Third, it can act along its periphery. In 2008, Russia announced its power with authority by invading Georgia. This changed calculations in Kiev and other capitals in the region by reminding them of two realities. First, Russian power is near. Second, the Europeans have no power, and the Americans are far away. There are three major points where the Russians could apply pressure: the Caucasus countries, Moldova and the Baltics. By using large Russian minority populations within NATO countries, the Russians might be able to create unrest there, driving home the limits of NATO's power.
Fourth, it can offer incentives in Eastern and Central Europe. Eastern and Central European countries, from Poland to Bulgaria, are increasingly aware that they may have to hedge their bets on Europe and the West. The European economic crisis now affects politico-military relations. The sheer fragmentation of European nations makes a coherent response beyond proclamations impossible. Massive cuts in military spending remove most military options. The Central Europeans feel economically and strategically uneasy, particularly as the European crisis is making the European Union's largest political powers focus on the problems of the eurozone, of which most of these countries are not members. The Russians have been conducting what we call commercial imperialism, particularly south of Poland, entering into business dealings that have increased their influence and solved some economic problems. The Russians have sufficient financial reserves to neutralize Central European countries.
Last, it can bring pressure to bear on the United States by creating problems in critical areas. An obvious place is Iran. In recent weeks, the Russians have offered to build two new, non-military reactors for the Iranians. Quietly providing technological support for military nuclear programs could cause the Iranians to end negotiations with the United States and would certainly be detected by U.S. intelligence. The United States has invested a great deal of effort and political capital in its relations with the Iranians. The Russians are in a position to damage them, especially as the Iranians are looking for leverage in their talks with Washington. In more extreme and unlikely examples, the Russians might offer help to Venezuela's weakening regime. There are places that Russia can hurt the United States, and it is now in a position where it will take risks -- as with Iran's nuclear program -- that it would not have taken before.
The European and American strategy to control the Russians has been to threaten sanctions. The problem is that Russia is the world's eighth-largest economy, and its finances are entangled with the West's, as is its economy. For any sanctions the West would impose, the Russians have a counter. There are many Western firms that have made large investments in Russia and have large Russian bank accounts and massive amounts of equipment in the country. The Russians can also cut off natural gas and oil shipments. This would of course hurt Russia financially, but the impact on Europe -- and global oil markets -- would be more sudden and difficult to manage. Some have argued that U.S. energy or European shale could solve the problem. The Russian advantage is that any such solution is years away, and Europe would not have years to wait for the cavalry to arrive. Some symbolic sanctions coupled with symbolic counter-sanctions are possible, but bringing the Russian economy to its knees without massive collateral damage would be hard.
The most likely strategy Russia will follow is a combination of all of the above: pressure on mainland Ukraine with some limited incursions; working to create unrest in the Baltics, where large Russian-speaking minorities live, and in the Caucasus and Moldova; and pursuing a strategy to prevent Eastern Europe from coalescing into a single entity. Simultaneously, Russia is likely to intervene in areas that are sensitive to the United States while allowing the Ukrainian government to be undermined by its natural divisions.
Considering the West's Countermoves
In all of these things there are two questions. The first is what German foreign policy is going to be. Berlin supported the uprising in Ukraine and has on occasion opposed the Russian response, but it is not in a position to do anything more concrete. So far, it has tried to straddle the divides, particularly between Russia and the European Union, wanting to be at one with all. The West has now posed a problem to the Russians that Moscow must respond to visibly. If Germany effectively ignores Russia, Berlin will face two problems. The first will be that the Eastern Europeans, particularly the Poles, will lose massive confidence in Germany as a NATO ally, particularly if there are problems in the Baltics. Second, it will have to face the extraordinary foreign policy divide in Europe. Those countries close to the buffers are extremely uneasy. Those farther away -- Spain, for instance -- are far calmer. Europe is not united, and Germany needs a united Europe. The shape of Europe will be determined in part by Germany's response.
The second question is that of the United States. I have spoken of the strategy of balance of power. A balance of power strategy calls for calibration of involvement, not disengagement. Having chosen to support the creation of an anti-Russian regime in Ukraine, the United States now faces consequences and decisions. The issue is not deployments of major forces, but providing the Central Europeans from Poland to Romania with the technology and materiel to discourage Russia from dangerous adventures -- and to convince their publics that they are not alone.
The paradox is this: As the sphere of Western influence has moved to the east along Russia's southern frontier, the actual line of demarcation has moved westward. Whatever happens within the buffer states, this line is critical for U.S. strategy because it maintains the European balance of power. We might call this soft containment.
It is far-fetched to think that the Russians would move beyond commercial activity in this region. It is equally far-fetched that EU or NATO expansion into Ukraine would threaten Russian national security. Yet history is filled with far-fetched occurrences that in retrospect are obvious. The Russians have less room to maneuver but everything at stake. They might therefore take risks that others, not feeling the pressure the Russians feel, would avoid. Again, it is a question of planning for the worst and hoping for the best.
For the United States, creating a regional balance of power is critical. Ideally, the Germans would join the project, but Germany is closer to Russia, and the plan involves risks Berlin will likely want to avoid. There is a grouping in the region called the Visegrad battle group. It is within the framework of NATO and consists of Poland, the Czech Republic, Slovakia and Hungary. It is now more a concept than a military. However, with U.S. commitment and the inclusion of Romania, it could become a low-cost (to the United States) balance to a Russia suddenly feeling insecure and therefore unpredictable. This, and countering Russian commercial imperialism with a U.S. alternative at a time when Europe is hardly in a position to sustain the economies in these countries, would be logical.
This has been the U.S. strategy since 1939: maximum military and economic aid with minimal military involvement. The Cold War ended far better than the wars the Americans became directly involved in. The Cold War in Europe never turned hot. Logic has it that at some point the United States will adopt this strategy. But of course, in the meantime, we wait for Russia's next move, or should none come, a very different Russia.
