If Russia “Protects” Transnistria, Will the EU Defend Moldova? And Georgia?

On 28 February 2024, the day before Putin’s annual speech in parliament, Transnistria asked Russia for protection against Moldova, the state from which the region has broken away. Fabricating a threat against a kindred people as a pretext for invasion: the playbook is well known.

*****

If Russia “Protects” Transnistria, Will the EU Defend Moldova? And Georgia?

On 28 February 2024, the day before Putin’s annual speech in parliament, Transnistria asked Russia for protection against Moldova, the state from which the region has broken away. Fabricating a threat against a kindred people as a pretext for invasion: the playbook is well known. That is how Russia has justified its wars against Georgia and Ukraine, and how it threatens the Baltic States. But the playbook is much older: in 1938-9, the purported plight of the Sudeten Germans was Hitler’s pretext for dismembering Czechoslovakia. There are parallels – but they do not run in Russia’s favour.

Minsk Is Not Munich

There are differences too. Russia already is in Transnistria, with some 1500 troops that have been there since 1992. And the EU already is in Moldova, with an EU Partnership Mission (EUPM) of up to 40 security officials, launched in April 2023 to assist with building resilience against hybrid actions. The West is not abandoning anybody, therefore. Indeed, Belgium, Denmark, and the Netherlands have only just opened an embassy in Chisinau, and Greece and Spain will follow shortly.

Perhaps Putin had understood the Minsk Agreements that France and Germany mediated between Ukraine and Russia in 2014-5 as a Munich moment: the first step towards the West letting Ukraine go. But then he overlooked another accord: the EU-Ukraine Association Agreement, also signed in 2014, by which (wittingly or unwittingly) Europe committed itself to the survival of Ukraine, whatever the future might bring. Putin should have remembered that when Nazi Germany violated the Munich Agreement, Britain and France could indeed not prevent the destruction of Czechoslovakia – but they did then offer a security guarantee to Poland and went to War when Hitler invaded it. In a similar vein, Russia’s 2022 invasion of Ukraine provoked the EU and the US into non-belligerent yet massive and indeed vital support for Kyiv. In June 2022, the EU accepted both Ukraine and Moldova as candidates for membership, cementing its commitment.

But the War Might Yet Expand

Putin did not actually mention Moldova in his speech. Perhaps the Transnistrian call for help is a sign of desperation more than anything else, as things have been going bad for the leadership ever since Ukraine closed the border when war started. Transnistria being where it is, Russia can difficultly reinforce or supply its troops there, and Russia has of course failed to link it up with the territory that it occupies in Ukraine. Nevertheless, if Putin felt it necessary to create a diversion, the troops currently in Transnistria could cause havoc. And already today Russia is engaged in a massive subversion campaign in Moldova. The call for protection is itself an example of that. Is the EUPM sufficient to bolster the country?

The EU also has to worry about Georgia, which in December 2023 became a candidate for membership as well. There too, Russian troops shore up breakaway regions: Abkhazia and South Ossetia. Those border on Russia, however; it is Georgia that is isolated, in a military sense. The Montreux Convention limits access via the Black Sea, and while the country does border on fellow EU candidate Turkey, the latter (though a NATO Ally) has its own special relationship with Russia. In case of renewed hostilities, how would the EU (and the US) get military support to Georgia? And in Georgia too, massive Russian influence operations are underway.

Even Armenia now appears to be hoping for some sort of security support from Europe. Armenia was gravely disappointed with Russia’s lack of support when in September 2023 Azerbaijan in a swift war took control of Nagorno-Karabakh. in February 2024, Armenia suspended its membership of the Collective Security Treaty Organisation (CSTO), its military alliance with Russia. Azerbaijan, at the same time, is a key partner of the EU’s Global Gateway. The EU need not choose sides between them; it needs a strategy for regional stability.

Defend Your Candidate!

Accepting a country as a candidate creates obligations towards it, and it alters the geopolitical position of the EU, almost as much as actual enlargement.

Enlargement always was a geopolitical project, but never before has it been actively contested by another great power. In the past, the EU has accepted as candidates countries that came out of war, on the Balkans, but never a country currently at war, like Ukraine, or facing a great risk of war, like Georgia and Moldova. In geopolitical terms, these were three buffer states in between the EU and Russia. Ukraine and Moldova have now become border states – they are the frontier of the West; Georgia, however, is a geopolitical outpost. The security guarantee contained in Article 42.7 of the Treaty on European Union does not yet apply, of course. But the EU can also not just stand idly by when a candidate is threatened or aggressed, in a military or a hybrid way – not without greatly damaging its credibility. And if the EU is not seen to stand up for its candidates, other powers might begin to doubt even the strength of solidarity between current Member States, to the detriment of deterrence.

By accepting new candidates, the EU has de facto altered its geopolitical situation. That must now be reflected in an updated strategy. At the very least, the EU should prepare contingency plans for non-belligerent support to Georgia and Moldova, up to the same massive scale as for Ukraine if necessary. That will require courage and resources. But if the EU is not willing to defend them, it should not have accorded candidate status to countries facing such a high risk of conflict. Geopolitics and strategy is not a game for the meek or the miserly.

Sven Biscop cannot help seeing historical analogies – he has just read too many books.

Read it in dutch on Knack‘s website.

(Photo credit:  Wikimedia Commons, Bundesarchiv Bild 183-R69173)