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Archived Content Contenu Archivé Archived Content Information identified as archived on the Web is for reference, research or recordkeeping purposes. It has not been altered or updated after the date of archiving. Web pages that are archived on the Web are not subject to the Government of Canada Web Standards. As per the Communications Policy of the Government of Canada, you can request alternate formats by contacting us. Contenu archivé L'information archivée sur le Web est disponible à des fins de consultation, de recherche ou de tenue de dossiers seulement. Elle n’a été ni modifiée ni mise à jour depuis sa date d’archivage. Les pages archivées sur le Web ne sont pas assujetties aux normes Web du gouvernement du Canada. Conformément à la Politique de communication du gouvernement du Canada, vous pouvez obtenir cette information dans un format de rechange en communiquant avec nous. Archived Content Information identified as archived on the Web is for reference, research or recordkeeping purposes. It has not been altered or updated after the date of archiving. Web pages that are archived on the Web are not subject to the Government of Canada Web Standards. As per the Communications Policy of the Government of Canada, you can request alternate formats by contacting us. Contenu archivé L'information archivée sur le Web est disponible à des fins de consultation, de recherche ou de tenue de dossiers seulement. Elle n’a été ni modifiée ni mise à jour depuis sa date d’archivage. Les pages archivées sur le Web ne sont pas assujetties aux normes Web du gouvernement du Canada. Conformément à la Politique de communication du gouvernement du Canada, vous pouvez obtenir cette information dans un format de rechange en communiquant avec nous. Russian foreign policy and global security: how Russia defines its international security policy Prepared by Michael Berk Canadian International Council (CIC) RUSSIAN FOREIGN POLICY AND GLOBAL SECURITY: HOW RUSSIA DEFINES ITS INTERNATIONAL SECURITY POLICY Prepared by Michael Berk Canadian International Council (CIC) Prepared for the International Security Research and Outreach Programme International Security Bureau April 2008 1 About the workshop and report The following report is a summary of expert presentations and discussions that took place at a policy workshop developed and conducted by the Canadian International Council (CIC) at the Department of Foreign Affairs and International Trade (DFAIT) on February 18th, 2008. Sponsored by the International Security Research and Outreach Program at DFAIT, the workshop brought together Canadian and Russian scholars and policy experts to address specific questions developed by the organizers in consultation with DFAIT (see Annex B, page 34). The workshop took place one day after Kosovo declared its independence from Serbia, a day prior to the Armenian presidential elections and two weeks prior to the Russian presidential elections. References to these events throughout the report should be taken in the proper context. This report was prepared by Michael Berk, CIC workshop’s coordinator who specializes in Russian affairs, with the assistance of Margaret Watts and Allison Keating from Carleton University. The views expressed in this report are those of the experts and are not intended to reflect the views of DFAIT or the Government of Canada. About the Canadian International Council (CIC) The CIC is a non-partisan, nationwide organization established to strengthen Canada's role in international affairs. Building upon the proud history of the Canadian Institute of International Affairs (CIIA), the Council aims to advance research and dialogue on international affairs issues by supporting a Canadian foreign policy network that crosses academic disciplines, policy areas, and economic sectors. CIC’s 13 branches promote national foreign policy dialogue by presenting speakers, seminars, roundtable discussions and study groups to interested Canadians. Dialogue and research are combined in highly-regarded publications such as the International Journal and Behind the Headlines. 2 PREFACE The International Security Research and Outreach Programme (ISROP) is located within the Continental Defence Relations Division of the International Security Bureau. ISROP’s mandate is to provide the Department of Foreign Affairs and International Trade (DFAIT) with timely, high quality policy relevant research that will inform and support the development of Canada’s international security policy in the areas of North American, regional and multilateral security and defence cooperation, non-proliferation (nuclear and non-nuclear), arms control and disarmament. The current ISROP research themes can be found at: www.dfait-maeci.gc.ca/ arms/isrop/menu-en.asp. ISROP regularly commissions research to support Canadian officials by drawing on its think-tank and academic networks in Canada and abroad. The following report, Russian foreign policy and global security: how Russia defines its international security policy, is an example of such contract research. DFAIT wishes to acknowledge the work performed under contract by Michael Berk, on behalf of the Canadian International Council (CIC). Disclaimer: The views and positions expressed in this report are solely those of the author and do not necessarily reflect the views of the Department of Foreign Affairs and International Trade or the Government of Canada. The report is in its original language. 3 PRÉAMBULE Le Programme de recherche et d'information dans le domaine de la sécurité internationale (PRISI) fait partie de la Direction de la défense continentale, qui relève elle-même de la Direction générale de la sécurité internationale. Il a pour mandat de fournir au ministère des Affaires étrangères et du Commerce international (MAECI), en temps utile, des études stratégiques de haute qualité et pertinentes qui permettent d’orienter et de soutenir l’élaboration de la politique canadienne de sécurité internationale concernant l’Amérique du Nord, la coopération régionale et multilatérale en matière de sécurité et de défense, ainsi que la non-prolifération (nucléaire et non nucléaire), le contrôle des armements et le désarmement. Les thèmes de recherches actuels du Programme de recherche et d’information dans le domaine de la sécurité internationale (PRISI) figurent à l’adresse suivante: www.dfait-maeci.gc.ca/arms/isrop/menu-fr.asp Le PRISI commande régulièrement des études pour faciliter le travail des fonctionnaires canadiens, en faisant appel à ses réseaux de spécialistes et d’universitaires au Canada et à l’étranger. Le rapport suivant est un exemple de ce type d’étude. Le MAECI souhaite reconnaître le travail exécuté à contrat par Michael Berk, Le Conseil international du Canada. Déni de responsabilité : Les vues et opinions exprimées dans le présent rapport appartiennent exclusivement à l’auteur, et ne reflètent pas nécessairement celles du ministère des Affaires étrangères et du Commerce international, ou celles du gouvernement du Canada. Le rapport est présenté dans la langue de rédaction. 4 Executive Summary As a security player with both regional and global reach, understanding the Russian Federation and how it perceives its foreign policy and security interests is essential to Canada’s own security interests in and foreign and economic policies towards the region. In order to develop an adequate approach to Russia, grounded in strategic analysis of emerging global trends and a realization of the existing window of opportunity presented by Canada’s involvement in Afghanistan, the following realities must be accepted: • Russia is positioning itself as an indispensable actor in Eurasia (East- West relations) and uses its economic, political and military assets to develop and secure the necessary pre-conditions for continuing sustainable growth; • Devoid of the ideological constraints of the past, Russia is viewing its ‘near abroad’ both as a crucial buffer against external threats and an area of economic influence using consensus–building mechanisms (CSTO, SCO, EurAsEC) to ensure its predominance in the region; • Aware of the limitations of the current international system, but also of the opportunities such a situation presents, the Russian security doctrine prefers flexible issue-based alliances with partners in both the East and West to fixed ‘block-based’ structures; • The ability of all FSU countries to pursue direct multi-vector engagements with different partners (NATO, EU, China, US, Iran, Turkey) forces Russia to accommodate and offers ‘out of region’ players significant leverage opportunities, which in turn requires the development of a systemic approach to the region; • Potential NATO expansion eastward (Ukraine, Georgia) will undoubtedly create a serious rift between Russia and the West on many international arms control and other security issues, including raising opportunity costs for Western engagement in Afghanistan; • Despite emerging global economic, financial and security threats Canada does not possess clearly articulated priorities regarding engaging Russia on issues such as Afghanistan, arms control, conflict resolution, the Arctic and commerce; • Given geographic proximity, a similar climate, Canada’s position in the international community, national interests and a wealth of knowledge on many topics of interest to Russia, Canada is well positioned to promote mutually beneficial partnerships between Russia and the West. 5 Any approach to Russia must be based on a realistic assessment of Canadian national interests in the post-Soviet space,
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