russia’s approach to transatlantic relations

Russia’s Approach to Russia’s Approach to Transatlantic Transatlantic

RelationsRelations

Natalia Zaslavskaya, Ph. D.Natalia Zaslavskaya, Ph. D.European Studies DepartmentEuropean Studies Department

School of International RelationsSchool of International RelationsSaint-Petersburg State UniversitySaint-Petersburg State University

Natalia Zaslavskaya, Russia's Approach to Natalia Zaslavskaya, Russia's Approach to Transatlantic RelationsTransatlantic Relations

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Russia and Transatlantic RelationsRussia and Transatlantic Relations

Transatlantic Relations?Transatlantic Relations?

Russia and NATORussia and NATO

Russia and the United Russia and the United StatesStates


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Former Eastern Bloc states that joined after the Cold War 12 March 1999:• Czech Republic • Hungary • Poland

29 March 2004: They were first invited to start talks of membership during the 2002 Prague Summit, and joined NATO on 29 March 2004 • Bulgaria • Estonia • Latvia • Lithuania • Romania • Slovakia • Slovenia


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The EU Today – 15 Member StatesThe EU Today – 15 Member States BelgiumBelgium DenmarkDenmark GermanyGermany GreeceGreece SpainSpain FranceFrance IrelandIreland ItalyItaly LuxembourgLuxembourg The The

NetherlandsNetherlands AustriaAustria PortugalPortugal FinlandFinland SwedenSweden UKUK


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European Union 2004 – 10 New CountriesEuropean Union 2004 – 10 New Countries

Czech Czech RepublicRepublic

EstoniaEstonia CyprusCyprus LatviaLatvia LithuaniaLithuania HungaryHungary MaltaMalta PolandPoland SloveniaSlovenia SlovakiaSlovakia


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European Union ApplicantsEuropean Union Applicants Potentially Potentially

in 2007in 2007• BulgariaBulgaria• RomaniaRomania

Ever?Ever?• TurkeyTurkey


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칼리닌그라드는 발트해에 접해 있는 러시아연방 491 개 주( 州 ) 중 한 주로 1945 년 포츠담회의에 따라 독일 영토에서 러시아 영토로 편입되었다 . 이 지역은 러시아 본토에서 떨어진 고립 영토다 . 북동쪽 국경은 리투아니아 , 남쪽은 폴란드 서쪽은 발트해에 접해 있다 . 15,100km2 에 인구는 약 100 만명 . 가장 가까운 러시아 본토인 프스코프 시에서 600km 나 떨어져 있다 . 하지만 칼리닌그라드는 러시아의 유일한 발트해 부동항 ( 不凍港 ) 이자 , 러시아와 동유럽을 잇는 항구라는 중요한 역할을 하고 있다 . 폴란드와 리투아니아 사이에서 샌드위치 신세인 칼리닌그라드는 두 나라가 2004 년 유럽연합에 가입하면 유럽연합에 떠 있는 ‘러시아의 섬’이 될 것이다 . 현재 칼리닌그라드 주민들은 폴란드 , 러시아 , 리투아니아 3 국 간 무비자 협정으로 세 나라를 자유롭게 드나들 수 있다 . 그러나 유럽연합은 솅겐조약에 따라 유럽연합 비회원국 국민들이 회원국을 여행할 때 반드시 비자를 받도록 요구하고 있다 .


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Historical BackgroundHistorical Background

Cold War Cold War The Soviet Union and the United States: The Soviet Union and the United States:

ideological rivalsideological rivals Second half of the 40s: extension of Soviet Second half of the 40s: extension of Soviet

political influence to Eastern Europe (creation of political influence to Eastern Europe (creation of communist or coalition governments), events in communist or coalition governments), events in Greece and Turkey Greece and Turkey

Truman doctrine, March 12, 1947: Truman doctrine, March 12, 1947: ””to help free to help free peoples to maintain their free institutions and peoples to maintain their free institutions and their national integrity against aggressive their national integrity against aggressive movements that seek to impose upon them movements that seek to impose upon them totalitarian regimes” totalitarian regimes”

1949: NATO was established1949: NATO was established


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NATO during the Cold War:NATO during the Cold War:””NATO was created to keep America in, Russia out, NATO was created to keep America in, Russia out,

and Germany down”and Germany down” (Lord Ismay) (Lord Ismay)NATO – an instrument NATO – an instrument to keep the US military presence in Europeto keep the US military presence in Europe to to remilitarize Germanyremilitarize Germany to protect Western Europe from the Soviet Union to protect Western Europe from the Soviet Union Warsaw Pact:Warsaw Pact: created in 1955created in 1955 to unite the Soviet allies to unite the Soviet allies


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No relations between the Soviet No relations between the Soviet Union and NATOUnion and NATO

But:But: Relations between the Soviet Union Relations between the Soviet Union

and the United Statesand the United States Bilateral and Multilateral negotiations Bilateral and Multilateral negotiations

on the disamament issues (Don the disamament issues (Déétante)tante)


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End of the Cold WarEnd of the Cold War

Several important changes Several important changes The Warsaw Pact was dissolved The Warsaw Pact was dissolved The Soviet Union collapsedThe Soviet Union collapsed Russia was considered successor of the Russia was considered successor of the

Soviet Union Soviet Union Democratic reforms in Russia Democratic reforms in Russia Transformation of Russia’s relations with Transformation of Russia’s relations with

the ’West’ the ’West’ 1991: Russia established relations with 1991: Russia established relations with

NATONATO


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Russia and NATORussia and NATOMajor stages of relationsMajor stages of relations1.1. Early 90sEarly 90s2.2. Mid 90s – 2001Mid 90s – 20013.3. After Sept. 11, 2001 After Sept. 11, 2001

Representatives from Moscow first took part in meetings at NATO in 1991, as part Representatives from Moscow first took part in meetings at NATO in 1991, as part of the North Atlantic Cooperation Council (NACC) (later renamed the Euro-Atlantic of the North Atlantic Cooperation Council (NACC) (later renamed the Euro-Atlantic Partnership Council), which was created following the end of the Cold War as a Partnership Council), which was created following the end of the Cold War as a forum for consultation to foster a new cooperative relationship with the countries of forum for consultation to foster a new cooperative relationship with the countries of Central and Eastern Europe. It was actually while this meeting was taking place Central and Eastern Europe. It was actually while this meeting was taking place that the Soviet Union dissolved. that the Soviet Union dissolved.

A few years later, in 1994, Russia joined the Partnership for Peace programe – a A few years later, in 1994, Russia joined the Partnership for Peace programe – a major programe of practical security and defence cooperation between NATO and major programe of practical security and defence cooperation between NATO and individual Partner countries. In 1997, the NATO-Russia "Founding Act" individual Partner countries. In 1997, the NATO-Russia "Founding Act" established a NATO-Russia Permanent Joint Council (PJC). The PJC held its last established a NATO-Russia Permanent Joint Council (PJC). The PJC held its last meeting in Reykjavik on May 14, 2002.meeting in Reykjavik on May 14, 2002.


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Russia and NATO in early 90sRussia and NATO in early 90s

Russia was searching for the right strategyRussia was searching for the right strategy

In 1991 – the Russian political elite was divided, In 1991 – the Russian political elite was divided, 2 points of view:2 points of view:

(1) After the End of Cold War, NATO as one of (1) After the End of Cold War, NATO as one of the elements of the Cold War system should the elements of the Cold War system should be dissolved be dissolved

(2) NATO could enlarge and become a pan-(2) NATO could enlarge and become a pan-European security organization and then European security organization and then Russia could also join itRussia could also join it


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Russia and NATO in early 90s Russia and NATO in early 90s

NATO survived the end of the NATO survived the end of the Cold War and became a major Cold War and became a major security organization in Europesecurity organization in Europe

In 1992 – Yeltsin mentioned that In 1992 – Yeltsin mentioned that the Russian government had the Russian government had considered NATO’s membership considered NATO’s membership as a long-term objectiveas a long-term objective

But the NATO leaders But the NATO leaders demonstrated cautious reaction demonstrated cautious reaction


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NATO and Russia in mid 90s - 2001NATO and Russia in mid 90s - 2001

Deterioration between Russia and NATODeterioration between Russia and NATOMajor problems:Major problems: NATO enlargementNATO enlargement Kosovo crisisKosovo crisisBut: But: Steps forwardSteps forward 1994 – Russia joined PfP programme1994 – Russia joined PfP programme 1996 - Cooperation in Bosnia and 1996 - Cooperation in Bosnia and Herzegovina Herzegovina 1997 – NATO-Russia Founding Act on Mutual 1997 – NATO-Russia Founding Act on Mutual

Relations, Cooperation and SecurityRelations, Cooperation and Security


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In 1994, Russia joined the Partnership for Peace programe. In 1994, Russia joined the Partnership for Peace programe. The Partnership for Peace (PfP) programme was established in 1994 and is based on individual bilateral relations between each partner country and NATO: each country may choose the extent of its participation.

In 1996, Russian peacekeepers deployed to Bosnia and Herzegovina to serve alongside Allied counterparts in the NATO-led peacekeeping force.

On 27 May 1997, in Paris, the NATO-Russia Founding Act on Mutual Relations, Cooperation and Security was signed, providing the formal basis for NATO-Russia relations. It expressed the common goal of building a lasting and inclusive peace in the Euro-Atlantic area and set up the Permanent Joint Council (PJC) as a forum for regular consultation on security issues of common concern, aimed at helping build mutual confidence through dialogue.

In early 1999, differences over NATO's air campaign to end political and ethnic repression in the Yugoslav province of Kosovo led Russia to suspend its participation in the PJC. Nevertheless, several activities continued without interruption, including peacekeeping in Bosnia and Herzegovina. Moreover, Russia played a key diplomatic role in resolving the Kosovo crisis and, in June, when the Kosovo Force was eventually deployed, Russian peacekeepers were a part of it.

in 2000, upon his election as President of Russia, Vladimir Putin announced that he would work to rebuild relations with NATO in a spirit of pragmatism.


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The terrorist attacks on the United States of 11 September 2001 served as a stark reminder that concerted international action was needed to effectively tackle terrorism and other new security threats. In the immediate aftermath of the terrorist attacks, Russia opened its airspace for the international coalition’s campaign in Afghanistan and shared intelligence to support the anti-terrorist coalition.

High-level contacts between NATO and Russia in the following months, including two meetings of Lord Robertson with President Putin and a meeting of Allied and Russian foreign ministers in December 2001, explored possibilities to give new impetus and substance to the NATO-Russia relationship. Intensive negotiations led to agreement on a joint declaration on “NATO-Russia Relations: A New Quality”, signed by Russian and Allied heads of state and government in Rome on 28 May 2002, which established the NATO-Russia Council.


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US and the NATO-Russia relationsUS and the NATO-Russia relations

1993-1994 – transformation of Russia’s 1993-1994 – transformation of Russia’s perception of the United Statesperception of the United States

Now the US was viewed as the main Now the US was viewed as the main competitor for power and influence both competitor for power and influence both globally and in Europeglobally and in Europe

Russia’s concern about the growing trend Russia’s concern about the growing trend towards the establishment of a unipolar towards the establishment of a unipolar world structureworld structure


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US and the NATO-Russia relationsUS and the NATO-Russia relations

→ → Russia started considering the US as a Russia started considering the US as a challenge challenge

→ → One of the Foreign Policy’s objectives: One of the Foreign Policy’s objectives: need to establish a multipolar world need to establish a multipolar world

→→Policy on prevention of extension of US Policy on prevention of extension of US influence in Europe = influence in Europe = NATO NATO enlargementenlargement


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Similar attitudes applied to NATOSimilar attitudes applied to NATO

The Alliance was seen as an opponentThe Alliance was seen as an opponent NATO was remembered as a Cold War NATO was remembered as a Cold War

enemyenemy It was regarded as the main instrument of It was regarded as the main instrument of

American influence and power in EuropeAmerican influence and power in Europe It was seen as a foundation for continuing It was seen as a foundation for continuing

American military presence in EuropeAmerican military presence in EuropeSo: NATO as such was not considered a So: NATO as such was not considered a

threat but because of strong American threat but because of strong American influence in this organization influence in this organization


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Foreign policyForeign policy objectives objectives

To prevent NATO enlargement To prevent NATO enlargement To prevent use of force by NATO To prevent use of force by NATO

without UN security Council without UN security Council resolutionsresolutions

To undertake an attempt to To undertake an attempt to organize a competing military blockorganize a competing military block

These objectives and the whole policy These objectives and the whole policy was not realistic → eventually failedwas not realistic → eventually failed


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NATO enlargement problemNATO enlargement problem There’s no obvious reason for NATO There’s no obvious reason for NATO

enlargement. Considering the high level of enlargement. Considering the high level of expenditures, the NATO countries should expenditures, the NATO countries should have some important reason to launch the have some important reason to launch the enlargement processenlargement process

This enlargement would undermine This enlargement would undermine Russia’s security because it seems that it Russia’s security because it seems that it was targeted against Russiawas targeted against Russia

During the negotiations on the German During the negotiations on the German reunification, the western leader promised reunification, the western leader promised Gorbachev that NATO was not going to Gorbachev that NATO was not going to move eastwardsmove eastwards


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Kosovo crisis (1999)Kosovo crisis (1999)

Russia demonstrated tough anti-Russia demonstrated tough anti-NATO positionNATO position

Major point of contradiction: use Major point of contradiction: use of force without a UN Security of force without a UN Security Council mandateCouncil mandate

This policy failed: it undermined This policy failed: it undermined Russia’s international influence; Russia’s international influence; Russia found herself semi-Russia found herself semi-isolated on the international isolated on the international arenaarena


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Russia and NATO in mid 90sRussia and NATO in mid 90s

Still some progress in Still some progress in NATO-Russian relations:NATO-Russian relations:

In 1994 Russia joined the Partnership for In 1994 Russia joined the Partnership for Peace Peace

But it stayed away from the majority of But it stayed away from the majority of its activities its activities

A good opportunity to create normal A good opportunity to create normal relations between Russia and NATO was relations between Russia and NATO was missedmissed


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Russia and NATO in late 90sRussia and NATO in late 90sIn 1997 – Russia and NATO signed In 1997 – Russia and NATO signed “Founding “Founding

Act on Mutual Relations, Cooperation and Act on Mutual Relations, Cooperation and Security between NATO and the Russian Security between NATO and the Russian Federation”Federation”

It created mechanism for cooperation It created mechanism for cooperation between Russia and NATO (between Russia and NATO (Permanent Permanent Joint CouncilJoint Council), ),

But: Russia had to agree to the eastern But: Russia had to agree to the eastern enlargementenlargement

Yeltsin’s policy of tough resistance to Yeltsin’s policy of tough resistance to NATO enlargement failedNATO enlargement failed

1999 – Poland, Hungary and the Czech 1999 – Poland, Hungary and the Czech Republic joined NATORepublic joined NATO


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NATO-Russia Permanent Joint CouncilNATO-Russia Permanent Joint Council (PJC) (PJC) It was a forum for regular consultation on common It was a forum for regular consultation on common

security issues (peace-keeping, terrorism, nuclear security issues (peace-keeping, terrorism, nuclear proliferation)proliferation)

But: the positions on all issues among the 19 Allies But: the positions on all issues among the 19 Allies were pre-coordinated before discussions with were pre-coordinated before discussions with RussiaRussia

Different interpretation of certain provisions of the Different interpretation of certain provisions of the Founding Act:Founding Act:In Russia it was widely perceived that Founding In Russia it was widely perceived that Founding Act allows NATO to undertake non-article 5 Act allows NATO to undertake non-article 5 missions only when authorized by UN Security missions only when authorized by UN Security Council (where Russia has veto rights) → painful Council (where Russia has veto rights) → painful reaction of Russian political elite to Alliance’s reaction of Russian political elite to Alliance’s Strategic concept of 1999 and bombing of Strategic concept of 1999 and bombing of YugoslaviaYugoslavia


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NATO and Russia had positive experience of NATO and Russia had positive experience of joint actionsjoint actions

Peacekeeping in the BalkansPeacekeeping in the Balkans In 1996 Russian peacekeepers were In 1996 Russian peacekeepers were

deployed to Bosnia and Herzegovina deployed to Bosnia and Herzegovina Russia contributed the largest non-Russia contributed the largest non-

NATO contingent to the UN-mandated, NATO contingent to the UN-mandated, NATO-led peacekeeping forces NATO-led peacekeeping forces

Close cooperation between NATO and Close cooperation between NATO and Russia in the Balkans has been critical Russia in the Balkans has been critical in improving relations and trust in improving relations and trust building between the Russian and building between the Russian and Allied militariesAllied militaries


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Putin and his approach to NATO’s Putin and his approach to NATO’s new enlargementnew enlargement

During the debate over the new During the debate over the new enlargement, it became clear that Russia enlargement, it became clear that Russia would not be able to prevent it would not be able to prevent it

The major Russia’s concern:The major Russia’s concern: Possible NATO membership of the Baltic Possible NATO membership of the Baltic

States (ex-soviet republics, close to States (ex-soviet republics, close to St.Petersburg, Kaliningrad problem)St.Petersburg, Kaliningrad problem)

The decision about the next enlargement The decision about the next enlargement was postponed till November 2002was postponed till November 2002


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Sept. 11, 2001Sept. 11, 2001 But Sept. 11, 2001 – radical But Sept. 11, 2001 – radical

improvement of the relations improvement of the relations between Russia and the United between Russia and the United StatesStates

Cooperation in the War Against Cooperation in the War Against TerrorismTerrorism

Cooperation in the framework of Cooperation in the framework of NATONATO

Improved relations with NATOImproved relations with NATO


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Improvement of NATO-Russia relationsImprovement of NATO-Russia relations

Tony Blaire: started discussion on the Tony Blaire: started discussion on the ways how Russia could be involved ways how Russia could be involved into NATO activitiesinto NATO activities

2 alternatives:2 alternatives:• Russia’s membership in NATO Russia’s membership in NATO • Creation of new structure that would Creation of new structure that would

include both NATO and Russia include both NATO and Russia


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The Rome summitThe Rome summit

May 2002May 2002 Declaration on ”NATO-Russia Declaration on ”NATO-Russia

Relations: a New Quality”Relations: a New Quality” NATO-Russia Council (NRC) instead NATO-Russia Council (NRC) instead

of Permanent Joint Council of Permanent Joint Council


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The Prague summitThe Prague summitPresident President PutinPutin did did

not attend the not attend the Prague summit in Prague summit in order to avoid order to avoid appearing to appearing to welcome NATO's welcome NATO's invitation to ex-invitation to ex-Soviet states Soviet states Lithuania, Estonia Lithuania, Estonia and Latvia.and Latvia.


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The Prague summitThe Prague summit

Russian positionRussian position No need for NATO expansion. No need for NATO expansion.

President President PutinPutin (24 June 2002): (24 June 2002): • ““We do not think that NATO enlargement improves We do not think that NATO enlargement improves

somebody’s security neither of the countries joining somebody’s security neither of the countries joining NATO nor of the organization itself” NATO nor of the organization itself”

Igor Igor IvanovIvanov (Minister of Foreign Affairs): (Minister of Foreign Affairs): • Russia is against the "mechanical expansion" of NATORussia is against the "mechanical expansion" of NATO

But this time Russia was not going to risk her But this time Russia was not going to risk her relations with NATO and its Member States in relations with NATO and its Member States in attempt to prevent enlargementattempt to prevent enlargement


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Russia’s reaction to the second wave of Russia’s reaction to the second wave of the eastern enlargementthe eastern enlargement

was determined by several factors:was determined by several factors:1.1. Russia was interested in cooperation with Russia was interested in cooperation with

NATONATO2.2. The security situation had been changing The security situation had been changing

and major external threats to the Russian and major external threats to the Russian security were coming not from the West security were coming not from the West but from the Southbut from the South

3.3. Rome Declaration and establishment of Rome Declaration and establishment of NATO-Russia Council provided a NATO-Russia Council provided a framework for further cooperation framework for further cooperation between NATO and Russiabetween NATO and Russia


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NATO Expansion:

A number of other countries have also expressed a wish to join the alliance, including Albania, the former Yugoslav Republic of Macedonia, Georgia and Croatia.

Georgia (currently implementing IPAP). On 21 September 2006, NATO members voted to admit Georgia into the process of "Intensified Dialogue", which is the first step into the membership of NATO.


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Ukraine:NATO-Ukraine relations date back to 1991, when Ukraine joined the North Atlantic Cooperation Council in 1991 (later renamed the Euro-Atlantic Partnership Council), immediately upon achieving independence with the break-up of the Soviet Union. A few years later, in 1994, Ukraine became the first of the Commonwealth of Independent States to join the Partnership for Peace (PfP)

The formal basis for NATO-Ukraine relations is provided by the 1997 NATO-Ukraine Charter on a Distinctive Partnership. The Charter identified areas for consultation and cooperation and established the NATO-Ukraine Commission (NUC) to take work forward. Steps were taken to deepen and broaden the NATO-Ukraine relationship in November 2002 with the adoption of the NATO-Ukraine Action Plan. The launch of the Intensified Dialogue in April 2005 marks a milestone in NATO-Ukraine relations. It is a clear signal that NATO Allies support Ukraines integration aspirations. A final decision concerning Ukraine's membership in NATO is expected to be made in 2008, with full membership possible by 2010.

Currently a majority of Ukrainian citizens oppose NATO membership. Protests have taken place by opposition blocs against the idea, and petitions signed urging the end of relations with NATO. Prime Minister Yuriy Yekhanurov has indicated Ukraine will not enter NATO as long as the public continues opposing the move. Plans for membership were shelved on 14 September 2006 due to the overwhelming disapproval of NATO membership.


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Currently IPAPs are in implementation with the following countries:

• Georgia (19 May 2006) • Azerbaijan (27 May 2005) • Armenia (16 December 2005) • Kazakhstan (31 January 2006) • Moldova (19 May 2006)

•Launched at the November 2002 Prague Summit, Individual Partnership Action Plans (IPAPs) are open to countries that have the political will and ability to deepen their relationship with NATO.


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Russia and NATO todayRussia and NATO today

NATO-Russia Council (NRC): President Bush and the other NATO Heads of NATO-Russia Council (NRC): President Bush and the other NATO Heads of State and Government have agreed with Russian President Putin to establish State and Government have agreed with Russian President Putin to establish the NATO-Russia Council (NRC).the NATO-Russia Council (NRC).

The NRC, established at the NATO-Russia Summit in Rome on 28 May 2002, The NRC, established at the NATO-Russia Summit in Rome on 28 May 2002, replaced the Permanent Joint Council (PJC), a forum for consultation and replaced the Permanent Joint Council (PJC), a forum for consultation and cooperation created by the 1997 NATO-Russia Founding Act on Mutual cooperation created by the 1997 NATO-Russia Founding Act on Mutual Relations, Cooperation and Security, which remains the formal basis for Relations, Cooperation and Security, which remains the formal basis for NATO-Russia relations. The spirit of meetings has dramatically changed NATO-Russia relations. The spirit of meetings has dramatically changed under the NRC, in which Russia and NATO member states meet as equals “at under the NRC, in which Russia and NATO member states meet as equals “at 27” – instead of in the bilateral “NATO+1” format under the PJC.27” – instead of in the bilateral “NATO+1” format under the PJC.

The decision to establish the NRC was taken in the wake of the September The decision to establish the NRC was taken in the wake of the September 2001 terrorist attacks, which reinforced the need for coordinated action to 2001 terrorist attacks, which reinforced the need for coordinated action to respond to common threats. It signaled the determination to give the NATO-respond to common threats. It signaled the determination to give the NATO-Russia partnership new impetus and substance, and demonstrated the Russia partnership new impetus and substance, and demonstrated the shared resolve of NATO member states and Russia to work more closely shared resolve of NATO member states and Russia to work more closely together towards the common goal :Assessment of the terrorist threattogether towards the common goal :Assessment of the terrorist threat , Non-proliferation , Arms Control and Confidence-Building Measures, Search and Rescue at Sea , Military-to-Military Cooperation, Civil Emergencies .


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Russia and NATO todayRussia and NATO today NATO-Russia Council NATO-Russia Council

• 27 Member States27 Member States• Chaired by NATO Chaired by NATO

Secretary GeneralSecretary General• Levels: Levels:

summits, summits, ministerial meetings, ministerial meetings, meetings of ambassadors meetings of ambassadors

and military and military representativesrepresentatives

Russia’s representation at Russia’s representation at NATONATO• Diplomatic mission to Diplomatic mission to

NATONATO• Military Branch Offices Military Branch Offices

Major areas for Major areas for cooperationcooperation• Combating terrorismCombating terrorism• Non-proliferationNon-proliferation• Theatre missile defenceTheatre missile defence• Airspace ManagementAirspace Management• Crisis managementCrisis management• Military-to-military Military-to-military

cooperationcooperation

russia’s approach to transatlantic relations

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