Sep. 10, 2008, Russia’s invasion and continued occupation of Georgia was the beginning of a disturbing turn in Russia’s national security and foreign policy. The primary goal of Russian foreign policy is now its reemergence as a super power and control over its former Soviet neighbors. Countries seeking greater ties with the West are in danger of more direct Russian intervention. In particular, the Crimea is Ukraine’s weak spot and may be Russia’s next target.
Perhaps the most urgent question in the world affairs today is whether Russia’s invasion and continuing occupation of Georgia was a singular event. Or was it the onset of a distinct, and profoundly disturbing, national security and foreign policy agenda?
Much as one would like to cling to the former theory, the evidence favors the latter. A European delegation led by French President Nicolas Sarkozy did manage this week to get assurances that Russian troops would withdraw from Georgia (excepting Abkhazia and South Ossetia, whose independence Moscow says is “irrevocable”). But ultimately, this short war is likely to be remembered as the beginning of a decisive shift in Russia’s national priorities. The most compelling of these new priorities today seems to be recovery of the assets lost in the Soviet Union’s collapse in 1991, which Vladimir Putin has called the “greatest geopolitical catastrophe of the 20th century.”
How does Russia achieve this goal? By dominating the domestic politics and, more importantly, economic- and foreign-policy orientation, of the former Soviet republics. Anything considered antithetical to Russia’s interests, as interpreted by the current Kremlin leadership, must be discarded–be it democratization, oil and gas exports that bypass Russia, and, especially, the membership in the Western organizations such as the European Union and NATO. And if, in the process, Russia must sacrifice most or even all of the fruits of the post-Soviet rapprochement with the West–including membership in the G-8, entry to the World Trade Organization or ties to the EU–so be it.
Whatever the operational specifics, the Russian political barometer seems to augur storms ahead.
Russia’s “targets of opportunity” include simmering border disputes (and virtually all Russia’s borders with newly independent states could be disputed, since they are but the very badly demarcated internal borders of the Soviet Union), and the presence of the ethnic Russian or Russian-speaking minorities in neighboring countries.
Apart from Estonia and Latvia–where ethnic Russians constitute over a quarter of the population, but where NATO membership raises the risk for the Kremlin–by far the most likely target is Ukraine. Kiev has repeatedly defied and angered Russia by the domestic politics of democratization, a decidedly pro-Western orientation, and the eagerness of its leadership to join NATO. Nearly one in five Ukraine citizens are ethnically Russian (a total of almost eight million) and live mostly in the country’s northeast, adjacent to the Russian border.
Mr. Putin has made his contempt for Ukrainian sovereignty clear, most notably at the NATO summit in Bucharest last April when, according to numerous reports in the Russian and Ukrainian press, he told President Bush that the Ukraine is “not even a real state,” that much of its territory was “given away” by Russia, and that it would “cease to exist as a state” if it dared join NATO. Clearly, Vice President Cheney’s trip to Ukraine this past weekend, where he expressed America’s “deep commitment” to this “democratic nation” and its “right” to join NATO, was intended as a message to Moscow.
Still, there is no better place to cause a political crisis in Ukraine and force a change in the country’s leadership, already locked in a bitter internecine struggle, than the Crimean peninsula. It was wrestled by Catherine the Great from the Ottoman Turks at the end of the 18th century. Less than a quarter of the Crimeans are ethnic Ukrainians, while Russians make up over half the inhabitants (the pro-Ukrainian Crimean Tatars, one-fifth).
Ever since the 1997 Treaty of Friendship and Cooperation between Russia and Ukraine, signed by President Boris Yeltsin and Ukrainian President Leonid Kuchma, a solid majority of the Russian parliament has opposed the recognition of the Crimea as Ukrainian territory. Russian nationalists have been especially adamant about the city of Sevastopol, the base for Russia’s Black Sea fleet and the site of some of the most spectacular feats of Russian military valor and sacrifice in World War II and the Crimean War of 1854-55.
Nationalist politicians, including Moscow Mayor Yuri Luzhkov, have repeatedly traveled to Crimea to show the flag and support the Russian irredentists–many of them retired Russian military officers who periodically mount raucous demonstrations. In 2006, their protests forced the cancellation of the joint Ukraine-NATO Sea Breeze military exercises. Sevastopol was and should again be a Russian city,” Mr. Luzhkov declared this past May, and the Moscow City Hall has appropriated $34 million for “the support of compatriots abroad” over the next three years. On Sept. 5, Ukraine’s Foreign Minister Vladimir Ogryzko accused the Russian consulate in the Crimean capital of Simferopol of distributing Russian passports to the inhabitants of the peninsula.
With almost three-quarters of Sevastopol’s 340,000 residents ethnically Russian, and 14,000 Russian Navy personnel already “on the inside” (they’ve been known to don civilian clothes and participate in demonstrations by Russian Crimean irredentists), an early morning operation in which the Ukrainian mayor and officials are deposed and arrested and the Russian flag hoisted over the city should not be especially hard to accomplish. Once established, Russian sovereignty over Sevastopol would be impossible to reverse without a large-scale war, which Ukraine will be most reluctant to initiate and its Western supporters would strongly discourage.
A potentially bolder (and likely bloodier) scenario might involve a provocation by the Moscow-funded, and perhaps armed, Russian nationalists (or the Russian special forces, spetznaz, posing as irredentists). They could declare Russian sovereignty over a smaller city (Alushta, Evpatoria, Yalta) or a stretch of inland territory. In response, Ukrainian armed forces based in the Crimea outside Sevastopol would likely counterattack. The ensuing bloodshed would provide Moscow with the interventionist excuse of protecting its compatriots–this time, unlike in South Ossetia, ethnic Russians.
Whatever the operational specifics, the Russian political barometer seems to augur storms ahead. (Wall Street Journal)
