Hearings to examine the future of United States Black Sea strategy.

Senate Subcommittee on Europe and Regional Security Cooperation

2025-09-30

Summary

This Senate Foreign Relations Committee hearing convened to discuss the critical importance of the Black Sea region to U.S. national interests and European security. Participants emphasized the urgent need for a comprehensive U.S. strategy to counter Russian aggression, ensure energy security, and maintain maritime stability in a geopolitically vital area [ 00:42:54 ]

Themes

The Critical Importance of the Black Sea Region

The Black Sea region is recognized as indispensable for European security and U.S. national interests [ 00:42:54 ]

. It serves as a primary battleground for Russia's ambition to reshape the international order and as a testing ground for hybrid warfare tactics against NATO . The region, home to three NATO members, faces an existential threat from Russian aggression, which also controls vital access for Central Asian countries to Western markets and allows Russia to project power globally . Speakers highlighted that a failure to address instability here could create an arc of Russian influence stretching into the heart of Europe [ 00:48:39-00:48:39 ] .

Energy Security and Russian Influence

Energy security was repeatedly equated with national security, particularly in the wake of Russia's invasion of Ukraine [ 00:45:20 ]

. Europe's historical reliance on Russian energy supplies has created a vulnerability to Russian influence and aggression [ 00:45:50 ] . The discussion highlighted the eastern Black Sea region, including the Caucasus and Central Asia, as a potential source for diversifying energy supplies to Europe through initiatives like the "middle corridor" and the "vertical gas corridor" [ 01:06:24-01:06:41 ] [ 01:08:34-01:08:51 ] . U.S. support for these energy independence projects, potentially through revitalized initiatives like the Three Seas Initiative, was stressed as crucial for regional stability and preventing malign Russian influence [ 01:15:10-01:15:28 ] .

Russian Aggression and Hybrid Warfare

Russia's aggressive actions, including direct threats to NATO members and "virtual impunity," were a central concern . Moscow employs a multifaceted strategy involving bribery, propaganda, subversion, and energy bullying to undermine pro-Western governments across Europe, particularly in the Black Sea region . Recent drone incursions into Romania and Poland, along with state capture efforts in countries like Georgia, Moldova, and Bulgaria, were cited as examples of Russia constantly testing boundaries . Critiques were raised regarding the current U.S. administration's perceived "unilateral disarmament" in countering these hybrid attacks, including cuts to democracy programs and the Global Engagement Center [ 01:11:55-01:12:01 ]

U.S. Strategy and Leadership

A clear, comprehensive, and well-resourced U.S. Black Sea strategy is deemed essential, as the current State Department strategy is seen as insufficient [ 00:43:04 ]

. Recommendations included strengthening regional naval capacities, establishing a NATO naval presence in the Black Sea, and forming a permanent Black Sea Council to foster regional cooperation . Speakers emphasized that sustained U.S. leadership, engagement, and military presence are critical for ensuring security and stability, expressing concern over potential troop withdrawals from frontline states . A holistic approach, combining military and non-military support for pro-democracy groups and independent media, was advocated to counter Russia's asymmetric warfare [ 01:14:10 ] .

Maritime Security and Free Navigation

Maintaining freedom of navigation in the Black Sea is crucial for trade, agriculture, and mineral exports, as the Bosphorus strait acts as a global "pinch point" [ 01:20:57 ]

. Russia's control of Crimea and potential future control of the northern littoral pose significant threats to Ukraine's maritime access and regional stability [ 00:50:26-00:50:45 ] . The Black Sea is currently considered a de facto "no-sail zone" in parts due to Russian actions . To ensure maritime security, panelists suggested collaborative regional approaches, strengthening NATO allies' naval capabilities, and establishing a Black Sea Council . Efforts to clear naval mines and robustly respond to illegal Russian actions, such as boarding commercial vessels, were highlighted as vital to deter further destabilization .

Tone of the Meeting

The tone of the meeting was largely urgent and concerned, driven by the acknowledgment of the Black Sea region's critical geopolitical importance and the severe threats posed by Russian aggression [ 00:43:04 ]

. There was a notable bipartisan spirit, with the Chairman and Ranking Member expressing mutual appreciation for joint efforts on regional issues [ 00:42:15-00:42:48 ] [ 00:46:03-00:46:11 ] . While the discussion was proactive and solution-oriented, focusing on actionable strategies, there was also a discernible critical undertone regarding the current U.S. administration's perceived "inaction" and "unilateral disarmament" in confronting Russia's hybrid warfare tactics [ 01:11:55 ] . The dialogue also demonstrated a forward-looking perspective, considering scenarios for a "post-Putin Russia" and long-term stability in the region .

Participants

Transcript

Steve Daines

The hearing of the Senate Foreign Relations Committee will come to order. First want to thank our three witnesses for being here today to share their expertise on such an important topic. I also want to take a moment to thank my ranking member, Senator Murphy, for his partnership on these issues, as well as the work we're doing together to repeal the Jackson-Vanik trade restrictions in Central Asia. It is time to put these antiquated Soviet-era trade restrictions to bed and further strengthen U.S. relations with the region. I'm very appreciative of his work on this issue. I'm looking forward to continue to work with him on it. The Black Sea holds many of the keys for European security and US national interests. A clearly defined Black Sea strategy is imperative to the United States, effectively countering Russian aggression in Europe and elsewhere. Matthew Boies is a retired career Foreign Service officer who served as Deputy Assistant Secretary in the Bureau of European and Eurasian Affairs and has extensive experience as charge in Switzerland, Finland, Romania, and the U.S. mission to NATO. In addition to his service as a Foreign Service officer, Mr. Boyce has written extensively about the Black Sea and its importance to the U.S. national interests. Frederick Starr is a longtime expert on the Caucasus, Central Asia, and the Black Sea. Mr. Starr is the founding chairman of the Central Asia Caucasus Institute and the Silk Road Studies Program, and is a distinguished fellow for Eurasia at the American Foreign Policy Council.

Steve Daines

Starr also served as founding chairman of the Kenan Institute, vice president of Tulane University, and president of Oberlin College. He has written numerous books about Central Asia and the Caucasus. Catherine Sendak joins us from the Center for European Policy Analysis, where she is the director of the Transatlantic Defense and Security Program. Prior to this, Ms. Sendak was the principal director for Russia, Ukraine, and Eurasia in the office of the Undersecretary of Defense for Policy, where she led efforts on addressing national security priorities, including great power competition with Russia and stability and security throughout Eastern Europe. Thank you again to each of our three witnesses for agreeing to appear here today. Now to the matter at hand. Energy security is national security. And this fact was made even more abundantly clear in the wake of Russia's invasion of Ukraine. In some respects, Europe has made some positive changes. But the fact of the matter is that significant steps need to immediately be taken to protect Europe's future. Reliance on Russia for energy supply is a recipe for European acquiescence to Russian influence and aggression. The western side of the Black Sea presents a warning for the rest of the continent. The nations who border the Black Sea face profound challenges to their national security due to unreliable energy flows and lack of baseload power. They're all taking positive steps towards rectifying the situation, and their proactive action to address their insecurity should motivate the rest of Europe and encourage them to take steps to avoid a similar outcome.

Steve Daines

Now is the moment for practical energy solutions, which countries like Moldova, Romania, and Bulgaria are pursuing. The recent peace deal in the caucuses uncorks Central Asia's vast energy resources and creates a future wherein these resources as well as other sources of power can flow, be they gas, oil, nuclear, hydro, or others to build the reliable baseload power necessary for their economies and their national security. The eastern side of the Black Sea holds many of the solutions to problems found on the western side. Now is the moment for further engagement and for the western world to stand together and facilitate reliable energy flows that will help ensure a bright and more secure future for the region. Beyond energy, the eastern shore of the Black Sea promises huge opportunities for Western commerce. The Caucasus and Central Asia contain large amounts of natural resources, much of which has not yet been fully utilized or even developed. Joint investment in westward trade flows will create a rising tide that truly lifts not just the countries of origin, but those along the trade route, as well as Europe and the broader Western world. What happens in Europe does not stay in Europe. Two world wars have proven that fact. The United States must lead the rest of the world in fighting back against the encroachment of our adversaries. Without US leadership and a secure Europe, we may once again find ourselves fighting a war, cold or otherwise, to protect the values of democracy and universal human freedom. My sincere hope for this hearing is that we can openly and honestly discuss U.S. Black Sea strategy, the importance of the region for global security, and work towards truly a more cohesive, comprehensive U.S.

Steve Daines

policy towards the region. This critically important part of the world needs more attention from the United States and our allies. And I hope today serves as the beginning of that new conversation. And with that, I'd like to recognize the distinguished ranking member for his comments, Senator Murphy.

Christopher S. Murphy

Thank you very much, Chairman Daines, and I do look forward to continuing to work with you to draw us closer to our allies in Central Asia through the amendment of the antiquated restrictions built into the Jackson-Bannock Amendment.

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