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The Treaty on the Final Settlement with Respect to Germany (german: Vertrag über die abschließende Regelung in Bezug auf Deutschland; rus, Договор об окончательном урегулировании в отношении Германии, r=Dogovor ob okonchatel'nom uregulirovanii v otnoshenii Germanii ), or the Two Plus Four Agreement (german: Zwei-plus-Vier-Vertrag;; rus, Соглашение «Два плюс четыре», r=Soglasheniye «Dva plyus chetyre» short: German Peace Treaty), is an international agreement that allowed the
reunification of Germany German reunification (german: link=no, Deutsche Wiedervereinigung) was the process of re-establishing Germany as a united and fully sovereign state, which took place between 2 May 1989 and 15 March 1991. The day of 3 October 1990 when the Ge ...
in the early 1990s. It was negotiated in 1990 between the
Federal Republic of Germany Germany,, officially the Federal Republic of Germany, is a country in Central Europe. It is the second most populous country in Europe after Russia, and the most populous member state of the European Union. Germany is situated between ...
and the
German Democratic Republic German(s) may refer to: * Germany (of or related to) **Germania (historical use) * Germans, citizens of Germany, people of German ancestry, or native speakers of the German language ** For citizens of Germany, see also German nationality law **G ...
(the eponymous ''Two''), and the Four Powers which had
occupied Germany Germany was already de facto occupied by the Allies from the real fall of Nazi Germany in World War II on 8 May 1945 to the establishment of the East Germany on 7 October 1949. The Allies (United States, United Kingdom, Soviet Union, and Fr ...
at the
end of World War II in Europe The final battle of the European Theatre of World War II continued after the definitive overall surrender of Nazi Germany to the Allies, signed by Field marshal Wilhelm Keitel on 8 May 1945 in Karlshorst, Berlin. After German dictator Adolf ...
: France, the
Soviet Union The Soviet Union,. officially the Union of Soviet Socialist Republics. (USSR),. was a transcontinental country that spanned much of Eurasia from 1922 to 1991. A flagship communist state, it was nominally a federal union of fifteen nationa ...
, the
United Kingdom The United Kingdom of Great Britain and Northern Ireland, commonly known as the United Kingdom (UK) or Britain, is a country in Europe, off the north-western coast of the continental mainland. It comprises England, Scotland, Wales and Nor ...
, and the
United States The United States of America (U.S.A. or USA), commonly known as the United States (U.S. or US) or America, is a country primarily located in North America. It consists of 50 states, a federal district, five major unincorporated territo ...
; it also replaced the 1945
Potsdam Agreement The Potsdam Agreement (german: Potsdamer Abkommen) was the agreement between three of the Allies of World War II: the United Kingdom, the United States, and the Soviet Union on 1 August 1945. A product of the Potsdam Conference, it concerned th ...
before. In the treaty, the Four Powers renounced all rights they held in Germany, allowing a reunited Germany to become fully
sovereign ''Sovereign'' is a title which can be applied to the highest leader in various categories. The word is borrowed from Old French , which is ultimately derived from the Latin , meaning 'above'. The roles of a sovereign vary from monarch, ruler or ...
the following year. At the same time, the two German states agreed to confirm their acceptance of the existing border with
Poland Poland, officially the Republic of Poland, is a country in Central Europe. It is divided into 16 administrative provinces called voivodeships, covering an area of . Poland has a population of over 38 million and is the fifth-most populou ...
, and accepted that the borders of Germany after unification would correspond only to the territories then administered by West and East Germany, with the exclusion and renunciation of any other territorial claims (e.g., to the
Kaliningrad Oblast Kaliningrad Oblast (russian: Калинингра́дская о́бласть, translit=Kaliningradskaya oblast') is the westernmost federal subject of Russia. It is a semi-exclave situated on the Baltic Sea. The largest city and administ ...
).


Background

On 1 August 1945, the
Potsdam Agreement The Potsdam Agreement (german: Potsdamer Abkommen) was the agreement between three of the Allies of World War II: the United Kingdom, the United States, and the Soviet Union on 1 August 1945. A product of the Potsdam Conference, it concerned th ...
, promulgated in the
Potsdam Conference The Potsdam Conference (german: Potsdamer Konferenz) was held at Potsdam in the Soviet occupation zone from July 17 to August 2, 1945, to allow the three leading Allies to plan the postwar peace, while avoiding the mistakes of the Paris Pe ...
, among other things agreed on the initial terms under which the
Allies of World War II The Allies, formally referred to as the Declaration by United Nations, United Nations from 1942, were an international Coalition#Military, military coalition formed during the World War II, Second World War (1939–1945) to oppose the Axis ...
would govern Germany. A provisional German–Polish border known as the
Oder–Neisse line The Oder–Neisse line (german: Oder-Neiße-Grenze, pl, granica na Odrze i Nysie Łużyckiej) is the basis of most of the Germany–Poland border, international border between Germany and Poland from 1990. It runs mainly along the Oder and ...
awarded, in theory within the context of that "provisional border", most of Germany's former eastern provinces to
Poland Poland, officially the Republic of Poland, is a country in Central Europe. It is divided into 16 administrative provinces called voivodeships, covering an area of . Poland has a population of over 38 million and is the fifth-most populou ...
and the
Soviet Union The Soviet Union,. officially the Union of Soviet Socialist Republics. (USSR),. was a transcontinental country that spanned much of Eurasia from 1922 to 1991. A flagship communist state, it was nominally a federal union of fifteen nationa ...
. The German populations of these areas either fled or were expelled. Although the
German Democratic Republic German(s) may refer to: * Germany (of or related to) **Germania (historical use) * Germans, citizens of Germany, people of German ancestry, or native speakers of the German language ** For citizens of Germany, see also German nationality law **G ...
formally accepted the border in the 1950
Treaty of Zgorzelec The Treaty of Zgorzelec (Full title ''The Agreement Concerning the Demarcation of the Established and the Existing Polish-German State Frontier'', also known as the ''Treaty of Görlitz'' and ''Treaty of Zgorzelic'') between the Republic of Pol ...
with Poland,
West Germany West Germany is the colloquial term used to indicate the Federal Republic of Germany (FRG; german: Bundesrepublik Deutschland , BRD) between its formation on 23 May 1949 and the German reunification through the accession of East Germany on 3 ...
initially entirely rejected it, declaring the treaty ″null and void″ in line with the
Hallstein Doctrine The Hallstein Doctrine (), named after Walter Hallstein, was a key principle in the foreign policy of the Federal Republic of Germany (West Germany) from 1955 to 1970. As usually presented, it prescribed that the Federal Republic would not estab ...
, and later reluctantly recognised the border in the 1970 Treaty of Warsaw as provisional only, to be finalised by "a peace settlement for Germany to be accepted by the Government of Germany when a government adequate for the purpose is established" (Potsdam Agreement 1.3.1). Parts of those above-mentioned agreements were burdened with controversy from several sources e.g., Churchill's comment about "stuffing the Polish goose too full" (of German lands). The overall "German Question" became one of the salient and crucial issues of the long-running Cold War, and until it ended in the late 1980s, little progress had been made in the establishment of a single government of Germany adequate for the purpose of agreeing to a final settlement. This meant that in some respects (largely, but not only, technical), Germany did not have full national
sovereignty Sovereignty is the defining authority within individual consciousness, social construct, or territory. Sovereignty entails hierarchy within the state, as well as external autonomy for states. In any state, sovereignty is assigned to the person ...
. Several developments in 1989 and 1990, collectively termed ''Die Wende'' and the
Peaceful Revolution The Peaceful Revolution (german: Friedliche Revolution), as a part of the Revolutions of 1989, was the process of sociopolitical change that led to the opening of East Germany's borders with the West, the end of the ruling of the Socialist Unity ...
, led to the fall of the
Berlin Wall The Berlin Wall (german: Berliner Mauer, ) was a guarded concrete barrier that encircled West Berlin from 1961 to 1989, separating it from East Berlin and East Germany (GDR). Construction of the Berlin Wall was commenced by the governme ...
and the collapse of the SED party in
East Germany East Germany, officially the German Democratic Republic (GDR; german: Deutsche Demokratische Republik, , DDR, ), was a country that existed from its creation on 7 October 1949 until its dissolution on 3 October 1990. In these years the state ...
(GDR). In a 9 February 1990 conversation with
Mikhail Gorbachev Mikhail Sergeyevich Gorbachev (2 March 1931 – 30 August 2022) was a Soviet politician who served as the 8th and final leader of the Soviet Union from 1985 to the country's dissolution in 1991. He served as General Secretary of the Commu ...
held in Moscow, US Secretary of State
James Baker James Addison Baker III (born April 28, 1930) is an American attorney, diplomat and statesman. A member of the Republican Party, he served as the 10th White House Chief of Staff and 67th United States Secretary of the Treasury under President ...
argued in favor of holding the Two-Plus-Four talks. According to Moscow as well as Baker's notes, the famous "not one inch eastward" promise about NATO's eastward expansion was made during this conversation. The concession essentially meant that the western half of the unified Germany would be part of NATO but the eastern half would not. The US
National Security Council A national security council (NSC) is usually an executive branch governmental body responsible for coordinating policy on national security issues and advising chief executives on matters related to national security. An NSC is often headed by a na ...
pointed out that it would be unworkable, and the concession was later amended to state that NATO troops would not be stationed in East Germany. On 18 March 1990, a national election was held in the GDR, leading to an alliance of parties that favored German reunification winning a plurality. Charles S. Maier, ''Dissolution: The Crisis of Communism and the End of East Germany'' (Princeton University Press, 1997). , pp. 211–214. To achieve unity and full sovereignty, both German states were willing to accept the terms of the Potsdam Agreement that affected Germany. On 31 August 1990, the FRG and GDR signed the Unification Treaty, which describes the manner and specifics of the GDR's accession to the Federal Republic. It was then possible for all international parties to negotiate a final settlement.


Treaty

The Treaty on the Final Settlement with Respect to Germany was signed in Moscow on 12 September 1990, and paved the way for German reunification on 3 October 1990. Under the terms of the treaty, the Four Powers renounced all rights they formerly held in Germany, including those regarding the city of Berlin. Upon deposit of the last instrument of ratification, united Germany became fully
sovereign ''Sovereign'' is a title which can be applied to the highest leader in various categories. The word is borrowed from Old French , which is ultimately derived from the Latin , meaning 'above'. The roles of a sovereign vary from monarch, ruler or ...
on 15 March 1991.


Alliances

The treaty allows Germany to make and belong to alliances, without any foreign influence in its politics.


Military forces and nuclear weapons

All
Soviet forces in Germany The Western Group of Forces (WGF),. previously known as the Group of Soviet Occupation Forces in Germany (GSOFG). and the Group of Soviet Forces in Germany (GSFG),. were the troops of the Soviet Army in East Germany. The Group of Soviet Occupati ...
were to leave the country by the end of 1994. Before the Soviets withdrew, Germany would only deploy territorial defense units not integrated into the alliance structures. German forces in the rest of Germany were assigned to areas where Soviet troops were stationed. After the Soviets withdrew, the Germans could freely deploy troops in those areas, with the exception of nuclear weapons. For the duration of the Soviet presence, Allied troops would remain stationed in Berlin upon Germany's request. Germany undertook efforts to reduce its
armed forces A military, also known collectively as armed forces, is a heavily armed, highly organized force primarily intended for warfare. It is typically authorized and maintained by a sovereign state, with its members identifiable by their distinct ...
to no more than 370,000 personnel, no more than 345,000 of whom were to be in the
Army An army (from Old French ''armee'', itself derived from the Latin verb ''armāre'', meaning "to arm", and related to the Latin noun ''arma'', meaning "arms" or "weapons"), ground force or land force is a fighting force that fights primarily on ...
and the
Air Force An air force – in the broadest sense – is the national military branch that primarily conducts aerial warfare. More specifically, it is the branch of a nation's armed services that is responsible for aerial warfare as distinct from an ...
. These limits would commence at the time that the
Treaty on Conventional Armed Forces in Europe The original Treaty on Conventional Armed Forces in Europe (CFE) was negotiated and concluded during the last years of the Cold War and established comprehensive limits on key categories of conventional military equipment in Europe (from the Atla ...
would enter into force, and the treaty also took note that it was expected that the other participants in the negotiations would "render their contribution to enhancing security and stability in Europe, including measures to limit personnel strengths". Germany also reaffirmed its renunciation of the manufacture, possession of, and control over nuclear, biological, and chemical weapons, and in particular, that the
Nuclear Non-Proliferation Treaty The Treaty on the Non-Proliferation of Nuclear Weapons, commonly known as the Non-Proliferation Treaty or NPT, is an international treaty whose objective is to prevent the spread of nuclear weapons and weapons technology, to promote cooperation ...
would continue to apply in full to the unified Germany (the Federal Republic of Germany). No foreign armed forces, nuclear weapons, or the carriers for nuclear weapons would be stationed or deployed in six states (the area of Berlin and the former East Germany), making them a permanent
Nuclear-Weapon-Free Zone A nuclear-weapon-free zone (NWFZ) is defined by the United Nations as an agreement that a group of states has freely established by treaty or convention that bans the development, manufacturing, control, possession, testing, stationing or transpo ...
. The German Army could deploy conventional weapons systems with nonconventional capabilities, provided that they were equipped and designed for a purely conventional role. Germany also agreed to use military force only in accordance with the
United Nations Charter The Charter of the United Nations (UN) is the foundational treaty of the UN, an intergovernmental organization. It establishes the purposes, governing structure, and overall framework of the UN system, including its six principal organs: the ...
.


Future territorial claims

Another of the treaty's important provisions was Germany's confirmation of the by now internationally recognised border with Poland, and other territorial changes in Germany that had taken place since 1945, preventing any future claims to lost territory east of the
Oder–Neisse line The Oder–Neisse line (german: Oder-Neiße-Grenze, pl, granica na Odrze i Nysie Łużyckiej) is the basis of most of the Germany–Poland border, international border between Germany and Poland from 1990. It runs mainly along the Oder and ...
(see also
Former eastern territories of Germany The former eastern territories of Germany (german: Ehemalige deutsche Ostgebiete) refer in present-day Germany to those territories east of the current eastern border of Germany i.e. Oder–Neisse line which historically had been considered Ge ...
). The treaty defined the territory of a 'united Germany' as being the territory of East Germany, West Germany and Berlin, prohibiting Germany from making any future territorial claims. Germany also agreed to sign a separate treaty with Poland reaffirming the present common border, binding under international law, effectively relinquishing these territories to Poland. This was done on 14 November 1990 with the signing of the
German–Polish Border Treaty The German–Polish Border Treaty of 1990; pl, Traktat między Rzeczpospolitą Polską a Republiką Federalną Niemiec o potwierdzeniu istniejącej między nimi granicy) finally settled the issue of the Polish–German border, which in terms ...
. Furthermore, the Federal Republic was required by the treaty to amend its Basic Law so as to be constitutionally prohibited from accepting any application for incorporation into Germany from territories outside the territories of East Germany, West Germany and Berlin. Although the treaty was signed by West and East Germany as separate sovereign states, it was subsequently
ratified Ratification is a principal's approval of an act of its agent that lacked the authority to bind the principal legally. Ratification defines the international act in which a state indicates its consent to be bound to a treaty if the parties inten ...
by united Germany (the Federal Republic of Germany).


Implementation


Russian withdrawal from Germany

After the Soviet Union dissolved itself in December 1991, the command unit of the Soviet
Group of Soviet Forces in Germany The Western Group of Forces (WGF),. previously known as the Group of Soviet Occupation Forces in Germany (GSOFG). and the Group of Soviet Forces in Germany (GSFG),. were the troops of the Soviet Army in East Germany. The Group of Soviet Occupati ...
devolved to the
Russian Federation Russia (, , ), or the Russian Federation, is a transcontinental country spanning Eastern Europe and Northern Asia. It is the largest country in the world, with its internationally recognised territory covering , and encompassing one-eight ...
. The German government subsequently recognized the Russian Federation's claim to be the
successor state Succession of states is a concept in international relations regarding a successor state that has become a sovereign state over a territory (and populace) that was previously under the sovereignty of another state. The theory has its roots in 19th- ...
of the Soviet Union, including the right to maintain troops in Germany until the end of 1994. However, with post-Soviet Russia facing severe economic hardship, President
Boris Yeltsin Boris Nikolayevich Yeltsin ( rus, Борис Николаевич Ельцин, p=bɐˈrʲis nʲɪkɐˈla(j)ɪvʲɪtɕ ˈjelʲtsɨn, a=Ru-Boris Nikolayevich Yeltsin.ogg; 1 February 1931 – 23 April 2007) was a Soviet and Russian politician wh ...
ordered Russian troop deployment in Germany to be reduced to levels significantly below those permitted in the Treaty. The last Russian troops left Germany at the end of August 1994, four months before the treaty deadline.


Bundeswehr after the treaty

In the first decade of the 21st century, the
Bundeswehr The ''Bundeswehr'' (, meaning literally: ''Federal Defence'') is the armed forces of the Federal Republic of Germany. The ''Bundeswehr'' is divided into a military part (armed forces or ''Streitkräfte'') and a civil part, the military part con ...
underwent a gradual transformation to a fully professional force. By 2011, the year Germany voluntarily suspended
conscription Conscription (also called the draft in the United States) is the state-mandated enlistment of people in a national service, mainly a military service. Conscription dates back to antiquity and it continues in some countries to the present day un ...
, the Bundeswehr had retained fewer than 250,000 active duty personnel – barely two thirds of the country's treaty limit of 370,000.


Claimed German violations

Article 5, paragraph 3 of the treaty concerning the area of the former East Germany states: "Foreign armed forces and nuclear weapons or their carriers will not be stationed in that part of Germany or deployed there." In 2010, the newspaper ''
Junge Welt ''Junge Welt'' (English: ''Young World'', stylized in its logo as ''junge Welt'') is a German daily newspaper, published in Berlin. The jW describes itself as a left-wing and Marxist newspaper. German authorities categorize it as a far-left me ...
'' alleged this to have been violated by
NATO The North Atlantic Treaty Organization (NATO, ; french: Organisation du traité de l'Atlantique nord, ), also called the North Atlantic Alliance, is an intergovernmental military alliance between 30 member states – 28 European and two Nor ...
troops during a 2009 exercise in the former East German
Trollenhagen Trollenhagen is a municipality in the district Mecklenburgische Seenplatte, in Mecklenburg-Vorpommern Mecklenburg-Vorpommern (MV; ; nds, Mäkelborg-Vörpommern), also known by its anglicized name Mecklenburg–Western Pomerania, is a stat ...
,
Mecklenburg-Vorpommern Mecklenburg-Vorpommern (MV; ; nds, Mäkelborg-Vörpommern), also known by its anglicized name Mecklenburg–Western Pomerania, is a state in the north-east of Germany. Of the country's sixteen states, Mecklenburg-Vorpommern ranks 14th in po ...
. According to the
German Air Force The German Air Force (german: Luftwaffe, lit=air weapon or air arm, ) is the aerial warfare branch of the , the armed forces of Germany. The German Air Force (as part of the ''Bundeswehr'') was founded in 1956 during the era of the Cold War ...
, NATO was merely making an inspection there on that occasion; however, the inspection included a unit from the
Finnish Air Force , colours = , colours_label = , march = , mascot = , anniversaries = , equipment = 159 , equipment_label ...
. In September 2007, France offered Germany joint control over its nuclear arsenal, but the Germans rejected this.


Later developments

Russia Russia (, , ), or the Russian Federation, is a transcontinental country spanning Eastern Europe and Northern Asia. It is the largest country in the world, with its internationally recognised territory covering , and encompassing one-eight ...
and the
Western countries The Western world, also known as the West, primarily refers to the various nations and states in the regions of Europe, North America, and Oceania.
signed in 1990 the
Treaty on Conventional Armed Forces in Europe The original Treaty on Conventional Armed Forces in Europe (CFE) was negotiated and concluded during the last years of the Cold War and established comprehensive limits on key categories of conventional military equipment in Europe (from the Atla ...
and in 1991 the
Energy Charter Treaty The Energy Charter Treaty (ECT) is an international agreement that establishes a multilateral framework for cross-border cooperation in the energy industry, principally the fossil fuel industry. The treaty covers all aspects of commercial energy ...
, establishing a multilateral framework for cross-border cooperation in the
energy industry The energy industry is the totality of all of the industries involved in the production and sale of energy, including fuel extraction, manufacturing, refining and distribution. Modern society consumes large amounts of fuel, and the energy indust ...
, principally the
fossil fuel industry A fossil fuel is a hydrocarbon-containing material formed naturally in the Earth's crust from the remains of dead plants and animals that is extracted and burned as a fuel. The main fossil fuels are coal, oil, and natural gas. Fossil fuels m ...
; Russia postponed ratification of the latter treaty, linking it to the adoption of the Energy Charter Treaty Transit Protocol. In 1997, NATO and Russia signed the Russia–NATO Founding Act, which stated that each country had a sovereign right to seek alliances. In the same year, the
Budapest Memorandum The Budapest Memorandum on Security Assurances comprises three substantially identical political agreements signed at the OSCE conference in Budapest, Hungary, on 5 December 1994, to provide security assurances by its signatories relating to the ...
was signed where Russia, the
United Kingdom The United Kingdom of Great Britain and Northern Ireland, commonly known as the United Kingdom (UK) or Britain, is a country in Europe, off the north-western coast of the continental mainland. It comprises England, Scotland, Wales and Nor ...
, and the
United States The United States of America (U.S.A. or USA), commonly known as the United States (U.S. or US) or America, is a country primarily located in North America. It consists of 50 states, a federal district, five major unincorporated territo ...
made security assurances to Belarus,
Kazakhstan Kazakhstan, officially the Republic of Kazakhstan, is a transcontinental country located mainly in Central Asia and partly in Eastern Europe. It borders Russia to the north and west, China to the east, Kyrgyzstan to the southeast, Uzbekis ...
, and Ukraine, in return for handing over by these three countries of their post-Soviet nuclear arsenal. NATO ended up expanding to fourteen Eastern countries (apart from the
GDR East Germany, officially the German Democratic Republic (GDR; german: Deutsche Demokratische Republik, , DDR, ), was a country that existed from its creation on 7 October 1949 until its dissolution on 3 October 1990. In these years the state ...
in 1990): Czech Republic,
Hungary Hungary ( hu, Magyarország ) is a landlocked country in Central Europe. Spanning of the Carpathian Basin, it is bordered by Slovakia to the north, Ukraine to the northeast, Romania to the east and southeast, Serbia to the south, Croat ...
, and
Poland Poland, officially the Republic of Poland, is a country in Central Europe. It is divided into 16 administrative provinces called voivodeships, covering an area of . Poland has a population of over 38 million and is the fifth-most populou ...
in 1999;
Bulgaria Bulgaria (; bg, България, Bǎlgariya), officially the Republic of Bulgaria,, ) is a country in Southeast Europe. It is situated on the eastern flank of the Balkans, and is bordered by Romania to the north, Serbia and North Maced ...
,
Estonia Estonia, formally the Republic of Estonia, is a country by the Baltic Sea in Northern Europe. It is bordered to the north by the Gulf of Finland across from Finland, to the west by the sea across from Sweden, to the south by Latvia, and ...
,
Latvia Latvia ( or ; lv, Latvija ; ltg, Latveja; liv, Leţmō), officially the Republic of Latvia ( lv, Latvijas Republika, links=no, ltg, Latvejas Republika, links=no, liv, Leţmō Vabāmō, links=no), is a country in the Baltic region of ...
,
Lithuania Lithuania (; lt, Lietuva ), officially the Republic of Lithuania ( lt, Lietuvos Respublika, links=no ), is a country in the Baltic region of Europe. It is one of three Baltic states and lies on the eastern shore of the Baltic Sea. Lithuania ...
,
Romania Romania ( ; ro, România ) is a country located at the crossroads of Central, Eastern, and Southeastern Europe. It borders Bulgaria to the south, Ukraine to the north, Hungary to the west, Serbia to the southwest, Moldova to the east, and ...
,
Slovakia Slovakia (; sk, Slovensko ), officially the Slovak Republic ( sk, Slovenská republika, links=no ), is a landlocked country in Central Europe. It is bordered by Poland to the north, Ukraine to the east, Hungary to the south, Austria to th ...
, and
Slovenia Slovenia ( ; sl, Slovenija ), officially the Republic of Slovenia (Slovene: , abbr.: ''RS''), is a country in Central Europe. It is bordered by Italy to the west, Austria to the north, Hungary to the northeast, Croatia to the southeast, an ...
in 2004;
Albania Albania ( ; sq, Shqipëri or ), or , also or . officially the Republic of Albania ( sq, Republika e Shqipërisë), is a country in Southeastern Europe. It is located on the Adriatic and Ionian Seas within the Mediterranean Sea and shares la ...
and Croatia in 2009;
Montenegro ) , image_map = Europe-Montenegro.svg , map_caption = , image_map2 = , capital = Podgorica , coordinates = , largest_city = capital , official_languages = M ...
in 2017; and
North Macedonia North Macedonia, ; sq, Maqedonia e Veriut, (Macedonia before February 2019), officially the Republic of North Macedonia,, is a country in Southeast Europe. It gained independence in 1991 as one of the successor states of Yugoslavia. It ...
in 2020, four of them on the border with Russia. The
Russia–NATO relations Relations between the NATO military alliance and the Russian Federation were established in 1991 within the framework of the North Atlantic Cooperation Council. In 1994, Russia joined the Partnership for Peace program, and through the early-2010 ...
started to deteriorate rapidly following the Ukrainian
Orange Revolution The Orange Revolution ( uk, Помаранчева революція, translit=Pomarancheva revoliutsiia) was a series of protests and political events that took place in Ukraine from late November 2004 to January 2005, in the immediate after ...
in 2004–2005. In December 2006, Russia indicated that the ratification of the Energy Charter Treaty was unlikely due to the provisions requiring third-party access to Russia's pipelines. Russia suspended in 2007 its participation in the Treaty on Conventional Armed Forces in Europe. In 2008, the relations deteriorated further and became almost openly hostile, following the
2008 Kosovo declaration of independence The 2008 Kosovo declaration of independence, which proclaimed the Republic of Kosovo to be a state independent from Serbia, was adopted at a meeting held on 17 February 2008 by 109 out of the 120 members of the Assembly of Kosovo, including the ...
from Russia′s ally Serbia and its partial recognition by the West, to which Russia responded in August 2008 with launching the
Russo-Georgian War The 2008 Russo-Georgian WarThe war is known by a variety of other names, including Five-Day War, August War and Russian invasion of Georgia. was a war between Georgia, on one side, and Russia and the Russian-backed self-proclaimed republics of So ...
. On 20 August 2009, Russia officially informed the depository of the Energy Charter Treaty (the
Government of Portugal , border = Central , image = , caption = , date = , state = Portuguese Republic , address = Official Residence of the Prime Minister Estrela, Lisbon , appointed = President ...
) that it did not intend to become a contracting party to the treaty. On 1 April 2014, NATO unanimously decided to suspend all practical co-operation with the Russian Federation in response to the annexation of Crimea, but the NATO-Russia Council (NRC) was not suspended. In 2015, Russia entirely terminated its participation in the Treaty on Conventional Armed Forces in Europe. On 18 February 2017, Russia's
Minister of Foreign Affairs A foreign affairs minister or minister of foreign affairs (less commonly minister for foreign affairs) is generally a cabinet minister in charge of a state's foreign policy and relations. The formal title of the top official varies between cou ...
,
Sergey Lavrov Sergey Viktorovich Lavrov (russian: Сергей Викторович Лавров, ; born 21 March 1950) is a Russian diplomat and politician who has served as the Foreign Minister of Russia since 2004. Lavrov served as the Permanent Repres ...
, said he supported the resumption of military cooperation with the NATO alliance. In late March 2017, the Council met in advance of a NATO Foreign Ministers conference in Brussels, Belgium. After the subsequent
2022 Russian invasion of Ukraine On 24 February 2022, in a major escalation of the Russo-Ukrainian War, which began in 2014. The invasion has resulted in tens of thousands of deaths on both sides. It has caused Europe's largest refugee crisis since World War II. An ...
, the Founding Act has been considered by the NATO member states as definitively abrogated in its entirety by Russia, while the latter has been declared at the
2022 NATO Madrid summit The 2022 Madrid summit was a meeting of the heads of state and heads of government of NATO member and partner countries held in Madrid, Spain, on 28–30 June 2022. Spain previously hosted a NATO Summit in 1997. Background On 8 October 2021, ...
"a direct threat" to Euro-Atlantic security. In the same year, Russia withdrew from the
European Convention on Human Rights The European Convention on Human Rights (ECHR; formally the Convention for the Protection of Human Rights and Fundamental Freedoms) is an international convention to protect human rights and political freedoms in Europe. Drafted in 1950 by t ...
and was expelled from the
Council of Europe The Council of Europe (CoE; french: Conseil de l'Europe, ) is an international organisation founded in the wake of World War II to uphold human rights, democracy and the rule of law in Europe. Founded in 1949, it has 46 member states, with a ...
.


Russian claims of unwritten assurances

The treaty does not mention NATO membership prospects of any other countries, as none of them has been a party to the treaty, while only 4 out of the 15 NATO member states at the time have been parties to it. Some commentators, such as
Stephen F. Cohen Stephen Frand Cohen (November 25, 1938September 18, 2020) was an American scholar of Russian studies. His academic work concentrated on modern Russian history since the Bolshevik Revolution and Russia's relationship with the United States. C ...
, as well as
Mikhail Gorbachev Mikhail Sergeyevich Gorbachev (2 March 1931 – 30 August 2022) was a Soviet politician who served as the 8th and final leader of the Soviet Union from 1985 to the country's dissolution in 1991. He served as General Secretary of the Commu ...
in 2008, have advanced in later years the interpretation of a comment allegedly made by US Secretary of State,
James Baker James Addison Baker III (born April 28, 1930) is an American attorney, diplomat and statesman. A member of the Republican Party, he served as the 10th White House Chief of Staff and 67th United States Secretary of the Treasury under President ...
, to the effect that NATO would expand "not one inch eastward" in a unified Germany, as applying instead to Eastern Europe; neither has such a provision been included in the treaty, nor any of the parties has proposed or demanded its inclusion, and neither a recording nor written minutes of the Baker's comment exist. In 2014, Gorbachev said that the assurance only pertained to East Germany, and that the resulting agreement was upheld by NATO. His main aide in these negotiations,
Eduard Shevardnadze Eduard Ambrosis dze Shevardnadze ( ka, ედუარდ ამბროსის ძე შევარდნაძე}, romanized: ; 25 January 1928 – 7 July 2014) was a Soviet and Georgian politician and diplomat who governed Georgia for ...
, likewise agreed that NATO never made any such commitment regarding other countries in Eastern Europe, and that "the question never came up" in the talks on German reunification. That is presumably because all of the countries in question were still in the
Warsaw Pact The Warsaw Pact (WP) or Treaty of Warsaw, formally the Treaty of Friendship, Cooperation and Mutual Assistance, was a collective defense treaty signed in Warsaw, Poland, between the Soviet Union and seven other Eastern Bloc socialist republi ...
at the time and hosted large Soviet garrisons. Gorbachev and his successor,
Boris Yeltsin Boris Nikolayevich Yeltsin ( rus, Борис Николаевич Ельцин, p=bɐˈrʲis nʲɪkɐˈla(j)ɪvʲɪtɕ ˈjelʲtsɨn, a=Ru-Boris Nikolayevich Yeltsin.ogg; 1 February 1931 – 23 April 2007) was a Soviet and Russian politician wh ...
, felt that NATO's later acceptance of countries like Poland violated the spirit of the earlier agreements. In December 2017, researchers Tom Blanton and Svetlana Savranskaya argued that declassified documents challenged this narrative. They commented: "The documents show that multiple national leaders were considering and rejecting Central and Eastern European membership in NATO as of early 1990 and through 1991, that discussions of NATO in the context of German unification negotiations in 1990 were not at all narrowly limited to the status of East German territory, and that subsequent Soviet and Russian complaints about being misled about NATO expansion were founded in written contemporaneous memcons and telcons at the highest levels." They further said that "the view of the State Department was that NATO expansion was not on the agenda, because it was not in the interest of the U.S. to organize 'an anti-Soviet coalition' that extended to the Soviet borders, not least because it might reverse the positive trends in the Soviet Union. (See Document 26) The Bush administration took the latter view. And that's what the Soviets heard." In 2018, Hannes Adomeit disputed the conclusions by Blanton and Savranskaya, saying that those documents were already known, and that "it is inadmissible to conclude that assurances concerning the expansion of NATO command structures and the stationing of NATO forces on the territory of the former GDR had anything to do with promises concerning the enlargement of the Alliance east of a unified Germany." Additionally, he stated that "a distinction must be drawn between informal or exploratory talks of this nature on the one hand and negotiations, promises, commitments or indeed guarantees on the other." An analysis by
Marc Trachtenberg Marc Trachtenberg (born February 9, 1946) is a professor of Political Science at the University of California, Los Angeles. He received his Ph.D in History from the University of California, Berkeley in 1974 and taught for many years for the histor ...
in 2021 concluded that "the Russian allegations are by no means baseless ... But the Soviets were not deliberately misled." In her 2021 book ''Not One Inch: America, Russia, and the Making of the Cold War Stalemate'', Mary Elise Sarotte balanced out these different interpretations, concluding that Russian claims of betrayal are in fact untrue in law but have psychological truth. On 18 February 2022, German magazine ''
Der Spiegel ''Der Spiegel'' (, lit. ''"The Mirror"'') is a German weekly news magazine published in Hamburg. With a weekly circulation of 695,100 copies, it was the largest such publication in Europe in 2011. It was founded in 1947 by John Seymour Chaloner ...
'' published an investigation of the
British National Archives , type = Non-ministerial department , seal = , nativename = , logo = Logo_of_The_National_Archives_of_the_United_Kingdom.svg , logo_width = 150px , logo_caption = , formed = , preceding1 = , dissolved = , superseding = , juris ...
in which Joshua Shifrinson (
Boston University Boston University (BU) is a Private university, private research university in Boston, Massachusetts. The university is nonsectarian, but has a historical affiliation with the United Methodist Church. It was founded in 1839 by Methodists with ...
) discovered a memo classified as "secret" dated 6 March 1991 (approximately five months after the 2+4 negotiations). The memo is about a meeting of the directors of the US, UK, French and West German foreign ministries in Bonn. According to the memo,
Jürgen Chrobog Jürgen Chrobog (born February 28, 1940) is a German jurist and former diplomat. He worked in the Foreign Office of West Germany and the reunified Germany and among other diplomatic postings, was Ambassador to the United States from 1995 to 2001. ...
, the Western German representative, stated that "during the 2+4 negotiations we made it clear that we ermanywould not expand NATO beyond the Elbe . We cannot therefore offer Poland and the others NATO membership." Klaus Wiegrefe says that Chrobog may have confused the
Elbe The Elbe (; cs, Labe ; nds, Ilv or ''Elv''; Upper and dsb, Łobjo) is one of the major rivers of Central Europe. It rises in the Giant Mountains of the northern Czech Republic before traversing much of Bohemia (western half of the Czech Repu ...
for the
Oder The Oder ( , ; Czech, Lower Sorbian and ; ) is a river in Central Europe. It is Poland's second-longest river in total length and third-longest within its borders after the Vistula and Warta. The Oder rises in the Czech Republic and flows th ...
, to which NATO was supposed to extend upon German unification. Bonn had never made it clear that NATO would not expand beyond the Elbe, According to , a German foreign minister at the time would never make a binding statement on behalf of NATO. Russian claims of the alleged 1990 assurances on a non-expansion of NATO to Gorbachev were again raised on the occasions of the
annexation of Crimea by the Russian Federation In February and March 2014, Russia invaded and subsequently annexed the Crimean Peninsula from Ukraine. This event took place in the aftermath of the Revolution of Dignity and is part of the wider Russo-Ukrainian War. The events in Kyiv ...
in 2014 and the
2021–2022 Russo-Ukrainian crisis In March and April 2021, Russian president Vladimir Putin ordered the Russian military to begin massing thousands of personnel and equipment near its border with Ukraine and in Crimea, representing the largest mobilization since the annex ...
, during which the Russian President
Vladimir Putin Vladimir Vladimirovich Putin; (born 7 October 1952) is a Russian politician and former intelligence officer who holds the office of president of Russia. Putin has served continuously as president or prime minister since 1999: as prime min ...
demanded a legal ban on Ukraine joining NATO, which both Ukraine and NATO refused, and the subsequent invasion of Ukraine by Russia. The invocation of this alleged non-expansion pledge was used by Russia to justify its open breach of the
Budapest Memorandum The Budapest Memorandum on Security Assurances comprises three substantially identical political agreements signed at the OSCE conference in Budapest, Hungary, on 5 December 1994, to provide security assurances by its signatories relating to the ...
but has been rebuffed by NATO.


See also

*
Allied Control Council The Allied Control Council or Allied Control Authority (german: Alliierter Kontrollrat) and also referred to as the Four Powers (), was the governing body of the Allied Occupation Zones in Germany and Allied-occupied Austria after the end of ...
* Basic Treaty * Bonn–Paris conventions *
Council of Foreign Ministers Council of Foreign Ministers was an organisation agreed upon at the Potsdam Conference in 1945 and announced in the Potsdam Agreement and dissolved upon the entry into force of the Treaty on the Final Settlement with Respect to Germany in 1991. Th ...
*
Four Power Agreement on Berlin The Four Power Agreement on Berlin, also known as the Berlin Agreement or the Quadripartite Agreement on Berlin, was agreed on 3 September 1971 by the four wartime Allied powers, represented by their ambassadors. The four foreign ministers, Ale ...
*
Germany Treaty Germany,, officially the Federal Republic of Germany, is a country in Central Europe. It is the second most populous country in Europe after Russia, and the most populous member state of the European Union. Germany is situated between ...
*
London and Paris Conferences The London and Paris Conferences were two related conferences held in London and Paris during September–October 1954 to determine the status of West Germany. The talks concluded with the signing of the Paris Agreements (Paris Pacts, or Paris ...
*
Occupation statute The Occupation Statute of Germany (german: Besatzungsstatut) of April 10, 1949 specified the roles and responsibilities of the newly created government of the Federal Republic of Germany (West Germany) and the Allied High Commission. It was drawn ...
*
Petersberg Agreement The Petersberg Agreement is an international treaty that extended the rights of the government of West Germany vis-a-vis the occupying forces of the United Kingdom, France, and the United States. It is viewed as the first major step of West Germa ...


Notes


References


Further reading

* Trachtenberg, Marc. "The United States and the NATO Non-extension Assurances of 1990: New Light on an Old Problem?" ''International Security'' 45:3 (2021): 162–203. https://doi.org/10.1162/isec_a_00395 an
online commentary on H-DIPLO 2021
*


External links


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