Here are a few subjects dealt with in today's newspapers that
warrant attention.
The following are some random, although global, thoughts
flowing from the news of the past week.
ITEM 8: John
Elliott and Igor Khrestin: Russia and the Middle East
Middle East Quarterly
Winter 2007
Russia and the Middle East
By John Elliott and Igor Khrestin
Igor Khrestin is a research assistant at AEI.
John Elliott is a research associate at the Council on Foreign
Relations.
[DJ: Footnotes not here. Can be found at:
http://www.meforum.org/article/1632]
Where does Moscow stand in the fight against
Islamism and the global war against terror?
Facing the Chechen threat at home, the Russian
government might be sympathetic to U.S. and even
Israeli concerns. Not so. Despite U.S.
declarations that Washington and Moscow were
"increasingly united by common values" and that
Russia was "a partner in the war on terror,"[1]
examination of Russian president Vladimir Putin's
policy toward the Middle East suggests that
Moscow has become an impediment both to the fight
against Islamist terror and Washington's desire
to promote democracy in the Middle East. The 2006
U.S. National Security Strategy reinforces that
U.S. policymakers should not only "encourage
Russia to respect the values of freedom and
democracy at home" but also cease "imped[ing] the
cause of freedom and democracy" in regions vital
to the war on terror.[2] While Russian officials
denounce U.S. criticism, the Kremlin's coddling
of Iranian hard-liners, its reaction to the
"cartoon jihad," its invitation to Hamas to
Moscow, and its flawed Chechen policy all cast doubt on Moscow's
motivations.
While President Bill Clinton had focused his
Middle East policy on Israeli-Palestinian peace
talks, his strategy toward the broader Middle
East was more detached.[3] He was content to
pursue dual containment toward Iraq and Iran and
follow a status quo policy toward North Africa
and the Arabian Peninsula. The 9-11 terrorist
attacks focused U.S. foreign policy on the Middle
East. President George W. Bush asserted that the
region "must be a focus of American policy for
decades to come" and declared a "forward strategy
of freedom in the Middle East."[4] Putin, too,
made the Middle East an area of increasing focus.
But in contrast to his rhetoric of
cooperation--he was the first foreign leader to
call Bush on 9-11--he has pursued a contradictory
strategy to bolster Russian influence at U.S. expense.
The Chechen Lens
Nothing shapes Putin's thinking about terrorism
and the Middle East more than Chechnya. While
Islamist terrorism threatens U.S. security, the
Chechen conflict threatens both Russian security
and its territorial integrity. The conflict in
Russia's Chechnya province has claimed over one
hundred thousand lives since President Boris
Yeltsin ordered the Russian military into
Chechnya in 1994.[5] After the 1996 cease-fire,
Chechnya dissolved into anarchy, becoming the
"Somalia of the Caucasus."[6] Foreign jihadists
infiltrated the Chechen leadership.[7] In 1999,
Vladimir Putin, newly-appointed prime minister,
ordered Russian troops to reassert order. His
tough stance catapulted him into political
prominence and, eventually, the presidency.
Putin and Bush initially cooperated in the war
against the Taliban. The Russian leader complied
with U.S. requests to build bases in Uzbekistan
and Kyrgyzstan for use in the war against the
Afghan Islamists. In April 2002, U.S. and Russian
militaries cooperated to dislodge terror groups
from Georgia's Pankisi Gorge.[8] The following
month, the two leaders declared, "We are
partners, and we will cooperate to advance
stability, security, and economic integration,
and to jointly counter global challenges and to
help resolve regional conflicts."[9]
Putin's domestic war on terrorism enjoyed only
limited success. Russian security forces did
impose some order in Chechnya, but the Kremlin
was unable to stem Chechen and Islamist terrorism
on Russian soil. In 2002, 120 died in a rescue
attempt after Chechen rebels took 800 people
hostage in a Moscow theater. Two years later,
several hundred children died after terrorists
seized a school in Beslan. Even after the
subsequent crackdown, Russian forces have not
been able to stop Chechen Islamist raids into
neighboring provinces as they seek to build an
"Islamic Republic of the North Caucasus."[10]
Terrorists continue to take advantage of endemic
Russian corruption.[11] An independent Russian
daily observed that "a police officer or soldier
is killed in the Caucasus practically every day";
a senior military official admitted that the
situation in Chechnya is "far from ideal."[12]
Faced with only marginal gains at home, Putin
changed tack. Rather than continue cooperation
with Washington on the broader war on terror, he
sought to cut a deal. In 2003, he asked to join
the Organization of Islamic Conference (OIC),
even though with only 20 million Muslims--about
15 percent of the population--Russia lacked the
required 50 percent minimum Muslim
population.[13] While the OIC did not grant
Russia full membership, it did grant Moscow
observer status.[14] The relationship was
symbiotic: the OIC saw Moscow as a patron that
could offset U.S. pressure while Moscow received
de facto immunity from criticism of Russian
policy in Chechnya as a result of OIC reluctance
to interfere in the internal affairs of
member-states, even honorary ones.[15] Putin
further outlined his vision of alliance with the
Islamic world when, addressing the newly-elected
Chechen parliament in December 2005, Putin called
Russia "a faithful, reliable, and dedicated
promoter . . . of the interests of the Islamic
world" and "its best and most reliable partner and friend."[16]
Arming Iran
The desire both to cut a deal and stymie
Washington also explains Moscow's policy toward
Tehran. Russian and Iranian interests are
historically divergent. The two countries fought
intermittently throughout the nineteenth century,
and Soviet leaders supported separatist movements
in Iran in the twentieth century.[17] Their
perceived spheres of influence overlap in the
Caucasus and the Caspian. The 1979 Islamic
Revolution may have torn Iran away from alliance
with the United States, but it did not bring
Tehran and Moscow any closer. Revolutionary
leader Ayatollah Ruhollah Khomeini considered the
Soviet Union to be "godless" and purged leftists
from the revolutionary coalition.[18]
But a February 1989 visit by Soviet foreign
minister Eduard Shevardnadze and a reciprocal
visit to Moscow by then-Majlis speaker Ali Akbar
Hashemi Rafsanjani four months later cemented a
détente. Relations expanded with Moscow after the
Soviet Union's collapse. On August 25, 1992,
Tehran and Moscow signed an US$800 million deal
for Russian companies to build two nuclear
reactors at Bushehr.[19] While this contract
predates Putin's presidency, the Russian leader
turned a blind eye to signs that the Iranian
program was not entirely civilian. Five years
after Rafsanjani threatened to use nuclear
weapons against Israel,[20] and despite an
International Atomic Energy Agency finding that
Iran was in noncompliance with the nuclear
nonproliferation treaty's safeguards
agreement,[21] Russian foreign minister Sergei
Lavrov insists that the Iranian program "is
conducted fully in accordance with international norms."[22]
So what explains Russian behavior? Maintaining
nuclear trade with Tehran enabled Putin to cement
a tacit agreement in which Iran declines to
interfere in Chechnya and other Islamist causes
which threaten Russia. Winning Iranian
acquiescence is especially important given its
proximity to Russia's troubled south. In
exchange, the Kremlin shields the Iranian
government from Western pressure. Russian
unwillingness to accept sanctions against Iran
for its nuclear noncompliance has vexed
Washington,[23] as has Moscow's refusal to force
an Iranian reaction to the May 2006 European
Union and U.S. package of incentives.[24]
Any Middle Eastern government which seeks
Moscow's support understands it must either side
with the Russian struggle against Chechen
separatists or, at a minimum, agree not to
meddle. With the end of the Cold War, the Israeli
government has sought to better its relations
with Moscow. Since 1999, Israeli intelligence has
shared information with their Russian
counterparts and has assisted Russian forces in
training and border security. Israeli officials
have likened the Chechen separatists to
Palestinian terrorists.[25] Damascus, too, has
assisted Russia diplomatically. In September
2005, Syrian president Bashar al-Assad welcomed
the pro-Moscow president of Chechnya, Alu
Alkhanov, to Damascus, granting the embattled
Chechen leader some international legitimacy.[26]
The commercial factor is also a bonus. The
Russian government has secured lucrative
contracts with several states that Washington
considers pariahs. In December 2005, the Iranian
government signed a billion dollar arms deal that
included twenty-nine Tor M1 missile defense
systems to protect the Bushehr nuclear
facility.[27] The Russian government has also
sold Strelets missiles to Syria.[28] Putin halted
sales of even more sophisticated weaponry only
after vigorous U.S. and Israeli protest.[29] That
Iran is also oil-rich is added incentive; Russia
has $750 million invested in energy projects
there.[30] The Russian oil firm Lukoil seeks to
move 23 percent of production to the Middle East by 2015.[31]
Russia's Cartoon Jihad
Bush characterizes the U.S. fight as a "war with
Islamic fascists."[32] Putin, too, has cracked
down on Islamist terror in Russia. But what works
at home is not necessarily what Putin embraces
for those outside Russia. On February 4, 2006,
protests erupted in many Muslim countries against
cartoons depicting the Prophet Muhammad, which
had been published months before in the Danish
daily Jyllands-Posten. In Lebanon and Syria, mobs
sacked the Danish embassy and, in Libya, they
attacked an Italian consulate. But rather than
stand up for free speech--as did many outside the
Middle East--the Russian government sided with the Islamists.
Konstantin Kosachev, chairman of the Duma's
(parliament) International Affairs Committee,
chided the Danish government for allowing such
cartoons to be published. "The [Danish] prime
minister washed his hands of the whole matter,
with the usual comments, chapter and verse, about
freedom of speech," Kosachev said, before chiding
the Danes for citing the right of free speech as
reason not to crack down on "anti-Russian
hysteria over Chechnya in Denmark"[33] a few
years earlier. Then, three days after the mass
protests erupted, Putin said, "One should reflect
100 times before publishing or drawing something
. . . If a state cannot prevent such
publications, it should at least ask for forgiveness."[34]
To drive home the point, on February 17, Andrei
Dorinin, acting mayor of the southern Russian
city of Volgograd, shut down the local paper
Gorodskie Vesti, after it printed a cartoon
depicting the Prophet Muhammad along with Jesus,
Moses, and Buddha.[35] The government also
charged Anna Smirnova, editor of Nash Region in
Vologda, with "inciting racial hatred"--an
offense punishable by up to five years in prison,
according to article 282 of the Russian criminal
code--after her paper republished the original
Jyllands-Posten cartoons. She was fined 100,000
rubles (about US$3,700). The paper's owners,
citing concerns over the "safety of the
journalists," shut down the newspaper.[36]
What makes the Russian government's actions
curious is that they initiated the crackdown
absent any significant public outcry, let alone
riots, against the cartoons. According to a
nationwide poll conducted by the Levada Center,
only 14 percent of respondents were "outraged" by
the Prophet Muhammad cartoons; the plurality
simply did not care.[37] The reactions of
Russia's religious leaders were likewise muted.
Mufti Talgat Tadzhuddin, head of the Central
Muslim Spiritual Directorate, noted that "in a
cultured society, it is necessary that there be cultured people."[38]
While local politics played a part in the
crackdowns,[39] the general Kremlin reaction
showed that the fight against Islamism was
relative. While Putin will neither tolerate
terrorism nor the ideology behind it at home, he
will at times justify that same extremism abroad
if it wins Moscow points in the Islamic world,
prolongs the tacit agreement against Islamic
countries' interference in Chechnya, and
undercuts the general U.S. and European
diplomatic position in the Middle East. Andrei
Serenko, an expert at the Fund for Development
for Information Policy, explained, "To prove
Vladimir Putin's thesis that ‘a strong Russia is
a defender of Muslims,' [the Kremlin] can sacrifice a regional
newspaper."[40]
Hamas Tours Moscow
Perhaps nothing underlined the relativity of
Moscow's fight against terror as much as the
Kremlin's 2006 invitation to Moscow of a Hamas
delegation. In February 2006, Putin announced,
‘‘We are willing in the near future to invite the
authorities of Hamas to Moscow to carry out
talks."[41] The State Department reacted
cautiously. Spokesman Sean McCormack warned that
"as a member of the Quartet, we would certainly
expect that Russia would deliver that same
message" to Hamas, namely to renounce violence,
recognize Israel, and respect previous
Palestinian and international agreements.[42]
While Moscow had long supported the Palestine
Liberation Organization and lobbied for the
creation of the Palestinian state, Putin's
outreach to Hamas broke with tradition. Mikhail
Margelov, the chairman of the international
relations committee of the Federation Council,
Russia's upper house, had praised the Israeli
assassination of Hamas spiritual leader Sheikh
Ahmad Yasin.[43] When a Hamas suicide bomber
killed seventeen people in Beersheba in August
2004, the Russian Foreign Ministry issued a
statement condemning "the new barbarous foray by
the extremists," and declaring, "We are convinced
that no political or other purposes can be
reached by means of violence and terror."[44]
Hamas leaders seized the opportunity proffered by
Putin. Hamas spokesman Sami Abu Zuhri said, "We
salute the Russian position and . . . accept it
with the aim of strengthening our relations with
the West and particularly with the Russian
government."[45] The Hamas delegation met with
Lavrov, toured the capital with the leaders of
Russia's Muslim community, and had an audience
with the patriarch of the Russian Orthodox
Church.[46] The Russian government's engagement
with Hamas did not lead the group to abandon
terrorism.[47] One Russian journalist concluded,
"Moscow invited the Palestinians just to invite
them, and Hamas came just to come."[48]
The Russian press was less forgiving than the
Kremlin. In the press conference, an Izvestiya
reporter asked Hamas delegation leader Khalid
Mashaal to comment on his June 2000 pronouncement
that children should be trained as suicide
bombers. The Hamas leader defended his comment.
"We have our own symbols, our own examples to
imitate. And we are proud of this,"[49] he told
the assembled press. So what did Putin's outreach
achieve? Again, Chechnya played front and center
in his strategy: Hamas promised not to meddle in the North Caucasus.[50]
What does the Hamas visit signal for
Russian-Israeli relations? Under Putin, ties
between Moscow and Jerusalem initially blossomed.
The Russian president appreciated Jerusalem's
no-nonsense approach to terrorism, as well as its
technical assistance with regard to Chechnya.
That one million Israelis speak Russian
facilitates business. Economic relations between
Moscow and Jerusalem thrived; hundreds of Israeli
businesses operate in Russia.[51] Russian
business leaders look to fill Israel's growing
energy needs.[52] Today, direct trade between the
two states is valued at approximately $1.5
billion.[53] In April 2006, the Russian
government launched an Israeli satellite capable
of spying on the Iranian nuclear program.[54] But
while some writers once celebrated Putin's new
approach,[55] the enabling of Iran's nuclear
program and the invitation to Hamas suggest that
optimism regarding Russia's president is
premature. While the Russian government is
willing to criticize its Iranian and Arab clients to placate the
West, it seldom translates harsh words into
action. The Russian Foreign Ministry's
contradictory statements[56] following the July
12, 2006 Israeli incursion into southern Lebanon
seemed designed to obfuscate rather than stake
out a clear position against terror. The Russian
government may appreciate the fruits of economic
relations with Israel, but when it comes to
standing on principle against terror, Putin draws
a line. Russia does not consider Hamas or
Hezbollah to be terrorist groups; to stand too
much with Israel against terror might mean
undercutting Putin's Faustian bargain with Islamists over Chechnya.
Conclusions
The post-9-11 U.S.-Russian honeymoon did not
last. While some tension resulted from Putin's
growing authoritarianism,[57] more responsible
was Putin's decision to place Russia squarely in
opposition to Washington's desire to contain
Iranian nuclear ambitions, delegitimize terrorism, and promote
democracy.
That Washington and Moscow diverge on the Middle
East should not surprise. A June 2000 foreign
policy concept paper approved by Putin defines
Moscow's priorities in the Middle East "to
restore and strengthen its position, particularly
economic ones."[58] Putin has pursued this
strategic pragmatism even when it puts Moscow in
the position of arming Iran and Syria while
strengthening economic relations with Israel.
How wise is Putin's policy? Not all Russian
analysts are convinced it will further Moscow's
interests. Dmitri Suslov, an expert with Moscow's
Council on Foreign and Defense Policy, explained,
"[T]here is a big risk here, that by providing
greater legitimacy for Islamists, Russia could
invite greater instability in the Middle East and
at home."[59] Prominent Russian columnist Yulia
Latynina argued that "by holding talks with rogue
states, Russia comes perilously close to being
perceived as a rogue state in its own right."[60]
Nor is success assured for Putin's gamble that he
can appease external Islamists to win space for
Russian actions in Chechnya. In June 2006,
Islamists in Iraq kidnapped and murdered four
Russian diplomats--including one Muslim. They
issued a tape declaring, "God's verdict has been
carried out on the Russian diplomats … in revenge
for the torture, killing, and expulsion of our
brothers and sisters by the infidel Russian
government." [61] Simply put, Putin may subscribe
to Realpolitik, but Islamic extremists are not well-versed in its
intricacies.
So, what to do? Read my recent offerings in this section on
the subject. I have neither heard nor read a better
game plan. Why? Here's why. We say that the conflict
in Iraq must finally be resolved by means of the political
process. But whose political process? It should be the
process of the Iraqi people, including civil war if necessary if they
so choose despite our efforts...not the process of the American people,
which is now controlling the show. In this regard we are back to
Viet Nam, a war that did not involve our vital interests but where
domestic politics controlled. This time our vital interests (ie.
anti-terrorism and oil) are deeply involved. We Americans should
be united on this one, if only the isolationists, the wishful thinkers,
the selfish and the cynical would only get out of the way. At
least the liberal media should definitely know better and lead the way
forward...instead of leading the retreat.