The Russian Armed Forces: High Expectations?
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Alexander Khramchikhin, Vitaly Shlykov THE RUSSIAN ARMED FORCES: HIGH EXPECTATIONS? From: Alexander Khramchikhin To: Vitaly Shlykov Subject: who is threatening us after all? Hello, Vitaly! Speaking about the future of the Armed Forces, it makes sense to speculate about the chal lenges and threats that the Russian military should be prepared for. If we take the open sources – published concepts and doctrines, the Russian politicomilitary leadership, at least, has a vague understanding of the character of external threats that the country is facing. The provisions of the Military Doctrine of the Russian Federation are so unclear that they leave enough room for any interpretations and conclusions (or, in other words, no specific conclu sions can be made on the basis of such documents). The «Actual Development Tasks for the Russian Armed Forces» published in October 2003 is a much more specific document (even though its status can be called into question), but it is full of internal contradictions. Let me emphasize a few principal ones. For instance, the «Actual Tasks» maintains that «the Russian military policy has adapted to a new global reality… In particular, nuclear warfare and largescale conventional wars with NATO or any other U.S.led coalition have been eliminated from the list of the most probable conflicts.» However, in the process of describing the types of modern wars and contemporary armed VIEWPOINTS conflicts, the document argues that «the weapons used in modern warfare make it necessary to possess the forces and means to attack the military instruments of the adversary (long range highprecision weapons, strategic aircraft) stationed beyond the actual conflict zone.» At present, the only country (beside the Russian Federation) that has longrange highpreci sion weapons and strategic aircraft is the United States. As far as it concerns future wars and conflicts, military construction and combat training, the «Actual Tasks» state that the «outcome of the armed struggle in general will mainly be deter mined by confrontation in the aerospace and on the sea, while ground forces will fix the attained combat results and provide for the achievement of the political goals.» It is quite obvi ous that the United States is again regarded here as one of the major adversaries. On the other hand, later on the document speaks mainly about combat training of the Army within the pla tooncompanybattalion paradigm.» For instance, «the forces in the armed conflicts will not face a typical enemy, but rather a mixture of units with different equipment and levels of train ing. Those units may actively apply the tactics of guerrilla warfare, subversive and terrorist operations.» Only a short paragraph is devoted to the Air Force, while the Navy is not men SECURITY INDEX No. 1 (86), Volume 15 57 tioned at all. Thus, the major kind of wars that the Russian military will be involved in is not the war with the United States, but the Chechentype conflicts. In general, there is an impression that this document was written by several groups of authors, each of which has a different view on military construction, and then all parts were mechani cally brought together. The Ministry of Defense (MOD) apparently suffers from tough contra dictions between those who cannot neglect the changing character of wars in the last 15 years, and the proponents of the «armor attack mentality» of the 1940–1950s. There are also evident differences between those in the national politicomilitary leadership who see lit tle sense in confrontation with the United States and those for whom it is the only essence of life. Moreover, the practitioners, who passed through two wars in Chechnya, also have some influence. As a result, the opinions of all the aforementioned groups were mechanically assem bled into the single document. The challenges originating from the West and the so called international terrorism are looked at in an exaggerated way, through the prism of myths, while the Chinese threat is completely ignored. Yours, A. Khramchikhin From: Vitaly Shlykov To: Alexander Khramchikhin Subject: the army should be flexible and can easily be tuned Hi, Alexander, You argue that the existing official documents do not clearly define the types of wars and con flicts that Russia should be ready for – either with the enemy possessing longrange highpre cision weapons and strategic aircraft, or with the enemy using the tactics of guerrilla warfare, sabotage and terrorism. For me the answer is obvious – to both of them. And to dozens of other threats, wars, and conflicts (information warfare, cyber warfare, etc.) that we are currently not even aware of. By asking for specific instructions of the politicomilitary leadership with respect to threats to be repelled, you merely replicate the position of the Russian generals of the last 15 years. It is quite simple – give us such a military doctrine that has a clear range of all threats and equip us with arms and resources to resist them. And we will do everything all right. And now let us imagine that the Russian president and the government accept this recom mendation and will mark the Chinese threat as the major one, while NATO will be perceived as a paper tiger. It would be good to see the scenario for military construction and development in this case. I assume that Russia needs such defense that has a potential for selftuning, for preventing and confronting any possible threats and conflicts. And it would be advisable to consider the ways to create such defense, instead of speculating on one threat after another in accordance with some selfinvented range of challenges. To set up such a selfadapting defense system, one needs something more important than weapons, i.e. education, decisionmaking ability, independence and creativity of thinking, ini tiative of the officers top down, and some mobilization mechanism enabling the economy to shift from peaceful state to wartime mode and back with sufficient flexibility as far as the requirements of the military to the materiel and other resources are concerned. Naturally, the establishment of such system would require the formation of a brand new army and the replacement of the presentday narrowminded defense industry with the sector capable of manufacturing both military and civilian products on the basis of the same tech nologies and enterprises. Yours, V. Shlykov 58 THE RUSSIAN ARMED FORCES: HIGH EXPECTATIONS? From: Alexander Khramchikhin To: Vitaly Shlykov Subject: be ready for everything? Vitaly, And still I have got a question. Is it possible to carry out any military construction on the basis of the existing doctrines? If not, on what should it rely at all? Why are the generals not correct in claiming for the doctrine? Isn’t it the task of the political leadership of the country? Is it nor mal that the president has no military staff, nor even a military advisor? Bearing this in mind, is it possible for a person who made no attempts to understand the mili tary topics beyond PReffects, lead the development of the selftuning, innovative army? Does he realize what it is all about? I could not expect you to say that the generals should set tasks for themselves. I have two claims against Boris Yeltsin as far as the military construction is concerned. First – he rejected the idea of building an army from the scratch. Second – he permitted the generals to set the tasks for themselves. The mission of the political leadership of the country is to set the tasks for the generals, so that the latter could think about optimal ways to implement them. These tasks can be called a doctrine, a national security concept, or any other name – it does not really matter. And there is no need to explain to you that we are not the country that can do without any such document or set of documents at all. Of course, Hungary or Belgium does not need a military doctrine, while we do. It is also clear that such country as Russia may confront different challenges. The same can be said about the United States as well. However, Washington does not have several armies and pays only for the one, various components of which are meant for repelling different threats. And American generals get orders and tasks from politicians. I may have a wrong understand ing of your «selftuning army» concept, but it seems that in peaceful times such army should nearly be virtual. I have serious doubts that in case of real war (any) it will be able to react (to any threat) with such approach. Anyway due to the vagueness of the definition, it is difficult to have a dispute on this matter. How can a selftuning army be built without defining specific adversaries and taking into account possible current and future wars and geopolitical situation of the Russian Federation? In the European part of the country we at least possess a welldeveloped transportation net work, while in Siberia and in the Far East any grouping should be formed in advance, since it would be difficult (or even impossible) to reinforce them in case of war. In fact, why does the U.S. politicomilitary leadership easily name the list of nations that pose or may pose a threat to the United States, even though some of these challenges exist only as hypothetical types? VIEWPOINTS Due to the abstract and controversial character of the major doctrines, the military construc tion cannot be carried out on the basis of these documents. Hence, it is impossible to say how much the practice of military construction in Russia complies with these documents. And in this respect, it is impossible to analyze the defense budget of Russia, which is also not transparent and is highly confidential in nature.