Институт политики и стратегии при Университете им. Райхмана совместно с Институтом Кеннана и Центром Вильсона опубликовали доклад под названием «Россия на Ближнем Востоке: вызовы национальной безопасности США и Израиля в эру Байдена»[i].
Авторы доклада признают, что Ближний Восток имеет историческое и стратегическое значение для России. Российская Империя и Советский Союз проводили активную внешнюю политику на Ближнем Востоке, вступая в соперничество с Османской, Персидской, Британской и Французской империями. Во время холодной войны соперником СССР на Ближнем Востоке стали Соединенные Штаты. Распад СССР привел к неоспоримому pax americana в регионе, когда Москва не смогла вновь заявить о себе во время Второй войны в Персидском заливе, «арабской весны» и бомбардировок НАТО в Ливии. По мнению экспертов, «Россия была разочарована своей неспособностью остановить Соединенные Штаты посредством двусторонних отношений, через Совет Безопасности ООН или на местах. Коллапс в отношениях между Западом и Россией, спровоцированный украинским кризисом 2014 г., заставил Путина переосмыслить внешнюю политику России, проявить большую инициативу на многих театрах и действовать в ожидании конфликта с Западом».
Отмечается, что «интервенция в Сирии 2015 г. помогла России вернуться на Ближний Восток. Москва была мотивирована желанием предотвратить поддерживаемую США смену режима, продемонстрировать статус великой державы всему миру и своему народу, усилить свои военные позиции в регионе, расширить возможности российской дипломатии и предотвратить распространение исламистского терроризма вблизи и внутри России».
Эксперты полагают, что «внутренние и международные вызовы Путину вряд ли непреодолимы, и Россия не уйдет с Ближнего Востока в краткосрочной или среднесрочной перспективе. Инвестиции в Ближний Восток не особенно дорого обходятся Кремлю с чисто экономической точки зрения или с точки зрения потерь: кампания в Сирии носит обоснованный характер и позволяет проводить учения и испытывать системы вооружения; гибнут в Сирии в основном наемники, а не солдаты срочной службы». По их мнению, «участие на Ближнем Востоке приносит Путину некоторые практические и идеологические выгоды, поскольку его престиж внутри страны связан с амбициозной внешней политикой, которую он проводит с 2014 г.» Более того, «Путин не хотел бы, да и, возможно, не смог бы выжить политически, если бы Россия ушла с Ближнего Востока или с Украины».
На Ближнем Востоке, говорится в докладе, «преобладает деловой стиль дипломатии»[ii]. «Это устраивает Путина, помогает ему справляться с кризисами и максимизировать возможности, когда они появляются. Путину более чем комфортно работать с противоборствующими сторонами в конкретном конфликте, как он это делает в Афганистане, Иране, Палестине, Ливии и, в меньшей степени, в Йемене. Пока что Россия пережила скромную неудачу в Ливии, в то время как всячески пытается справиться с Турцией на Ближнем Восток, в том числе на Южном Кавказе, где Анкара только что усилила свое военное и дипломатическое влияние. Тем не менее, Россия, вероятно, рассматривает свое решение вмешаться в Сирию в 2015 г. в качестве стратегического успеха и прелюдии к дальнейшим победам в других частях региона».
В докладе отмечается, что России удалось сохранить правление Башара Асада и получить базы в Сирии. «До сих пор Москве удавалось создавать в Сирии мозаику разовых партнерских отношений, от Ирана до Турции и сирийских курдов. Это исключительно сложный акт жонглирования, которому нет конца. С некоторыми трудностями Москва может решать свои проблемы с Турцией и сотрудничать с Ираном, сохраняя при этом рабочие отношения с Израилем, которые сосредоточены на Сирии, урегулировании конфликтов и связанных с ними региональных проблем, одновременно разрешая конфликты и конкурируя с Соединенными Штатами. В последние пять лет Россия неуклонно расширяла свое военное, дипломатическое и экономическое влияние на Ближнем Востоке».
Эксперты считают, что Россия и Иран взаимодействуют на основе совпадения отдельных интересов. Россия использует свои отношения с Ираном для усиления своего влияния на Ближнем Востоке в целом и в районе Персидского залива, где в настоящее время господствуют США, в частности. По их мнению, «в Москве исходят из того, что поддержка Ирана укрепляет позиции России и на международной арене. Москва и Тегеран пытались противостоять стратегии администрации Трампа «максимального давления», а также усилиям Израиля по сдерживанию иранской мощи и влияния в регионе». «Россия, вероятно, в конечном итоге продаст Ирану современные системы вооружений, поскольку истекло эмбарго ООН. Это может придать смелости Ирану в Сирии и других странах, в том числе на ядерном фронте. Иран и Россия заинтересованы в снижении роли США в регионе. Между Ираном и Россией существуют различия и разногласия, включая поддержку иранцами терроризма и угрозу режиму нераспространения ядерного оружия. Однако Соединенные Штаты и Израиль признают, что полностью отдалить Россию от Ирана в Сирии, может быть, не удастся».
По мнению американских и израильских экспертов, «Путин не может проводить свою ближневосточную политику без учета серьезных и устойчивых проблем, с которыми он сталкивается внутри страны. Падающая экономика, последствия кризиса COVID-19, и разочарование в связи с плохим управлением Кремля – все это привело к протестам в России. Это произошло на фоне неопределенности в Беларуси, где президенту Лукашенко грозит революция, и в процессе отдаления России от Европы в целом и от Германии в частности, хотя предстоящие выборы в Германии могут несколько изменить эту динамику. Напряженность в отношениях с США не собирается спадать. Неурегулированный на протяжении длительного времени украинский кризис и обострение проблем в Беларуси свидетельствуют о том, что Путину, скорее всего, больше удается манипулировать, чем разрешать конфликты. Путин пытается изменить международный порядок в сторону интересов России, чего, по его мнению, он может достичь только с помощью настойчивых, а иногда и агрессивных действий. Его цель – отодвинуть проблемы России как можно дальше от Москвы – как в Европе, так и на Ближнем Востоке».
Эксперты полагают, что «Путин вынужден действовать в условиях многих ограничений. Россия финансово менее благополучна и менее динамична, чем США и Китай. Русские получают региональные рычаги влияния, пытаясь превратить военное вмешательство в дипломатическую выгоду. Кремль добился самых больших успехов в несостоявшихся государствах региона, что является неоднозначным успехом. Однако среди устойчивых государств русские не рассматриваются в качестве надежных союзников, они и не стремятся играть такую роль. Прагматизм определяет отношения России с Китаем, Ираном, Израилем и странами Персидского залива, с которыми подписан ряд соглашений о продаже энергоресурсов и оружия (некоторые из которых так и остались на бумаге). По сравнению с Китаем и США Москва мало что может предложить с экономической точки зрения. Она проводит деловую и оппортунистическую дипломатию, созвучную российскому взгляду на мировой порядок. Совсем недавно Россия и Судан договорились о российском пункте материально-технического обеспечения в Порт-Судане, первой российской базе в Красном море после распада СССР».
Отмечается, что «недавняя нормализация отношений между Израилем, ОАЭ, Суданом, Марокко и Бахрейном обошла стороной Россию, которая наблюдала за развитием событий со стороны. Москва стремится к более выгодным отношениям со странами Персидского залива и поддерживает тесные связи с палестинцами. Как член «квартета» она выступает за решение конфликта на основе создания двух государств [Палестины вдоль границ с Израилем]. Прилагая усилия по подрыву американского влияния в регионе, Россия пыталась использовать разрыв отношений между Соединенными Штатами и палестинским руководством, хотя Москва не играла роли в многосторонних форумах по достижению арабо-израильско-палестинского мира. Израильско-палестинский конфликт не является вопросом первоочередной важности для Москвы, которой в любом случае не хватает ресурсов, чтобы многое сделать для палестинцев. Критикуя американскую «сделку века», Россия не использовала ее для давления на Израиль».
«В Ливии Москва поставила силам Хафтара МиГ-29 и Су-24. В своих самых амбициозных планах Россия хотела бы создать долгосрочный военный плацдарм в Ливии, в идеале с ограничением и воспрещением доступа и маневра (A2/AD). Однако в настоящий момент русские делают все возможное, чтобы сохранить имеющиеся у них возможности и получить рычаги воздействия в очень сложной ситуации. Богатая нефтью Ливия фигурирует в планах России, стремящейся оказывать долгосрочное влияние на добычу нефти и газа в Восточном Средиземноморье. Увеличение российского военного присутствия в Ливии, если оно произойдет, будет иметь стратегическое значение для оказания влияния в южной Европе и Африке».
«Высоко оценивая связи Египта с Ливией, Путин поддерживает прочные рабочие отношения с президентом Египта Абдель Фаттахом ас-Сиси. Как и Турция, Египет может извлечь выгоду из того, что находится между США и Россией. Однако Москва знает, что Каир не откажется от прочных связей с США ради нее. Россия подписала несколько сделок по продаже современного оружия Египту и надеется включить в них усовершенствованный самолет Су-35, что может подвергнуть Египет американским санкциям. Две страны проводят совместные военные учения, и египетские военнослужащие проходят подготовку в российских военных академиях. В (возможно отдаленном) будущем Россия была бы рада возможности получить авиабазу в западном Египте. Россия также является крупнейшим поставщиком пшеницы в Египет и строит четыре атомных реактора на АЭС «Эль-Дабаа» к северо-западу от Каира. Египет разделяет «контрреволюционную» позицию России, т.е. поддерживающую авторитарные тенденции на Ближнем Востоке. У двух стран совпадают интересы на африканском континенте».
Что касается Китая, то он относительно помогает России в снижении роли США на Ближнем Востоке. Китай стремится к более низким ценам на энергоносители, а Россия – к их повышению. Но обе страны хотят, чтобы Соединенные Штаты больше не доминировали в мире. На Ближнем Востоке финансовое влияние Китая является противовесом влиянию Вашингтона, и Китай с большей вероятностью будет инвестировать в регион, чем Соединенные Штаты, что может предоставить Пекину долгосрочные рычаги воздействия. Китай мог бы, если бы захотел, внести финансовый вклад в политический порядок, который Россия желает установить в Сирии, Ливии и других кризисных зонах Ближнего Востока. Однако нет каких-либо признаков, что китайцы желают это делать, тогда как Москва очень далека от реализации масштабных планов в Сирии. Санкции США по-прежнему вызывают серьезную озабоченность в Пекине».
Делается вывод, что расширенное военное присутствие России на Ближнем Востоке с 2015 г. оказалось устойчивым и эффективным. В настоящее время Россия поддерживает конструктивные дипломатические отношения по всему региону и находится на противоположных сторонах многих конфликтов. Благодаря дипломатии, военным связям и использованию экономических рычагов для достижения внешнеполитических целей Россия оказывает влияние от Афганистана и Южного Кавказа и до Северной Африки.
Партнерство России с Китаем еще не переросло в мощную ось на Ближнем Востоке, но Москву и Пекин может подтолкнуть к сотрудничеству динамика конкуренции великих держав. Плавный, деловой и авторитарный стиль дипломатии Путина хорошо работает в контексте политической нестабильности и политической культуры Ближнего Востока в целом.
У России есть многочисленные обязательства на Ближнем Востоке. Внутренний экономический спад делает невозможным резкое расширение военной активности России в этом регионе. Москва добилась лучших результатов в несостоявшихся государствах региона – Сирии и Ливии. В военном и дипломатическом плане она всячески пытается справиться с инициативами Турции – от Азербайджана до Сирии и Ливии. Россия не может конкурировать с Соединенными Штатами в дипломатическом и военно-экономическом влиянии. Если Китай решит более энергично продвигаться на Ближний Восток, он сможет предоставить ресурсы и возможности, которых нет у России. Вообще, считают эксперты, Россия не обладает рядом атрибутов великой державы: вооруженные силы (включая кибернетический и разведывательный потенциал) позволили ей стать крупной и сложной иностранной державой на Ближнем Востоке. Однако у Москвы ограниченное экономическое влияние, и у нее нет идеологии, сравнимой с коммунистической, которую можно было бы предложить на Ближнем Востоке. Российское руководство занимается достижением краткосрочных и часто конъюнктурных интересов, а не реализацией тщательно продуманной общей стратегии.
Россия стоит перед лицом волнений на фоне пандемии COVID-19 и потенциально дестабилизирующей ситуации, если произойдет смена руководства у ее близкого союзника – Беларуси. Хотя все это не заставит Россию уйти с Ближнего Востока, но может помешать увеличить свое присутствие. По этой причине Пекин и Москва были воодушевлены официальным решением администрации Трампа вывести войска и сократить американское присутствие в регионе. В Вашингтоне, напротив, дебаты об американском военном присутствии на Ближнем Востоке (в каденцию последних администраций) происходят в контексте смены приоритетных регионов и сохранения конкурентоспособности.
Китай интегрирует части Ближнего Востока, от Афганистана до Ирана и Африканского Рога, в свою инициативу «Один пояс, один путь». Он может стать альтернативой региональному влиянию и мощи Соединенных Штатов. Но китайцы пока предпочитает держаться на расстоянии. Пекин и Москва, безусловно, согласовывают свою политику в Сирии и других странах Ближнего Востока, хотя у них разные интересы в отношении цен на нефть. Но даже в этом случае их цели не расходятся. Китай и Россия преуспели в деловой дипломатии, слегка уравновешенной идеологией. Пекин и особенно Москва отдают предпочтение авторитарным режимам. Россия позиционирует себя как консервативную силу в регионе и выставляет США безответственным ревизионистом. Через свои новостные и пропагандистские сети Россия пытается использовать региональный хаос для поощрения или просто для изображения упадка американской проницательности и влияния на Ближнем Востоке. В соответствии со своими экономическими интересами Китай предпочитает порядок хаосу, но послание об «упадке Америки» столь же благоприятно для создателей китайской внешней политики, как и для практиков его пропаганды и культурной дипломатии.
Что касается места России в стратегии США и Израиля, то для Вашингтона присутствие Москвы на Ближнем Востоке на существующем уровне не является нетерпимым. Оно не обязательно противоречит основным интересам США в регионе; но действительно затрудняет реализацию интересов и пагубно в той степени, в которой политика России мотивирована ограничить влияние Америки и нанести ущерб ее престижу. Соединенные Штаты, вероятно, будут рассматривать действия России на Ближнем Востоке через призму соперничества великих держав, принимая во внимание Китай, где это уместно.
Израиль оказывается в парадоксальной ситуации. С одной стороны, он желает предотвратить сокращение военного (хотя и не обязательно дипломатического) участия США в процессах на Ближнем Востоке, а с другой – нуждается в определенном взаимодействии с Россией, хотя бы для того, чтобы Кремль не ограничивал свободу его действий в Сирии и других районах. Стратегия Израиля не проистекает из конкуренции великих держав. Стратегия Израиля в отношении России определяется требованиями кризисного управления.
[i] Russia in the Middle East: National Security Challenges for the United States and Israel in the Biden Era -https://www.idc.ac.il/en/research/ips/documents/events/ips-kennan/russia-ips-kennan-e2021web.pdf
[ii] Деловая (транзакционная) дипломатия, по сути, основана на логике «услуга за услугу». Такой стиль поведения на международной арене приписывали Д.Трампу; он описывается так: «я ничего не сделаю для вас, если не получу что-то взамен; если я помогу вам, вы должен мне за это заплатить. По сути, в случае использования бизнес-дипломатии, каждое совместное действие – будь то в экономической, институциональной сферах или в области безопасности – становится взаимозаменяемым и потенциально продаваемым активом.
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POST QUERY:
POST QUERY RESULTS