The US and EU sanctions currently operating against the Russian Federation were imposed following the Russian support for the “separatists” of the Eastern areas of Donetsk and Lugansk, Ukraine, namely ethnically Russian areas, which wanted to separate – or more likely to become autonomous – from the rest of the country.
It is hard to say whether the Ukrainian conflict was started at first by the Euromaidan‘s pro-Western militants or if either one or the former used violent ways and means because, as usual, the issue of sanctions is mainly political: to force – with mandatory commercial limitations extra omnes or, in any case, for the countries adhering to the primary international organizations – to reduce the political, economic, financial and hence military potential of a target country.
With four executive orders, the United States has imposed a sequence of sanctions against Russia, while it is still unclear whether the sanction regime always fully hits the target country or if it manages to direct its negative repercussions only to the geopolitical sector to be targeted.
In the long history of sanctions the excess of punishments towards the target country has always been a classic strategy, which later succeeds inadvertently to create mass support for the “bad” leader or the “dangerous” party, regardless of its being populist, sovereignist, “racist” or otherwise.
Today the old ideologies of Evil do not apply any longer – hence we need to invent a new labelling for global defamation, well beyond the usual totalitarianism. Or we need to artfully create many media opportunities that often – if photographed – have no actual relationship with the crimes perpetrated by the target State.
In a way, sanctions are essentially the planned exclusion of the target country from the world market: in the case of Russia, the US sanctions are aimed at restricting the Russian access to the international financial services, to the US energy industry and obviously to the military industry.
These goals purpose are attainable both by reporting and blocking the personal and financial movements of specific personalities, such as entrepreneurs, financiers and managers of the target State placed in specific lists, now often public.
Or goods and capital are blocked.
Or again, always according to the American operating tradition, the potential for debt of an enterprise of the enemy State may be reduced significantly, but only on the international market. Or there may be the prohibition of making certain goods, services and technologies available to the “target country”.
In essence, for the Russian Federation this still regards the extraction and refining of natural gas and oil.
Furthermore, the US sanctions against Russia are aimed at restricting the export of Russian military products and, in any case, imposing the block for spare parts or the construction of weapon systems that can ultimately be used in Russia as well.
In the United States the economic sanctions are administered by OFAC and export controls are managed by the US Department of Commerce, Bureau of Industry and Security, in addition to the US Department of State, Directorate of Defense Trade Controls.
Without further complicating the framework, Directive No. 1 of OFAC regards the financial and service sectors of the Russian economy.
It prohibits any transaction longer than thirty days with all the subjects included in the lists regarding people of Russian origin or, in any case, operating in favour of the Russian government.
Directive No. 2 prevents any type of economic or financial transaction for individuals and entities dealing with, offering or carrying out transactions, on behalf of the Russian system, relating to natural gas and oil coming from the Russian territory.
Following the same procedure of the above mentioned transactions, Directive No. 3 deals with control and exclusion of the Russian Federation from the global market of military technologies.
Finally, Directive No. 4 regards the ban on normal commercial relations with Russia regarding the oil and gas from the Arctic and the unspecified “neighbouring areas”.
In 2014, by imposing measures “against the Russian industrial sector”, the above mentioned Bureau of Industry and Security (BIS) implemented and improved the sanctions imposing a specific license on Russia for some commercial products, especially if the exporters “know whether what they sell to Russia can be used, directly or indirectly, for gas and oil extraction or whether these exports can be used for deepwater exploration in Russia or anyway in the Arctic.
Furthermore, the aforementioned BIS blocks any export of products that may anyway contain parts which can be used in the current weapon systems.
After the “events” occurred in Crimea, the EU sanctions against Russia are quite different from the US ones, although they may often overlap.
This is the sign of a political and strategic overlapping that cannot takes us a long way and that, indeed, many military elites, including NATO’s, consider obsolete.
This is certainly not due to anti-Americanism, but to a complex assessment of the EU and US strategic and commercial goals.
Overlapping of new areas of influence or their natural future divergence? Naturally different interests between the EU and the United States in Africa and the Middle East or not?
The issue is complex and not well-defined yet.
Europe, however, has imposed more traditional sanctions against the Russian Federation, regarding individuals and implying travel bans or freezing of funds.
Furthermore, measures are envisaged in the EU limiting the access to financial capital for specific Russian financial and defence institutions.
There are also restrictions on the export of dual-use goods and technologies that may somehow refer to war operations, as well as other restrictions relating to the technologies included in the Common Military List, and obviously other restrictions on oil technologies.
There are many differences between the two sanction regimes.
The United States scrutinizes both oil and those working in this industry, while Europe only oil.
With specific reference to the EU sanctions, however, the Duma proposes to block the “commercial paper” issued by GAZPROM, which would imply that the European oil companies could be sanctioned if they bought GAZPROM payment notes which, however, are extraterritorial.
For the EU, currently the companies Rosneft, Transneft and Gazpromneft are the only ones that have been sanctioned.
None of the two sanction regimes, however, makes explicit references to “natural gas” – only oil is always mentioned.
Moreover the EU legislation is not extraterritorial while, in case of suspicious dollar “transactions” through American banks, the US legislation can manage these transactions as if they were made on its national territory.
Has the United States probably built the complex web of anti-Russian sanctions since 2004 with a view to weakening the European competition?
As we will see later on, this is another possible hypothesis.
Besides seriously harming the European economy, which some important media sources estimate at over 100 billion euro for the whole EU, as well as two million jobs lost, we must consider that the effects are even more complex for the United States.
For the Russian Federation, however, the sanction effects are quite complex, even though it is a simple “target country”.
In 2009 the Russian economy shrank immediately by 2.8%, following the classic rule whereby the economies subjected to sanctions are more sensitive to the asymmetric shocks coming from outside.
The following year, however, Russia grew by 4.5%, thus showing signs of recovery indicating a centralized and planned reaction to both the global crisis and the economic war operations, namely the sanctions against it.
Foreign investment in Russia is still falling and, according to the latest data of the Bank for International Settlements, loans from abroad have fallen from 225 to 103 billion euro.
Hence not many dangerous effects, except for the magnification of the negative fluctuations on international markets.
So far Russia has reacted to the closure of some Western markets with a brilliant and unexpected geopolitical move for the United States, namely the rapprochement with China.
In this regard, the effects are clear: the rapprochement has favoured the block of the Ukrainian crisis, which becomes secondary in the Kremlin scenario. It has also facilitated the entry – even informally – of a large mass of Chinese capital into Russia and has finally added strategic value to the economic relationship between Russia and China.
The rapprochement has favoured not only the commercial flows between the two countries, which had been falling since 2015, but has mainly given rise to old and new bilateral projects: a pipeline, other infrastructural networks and cross-border free trade areas.
Furthermore, Russia and China, which are alien and even opposed to the logic of sanctions, are creating financial and commercial institutions according to their autonomous criteria, which will certainly be immune from US and EU sanctions.
As Putin knows all too well, the problem is that the relationship with China is fully asymmetric and runs the risk of generating Russian dependence on China.
Furthermore Russia is not interested in the tension between China and the United States and does not want to be “involved” in the bilateral trade competition between China and the United States.
The positive aspects for Russia are the following: Russian weapons are particularly suitable for the Chinese market and the plans for the Siberian pipeline between Russia and China are still in place; Shanghai and Hong Kong will soon become the financial bases for many Russian companies; the vast commercial area thus created between South Korea, Vietnam and Taiwan already establishes a small Asian “EU system” that can act as an important stimulus for reviving the Russian economy.
On the other hand, China has never appreciated the Russian move on Crimea, even though it has never officially pronounced itself in this regard.
Never “make a sound in the East, then strike in the West”. Currently there are not the conditions for China to require – at military and strategic levels – what the “Western devils” can already provide at economic level.
Moreover, the strategic suicide of the West is already fine as it is.
And again, the US and EU sanctions have enabled China to prevent its worst-case scenario in the Heartland, namely the final economic and political integration between Russia and Eastern Europe in the EU.
Moreover, this expansion east of the Russian Federation corresponds to a series of counter-sanctions culminating, for Russia, in the ban on European fruit and vegetables. The agricultural sector has been systematically brought to its knees by the Russian policies, which have created farmers’ strong political pressure to lift the sanctions against the Russian Federation.
Political use of an economic choice, namely counter-sanctions where the European “enemy” is weaker, that is in the protected and subsidized economy of the European agribusiness sector.
The Russian response has been the expansion of domestic production, with the strong help of Belarus supporting the “missing share” of the new “internal production”.
The countermeasures of Russian consumers are as follows: certainly prices have risen, but they buy less and even fish consumption is falling.
Nevertheless, if we go back to the general architecture of sanctions against the Russian Federation, we can note many other facts.
For example, we can note that – apart from the weak traditional and media justification, with many “violent acts” artfully caused by militants of uncertain nature – the oil sanctions are designed to reach one single purpose, namely to make Europeans – who for too long have not “resorted to” the US producers – buy the shale oil and gas they are finally able to produce, indeed already in a situation of almost full energy self-sufficiency.
Hence sanctions decided in the United States to compete with the North Stream 2 between Russia and Germany, crossing the Baltic and cutting the cost of natural gas to such levels that only dumping from the United States can be carried out to impose its gas against the one which can be found closer to our countries.
Dumping is useless: we can build an integrated economy between the United States, the EU and Russia, with new geopolitical “rules of engagement”.
Hence the US sanctions are sanctions against Europe to rebuild manu militari the transatlantic market that could not be put back together elsewhere, not even in the agri-food sector where, in fact, the laws are already so differentiated between the United States and the EU to make any exchange impossible.
Economic war through rules and regulations.
However, while the dollar has risen to 76% against the ruble since the beginning of sanctions in 2014, it remains anyway excluded from the Russian domestic market – hence it is a Pyrrhic victory.
In short, the Russian Foreign Minister, Sergei Lavrov, is right when he says that “sanctions are used to impose a regime change in Russia”.
Between 2014 and 2017, some studies ascertained that there was a fall in the Russian GDP and some damage to its economy worth at least 170 billion US dollars.
Italy alone lost at least 1.25 billion euros, especially in the agri-food and small craft sectors.
However, let us revert to Lavrov: he is the right mediator and broker to gradually and reasonably put an end to the sanction regime imposed by the United States and the EU against the Russian Federation, of which he has been the Minister for Foreign Affairs since 2004.
Lavrov, who knows that “there are no alternatives to dialogue”, also knows that Russia has not well clarified the situation of Crimea – beyond the objective truth which is hard to verify.
In this case it is not a matter of discussing the right of the Russian-speaking populations in the region to join the motherland. The issue lies in finding how to create a united Ukraine, really respectful of its minorities and, above all, as autonomous from Russia as from the European and NATO designs.
A trilateral treaty between the EU, the United States and Russia could be a good starting point.
Lavrov has the mediation skills and long experience needed for the job.
At strategic level, it must be clear that NATO no longer expands itself towards the Donbass area and the Ukrainian-Georgian region, while the Russian influence operations – either covert or not – on those countries’ governments will be prohibited.
Obviously old wounds and new appetites return: Poland’s desire to regain Ukraine it misses; the US and NATO passion for encircling the Russian Federation which, however, has already emerged from this encirclement with a clear victory in Syria, which proves its great strategic wisdom.
The encirclement of Russia with the NATO and US autonomous power is fully irrational.
The US bases encircle also Iran, another Russian inevitable ally: but what is the US strategic logic?
Hence a mediation will be needed, implying to reassure the United States that in Ukraine and Georgia there will never be “anti-Western” regimes, but Russia must be sure that all EU, Polish, US and other countries’ operations will not be such as to try to convince Ukrainians and Georgians to let Russia down in the region.
Moreover Russia shall make it clear that – after years of disastrous legacy of the “Cold War” – its policy is trying to let the United States enter again new and old regions. These regions, however, must not be thought as no longer being in a situation of equilibrium – as we could reason at the time of the “Cold War” and of the unfortunate post-Cold War period – since said equilibrium does no longer rely on strategic thinking, but on small territorial or positional conquests.
Furthermore, the United States could de-escalate tension with China through its new relations with Russia, which would act as an effective mediator and broker just because Russia has not – and will never have – common strategic and geopolitical interests with China.
If we begin to think in multipolar terms – where the United States has often developed its longest and most brilliant geopolitical projects – everything gets clearer.
This could be Lavrov’s new job to be performed along with his US counterpart Tillerson.
Neighbours and Crises: New Challenges for Russia
Through all the discussions that accompanied the preparation of the Valdai Club report “Space Without Borders: Russia and Its Neighbours”, the most clear question was whether Russia should or should not avoid repeating the historical experience of relations with its near abroad. This experience, in the most general terms, is that after Russia pacifies its western border with its foreign policy, the Russian state inevitably must turn to issues related to the existence of its immediate neighbourhood. With a high degree of probability, it will be forced to turn to its centuries-old method for solving problems that arise there: expansion for the sake of ensuring security.
Now Russia’s near abroad consists of a community of independent states that cannot ensure their own security and survival by relying only on their own forces; we cannot be completely sure of their stability. From Estonia in the west to Kyrgyzstan in the east, the existence of these countries in a competitive international environment is ensured by their link with one of the nuclear superpowers. Moreover, such connections can only complement each other with great difficulty. As the recent developments in Kazakhstan have demonstrated, they are not limited to the threat of an external invasion; even internal circumstances can become deadly.
The dramatic events in that country were intensified by external interference from the geostrategic opponents of Russia, as well as international terrorists, but it would be disingenuous to argue that their most important causes are not exclusively internal and man-made. We cannot and should not judge whether the internal arrangements of our neighbours are good or bad, since we ourselves do not have ideal recipes or examples. However, when dealing with the consequences, it is rational to fear that their statehood will either be unable to survive, or that their existence will take place in forms that create dangers which Russia cannot ignore.
In turn, the events experienced now in relations between Russia and the West, if we resort to historical analogies, look like a redux of the Northern War. The Great Northern War arose at the beginning of the 18th century as the result of the restoration of Russia’s power capabilities; the West had made great progress in approaching the heart of its territory. Within the framework of this logic, victory, even tactical victory, in the most important (Western) direction will inevitably force Russia to turn to its borders. Moreover, the reasons for paying more attention to them are obvious. This will present Russia with the need to decide on how much it is willing to participate in the development of its neighbours.
The developments in Kazakhstan in early January 2022 showed the objective limits of the possibilities of building a European-style sovereign state amid new, historical, and completely different geopolitical circumstances. More or less all the countries of the space that surrounds Russia, from the Baltic to the Pamir, are unique experiments that arose amid the truly phenomenal orderliness of conditions after the end of the Cold War. In that historical era, the world really developed under conditions where a general confidence prevailed that the absolute dominance of one power and a group of its allies creates conditions for the survival of small and medium-sized states, even in the absence of objective reasons for this.
The idea of the “end of history” was so convincing that we could accept it as a structural factor, so powerful that it would allow us to overcome even the most severe objective circumstances.
The Cold War era created the experience of the emergence and development of new countries, which until quite recently had been European colonies. Despite the fact that there are a few “success stories” among the countries that emerged after 1945, few have been able to get out of the catch-up development paradigm. However, it was precisely 30 years ago that there really was a possibility that a unipolar world would be so stable that it would allow the experiment to come to fruition. The visible recipes of the new states being built were ideal from an abstract point of view, just as Victor Frankenstein was guided by a desire for the ideal.
Let us recall that the main idea of our report was that Russia needs to preserve the independence of the states surrounding it and direct all its efforts to ensure that they become effective powers, eager to survive. This desire for survival is seen as the main condition for rational behaviour, i.e. creating a foreign policy, which takes into account the geopolitical conditions and the power composition of Eurasia. In other words, we believe that Russia is interested in the experiment that emerged within the framework of the Liberal World Order taking place under new conditions, since its own development goals dictate that it avoid repeating its past experience of full control over its neighbours, with which it shares a single geopolitical space.
This idea, let’s not hide it, prompted quite convincing criticism, based on the belief that the modern world does not create conditions for the emergence of states where such an experience is absent in more or less convincing forms. For Russia, the challenge is that even if it is technically capable of ensuring the immediate security of its national territory, the spread of the “grey zone” around its borders will inevitably bring problems that the neighbours themselves are not able to solve.
The striking analogy proposed by one colleague was the “hallway of hell” that Russia may soon face on its southern borders, making us raise the question that the absence of topographic boundaries within this space makes it necessary to create artificial political or even civilisational lines, the protection of which in any case will be entrusted to the Russian soldier. This January we had the opportunity to look into this “hallway of hell”. There is no certainty that the instant collapse of a state close to Russia in the darkest periods of its political history should be viewed as a failure in development, rather than a systemic breakdown of the entire trajectory, inevitable because it took shape amid completely different conditions.
Therefore, now Russia should not try to understand what its further strategy might be; in any case, particular behaviour will be determined by circumstances. Our task is to explore the surrounding space in order to understand where Russia can stop if it does not want to resort to the historical paradigm of its behaviour. The developments in Kazakhstan, in their modern form, do not create any grounds for optimism or hopes for a return to an inertial path of development. Other states may follow Ukraine and Kazakhstan even if they now look quite confident. There are no guarantees — and it would be too great a luxury for Russia to accept such a fate.
This is primarily because the Russian state will inevitably face a choice between being ready for several decades of interaction with a huge “grey zone” along the perimeter of its borders and more energetic efforts to prevent its emergence. It is unlikely that Moscow would simply observe the processes taking place on its immediate periphery. This is not a hypothetical invasion of third forces — that does not pose any significant threat to Russia. The real challenge may be that in a few decades, or sooner, Moscow will have to take on an even greater responsibility, which Russia got rid of in 1991. Even now, there seems to be a reason to believe that thirty years of independence have made it possible to create elements of statehood that can be preserved and developed with the help of Russia.
from our partner RIAC
Do as You’re Told, Russia Tells the Neighborhood
The Kremlin has always argued that it has special interests and ties to what once constituted the Soviet space. Yet it struggled to produce a smooth mechanism for dealing with the neighborhood, where revolutionary movements toppled Soviet and post-Soviet era political elites. Popular movements in Georgia, Ukraine, Moldova, Kyrgyzstan, and most recently Kazakhstan have flowered and sometimes triumphed despite the Kremlin’s rage.
Russia’s responses have differed in each case, although it has tended to foster separatism in neighboring states to preclude their westward aspirations. As a policy, this was extreme and rarely generated support for its actions, even from allies and partners. The resultant tensions underlined the lack of legitimacy and generated acute fear even in friendlier states that Russia one day could turn against them.
But with the activation of the hitherto largely moribund six-nation Collective Security Treaty Organization (CSTO) in Kazakhstan seems to be an entirely different matter. Here, for the first time since its Warsaw Pact invasions, Russia employed an element of multilateralism. This was designed to show that the intervention was an allied effort, though it was Russia that pulled the strings and contributed most of the military force.
CSTO activation is also about something else. It blurred the boundaries between Russia’s security and the security of neighboring states. President Vladimir Putin recently stated the situation in Kazakhstan concerned “us all,” thereby ditching the much-cherished “Westphalian principles” of non-intervention in the internal affairs of neighboring states. The decision was also warmly welcomed by China, another Westphalia enthusiast.
In many ways, Russia always wanted to imitate the US, which in its unipolar moment used military power to topple regimes (in Afghanistan and Iraq) and to restore sovereignty (in Kuwait.) Liberal internationalism with an emphasis on human rights allowed America and its allies to operate with a certain level of legitimacy and to assert (a not always accepted) moral imperative. Russia had no broader ideas to cite. Until now. Upholding security and supporting conservative regimes has now become an official foreign policy tool. Protests in Belarus and Kazakhstan helped the Kremlin streamline this vision.
Since Russia considers its neighbors unstable (something it often helps to bring about), the need for intervention when security is threatened will now serve as a new dogma, though this does not necessarily mean that CSTO will now exclusively serve as the spearhead of Russian interventionist policy in crises along its borders. On the contrary, Russia will try to retain maneuverability and versatility. The CSTO option will be one weapon in the Kremlin’s neighborhood pacification armory.
Another critical element is the notion of “limited sovereignty,” whereby Russia allows its neighbors to exercise only limited freedom in foreign policy. This is a logical corollary, since maneuverability in their relations with other countries might lead to what the Kremlin considers incorrect choices, like joining Western military or economic groupings.
More importantly, the events in Kazakhstan also showed that Russia is now officially intent on upholding the conservative-authoritarian regimes. This fits into a broader phenomenon of authoritarians helping other authoritarians. Russia is essentially exporting its own model abroad. The export includes essential military and economic help to shore up faltering regimes.
The result is a virtuous circle, in the Kremlin’s eyes. Not only can it crush less than friendly governments in its borderlands but it also wins extensive influence, including strategic and economic benefits. Take for instance Belarus, where with Russian help, the dictator Aliaksandr Lukashenka managed to maintain his position after 2020’s elections through brutality and vote-rigging. The end result is that the regime is ever-more beholden to Russia, abandoning remnants of its multi-vector foreign policy and being forced to make financial and economic concessions of defense and economics to its new master. Russia is pressing hard for a major new airbase.
A similar scenario is now opening up in Kazakhstan. The country which famously managed to strike a balance between Russia and China and even work with the US, while luring multiple foreign investors, will now have to accept a new relationship with Russia. It will be similar to Belarus, short of integration talks.
Russia fears crises, but it has also learned to exploit them. Its new approach is a very striking evolution from the manner in which it handled Georgia and Ukraine in 2008 and 2014, through the Belarus and Armenia-Azerbaijan crises in 2020 to the Kazakh uprising of 2022.
Russia has a new vision for its neighborhood. It is in essence a concept of hierarchical order with Russia at the top of the pyramid. The neighbors have to abide by the rules. Failure to do so would produce a concerted military response.
Author’s note: first published in cepa
Russia’s Potential Invasion of Ukraine: Bringing In Past Evidence
Since mid-November 2021, the U.S. intelligence community and media have been warning of a Russian military buildup along the country’s western border. As the military activities are widely interpreted as a sign of Russia’s upcoming invasion of Ukraine, NATO needs to carefully analyze Russia’s motivations and previous behaviors, as well as hammer out policy options in case the existing fears prove to be correct.
Although Russia’s record of deception and recent statements about red lines make current tensions particularly worrisome, there is no hard evidence that an invasion is indeed being planned. The present situation is one of ambiguity (which is probably deliberate), and the West should treat it as such. Washington and its allies should be prepared for the worst without assuming that the negative scenario will inevitably come true. In particular, NATO should consider continuing its policy of tailored deterrence while refraining from steps that can lead to escalation themselves.
What Makes the Invasion Possible
Putin’s modern Ukraine policy originates from two basic assumptions about Russia’s relations with the West after the end of the Cold War. The first assumption is based on the broken promise narrative. According to Mary Sarotte, the Soviet Union did expect that NATO would not move eastward, whereas German Foreign Minister Genscher did promise that NATO “would not expand itself to the East.” The assurances have never been codified. However, NATO’s close military cooperation with Ukraine is viewed by Russia as violating the spirit of the Final Settlement with Respect to Germany of 1990. The historical fear of an attack from the West makes this perception even more vivid. The second assumption is that protests, revolutions, and major political shifts in the post-Soviet space can usually be attributed to Western malicious intentions. The 2014 pro-European revolution in Ukraine is therefore referred to by Moscow as a coup d’état. As unpleasant as they are, the two preconceived notions have a substantial impact on Russian foreign policy, leading the Kremlin to take radical military and diplomatic steps.
Further, Russia’s previous behaviors indicate that Moscow can actually use force against its neighbors, which means that military scenarios should be given serious consideration. It is known that Russia used military force to take control of Crimea in 2014, as President Putin admitted Russia’s involvement and disclosed secrets of the “takeover plot” quite a while ago. It is also known that Russia occupied large swaths of Georgia in 2008, even though Russia’s sovereignty was not directly threatened by skirmishes in South Ossetia. It is presumed, yet denied by Russia, that Moscow has been directly engaged in the Donbas War, which began in mid-2014.
More importantly, Russia has a record of denying its role in crises where Russia’s involvement was suspected by others from the outset. It is only in April 2014 that Putin admitted responsibility for the takeover of Crimea that had taken place between late February and early March. A more recent example of deception is Russia’s anti-satellite test in November 2021. Initially, the Vice-Chair of the Defense Committee in Russia’s Parliament said that “[t]here is no limit to the fantasies of the State Department. Russia is not engaged in the militarization of space.” Foreign Minister Lavrov speculated that “there is no evidence.” Later that day, Russia’s Defense Ministry admitted that the test had been conducted. There are even more cases of Moscow’s presumed malicious activities where Russia has never admitted its role. Those include the Donbas War, the downing of MH17 in July 2014, and the poisoning of Skripal and Navalny.
Given this record, Russia’s assurances that no invasion is being planned cannot be taken at face value. Moreover, Russian officials have made a number of worrisome statements recently. Since late November, President Putin has been calling for “security guarantees” from the West to prevent further NATO enlargement. On November 22, Russia’s Foreign Intelligence Service released a statement on the tensions over Ukraine, saying that “[w]e observed a similar situation in Georgia on the eve of the events of 2008.”
Rationality, Restraint, and History Lessons
Yet, it may seem that a full-scale invasion of Ukraine would be contrary to Russia’s interests, which is in fact true. A fait accompli along the lines of the 2014 takeover of Crimea is no longer possible, as Ukraine’s Army has been forged in the combats of Donbas. The covert war scenario for an entire country does not seem feasible either. Not only would an invasion result in numerous casualties for both sides, but it would also constitute a drain on Russia’s budget for years to come. A brutal war against Ukraine would literally destroy Moscow’s “fraternal peoples” narrative underlying much of Russian foreign policy.
The irrationality of attacking Ukraine is not the only reason why risks for NATO in the current situation may be exaggerated. Although Russia has used military force in a few notable cases, there have been even more examples of Russia’s restraint. In 2018, Russia refrained from attempting to keep in power Armenia’s Serzh Sargsyan in a revolution that was framed by many as inherently pro-Western. Russia did not take sides in the 2020 Nagorno-Karabakh War, even though Azerbaijan was explicitly supported by NATO member Turkey. Russia was sticking to a “wait and see” approach during much of the attempted revolution in Belarus in 2020. Finally, Russia has tolerated coups and revolutions in Central Asia, including most recently the Kyrgyz Revolution of 2020. In other words, understanding what Russia could have done but chose not to do is no less important than the awareness of what has indeed occurred. Russia is not inherently expansionist, and the domino logic does not apply.
However, this in no way means that an invasion of Ukraine is impossible. Irrational, previously unknown, and even “impossible” events tend to occur from time to time, as the 1941 attack on Pearl Harbor demonstrated 80 years ago. Even crazier twists and turns have probably been averted thanks to diplomacy and deterrence. This is why contingency planning is an integral part of any foreign and defense policy. NATO’s goal is to preempt, prevent, and be prepared for an invasion rather than predict whether it will happen or not.
While a full-scale invasion of Ukraine has not been launched, Western policy can rely on traditional deterrence instruments tailored to the crisis in question. In doing so, the United States and its allies should not act as though an invasion were inevitable, which it is not. NATO’s response to the current tensions should be very limited and focused, yet commensurate with the Western interest in countering Russian adventurism and short of upending the status quo for no apparent reason. First, the U.S. and its allies may continue providing military aid to Ukraine and even increase it, which is in line with previous policies. That said, troop deployments in Ukraine and enhanced military presence in the Black Sea would not be helpful, as such measures could alienate Russia without providing any benefits to the West. Second, NATO should dissuade Ukraine from attacking first, as Georgia did in 2008. Russia should be put in a position where any attack it might undertake would be unprovoked and very explicit. However, NATO should find it in its interest to refrain from providing any specific guarantees to Ukraine. The nature of Ukraine-Russia tensions makes provocations on both sides highly likely; assurances and alliances would only heighten risks, boosting Ukraine’s and Russia’s self-confidence.
A full-scale war between Russia and Ukraine is possible. Still, it is neither inevitable nor likely. When everyone takes war for granted, the question arises whether the United States still has a foreign policy capable of fostering a positive environment for the prosperity of the American people.
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