Switzerland and Arms Exports: Neutrality versus Solidarity with Ukraine – Op-ed by Pavlo Klimkin and Boris Ruge

This article has originally been published in German for Neue Züricher Zeitung (NZZ).

On 25 February, a day after Russia's most recent invasion of Ukraine, a news agency quoted President Zelenskyy with the following statement: "I need ammunition, not a ride." More than eight months later, not much has changed in that regard: Zelenskyy (and so many of his countrymen and -women) are still holding the fort and Ukraine still urgently needs ammunition.

One type that is high on the list is 35mm ammunition for the "Gepard," a self-propelled anti-aircraft gun. Germany provided 30 Gepards to Ukraine and trained up Ukrainian personnel. The Ukrainian Armed Forces (UAF) are employing the system very successfully, not least in securing the grain exports as part of the "Black Sea Grain Initiative" of the UN.

Back in the summer, a first request addressed to the Swiss government for re-export of 35-mm ammunition which had been in German stocks since decades was rejected, along with a request from the Danish government to authorize the re-export of armored personnel carriers. The Swiss government argued that greenlighting such exports would violate Swiss neutrality. Now Berlin and Kyiv have again jointly asked for permission to make remaining ammunition stocks in Germany available to the UAF. Switzerland has again declined.

Switzerland should reassess the matter. Russia's war against Ukraine didn't start in 2022 but rather eight years earlier. However, the renewed invasion of 24 February has been even more brutal and ruthless than what we had previously seen. Bucha, Kharkiv and Mariupol are now synonyms for systematic destruction and massive crimes against the civilian population, including the deportation of hundreds of thousands of children and adults. Not enough with this, Russia took millions of people across the globe hostage by blocking grain exports, destroying agricultural lands, and stealing grain.

In the UN General Assembly, Russia's aggression has been repeatedly condemned by overwhelming majorities. Most recently in October 143 member states supported a resolution calling on Russia to reverse its illegal annexation of four regions of Ukraine.

Over the past months, the UAF have pushed back Russia's army in one region after another. In response, Putin's troops are now systematically attacking the civilian population and destroying critical infrastructure. Without better air defense, Moscow will turn one Ukrainian city after another into rubble much as they did in Aleppo and other parts of Syria. By doing so, they hope to turn even more Ukrainians into refugees fleeing to the West.

How did Germany react to Russia's war of aggression? Before 24 February, Germany refused to deliver weapons systems to Ukraine. Berlin also rejected requests of allies for re-export of German equipment to support the UAF. It was only with Chancellor Scholz's "Zeitenwende" speech of 27 February that German shifted policy.

Since then, the German government has delivered, including heavy weapons. There is still a great deal of criticism calling on Berlin to deliver more and faster. However, the key point is: Germany overcame a longstanding position and changed course, hesitation notwithstanding. Today it is providing important military support aiding the survival of Ukraine. And that's exactly what's needed.

Politically, Switzerland has taken clear-cut positions in response to Russia's aggression: On 28  February Switzerland aligned itself with EU sanctions against Russia. Switzerland has repeatedly voted against Russia in the UN General Assembly. In turn, Moscow has declared it no longer regards Switzerland as neutral.

For outsiders, Swiss neutrality and its implementation is not always easy to understand. Clearly, it reflects a strongly held position that goes back centuries. It is equally clear that any adjustment is for the Swiss to decide, in line with relevant rules and regulations. In legal terms, there seem to be options to allow for a re-export of the ammunition in question.

At the end of the day, this is about making a choice between traditional neutrality and solidarity with Ukraine. Whatever the outcome, the decision will be a watershed moment for the future position of Switzerland. It will also have implications for the outlook of Switzerland's defense industry (German business has some experience with regard to the long-term consequences of restrictive export policies).

The ammunition at the heart of the current debate will not by itself decide the outcome of the war. But making it available to the UAF would save lives in Ukraine. It would also help secure grain exports, thereby saving lives across the world.

"Zeitenwende," the fundamental paradigm shift in international affairs doesn't stop at the Swiss border. It demands difficult decisions. Switzerland should decide in line with its values and long-term interests.

Pavlo Klimkin was Foreign Minister of Ukraine from 2014 to 2019. Boris Ruge is Vice Chairman of the Munich Security Conference.