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Russia and the U.S.: Time to Look for Compromises

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The recent Democratic and Republican national conventions did not offer any particular surprises. They merely confirmed the current balance of power in both parties before the November presidential elections. As expected, the Republicans rallied behind the incumbent President Donald Trump, while the Democrats put their faith in former Vice President Joe Biden.

Just like the rest of the world, Moscow has been following the policy statements presented by the candidates on foreign policy and international security particularly closely. No revelations were forthcoming there either. The two candidates, each in his own distinctive style, set out their positions, which boil down to affirming America’s global leadership. But we have known this for a long time. Essentially, the heated debates within the U.S. political establishment focus on the specific methods for achieving this fundamental goal.

As for U.S. relations with Russia, the candidates made standard statements on the matter. Standard is the key word here, as the two candidates merely repeated what they had said many times before. But neither attempted to put forward any arguments to further their position, much less analyse possible options for interacting with Moscow in the rapidly changing global situation.

Some may say that expanded statements on key issues are usually made after the president-elect has been sworn in. That is true. However, the parties did outline their preliminary standing on some specific issues for the American and international public. We should, for example, note the response of both the Trump administration and the opposition to the recent events in Belarus and the incident with Alexey Navalny. This response was extremely harsh, which already suggests that, instead of constructive proposals on resuming dialogue, the two candidates have “punitive” measures in mind for Russia.

Naturally, we cannot say that there are no sober-minded politicians left in the United States. There are quite a few of them. This is evidenced, in particular, by the recent open letter signed by 103 prominent experts, including former high ranking diplomats, officials and military personnel. The signatories are highly critical of Washington’s current approach to Russia, as it is based solely on fruitless attempts to corner the country and force it to capitulate, and also call on Washington to immediately resume full-fledged diplomatic dialogue with Russia. Sadly, the voices of the realists within the U.S. political elite are not yet as loud as we might like.

One the other hand, we should note that Russia, too, is determined to steer a harsh course in its relations with the United States. Moscow may not be as direct about it as Washington is, but the point still stands. Both capitals are apparently set for a long-term confrontation.

Political and diplomatic subtleties aside, the stances of both sides are ultimately determined by the same logic. It is assumed that any initiative to restore dialogue between the two countries will be seen by the other side as a forced concession, a show of weakness, and any such initiative will therefore only provoke greater pressure. It is thus better to wait, to not change anything, to out-stubborn the opponent—let the other side lose its nerve first, let it take the first step. We have been waiting for such a “first step” for years now, and all we have to show for it is U.S.-Russia relations being at their worst ebb ever. And it will be very difficult to emerge from this crisis.

We all know very well that there are no unsolvable problems in politics and diplomacy. Sooner or later, a solution is always found. Either one side loses, or they both lose. Or, a third option, they manage to take stock of the emerging threats to them in time and come to a compromise that promises a win for both sides.

Finding a compromise on vital issues is always challenging, and since U.S.-Russia relations have been deteriorating for many years and the two countries lack any semblance of mutual confidence, these difficulties are particularly great. However, without such a compromise, the political risks for the United States, Russia and the rest of the world are growing—not even from year to year, but from month to month. This is abundantly clear to experienced international experts, including those who were around during the Cold War. Painstaking consultations are currently taking place at a number of expert platforms, all of which aim to develop recommendations that would make it possible to launch the process of reducing international tensions. The overwhelming majority of experts agree that a positive shift in U.S.-Russia relations could jump-start the process of advancing a healthier global atmosphere.

Admittedly, very few concrete ideas have actually been put forward so far, and for obvious reasons. But ideas and suggestions are out there, and they appear to be quite realistic, taking the interests of both sides into account. We witnessed a statement just like this one from Mikhail Gorbachev and Ronald Reagan when they said that there could be no winner in a nuclear war. However, confirmation from the Kremlin and the White House in today’s far more complicated and dangerous international situation would certainly have a positive significance. Another proposal involves prolonging the New START immediately and without any pre-conditions, while simultaneously launching intensive consultations on a broad range of strategic stability issues. There are other proposals that are brought to the notice of the political leadership in both countries through various channels.

Based on my own experience, I would like to make the following proposal, which I have already happened to discuss with my American counterparts and which, in my opinion, is still relevant today. Given today’s geopolitical confrontation between Russia and the United States, the two sides focus primarily on security issues, and for obvious reasons. At the same time, an objective analysis of real threats shows that most challenges faced by Russia and the United States today do not come directly from either of the countries, but from third parties. It would thus be wise to hold high-level U.S.-Russia consultations, for example, between the Security Council of Russia and the U.S. National Security Council to assess the perceptions of the two sides of the hierarchy of international threats and challenges. It is possible that such an analysis would not make it possible to arrive at an agreement immediately. Nonetheless, it could open up the prospect of achieving a better understanding of the situation and the operational logic of the other side and, in the future, the prospect of bilateral cooperation, at least in those areas where the parties’ interests coincide.

I would like to cite an example from history. In 1999, at the end of Bill Clinton’s second term in office, Washington was seriously considering withdrawing from the ABM Treaty. Diplomats had arrived at an impasse in their discussions. Russia, then, spearheaded an expanded discussion involving military experts from the two countries. This meeting was held at the Pentagon, and the Russian and U.S. delegations were led by the Minister of Foreign Affairs of the Russian Federation and the U.S. Secretary of State. As a result of the discussion, the Clinton administration decided to postpone the country’s withdrawal from the ABM Treaty. Unfortunately, the attempts to salvage the Treaty ultimately failed, as the George W. Bush administration unilaterally pulled out of the agreement in 2002. However, the atmosphere of constructive political dialogue was preserved, which allowed the presidents of Russia and the United States to sign the Treaty Between the United States of America and the Russian Federation on Strategic Offensive Reductions (SORT) as early as May 2002.

Attempts to give advice, let alone provide blueprints on handling a particular issue, always run the risk of being criticized. This is clear and understandable. Yet, sometimes, even a negative response to an idea could prove an important incentive for moving forward. While searching for arguments, the critics themselves are forced to take a new look at the problem and highlight nuances that had previously slipped under their radars.

From our partner RIAC

President of the Russian International Affairs Council. Professor of the Moscow State Institute of International Relations (MGIMO) of the Russian Federation Ministry of Foreign Affairs (RF MFA). Russian Academy of Sciences Corresponding Member. Ambassador Extraordinary and Plenipotentiary of the Russian Federation.

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Russia

Isolation Can Only Be Splendid

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The coronavirus pandemic, which arrived in Russia exactly a year ago, in April 2020, greatly exacerbated the issue of the modern state’s resilience to challenges that have an objectively external origin. Of course, one cannot compare the scale of the threat to that of the military interventions the country has experienced throughout its history. However, the ubiquitous nature of this challenge from the very beginning made such comparisons the most appropriate, especially in contrast to the crises and disasters of the 1990s and early 2000s; in any case, it had not been a product of the Russian state. The exogenous nature of the problem was combined with the fact that, for the first time, it did not have a specific source in the form of an adversary which could be defeated through a single exceptional effort.

The most important cultural consequence of the pandemic has been Russia’s pivot inward. First, because the national media focused on news from the regions related to the peculiarities of the pandemic in each of them. The increased attention to the activities of the regional authorities, which received rather broad powers, contributed to the formation of a single information space from Kaliningrad to Vladivostok. For the first time in national history, major news stories across a vast territory were devoted to a single topic.

Second, for the first time in the past 30 years, the citizens of Russia had to spend their holidays at home — in cities, at their dachas or traveling domestically. The issue of the accelerated creation of recreation infrastructure within the country has become relevant. No one disputes the fact that most Russian destinations are seriously inferior in terms of amenities to those in Europe or the Middle East. Not to mention the climate factor, which no state policy can overcome. But even if, in the future, international borders become open again (this is unlikely to happen in the foreseeable future), the emergence of such infrastructure and the habit of taking holidays without going abroad will further contribute to the localisation of the interests of Russian citizens.

Thus, for Russia, the pandemic has become an important factor in national cohesion and the localisation of interests within its own borders, the real consequences of which we will be aware of in the coming years. First of all, we can talk about the understanding that internal stability and development are more important for survival than the ability to respond to external challenges or to take advantage of opportunities that arise outside the Russian state.

These changes are of a strategic nature and inevitably affect foreign policy, keeping in mind those features of strategic culture that, while maintaining the same level of openness, would hardly be in demand. It is no coincidence that the most important issues of Russian foreign policy over the past year have been the deepening split in relations with the West, a more outspoken approach to interaction with China, and attempts to create a new system of relations with Russia’s neighbours: the countries that emerged from the former USSR. The latter can be interpreted as a distancing from them, to some extent.

The acute conflict between Russia and the West is the product of a massive change in the balance of power at the global level and the evolution of Russia itself 30 years after it acquired a new quality and borders. The former requires most of the world’s states to strive to maximise their advantages and provokes mutual pressure, attempts to change the balance in their favour. The latter forces Russia itself to abandon foreign policy attachments that have been established over the centuries. These changes seem especially dramatic in comparison with the period after the end of the Cold War, when Russia felt the need to constantly search for a compromise with the most powerful nations, which received the maximum benefits from the disappearance of the bipolar international order.

Until recently, the desire to preserve the most constructive relations with the West remained the central element of the post-Soviet Russian foreign policy. Now it is present only in the form of rhetoric, the main purpose of which is to point out to other nations that their behaviour is unacceptable. The completion of the post-Soviet stage of development for Russia requires an end to attempts to integrate systemically with the European Union and a willingness to establish a formula for stable working relations with the United States.

Contemporary relations between Russia and China are the product of a changing global balance of power and historical experience. The rapid rapprochement of the positions of Moscow and Beijing, as well as the coordination of their actions on the world stage, are, of course, the result of pressure on both partners from the West. Both powers understand that for quite a long time, their success in the fight against the main enemy will depend on their ability to act as a united front. In this respect, there are fewer reasons for hesitation — Moscow and Beijing have begun to move towards the creation of a formal alliance. Moreover, it is China that has shown fairly good results in the fight against the pandemic. Historical experience suggests that it would be wrong to strive for a clear distribution of roles according to the principle of “leader and follower” that can lead to instability in the long term. Therefore, now Moscow and Beijing are trying to avoid such a scenario of relations, although it is not easy.

Most importantly, the year of the pandemic set in motion Russian politics in the other states of the former Soviet Union. Here, surprisingly, Russia’s inward focus on itself has the ability not to weaken, but to strengthen its position in relations with partners in the region and non-regional players. First of all, because Russian politics is gradually becoming more demanding and diversified. By adopting this outlook, it refutes well-established notions about itself and immerses its partners in an unfamiliar situation, which is extremely useful for Russia.

One of the most important issues connecting international politics, history and geography in Eurasia is the question of the transformation of the geopolitics of the post-Soviet space over the past 30 years. The traditional point of view is that as historical experience was gained, each of the sovereign states that emerged from the USSR obtained unique characteristics and gradually their scale became so significant that it overcame the factors that ensure the existence of a certain community.

Finally, the history of this community should be completed by the transformation of Russia into the “last empire” — a power resembling Russia of 1917 in terms of its resource potential, and in terms of foreign policy behaviour — a 21st century nation-state which participates in the global balance of power. This is what is happening now, and the practical consequences are encouraging for some countries and discouraging for others.

Russia’s ability to somewhat distance itself from the former Soviet countries has a serious material basis — the preserved and partially increased resources and power capabilities of Russia, which make it possible to speak of a certain self-sufficiency in the international arena.

The understanding of the scale of these resources and opportunities came as Russia developed independently, including through the intellectual conceptualisation of the wealth that Siberia and the Far East represent for the Russian state. In this sense, the pandemic laid the groundwork for self-reflection and a focus on domestic problems.

The “turn to the East,” which has remained significant in Russian foreign policy discussions over the past 10 years, meant, first of all, strengthening ties with Asian countries and attempts to forge regional trade, economic and political relations. In many ways, it was carried out reluctantly — there was a lot of inertia of orientation towards Europe, Asia presents Russia with no security threats, while the creation of truly serious economic relations is practically impossible, amid the current conditions.

The development of Siberia and the Far East has never been a central focus of the political “turn”. However, Moscow has become more far-sighted, and now considers the territory beyond the Urals to be the most important, albeit as a by-product of the “turn”. In a sense, the “turn” has helped Russia to realise its own geopolitical dimensions, which became important in the context of a return to real, forceful international politics.

It would probably be wrong to interpret the current state of Russian policy towards the countries of the former USSR in terms of a “farewell”. Natural security considerations will remain as binding as ever, as well as ethical notions, despite the fact that Russia’s military capabilities allow it to solve many problems without directly controlling territory. Russian policy is becoming more flexible. Despite the fact that ethically Moscow still perceives Russia and the other former republics of the USSR as part of a kind of community, the methods of diplomatic interaction and the depth of involvement in its partners’ affairs are already the result of a separate assessment of every situation. The CIS issue is disappearing from Russian politics, and this can only be welcomed.

At the same time, it may be important that the consequence of internal changes is the drawing of external players into the Russian security periphery. For example, Turkey, Iran or Afghanistan. This process may not be unambiguous, but it is taking place. As a result, we can observe both an increase in requirements for the policy of Russia itself, and an expansion of its room for manoeuvre. We cannot be sure that the policy of Turkey, for example, will continue to move towards independence from the West. But now Turkish activism is bringing obvious benefits to Russia, and Erdogan’s elements of adventurous behaviour make him a “pleasant and comfortable” partner for Moscow.

Apart from modern Russia, there is hardly any other major power in the world whose resources and power capabilities would so much encourage the culture of self-isolation, and whose geographical position and associated historical experience would so much hinder it.

However, discussions on this topic are constant and sometimes take the form of the political concept of “a bear that walks in the taiga”. For national foreign policy, the challenge of the pandemic had an indirect effect — on the world stage, the country behaved, in general, like most states. The fact that Moscow’s actions were less selfish than those of Western countries reflected a desire to consolidate a new field of world politics and, at the same time, to fulfil a moral duty, without which Russia cannot exist.

However, this indirect effect was very likely more significant than any direct foreign policy challenge. The fight against the pandemic changed Russia from the inside and these changes are more important than any foreign policy manoeuvres or adaptation to international affairs.

From our partner RIAC

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Steering Russia-US Relations Away from Diplomatic Expulsion Rocks

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As the recent expulsions of Russian diplomats from the US, Poland, Bulgaria and the Czech Republic demonstrate, this measure is becoming a standard international practice of the West. For the Biden administration, a new manifestation of the “Russia’s threat” is an additional tool to discipline its European allies and to cement the transatlantic partnership. For many European NATO members, expulsions of diplomats are a symbolic gesture demonstrating their firm support of the US and its anti-Russian policies.

Clear enough, such a practice will not be limited to Russia only. Today hundreds, if not thousands of diplomatic officers all around the world find themselves hostage to problems they have nothing to do with. Western decision-makers seem to consider hosting foreign diplomats not as something natural and uncontroversial but rather as a sort of privilege temporarily granted to a particular country — one that can be denied at any given moment.

It would be logical to assume that in times of crisis, when the cost of any error grows exponentially, it is particularly crucial to preserve and even to expand the existing diplomatic channels. Each diplomat, irrespective of his or her rank and post, is, inter alia, a communications channel, a source of information, and a party to a dialogue that can help understand your opponent’s logic, fears, intentions, and expectations. Niccolo Machiavelli’s adage, “Keep your friends close and your enemies closer” remains just as pertinent five centuries later. Unfortunately, these wise words are out of circulation in most Western capitals today.

A proponent of expulsions would argue that those expelled are not actually diplomats at all. They are alleged intelligence officers and their mission is to undermine the host country’s national security. Therefore, expulsions are justified and appropriate. However, this logic appears to be extremely dubious. Indeed, if you have hard evidence, or at the very least a reasonable suspicion that a diplomatic mission serves as a front office for intelligence officers, and if operations of these officers are causing serious harm to your country’s security, why should you wait for the latest political crisis to expel them? You should not tolerate their presence in principle and expel them once you expose them.

Even the experience of the Cold War itself demonstrates that expulsions of diplomats produce no short-term or long-term positive results whatsoever. In fact, there can be no possible positive results because diplomatic service is nothing more but just one of a number of technical instruments used in foreign politics. Diplomats may bring you bad messages from their capitals and they often do, but if you are smart enough, you never shoot the messenger.

Diplomatic traditions do not allow such unfriendly actions to go unnoticed. Moscow has to respond. Usually, states respond to expulsions of their diplomats by symmetrical actions – i.e. Russia has to expel the same number of US, Polish or Czech diplomats, as the number of Russian diplomats expelled from the US, Poland or the Czech Republic. Of course, each case is special. For instance, the Czech Embassy in Moscow is much smaller than the Russian Embassy in Prague, so the impact of the symmetrical actions on the Czech diplomatic mission in Russia will be quite strong.

The question now is whether the Kremlin would go beyond a symmetrical response and start a new cycle of escalation. For example, it could set new restrictions upon Western companies operating in the country, it could cancel accreditation of select Western media in Moscow, it could close branches of US and European foundations and NGOs in Russia. I hope that the final response will be measured and not excessive.

The door for US-Russian negotiations is still open. So far, both sides tried to avoid specific actions that would make these negotiations absolutely impossible. The recent US sanctions against Russia have been mostly symbolic, and the Russian leadership so far has demonstrated no appetite for a rapid further escalation. I think that a meeting between Presidents Joe Biden and Vladimir Putin remains an option and an opportunity. Such a meeting would not lead to any “reset” in the bilateral relations, but it would bring more clarity to the relationship. To stabilize US-Russian relations even at a very low level would already be a major accomplishment.

From our partner RIAC

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Russia becomes member of International Organization for Migration

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Photo credit: Anton Novoderezhlin/TASS

After several negotiations, Russia finally becomes as a full-fledged member of the International Organization for Migration (IOM). It means that Russia has adopted, as a mandatory condition for obtaining membership, the constitution of the organization. It simply implies that by joining this international organization, it has given the country an additional status.

After the collapse of the Soviet, Russia has been interacting with the IOM since 1992 only as an observer. In the past years, Russia has shown interest in expanding this cooperation. The decision to admit Russia to the organization was approved at a Council’s meeting by the majority of votes: 116 states voted for it, and two countries voted against – these are Ukraine and Georgia. That however, the United States and Honduras abstained, according to information obtained from Moscow office of International Migration Organization.

“In line with the resolution of the 111th session of the IOM Council of November 24, 2020 that approved Russia’s application for the IOM membership, Russia becomes a full-fledged member of the organization from the day when this notification is handed over to its director general,” the Russian Foreign Ministry said in a website statement in April.

Adoption of the IOM Constitution is a mandatory condition for obtaining its membership, which opens “extra possibilities for developing constructive cooperation with international community on migration-related matters,” the statement stressed in part.

It is significant to recall that Russian President Vladimir Putin issued an order to secure Russia’s membership in the organization in August 2020 and submitted its Constitution to the Russian State Duma (lower house of parliament) in February 2021.

Headquartered in Geneva, the International Organization for Migration, a leading inter-government organization active in the area of migration, was set up on December 5, 1951. It opened its office in Moscow in 1992.

IOM supports migrants across the world, developing effective responses to the shifting dynamics of migration and, as such, is a key source of advice on migration policy and practice. The organization works in emergency situations, developing the resilience of all people on the move, and particularly those in situations of vulnerability, as well as building capacity within governments to manage all forms and impacts of mobility.

IOM’s stated mission is to promote humane and orderly migration by providing services and advice to governments and migrants. It works to help ensure proper management of migration, to promote international cooperation on migration issues, to assist in the search for practical solutions to migration problems and to provide humanitarian assistance to migrants in need, be they refugees, displaced persons or other uprooted people. It is part of the structured system of the United Nations, and includes over 170 countries.

Senator Vladimir Dzhabarov, first deputy chairman of Russia’s Federation Council (Senate) Committee on International Affairs, noted that the organization’s constitution has a provision saying that it is in a nation’s jurisdiction to decide how many migrants it can receive, therefore the IOM membership imposes no extra commitments on Russia and doesn’t restrict its right to conduct an independent migration policy.

On other hand, Russia’s full-fledged membership in IOM will help it increase its influence on international policy in the sphere of migration and use the country’s potential to promote its interests in this sphere, Senator Dzhabarov explained.

Russia has had an inflow of migrants mainly from the former Soviet republics. The migrants have played exceptional roles both in society and in the economy. The inflow of foreign workers to Russia has be resolved in accordance with real needs of the economy and based on the protection of Russian citizens’ interests in the labor market, according to various expert opinions.

The whole activity of labor migrants has to be conducted in strict compliance with legislation of the Russian Federation and generally recognized international norms.

State Duma Chairman Vyacheslav and Foreign Minister Sergei Lavrov and many state officials have repeatedly explained the necessity of holding of partnership dialogues on finding solutions to emerging problems within the framework of harmonization of legislation in various fields including regional security, migration policy and international cooperation. Besides that, Russia is ready for compliance with international treaties and agreements.

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