The most immediate task is to make certain that no state or combination of states gains the capacity to expel the United States from Eurasia or even to diminish significantly its decisive arbitrating role. However, the consolidation of transcontinental geopolitical pluralism should not be viewed as an end in itself but only as a means to achieve the middle-term goal of shaping genuine strategic partnerships in the key regions of Eurasia.
It is unlikely that democratic America will wish to be permanently engaged in the difficult, absorbing, and costly task of managing Eurasia by constant manipulation and maneuver, backed by American military resources, in order to prevent regional domination by any one power. The first phase must, therefore, logically and deliberately lead into the second, one in which a benign American hegemony still discourages others from posing a challenge not only by making the costs of the challenge too high but also by not threatening the vital interests of Eurasia’s potential regional aspirants.
What that requires specifically, as the middle-term goal, is the fostering of genuine partnerships, predominant among them those with a more united and politically defined Europe and with a regionally preeminent China, as well as with (one hopes) a postimperial and Europe-oriented Russia and, on the southern fringe of Eurasia, with a regionally stabilizing and democratic India. But it will be the success or failure of the effort to forge broader strategic relationships with Europe and China, respectively, that will shape the defining context for Russia’s role, either positive or negative.
It follows that a wider Europe and an enlarged NATO will serve well both the short-term and the longer-term goals of U.S. policy. A larger Europe will expand the range of American influence—and, through the admission of new Central European members, also increase in the European councils the number of states with a pro-American proclivity—without simultaneously creating a Europe politically so integrated that it could soon challenge the United States on geopolitical matters of high importance to America elsewhere, particularly in the Middle East. A politically defined Europe is also essential to the progressive assimilation of Russia into a system of global cooperation.
Admittedly, America cannot on its own generate a more united Europe—that is up to the Europeans, especially the French and the Germans—but America can obstruct the emergence of a more united Europe. And that could prove calamitous for stability in Eurasia and thus also for America’s own interests. Indeed, unless Europe becomes more united, it is likely to become more disunited again. Accordingly, as stated earlier, it is vital that America work closely with both France and Germany in seeking a Europe that is politically viable, a Europe that remains linked to the United States, and a Europe that widens the scope of the cooperative democratic international system. Making a choice between France and Germany is not the issue. Without either France or Germany, there will be no Europe, and without Europe there will be no trans-Eurasian system.
In practical terms, the foregoing will require gradual accommodation to a shared leadership in NATO, greater acceptance of France’s concerns for a European role not only in Africa but also in the Middle East, and continued support for the eastward expansion of the EU, even as the EU becomes a more politically and economically assertive global player.[1] A Transatlantic Free Trade Agreement, already advocated by a number of prominent Atlantic leaders, could also mitigate the risk of growing economic rivalry between a more united EU and the United States. In any case, the EU’s eventual success in burying the centuries-old European nationalist antagonisms, with their globally disruptive effects, would be well worth some gradual diminution in America’s decisive role as Eurasia’s current arbitrator.
The enlargement of NATO and the EU would serve to reinvigorate Europe’s own waning sense of a larger vocation, while consolidating, to the benefit of both America and Europe, the democratic gains won through the successful termination of the Cold War. At stake in this effort is nothing less than America’s long-range relationship with Europe itself. A new Europe is still taking shape, and if that new Europe is to remain geopolitically a part of the “Euro-Atlantic” space, the expansion of NATO is essential. By the same token, a failure to widen NATO, now that the commitment has been made, would shatter the concept of an expanding Europe and demoralize the Central Europeans. It could even reignite currently dormant or dying Russian geopolitical aspirations in Central Europe.
Indeed, the failure of the American-led effort to expand NATO could reawaken even more ambitious Russian desires. It is not yet evident—and the historical record is strongly to the contrary—that the Russian political elite shares Europe’s desire for a strong and enduring American political and military presence. Therefore, while the fostering of an increasingly cooperative relationship with Russia is clearly desirable, it is important for America to send a clear message about its global priorities. If a choice has to be made between a larger Euro-Atlantic system and a better relationship with Russia, the former has to rank incomparably higher to America.
For that reason, any accommodation with Russia on the issue of NATO enlargement should not entail an outcome that has the effect of making Russia a de facto decision-making member of the alliance, thereby diluting NATO’s special Euro-Atlantic character while simultaneously relegating its newly admitted members to second-class status. That would create opportunities for Russia to resume not only the effort to regain a sphere of influence in Central Europe but to use its presence within NATO to play on any American-European disagreements in order to reduce the American role in European affairs.
It is also crucial that, as Central Europe enters NATO, any new security assurances to Russia regarding the region be truly reciprocal and thus mutually reassuring. Restrictions on the deployment of NATO troops and nuclear weapons on the soil of new members can be an important factor in allaying legitimate Russian concerns, but these should be matched by symmetrical Russian assurances regarding the demilitarization of the potentially strategically menacing salient of Kaliningrad and by limits on major troop deployments near the borders of the prospective new members of NATO and the EU. While all of Russia’s newly independent western neighbors are anxious to have a stable and cooperative relationship with Russia, the fact is that they continue to fear it for historically understandable reasons. Hence, the emergence of an equitable NATO/EU accommodation with Russia would be welcomed by all Europeans as a signal that Russia is finally making the much-desired postimperial choice in favor of Europe.
That choice could pave the way for a wider effort to enhance Russia’s status and esteem. Formal membership in the G-7, as well as the upgrading of the policy-making machinery of the OSCE (within which a special security committee composed of America, Russia, and several key European countries could be established), would create opportunities for constructive Russian engagement in shaping both the political and security dimensions of Europe. Coupled with ongoing Western financial assistance to Russia, along with the development of much more ambitious schemes for linking Russia more closely to Europe through new highway and railroad networks, the process of giving substance to a Russian choice in favor of Europe could move forward significantly.
Russia’s longer-term role in Eurasia will depend largely on the historic choice that Russia has to make, perhaps still in the course of this decade, regarding its own self-definition. Even with Europe and China increasing the radius of their respective regional influence, Russia will remain in charge of the world’s largest single piece of real estate. It spans ten time zones and is territorially twice as large as either the United States or China, dwarfing in that regard even an enlarged Europe. Hence, territorial deprivation is not Russia’s central problem. Rather, the huge Russia has to face squarely and draw the proper implications from the fact that both Europe and China are already economically more powerful and that China is also threatening to outpace Russia on the road to social modernization.
In these circumstances, it should become more evident to the Russian political elite that Russia’s first priority is to modernize itself rather than to engage in a futile effort to regain its former status as a global power. Given the enormous size and diversity of the country, a decentralized political system, based on the free market, would be more likely to unleash the creative potential of both the Russian people and the country’s vast natural resources. In turn, such a more decentralized Russia would be less susceptible to imperial mobilization. A loosely confederated Russia—composed of a European Russia, a Siberian Republic, and a Far Eastern Republic—would also find it easier to cultivate closer economic relations with Europe, with the new states of Central Asia, and with the Orient, which would thereby accelerate Russia’s own development. Each of the three confederated entities would also be more able to tap local creative potential, stifled for centuries by Moscow’s heavy bureaucratic hand.
A clear choice by Russia in
