Russian President Vladimir Putin described the Soviet Union’s collapse
in 1991 as “the greatest political
catastrophe” of the 20th century.
To those
outside of Russia it may sound like hyperbole, but to those who lived there it’s a different story. In short order, they witnessed their
government in Moscow, a power on par with
the United States for nearly five decades,
lose its footing and never fully recover. Russia became destitute, even aimless.
So traumatic was the union’s collapse that it
continues to define Russia’s identity today.
And though the country remained formidable in its near abroad, it is less capable than
it once was of securing its national interests
farther afield. To understand why this is so,
we need to begin by looking at a map.
The Geopolitics of Russia
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Indeed, Russia’s most fundamental and strategic challenge – which has both international and domestic dimensions – stems from
the country’s geography. The vast majority
of Russian territory sits between 50 degrees
and 70 degrees latitude. For perspective,
London’s latitude is about 51 degrees, Berlin’s is 52 and Ottawa’s is 45. Russia’s climate
is generally cool, and vegetation and human
life tend to inhabit areas that are below 60 degrees latitude. The heartland of Russian agriculture is in the southwest, along its borders
with Ukraine, the Caucasus and Kazakhstan.
Climate and agriculture go a long way to explain why three-quarters of the population
lives in the area between Russia’s border
with Europe and the Ural Mountains. The
country’s most critical cities, including the
seat of its government, moreover, are all
close to Europe. Russia has few rivers, and
those it does have flow mostly west, making
it difficult to transport goods domestically.
Russia offsets these natural disadvantages
by relying on railways, which further highlight the importance of the western and
southern regions. And so it is that Russia is
Geography, or the Dangers of the West
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disproportionately preoccupied – and imperiled – by its western reaches.
As a land power, Russia is inherently vulnerable. Its border with Europe is extremely susceptible to invasion, situated as it is on the
North European Plain. This flat expanse of
land begins in Germany and, just east of the
Carpathian Mountains, pivots southward,
opening up right on Russia’s doorstep. Historically, it has been a major thoroughfare of
western military encroachment.
Because Russia’s enemies have so often
used this invasion route, Moscow has tried
to make it more difficult for invaders to
reach its territory by pushing Russia’s borders as far west as possible. When national borders could not be extended, Moscow
established buffer zones between Russia’s
core and Europe. At the height of the Soviet
Union, Moscow enjoyed an extensive buffer
zone that stretched well into Central Europe.
With the collapse of the Soviet Union, however, Russia lost most of these territories
and has been on the defensive ever since.
Consider that in 1989, St. Petersburg was
about 1,000 miles from NATO troops. Today, that distance is about 200 miles.
RUSSIA
SWEDEN
NORWAY
FINLAND
GERMANY
CZECH
REPUBLIC
DENMARK
UNITED
KINGDOM NETHERLANDS
BELGIUM
FRANCE SWITZERLAND
ITALY
SPAIN
AUSTRIA
LUXEMBOURG
GREECE
SLOVENIA
CROATIA SERBIA ALBANIA
MONTENEGRO KOSOVO
Moscow
POLAND
TURKEY
ROMANIA
BULGARIA
MOLDOVA
NORTH MACEDONIA
BOSNIA- HERZEGOVINA
ESTONIA
LATVIA
LITHUANIA
BELARUS
UKRAINE
CRIMEA
HUNGARY
SLOVAKIA
PORTUGAL
IRELAND
Founders (1949)
1950-2000
2000-present
NATO
Membership in Europe
100 miles
500miles
0
≈100
miles
≈1,000 miles
1949
2020
≈500 miles
2020
≈1,300 miles
1949
Source: NATO © 2021 Geopolitical Futures
A Shrinking Buffer
Black Sea
Baltic
Sea
Sea of
Azov
Mediterranean Sea
North
Sea
Caspian
Sea
St. Petersburg
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Russian geography presents an obvious
challenge: Whoever governs the country
must manage the largest country in the
world, comprising vastly different peoples,
climates, natural resources and infrastructure networks. The Russian Federation
consists of 85 federal subjects that range
in structure from autonomous regions and
republics to individual cities. As a result,
Russia is home to highly regionalized economies in which wealth and prosperity are
unevenly distributed.
Wealth is concentrated in the west, particularly in Moscow and the Central Federal District. In times of prosperity, economic disparities can be papered over, and the pressure
on high-earning districts is fairly easily relieved. But in times of economic duress, as
was the case when oil prices dropped in late
2014, the central government faces added
social pressure from the poorer districts in
the interior.
It’s little wonder, then, that Russia’s economic
development since the end of the Cold War has
been similarly uneven. The 1990s were meant
for survival, not economic growth. The reforms
of the decade were aimed at one thing: preventing Russia from reverting to communist rule.
Most Russians lived in or near poverty while
most state enterprises were privatized – at a
discount. The 1998 Russian financial crisis and
the associated protests brought about a major
A Concentration of Wealth
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change. The people were ready for stronger
government and so welcomed a stronger ruler. Enter Vladimir Putin, who endeavored to fix
the economy and then rebuild the government.
Since then, Russia’s development has been
predicated on energy exports, which in turn
have fueled budget spending and consumption.
This worked well enough when energy prices
were high. But when they fall, so too do Russian revenues. This inevitably leads to periodic
economic downturns. From 2015 to 2017, for
example, citizens protested unemployment,
wage arrears, cuts in government programs,
lower real wages, bankruptcy and general frustration with reduced standards of living. The
protests were small, but they could threaten
Putin in the long term. Now it is western sanctions that threaten Russia’s economy and, once
again, Putin must not only maintain control but
also show the people that he is responding to
their needs.
One way he has done so is to erect a two-tier economic system. He controls one tier
through his “inner circle,” which runs stateowned companies, while the other tier is
subject to free market laws. These state-run
companies constitute about one-fifth of the
Russian economy. The Russian people still
support Putin – and they may even trust
him – but they regard oligarchs and regional administrators as corrupt. The president
must weigh the needs of his people against
the needs of the companies that sustain his
economy. In 2001, he sided with the people,
leading a campaign against the oligarchs
and then taking control of media and energy
companies.
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He has also reorganized some of the state
security agencies that help maintain order.
He established the National Guard, which
unifies several domestic security forces under the direct control of the president. The
troops’ stated purpose is to protect the public order, combat extremism, guard government cargo and facilities, help protect the
border and control the arms trade. He also
installed officials loyal to his government
in important places. For instance, between
2017 and 2018, he removed 16 generals
from their posts in the Ministry of Civil Defense, Emergencies and Elimination of Consequences of National Disasters, a body
responsible for responding to civil defense,
public unrest and protests, and in the Interior Ministry, replacing them with officials he
personally selected. The dismissals primarily affected the Caucasus, the Far East and
cities within Moscow’s reach – cities where,
as recently as the end of 2017, there had
been reports of increased unrest.
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Politically, the Russian government under
Putin consolidated its power fairly early on.
Under his administration, Russian political
parties are relatively unimportant; the system favors pro-Kremlin parties. Parties that
do not support the government have little
chance of gaining seats in the Duma, the
lower house of parliament. In 2000, shortly
after assuming his first presidency, Putin actually reduced the number of parties represented in the Duma. In 2012, then-President
Dmitri Medvedev appeared to backpedal
on this move by passing a law that simplified the registration procedures for political
parties. On paper, the new legislation was
meant to open the party system to alternative interest groups. In practice, the system
remained closed.
Five political parties, all of them pro-government to a degree, currently dominate the
Duma. United Russia, Putin’s party, holds
323 of 450 seats, doing whatever Putin tells
it to do. The Communist Party (57), the Liberal Democratic Party (23), A Just Russia
(27) and New People Party (14) hold the
remaining seats. The latter four parties are
not seen as official pro-government parties
and therefore at least partly represent the
opposition. Notably, the term “opposition” is
All Politics Is Local
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used loosely; the representatives rarely defy
Putin-led initiatives. Votes cast by officials
of these parties reflect a disagreement with
United Russia and bureaucracy while simultaneously staying loyal to the president and
system. They have some mild distance from
the regime but do not outright oppose it.
Putin also consolidated political power by
purging Russian governors – an important
move, considering the relationship between
governors and members of the national government. They often work together, depend
on each other and look out for one another’s
interests. Gubernatorial elections were reintroduced in 2012, but while the law to reintroduce them was making its way through
the system, more than 20 governors were
reappointed by the Kremlin, delaying elections in these locations until 2017. Then, in
2013, Putin signed a law that permitted regional legislatures to decide between directly electing governors or having the regional
legislature select and appoint a governor
from a short list drawn up by Putin.
Regional governors, in turn, play a role in
appointing members to Russia’s Federation
Council, the upper chamber of parliament.
The council consists of two representatives
from each of Russia’s 83 federal entities. One
representative is chosen by the regional legislature and one is selected by the region’s
governor. The length of the representative’s
term varies with the federal entity. Built into
this system is a level of reciprocity between
governor and president, further enabling Putin to wield influence. He is able to ensure
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that a candidate gains a gubernatorial office, and in return, the governor can appoint
a pro-Kremlin member to the council. This
relationship becomes even more important
considering that the council approves presidential decrees for martial law, declares a
state of emergency, deploys troops abroad,
oversees the presidential appointment for
attorney general and decides impeachment
verdicts.
Putin has dedicated much of his political
capital and resources to consolidating his
power through reforms in various government security bodies. By rebuilding his inner
circle and revamping the power structure,
Putin has demonstrated that he needs to
extend his power network to ensure that his
decrees and policies are implemented properly and that dissenters remain silenced.
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Much of Putin’s political machinations,
though, are meant to perpetuate a myth
abroad. The myth: that Russia is as strong as
it appears. Without the ability to act as decisively as it could during the Cold War, Russia
is relegated to focusing on its own backyard.
The vulnerabilities along its western border
compel Russia to maintain a strong foothold in Ukraine and Belarus. Russia needs
these two countries to insulate it from outside threats. Though Belarus has remained
firmly within Russia’s sphere of influence in
the post-Soviet era, Ukraine has not. After
pro-Western supporters overthrew the Russia-friendly government in Kiev, Moscow
had no choice but to respond with force. In
early 2014 it seized the Crimean Peninsula
and sent troops and supplies to pro-Russia
rebels fighting in eastern Ukraine.
Crimea was annexed partly to ensure a foothold in Ukraine and partly to secure the port
of Sevastopol, home to the Black Sea Fleet.
Russia’s navy consists primarily of four main
The Focus of Its Foreign Policy
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fleets – the Northern, Baltic, Black Sea and
Pacific. The first three are all based on the
European side of Russia and are constrained
by major chokepoints that limit their access
to global waters. Since much of Russia is
landlocked, the loss or compromising of
the headquarter ports for any one of these
fleets would severely reduce Russia’s naval
power and negatively affect maritime trade.
From the Black Sea, through the Bosporus,
Russia gains access to the Mediterranean
and from there the Atlantic.
Through it all, though, Ukraine has remained
Russia’s top priority and the focus of its foreign policy. Post-Soviet Russia had neither
the resources nor the wherewithal to retake
Ukraine. Russia’s diminished power forced
Moscow to adopt a strategy of global disruption that targeted primarily at the United
States. (Their rivalry is one element of the
Cold War era that remains intact.) Moscow
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did so most visibly in Syria – where it worked
to parlay its influence in the conflict’s resolution to a more beneficial outcome with the
United States over Ukraine – though it has
also been active in Venezuela and North Korea.
For example, in mid-2013, Russia inserted
itself into the international crisis by negotiating a deal to destroy Syria’s chemical
weapons program. Later that year, the Euromaidan protests in Ukraine ousted the
Russia-friendly government in Kiev and replaced it with one that favored the West. In a
much weaker position than it was just a few
months earlier, Russia once more turned to
the conflict in Syria. After reshaping perceptions of Russian power, strengthening the
position of Assad’s forces and prompting
negotiations with the U.S., the limited Syrian
intervention largely fulfilled its strategic purpose for Russia.
Recently Russia deviated from the global
disruption strategy and invaded Ukraine.
The move revitalized NATO and the broader
US-European relationship. While the West
has not directly engaged in military action
with Russia in Ukraine, it provided significant
logistical and military support to Ukraine.
Additionally, the West applied severe sanctions against Russia, isolating the country
from much of the global economy. NATO
has also increased its troop rotations, boost
defense and deploy weapons systems
along NATO’s eastern flank. For Russia, increased NATO presence – and in particular
U.S. presence – in its backyard constitutes
a major threat.
It is a threat it cannot fully manage. More
than 30 years after the Soviet Union collapsed, Russia is still trying to find its way. In
the lives of nations, 30 years is not so long a
time, and the fall of empires tends to reverberate for years thereafter. Moreover, Russia
pandemic economic recovery now faces the
added constraints of far-reaching sanctions
This is particularly problematic in a region
as complex and dangerous as Russia’s, a
region where appearing weak can be as big
a threat as being weak. Russia must simultaneously try to appear more powerful than
it is and meticulously manage what power it
has. But real power is durable. Illusions are
ephemeral. Actions taken by weak nations
designed to make them appear stronger
nearly always fail in the long run.
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the world through the rigorous application of geopolitics: the political, economic, military and
geographic dimensions that are the foundation of a nation. The imperatives and constraints
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