В последние годы в Израиле ведутся дискуссии по поводу «доктрины победы», инициированной нынешним начальником Генштаба Армии обороны Израиля бригадным генералом Авивом Кохави, и необходимости создания официального документа под названием «Стратегия национальной безопасности».
В предыдущих статьях рассматривалась экспертная оценка «доктрины победы», отмечалось, что Израилю, где пока не принят такой документ, он необходим для реализации идей и достижения целей стратегии национальной безопасности; приводились предпосылки и шаги, сделанные в направлении ее формулирования на официальном уровне; а также первые четыре ключевых положения, которые, по мнению генерал-майора запаса Яакова Амидрора, реализуются как «концепции национальной безопасности» Израиля.
- Израиль должен поддерживать большой (пропорциональный размеру страны) разведывательный корпус, который выполняет несколько параллельных и дополняющих друг друга миссий. Это необходимо по ряду причин.
— Чтобы лучше понять стратегическую среду, достаточно заблаговременно получить информацию о событиях и элементах, которые могут представлять опасность, чтобы предотвратить угрозы.
— С ростом важности высокоточных управляемых боеприпасов необходимо обеспечить, чтобы «информация о целях» позволила наносить удары с высокой точностью по очень большому количеству объектов; сосредоточить огонь там, где результат будет максимальным; и расставить приоритеты по уничтожению целей, чтобы наиболее эффективно нанести значительный урон противнику.
— Разведывательное сообщество также дает Израилю возможность действовать «незаметно» и без публичного применения силы. В настоящее время это осуществляется в основном в рамках «кампании между войнами». В качестве примера израильской «разведывательной войны» Я.Амидрор приводит «задержки в реализации иранского военного ядерного проекта и огромный ущерб, нанесенный международным террористическим сетям Ирана».
- Израиль должен развивать свой потенциал в киберпространстве, защищать свои оборонительные и гражданские системы, свою возможность совершать кибератаки. Наличие такого потенциала, по мере технического усложнения, предоставляет Израилю мощные инструменты, значительно превосходящие его физические и демографические показатели. Это обеспечит ему международное положение, которое позволит добиться успехов на других стратегических аренах.
- Меняющийся характер угрозы (военным и гражданским) районам Израиля в глубоком тылу из-за количества ракет в арсеналах противника и их растущей точности требует серьезного изменения приоритетов при обороне тыла. Это, в свою очередь, означает, что необходимо действовать по четырем основным направлениям: активная оборона для перехвата приближающихся ракет и мин; пассивная оборона (т.е. укрепление потенциальных целей для защиты населения и жизненно важной инфраструктуры); способность обнаруживать и уничтожать пусковые установки противника, предпочтительно до их использования (контрсиловые удары); и усиление режима сдерживания благодаря способности Израиля нанести серьезный ущерб жизненно важным объектам противника. Общие усилия, направленные на оборону районов в тылу (в т.ч. на море) должны позволить военным и гражданским системам функционировать как в обычное время.
- Военная мощь Израиля зиждется на нескольких компонентах, которые необходимо поддерживать и постоянно укреплять:
— сильные и современные военно-воздушные силы, позволяющие действовать на больших расстояниях на Ближнем Востоке;
— относительно многочисленные сухопутные войска, которые должны обладать большой огневой мощью и быть менее уязвимыми на поле боя;
— небольшой, но очень высокотехнологичный флот для действий во всем Средиземноморском бассейне и на южных подходах к Израилю, в т.ч. под водой;
— многоуровневая система защиты тыла – как активная, так и пассивная;
— использование высокоточных боеприпасов в больших количествах с эффективным и обширным целенаведением, что делает возможным (сверх) интенсивное нанесение высокоточных ударов.
Я.Амидрор полагает (как и эксперты, анализ которых приводился в предыдущих статьях), что «несмотря на трудности, Израилю необходимо вернуться к использованию традиционных крупномасштабных наступательных возможностей сухопутных сил, обеспечивая маневренность для достижения целей на поле боя. Командная структура, сочетающая региональные командования с мобильными ударными силами, – верный путь для ЦАХАЛа».
Я.Амидрор считает целесообразным создание в израильской армии ракетных войск, которые применяли бы различные крылатые ракеты и ракеты класса «земля-земля» разного радиуса действия. Это избавит ВВС Израиля от выполнения некоторых задач. Новое ракетное подразделение облегчит нанесение ударов по удаленным целям вне зависимости от возможностей ВВС. Это важно в связи с уязвимостью аэродромов перед атаками противника и вопросом о наличии права у израильских ВВС действовать в воздушном пространстве других стран.
- Для выполнения всех этих задач Израиль должен инвестировать значительную часть своего национального бюджета и ВНП в развитие армии, разведывательных возможностей и промышленного комплекса, с особым упором на реализацию соответствующих научно-исследовательских проектов. Израиль уже вкладывает в эти области (5,2% ВНП в 2018 г.) пропорционально размеру своей экономики больше, чем США, и значительно больше, чем европейские страны. Пакет военной помощи США (38 млрд долларов на 2018–2027 финансовые годы) по-прежнему будет иметь значение для финансирования обороноспособности Израиля. Израилю не следует отказываться от американской помощи, даже если бы он мог себе это позволить. «В конце концов, – отмечает эксперт, – американская военная помощь в размере 3,8 миллиарда долларов в год составляет всего один процент от ВНП Израиля». По его мнению, «пакет военной помощи имеет большое символическое значение, поскольку свидетельствует о твердой приверженности США защите Израиля. Это также имеет стратегические последствия для наращивания вооруженных сил, для пополнения запасов во время войны и для укрепления возможностей ЦАХАЛа в постконфликтный период».
Усиление в последние годы угроз со стороны ряда акторов, вероятно, потребует увеличения годового бюджета на оборону на несколько миллиардов долларов. Как уже отмечалось, серьезность вызовов является результатом способности противника (количественно и качественно, т.е. точно) поражать цели в тылу Израиля; а также Израилю все больше угрожают удаленные от его границ страны, в основном Иран, что заставляет добиваться более эффективной защиты и возможности совершать кибератаки. Эти угрозы, если они будут реализованы, могут представлять серьезную стратегическую опасность для Израиля, поскольку они могут подорвать способность ЦАХАЛа вести боевые действия и повлиять на функционирование тыла. Следовательно, Израилю может потребоваться дополнительный бюджет для улучшения критически важных оборонительных и наступательных возможностей.
- Учитывая уязвимость Израиля, его политика должна быть осторожной и расчетливой. Например, израильскому руководству не следует втягиваться в ненужные конфликты; начинать «превентивные войны» можно только в том случае, если нет другой возможности избежать серьезных опасностей в будущем. Израилю всегда нужно выбирать осторожную политику в сфере национальной безопасности, даже если это означает отказ от возможности получения «больших выгод от больших рисков». По мнению Я.Амидрора, Израиль, который всегда будет принадлежать когорте малых стран, должен следовать верному для них принципу – «осторожность лучше азартной игры». Эксперт полагает, что израильское руководство должно также отслеживать возможности, которые могут появиться, особенно во время великих перемен или глубоких кризисов, чтобы воспользоваться ими, даже если нет гарантии на успех. Сохранение сложного баланса между «осторожностью» и «использованием возможностей» отмечается как один из самых сложных аспектов принятия решений. Повышенный уровень сложности является одной из причин того, что необходимо вкладывать значительные ресурсы в наращивание сил даже в периоды относительного затишья.
- Израиль должен прилагать усилия, чтобы отодвинуть боестолкновение как можно дальше от своих границ. Это можно сделать в мирное время, установив параметры защиты или режимы безопасности, создающие «санитарный кордон» за суверенными границами Израиля; а в военное время, продвигая боевые действия на территорию врага, к его стратегическому центру.
Израиль также должен стремиться к «защищаемым границам», то есть к линиям обороны, которые позволяют израильской армии, изначально опирающейся на регулярные силы, отразить наступление любой враждебной коалиции (до тех пор, пока не будут задействованы резервы). Эксперт не согласен с утверждением, что «в эпоху ракет территория не имеет ценности». Он полагает, что географический аспект концепции национальной безопасности Израиля чрезвычайно важен, и тем более в ракетную эпоху. Это объясняется тем, что «основа боевого потенциала» Израиля сосредоточена в небольшом районе вокруг Тель-Авива. Это также связано с необходимостью даже в ракетный век размещать жизненно важные объекты вдали от этого района и удерживать вражеские ракетные установки как можно дальше от жизненно важных объектов инфраструктуры и населенных пунктов, тем самым обеспечивая время для раннего предупреждения и успешных действий по перехвату ракет.
- В военное время ЦАХАЛ и разведывательное сообщество должны нарастить потенциал для параллельного и последовательного проведения наступательных операций на двух отдельных фронтах. Это означает, что Государству Израиль нужна защита со всех сторон – на море, на суше и в воздухе. ЦАХАЛ должен иметь возможность перейти в наступление на одном значительном направлении (сегодня таковым считается северный фронт, охватывающий Ливан и Сирию), и до того, как это наступление будет успешно завершено, израильские военные должны быть в состоянии проявить инициативу также на втором фронте (вероятно, в секторе Газа). Военно-воздушные силы должны иметь возможность непрерывно уничтожать тысячи целей на расстоянии, на котором не потребуется дозаправка в воздухе; поражать определенные ключевые цели в так называемом «третьем круге», расположенном на расстоянии от границ Израиля, а также несколько конкретных важных целей на еще большем удалении. Задача военно-морского флота – обеспечить свободу прохода по морским путям в Средиземном море; устранить морские угрозы; и выполнить свою миссию в качестве элемента системы стратегического сдерживания Израиля.
Основываясь на опыте последних лет (и конфликтов в более ранние периоды), считает Я.Амидрор, Израиль не может надеяться на поражение врага, подобное тому, которое потерпела нацистская Германия в 1945 г., чтобы военные действия прекратились раз и навсегда. «Горький факт заключается в том, что после каждого раунда боевых действий следует еще одна попытка нанести удар по Израилю (до тех пор, пока по какой-то другой, более серьезной причине, арабские акторы будут вынуждены прекратить огонь). Одна из целей любой военной операции заключается в том, чтобы по ее завершении следующий раунд боевых действий был максимально отложен во времени. Это достижимо, если противник понимает, что в ходе следующего столкновения его ожидает гораздо более болезненный удар.
По мнению Я.Амидрора, теоретически такое сдерживание действительно возможно. Однако это скользкая концепция, и нет надежного способа обеспечить успех в ее реализации. В качестве примера он приводит нападение арабских стран в октябре 1973 г., которое произошло через шесть лет после Шестидневной войны, наиболее убедительной победы Израиля; Война на истощение после потопления египетским флотом израильского эсминца «Эйлат» в 1967 г. началась всего через три месяца после успешной Шестидневной войны.
К длительной отсрочке следующей войны, полагает Я.Амидрор, может привести максимальное и основательное уничтожение ЦАХАЛом военных систем и инфраструктуры противника. В таком случае врагу будет трудно восстановить свои возможности, если новые системы не будут быстро предоставлены третьими сторонами. Эксперт приводит примеры, от кого враги Израиля гарантированно получали помощь: Советский Союз после 1967 г. или Иран «Хизбалле» после 2006 г. Однако, считает он, такая помощь также может прекратиться.
В войне против негосударственных организаций важно уничтожить их военную технику, обустроенную инфраструктуру (включая подземные объекты) и нанести удар по их командованию. Не менее важным является «разрушение созданных ими мифов о героическом сопротивлении и мученичестве». Для этого командиров нужно брать в плен живыми. По словам Я.Амидрора, «все это гораздо важнее, чем захват территории (захват территории должен осуществляться для уничтожения вражеских ресурсов, а не как самоцель)». «Таким образом, в будущих столкновениях с террористическими и гибридными организациями (т.е. террористическими группами с военными возможностями регулярных сил) ЦАХАЛ должен стремиться к уничтожению всех военных систем противника в самом полном смысле этого слова».
При этом отмечается, что «Израиль непосредственно не заинтересован в нанесении ущерба основной гражданской инфраструктуре стран, в которых размещаются террористические организации, помимо тех элементов, которые могут подорвать их боевые возможности». Однако допускается, что «в экстремальных обстоятельствах возможность нанести удар по инфраструктуре может усилить израильское сдерживание» противника.
- По словам Я.Амидрора, «Израиль – держава статус-кво, что означает, что он не стремится расширяться или доминировать в соседних странах. Тем не менее, еврейское государство будет противостоять тем, кто пытается изменить нынешний баланс сил, нанося ущерб перспективам его выживания, и даже вступит с ними в войну. По той же причине Израиль сохраняет за собой право вести превентивные войны или использовать свою огневую мощь против конкретных целей даже в межвоенный период, чтобы избежать риска и предотвратить опасное наращивание возможностей противника».
- Такое сочетание осторожности как основного стратегического императива с необходимостью предотвратить развитие событий, изменяющих правила игры, которые могут нарушить баланс сил, заставляет Израиль идти на риск, а иногда и на большой риск. Примером тому является «кампания между войнами», которая направлена на устранение будущих угроз и обеспечение качественной разведки (что, в свою очередь, приводит к лучшему пониманию реалий и действиям, основанным на достоверной информации). Таким образом, пишет Я.Амидрор, «неудивительно, что на протяжении многих лет ЦАХАЛ и израильское разведывательное сообщество часто проводили операции, которые отличались смелостью, иногда выходя за рамки воображаемого». «В некоторой степени «тактическая смелость» – это обратная сторона и необходимое дополнение «стратегической осторожности. Восприятие всего этого также является [для врага] сдерживающим фактором».
- В последнее время при применении силы необходимо учитывать «внутреннюю легитимность». Как демократическое государство с открытым обществом, Израиль предпочитает вести свои войны только тогда, когда они поддерживаются общественным мнением, что повышает устойчивость населения в целом и в ходе боевых действий снижает вероятность возможных ограничений для лиц, принимающих решения. Такая легитимность особенно важна, когда во время эскалации напряженности наносятся удары по тылу (иногда очень болезненные).
В то же время, что отмечается как не менее важная задача, «Израиль должен стремиться обеспечить международную легитимность, особенно среди стран-единомышленников, и прежде всего – Соединенных Штатов».
Усилия по обеспечению внутренней и международной легитимности в некоторых случаях могут накладывать ограничения на применение силы. Их значимость должна быть сопоставлена с необходимостью ЦАХАЛа достичь своих целей с минимальными потерями. В любом случае, пишет Я.Амидрор, нельзя игнорировать требования легитимности, поскольку они жизненно важны для небольшой страны, которая вынуждена проводить многочисленные военные операции. «Это серьезная проблема, потому что необходимость действовать в соответствии с международным гуманитарным правом обязывает Израиль, но не его врагов. Увы, международные нормы связывают Израилю руки, тогда как его враги могут свободно атаковать без ограничений»[i].
[i] Israel’s National Security Doctrine // JISS. 18.07.2021 — https://jiss.org.il/en/amidror-israels-national-security-doctrine/
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POST QUERY:
POST QUERY RESULTS