Playing With Fire in Ukraine
The Underappreciated Risks of Catastrophic Escalation
By
John J. Mearsheimer
(продолжува од погоре)
ENTER AMERICA
Once the
Biden administration concluded that Russia could be beaten in Ukraine, it sent more (and more powerful) arms to Kyiv. The West began increasing Ukraine’s offensive capability by sending weapons such as the HIMARS multiple launch rocket system, in addition to “defensive” ones such as the Javelin antitank missile.
Over time, both the lethality and quantity of the weaponry has increased. Consider that in March, Washington vetoed a plan to transfer Poland’s MiG-29 fighter jets to Ukraine on the grounds that doing so might escalate the fight, but in July it raised no objections when Slovakia announced that it was considering sending the same planes to Kyiv. The United States is also contemplating giving its own F-15s and F-16s to Ukraine.
The United States and its allies are also training the Ukrainian military and providing it with vital intelligence that it is using to destroy key Russian targets. Moreover, as
The New York Times has
reported, the West has “a stealthy network of commandos and spies” on the ground inside Ukraine. Washington may not be directly engaged in the fighting, but it is deeply involved in the war. And it is now just a short step away from having its own soldiers pulling triggers and its own pilots pressing buttons.
The U.S. military could get involved in the fighting in a variety of ways. Consider a situation where the war drags on for a year or more, and there is neither a diplomatic solution in sight nor a feasible path to a Ukrainian victory. At the same time, Washington is desperate to end the war—perhaps because it needs to focus on containing
China or because the economic costs of backing Ukraine are causing political problems at home and in Europe. In those circumstances, U.S. policymakers would have every reason to consider taking riskier steps—such as imposing a no-fly zone over Ukraine or inserting small contingents of U.S. ground forces—to help Ukraine defeat Russia.
U.S. Defense Secretary Lloyd Austin and U.S. Secretary of State Antony Blinken with Ukrainian President Volodymyr Zelensky in Kyiv, April 2022
Ukrainian Presidential Press Service / Reuters
A more likely scenario for U.S. intervention would come about if the Ukrainian army began to collapse and Russia seemed likely to win a major
victory. In that case, given the Biden administration’s deep commitment to preventing that outcome, the United States could try to turn the tide by getting directly involved in the fighting. One can easily imagine U.S. officials believing that their country’s credibility was at stake and convincing themselves that a limited use of force would save Ukraine without prompting
Putin to use nuclear weapons. Alternatively, a desperate Ukraine might launch large-scale attacks against Russian towns and cities, hoping that such escalation would provoke a massive Russian response that would finally force the United States to join the fighting.
The final scenario for American involvement entails inadvertent escalation: without wanting to, Washington gets drawn into the war by an unforeseen event that spirals upward. Perhaps U.S. and Russian fighter jets, which have come into close contact over the Baltic Sea, accidentally collide. Such an incident could easily escalate, given the high levels of fear on both sides, the lack of communication, and the mutual demonization.
Or maybe
Lithuania blocks the passage of sanctioned goods traveling through its territory as they make their way from Russia to Kaliningrad, the Russian enclave that is separated from the rest of the country. Lithuania did just that in mid-June, but it backed off in mid-July, after Moscow made it clear it was contemplating “harsh measures” to end what it considered an illegal blockade. The Lithuanian foreign ministry, however, has resisted lifting the blockade completely. Since Lithuania is a
NATO member, the United States would almost certainly come to its defense if Russia attacked the country.
Russia, desperate to stop Western military to Ukraine, could strike NATO states.
Or perhaps
Russia destroys a building in Kyiv or a training site somewhere in Ukraine and unintentionally kills a substantial number of Americans, such as aid workers, intelligence operatives, or military advisers. The Biden administration, facing a public uproar at home, decides it must retaliate and strikes Russian targets, which then leads to a tit-for-tat exchange between the two sides.
Lastly, there is a chance that the fighting in southern Ukraine will damage the Russian-controlled Zaporizhzhya nuclear power plant, the largest in Europe, to the point where it spews radiation around the region, leading Russia to respond in kind. Dmitry Medvedev, the former Russian president and prime minister, delivered an ominous response to that possibility, saying in August, “Don’t forget that there are nuclear sites in the European Union, too. And incidents are possible there as well.” Should Russia strike a European nuclear reactor, the United States would almost certainly enter the fighting.
Of course, Moscow, too, could instigate the escalation. One cannot discount the possibility that Russia, desperate to stop the flow of Western military aid into Ukraine, would strike the countries through which the bulk of it passes: Poland or Romania, both of which are NATO members. There is also a chance that Russia might launch a massive
cyberattack against one or more European countries aiding Ukraine, causing great damage to its critical infrastructure. Such an attack could prompt the United States to launch a retaliatory cyberattack against Russia. If it succeeded, Moscow might respond militarily; if it failed, Washington might decide that the only way to punish Russia would be to hit it directly. Such scenarios sound far-fetched, but they are not impossible. And they are merely a few of the many pathways by which what is now a local war might morph into something much larger and more dangerous.
GOING NUCLEAR
Although Russia’s military has done enormous damage to Ukraine, Moscow has, so far, been reluctant to escalate to win the war.
Putin has not expanded the size of his force through large-scale conscription. Nor has he targeted Ukraine’s electrical grid, which would be relatively easy to do and would inflict massive damage on that country. Indeed, many Russians have taken him to task for not waging the war more vigorously. Putin has acknowledged this criticism but has let it be known that he would escalate if necessary. “We haven’t even yet started anything in earnest,” he said in July, suggesting that Russia could and would do more if the military situation deteriorated.
What about the ultimate form of escalation? There are three circumstances in which Putin might use nuclear weapons. The first would be if the United States and its
NATO allies entered the fight. Not only would that development markedly shift the military balance against Russia, greatly increasing the likelihood of its defeat, but it would also mean that Russia would be fighting a great-power war on its doorstep that could easily spill into its territory. Russian leaders would surely think their survival was at risk, giving them a powerful incentive to use nuclear weapons to rescue the situation. At a minimum, they would consider demonstration strikes intended to convince the West to back off. Whether such a step would end the war or lead it to escalate out of control is impossible to know in advance.
In his February 24 speech announcing the invasion, Putin strongly hinted that he would turn to nuclear weapons if the
United States and its allies entered the war. Addressing “those who may be tempted to interfere,” he said, “they must know that Russia will respond immediately, and the consequences will be such as you have never seen in your entire history.” His warning was not lost on Avril Haines, the U.S. director of national intelligence, who predicted in May that Putin might use nuclear weapons if NATO “is either intervening or about to intervene,” in good part because that “would obviously contribute to a perception that he is about to lose the war in Ukraine.”
There are three circumstances in which Putin might use nuclear weapons.
In the second nuclear scenario, Ukraine turns the tide on the battlefield by itself, without direct U.S. involvement. If Ukrainian forces were poised to defeat the Russian army and take back their country’s lost territory, there is little doubt that Moscow could easily view this outcome as an existential threat that required a
nuclear response. After all, Putin and his advisers were sufficiently alarmed by Kyiv’s growing alignment with the West that they deliberately chose to attack Ukraine, despite clear warnings from the United States and its allies about the grave consequences that Russia would face. Unlike in the first scenario, Moscow would be employing nuclear weapons not in the context of a war with the United States but against Ukraine. It would do so with little fear of nuclear retaliation, since Kyiv has no nuclear weapons and since Washington would have no interest in starting a nuclear war. The absence of a clear retaliatory threat would make it easier for Putin to contemplate nuclear use.
In the third scenario, the
war settles into a protracted stalemate that has no diplomatic solution and becomes exceedingly costly for Moscow. Desperate to end the conflict on favorable terms, Putin might pursue nuclear escalation to win. As with the previous scenario, where he escalates to avoid defeat, U.S. nuclear retaliation would be highly unlikely. In both scenarios, Russia is likely to use tactical nuclear weapons against a small set of military targets, at least initially. It could strike towns and cities in later attacks if necessary. Gaining a military advantage would be one aim of the strategy, but the more important one would be to deal a game-changing blow—to create such fear in the West that the United States and its allies move quickly to end the conflict on terms favorable to Moscow. No wonder
William Burns, the director of the CIA, remarked in April, “None of us can take lightly the threat posed by a potential resort to tactical nuclear weapons or low-yield nuclear weapons.”
COURTING CATASTROPHE
One might concede that although one of these catastrophic scenarios could theoretically happen, the chances are small and thus should be of little concern. After all, leaders on both sides have powerful incentives to keep the Americans out of the fighting and avoid even limited nuclear
use, not to mention an actual nuclear war.
If only one could be so sanguine. In fact, the conventional view vastly understates the dangers of escalation in
Ukraine. For starters, wars tend to have a logic of their own, which makes it difficult to predict their course. Anyone who says that they know with confidence what path the war in Ukraine will take is mistaken. The dynamics of escalation in wartime are similarly hard to predict or control, which should serve as a warning to those who are confident that events in Ukraine can be managed. Furthermore, as the Prussian military theorist Carl von Clausewitz recognized, nationalism encourages modern wars to escalate to their most extreme form, especially when the stakes are high for both sides. That is not to say that wars cannot be kept limited, but doing so is not easy. Finally, given the staggering costs of a great-power nuclear war, even a small chance of it occurring should make everyone think long and hard about where this conflict might be headed.
This perilous situation creates a powerful incentive to find a diplomatic solution to the war. Regrettably, however, there is no political settlement in sight, as both sides are firmly committed to war aims that make compromise almost impossible. The Biden administration should have worked with Russia to settle the Ukraine crisis before war broke out in February. It is too late now to strike a deal. Russia, Ukraine, and the West are stuck in a terrible situation with no obvious way out. One can only hope that leaders on both sides will manage the war in ways that avoid catastrophic escalation. For the tens of millions of people whose lives are at stake, however, that is cold comfort.
