existential threat by adopting a new set of goals that Russian leaders cannot help but view as extremely threatening. I will say more about Western goals below but suffice it to say here that the West is determined to defeat Russia and knock it out of the ranks of the great powers, if not cause regime change or even trigger Russia to break apart like the Soviet Union did in 1991.
In a major address Putin delivered this past February (2023), he stressed that the West is a mortal threat to Russia. “During the years that followed the breakup of the Soviet Union,” he said, “the West never stopped trying to set the post-Soviet states on fire and, most importantly, finish off Russia as the largest surviving portion of the historical reaches of our state. They encouraged international terrorists to assault us, provoked regional conflicts along the perimeter of our borders, ignored our interests and tried to contain and suppress our economy.” He further emphasized that, “The Western elite make no secret of their goal, which is, I quote, ‘Russia’s strategic defeat.’ What does this mean to us? This means they plan to finish us once and for all.” Putin went on to say: “this represents an existential threat to our country.”3 Russian leaders also see the regime in Kyiv as a threat to Russia, not just because it is closely allied with the West, but also because they see it as the offspring of the fascist Ukrainian forces that fought alongside Nazi Germany against the Soviet Union in World War II. 4
Russia must win this war, given that it believes that it is facing a threat to its survival. But what does victory look like? The ideal outcome before the war began in February 2022 was to turn Ukraine into a neutral state and settle the civil war in the Donbass that pitted the Ukrainian government against ethnic Russians and Russian speakers who wanted greater autonomy if not independence for their region. It appears that those goals were still realistic during the first month of the war and were in fact the basis of the negotiations in Istanbul between Kyiv and Moscow in March 2022. 5 If the Russians had achieved those goals back then, the present war would either have been prevented or ended quickly.
But a deal that satisfies Russia’s goals is no longer in the cards. Ukraine and NATO are joined at the hip for the foreseeable future, and neither is willing to accept Ukrainian neutrality. Furthermore, the regime in Kyiv is anathema to Russian leaders, who want it gone. They not only talk about “de-Nazifying” Ukraine, but also “demilitarizing” it, two goals that would presumably call for conquering all of Ukraine, compelling its military forces to surrender, and installing a friendly regime in Kyiv. 6
A decisive victory of that sort is not likely to happen for a variety of reasons. The Russian army is not large enough for such a task, which would probably require at least two million men. 7 Indeed, the existing Russian army is having difficulty conquering all the Donbass. Moreover, the West would go to enormous lengths to prevent Russia from overrunning all of Ukraine. Finally, the Russians would end up occupying huge amounts of territory that is heavily populated with ethnic Ukrainians who loathe the Russians and would fiercely resist the occupation. Trying to conquer all of Ukraine and bend it to Moscow’s will, would surely end in disaster.
Rhetoric about de-Nazifying and demilitarizing Ukraine aside, Russia’s concrete goals involve conquering and annexing a large portion of Ukrainian territory, while simultaneously turning Ukraine into a dysfunctional rump state. As such, Ukraine’s ability to wage war against Russia would be greatly reduced and it would be unlikely to qualify for membership in either the EU or NATO. Moreover, a broken Ukraine, would be especially vulnerable to Russian interference in its domestic politics. In short, Ukraine would not be a Western bastion on Russia’s border.
What would that dysfunctional rump state look like? Moscow has officially annexed Crimea and four other Ukrainian oblasts – Donetsk, Kherson, Luhansk, and Zaporozhe – which together represent about 23 percent of Ukraine’s total territory before the crisis broke out in February 2014. Russian leaders have emphasized that they have no intention of surrendering that territory, some of which Russia does not yet control. In fact, there is reason to think Russia will annex additional Ukrainian territory if it has the military capability to do so at a reasonable cost. It is difficult, however, to say how much additional Ukrainian territory Moscow will seek to annex, as Putin himself makes clear.8
Russian thinking is likely to be influenced by three calculations. Moscow has a powerful incentive to conquer and permanently annex Ukrainian territory that is heavily populated with ethnic Russians and Russian speakers. It will want to protect them from the Ukrainian government – which has become hostile to all things Russian – and make sure there is no civil war anywhere in Ukraine like the one that took place in the Donbass between February 2014 and February 2022. At the same time, Russia will want to avoid controlling territory largely populated by hostile ethnic Ukrainians, which places significant limits on further Russian expansion. Finally, turning Ukraine into a dysfunctional rump state will require Moscow to take substantial amounts of Ukrainian territory so it is well-positioned to do significant damage to its economy. Controlling all of Ukraine’s coastline along the Black Sea, for example, would give Moscow significant economic leverage over Kyiv.
Those three calculations suggest that Russia is likely to attempt to annex the four oblasts – Dnipropetrovsk, Kharkiv, Mykolaiv, and Odessa – that are immediately to the west of the four oblasts it has already annexed – Donetsk, Kherson, Luhansk, and Zaporozhe. If that were to happen, Russia would control approximately 43 percent of Ukraine’s pre-2014 territory. 9 Dmitri Trenin, a leading Russian strategist estimates that Russian leaders would seek to take even more Ukrainian territory – pushing westward in northern Ukraine to the Dnieper River and taking the part of Kyiv that sits on the east bank of that river. He writes that “A logical next step” after taking all of Ukraine from Kharkiv to Odessa “would be to expand Russian control to all of Ukraine east of the Dnieper River, including the part of Kyiv that lies on the that river’s eastern bank. If that were to happen, the Ukrainian state would shrink to include only the central and western regions of the country.” 10
It might seem hard to believe now, but before the Ukraine crisis broke out in February 2014, Western leaders did not view Russia as a security threat. NATO leaders, for example, were talking with Russia’s president about “a new stage of cooperation towards a true strategic partnership” at the alliance’s 2010 Summit in Lisbon. 11 Unsurprisingly, NATO expansion before 2014 was not justified in terms of containing a dangerous Russia. In fact, it was Russian weakness that allowed the West to shove the first two tranches of NATO expansion in 1999 and 2004 down Moscow’s throat and then allowed the George W. Bush administration to think in 2008 that Russia could be forced to accept Georgia and Ukraine joining the alliance. But that assumption proved wrong and when the Ukraine crisis broke out in 2014, the West suddenly began portraying Russia as a dangerous foe that had to be contained if not weakened. 12
Since the war started in February 2022, the West’s perception of Russia has steadily escalated to the point where Moscow now appears to be seen as an existential threat. The United States and its NATO allies are deeply involved in Ukraine’s war against Russia. Indeed, they are doing everything but pulling the triggers and pushing the buttons. 13 Moreover, they have made clear their unequivocal commitment to winning the war and maintaining Ukraine’s sovereignty. Thus, losing the war would have hugely negative consequences for Washington and for NATO. America’s reputation for competence and reliability would be badly damaged, which would affect how its allies as well as its adversaries – especially China – deal with the United States. Furthermore, virtually every European country in NATO believes that the alliance is an irreplaceable security umbrella. Thus, the possibility that NATO might be badly damaged – maybe even wrecked – if Russia wins in Ukraine is cause for profound concern among its members.
In addition, Western leaders frequently portray the Ukraine war as an integral part of a larger global struggle between autocracy and democracy that is Manichean at its core. On top of that, the future of the sacrosanct rules-based international order is said to depend on prevailing against Russia. As King Charles said this past March (2023), “The security of Europe as well as our democratic values are under threat.” 14 Similarly, a resolution introduced in the U.S. Congress in April declares: “United States interests, European security, and the cause of international peace depend on … Ukrainian victory.” 15 A recent article in The Washington Post, captures how the West treats Russia as an existential threat: “Leaders of the more than 50 other countries backing Ukraine have couched their support as part of an apocalyptic battle for the future of democracy and the international rule of law against autocracy and aggression that the West cannot afford to lose.” 16
As should be clear, the West is staunchly committed to defeating Russia. President Biden has repeatedly said that the United States is in this war to win. “Ukraine will never be a victory for Russia.” It must end in “strategic failure.” Washington, he emphasizes, will stay in the fight “for as long as it takes.” 17 Specifically, the aim is to defeat Russia’s army in Ukraine – erasing its territorial gains – and cripple its economy with lethal sanctions. If successful, Russia would be knocked out of the ranks of the great powers, weakening it to the point where it could not threaten to invade Ukraine again. 18 Western leaders have additional goals, which include regime change in Moscow, putting Putin on trial as a war criminal, and possibly breaking up Russia into smaller states. 19
At the same time, the West remains committed to bringing Ukraine into NATO, although there is disagreement within the alliance about when and how that will happen. 20 Jens Stoltenberg, the alliance’s secretary general told a news conference in Kyiv in April (2023) that “NATO’s position remains unchanged and that Ukraine will become a member of the alliance.” At the same time, he emphasized that “The first step toward any membership of Ukraine to NATO is to ensure that Ukraine prevails, and that is why the U.S. and its partners have provided unprecedented support for Ukraine.” 21 Given these goals, it is clear why Russia views the West as an existential threat.
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