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].
Помимо рассмотрения ситуации в регионе под углом противоборства великих держав, в докладе рассматривается стратегия США на Ближнем Востоке в период президентства Дональда Трампа и начала работы администрации Байдена. Отмечается, что «команда Трампа продолжала унаследованную от Обамы политику минимизации военных обязательств на Ближнем Востоке. Решение Белого дома в октябре 2019 г. о выводе большей части американских войск из Сирии усилило позиции России, Ирана и Турции в этой арабской стране. Политика администрации Трампа на Ближнем Востоке расходилась с политикой периода Обамы в трех аспектах».
«Во-первых, президент Трамп вышел из Совместного всеобъемлющего плана действий (СВПД) и инициировал стратегию «максимального давления» на Иран, направленную на сокращение его регионального влияния посредством экономических санкций. В январе 2020 г. Соединенные Штаты убили Касема Сулеймани [командующего «Аль-Кудс», спецподразделения Корпуса стражей исламской революции]». По мнению экспертов, «эти шаги сблизили Москву и Тегеран, усилив нарратив России о том, что, в отличие от США, она ведет переговоры со всеми сторонами на Ближнем Востоке».
«Во-вторых, администрация Трампа сблизилась с арабскими режимами, особенно странами Персидского залива. Частично это было сделано за счет отказа от критики их внутренней политики. Администрация Трампа поощряла коалицию между Израилем и странами Персидского залива, преуменьшая озабоченность по поводу прав человека, и подписала с некоторыми из них резонансные оружейные сделки».
«В-третьих, Трамп установил тесные рабочие контакты с Биньямином Нетаньяху. Его администрация связала свою конфронтацию с Ираном и отношения со странами Персидского залива с мирным процессом в виде «сделки века» для Израиля. Этот план так и не был реализован, но изменения в политике США позволили нормализовать отношения между Израилем, Бахрейном, Марокко, Суданом и ОАЭ».
Эксперты полагают, что за исключением «Авраамовых соглашений» в качестве концепции внешней политики, действия администрации Байдена на международной арене будут сильно отличаться от периода Трампа. Байден стремиться вернуться к СВПД и, несомненно, более критично относится к Саудовской Аравии, странам Персидского залива, Турции и Египту и их соответствующей политике в регионе, а также к их проблемам с правами человека, оказывая большее давление на Израиль, чтобы тот избегал односторонних действий (особенно расширения поселений), которые могут сорвать решение конфликта путем сосуществования двух государств и возобновления переговоров в будущем. Согласно докладу, если бы Б.Нетаньяху остался во власти, Байдену было бы трудно сотрудничать с ним, учитывая скептицизм в отношении Израиля в прогрессивном крыле Демократической партии США. К тому же никто бы не забыл напряженные отношения между Б.Нетаньяху и администрацией Обамы. В то же время, полагают эксперты, «Байдену, возможно, не стоит беспокоиться об аннексии, это может помочь ему правильно встроить отношения с Израилем». «Сосредоточение внимания администрации Байдена на переговорах с Ираном по ядерной проблеме в сочетании с усилением критики в адрес Израиля, Турции и арабских стран может создать для России возможность оказывать необходимые услуги в качестве регионального партнера Ирана».
В докладе отмечается, что «для администрации Байдена стремление улучшить позиции США по отношению к Китаю и обещание углубить сотрудничество с другими демократическими странами означают затруднение отношений с Китаем, Россией и Турцией». В то же время новая администрация будет делать все возможное, чтобы укрепить НАТО, в котором Турция становится все более проблематичным членом. Как это будет происходить на Ближнем Востоке, неясно. По ходу предвыборной кампании Байден критиковал «бесконечные войны» и указывал на то, что он сохранит лишь ограниченное присутствие войск в Ираке и Сирии, которые будут сосредоточены на борьбе с терроризмом.
Эксперты прогнозируют, что «в краткосрочной и среднесрочной перспективе у Соединенных Штатов и России будут непростые отношения, хотя они не будут касаться Ближнего Востока. Вашингтон может попытаться ввести дополнительные санкции против России, усилить военную помощь Украине и вернуться к американской политике продвижения демократии в Восточной и Центральной Европе. Путин сделает все, что в его силах, чтобы не поддаться этому давлению, и он вполне может постараться выступить с инициативой и оказать давление на Соединенные Штаты в Европе, Азии или на Ближнем Востоке. Ни одна из стран не желает военного или иного противостояния между Соединенными Штатами и Россией на Ближнем Востоке; обе державы будут пытаться справиться с напряжением».
Что касается российско-израильских отношений, то за последние пять лет они углубились. Президент В.Путин стал первым российским (и советским) лидером, посетившим Израиль в 2005, 2012 и 2020 гг. С тех пор Путин называл Израиль «особым государством», которое имеет общие черты с Россией. В Израиле проживает около миллиона евреев советского происхождения, включая политиков и официальных лиц, курирующих двусторонние отношения. Данный факт свидетельствует о глубоких исторических, культурных и социальных связях между двумя странами. Израиль и Россия вспоминают историю и последствия Второй мировой войны, которые имеют большое значение в их национальных дискурсах. Кроме того, у Путина и Нетаньяху были налажены крепкие личные отношения.
Тем не менее, говорится в докладе, «интересы Израиля и России больше расходятся, чем сходятся. Ближайшим союзником Израиля являются Соединенные Штаты, и он заинтересован в участии США на Ближнем Востоке, что, безусловно, не является интересом России. Израильское руководство рассматривает Тегеран как главную угрозу и ведет против него военно-политическую кампанию. Надежды Израиля на то, что Россия сможет уравновесить иранское влияние на сирийской территории, пока не оправдались. Россия сотрудничает с Ираном в Сирии и не возражает против усилий Тегерана по установлению прочного военного присутствия в этой арабской стране. Москва поставляет иранцам оружие и срывает усилия Америки по сокращению иранской ядерной программы. Однако Россия не считает позитивные отношения с Израилем и Ираном противоречащими друг другу. Напротив: стратегия России в регионе основана на укреплении связей со всеми региональными игроками. Следовательно, она мало что делает для того, чтобы помешать операциям израильских ВВС против Ирана в Сирии. К тому же Россия и Израиль согласились о наличии разногласий по поводу палестино-израильского конфликта».
По мнению экспертов, «постоянное военное присутствие России и наличие ее вооружений дальнего действия на северной границе Израиля ограничивают его свободу действий в Сирии, увеличивая при этом возможность иранского закрепления на ее территории под российским прикрытием. С точки зрения России, Израиль может нарушить планы и стратегию Москвы на Ближнем Востоке своей автономной военной деятельностью, влиянием в Вашингтоне или случайно. Иногда Россия извлекала выгоду из израильских ударов по иранским целям и объектам «Хизбаллы» в Сирии. В то же время инцидент в сентябре 2018 г., когда сирийская ПВО сбила российский разведывательный самолет [в результате целенаправленных маневров израильских ВВС в Сирии], показал Израилю, насколько быстро может начаться серьезный кризис в отношениях с Кремлем». Тем не менее, кризисная ситуация была урегулирована, что свидетельствует, по мнению экспертов, «о стремлении России избежать любого затяжного конфликта с Израилем».
Авторы доклада полагают, что Израиль и Россия смогли разграничить сферы своих интересов. Для этого они стараются не допускать, чтобы их стратегические разногласия мешали продвижению двусторонних интересов, которые заключаются в предотвращении конфликтных ситуаций в Сирии. Политические и военные круги Израиля взаимодействуют со своими российскими коллегами. Общие интересы включают недопущение инцидентов между российскими и израильскими вооруженными силами в Сирии и применение аналогичного подхода к борьбе с радикальными исламистскими группировками, такими как ИГ, «Аль-Каида» и их филиалы. Отмечается, что «как и Россия, Израиль был встревожен подходом США к лидерам, связанным с «Братьями-мусульманами», и крахом стабильных, хотя и недемократических, режимов на Ближнем Востоке во время «арабской весны», что обострило потрясения и неопределенность в регионе».
В докладе рассматриваются области сотрудничества США и Израиля. Предполагается, что Россия не будет вбивать клин между США и Израилем и не сможет заменить Соединенные Штаты, все еще занимающие доминирующее положение. Тем не менее, отмечается, что «вероятность конкуренции великих держав на Ближнем Востоке в будущем потребует от Израиля и Соединенных Штатов творческого подхода и расширенных консультаций по поводу всего Ближнего Востока». В частности, эксперты выделяют ряд моментов.
- Совместный американо-израильский стратегический подход к России означает усиление координации действий по ее сдерживанию на Ближнем Востоке в кибернетической и технологической сферах. Хотя Китай находится на втором плане, что касается Ближнего Востока его следует признать важным фактором любой совместной американо-израильской стратегии.
- Послания Израиля Вашингтону по поводу России имеют решающее значение. Израиль должен доказать Соединенным Штатам исключительную прозрачность своих отношений с Россией, а именно то, что:
— его отношения с Россией сосредоточены исключительно на разрешении конфликтов, мерах безопасности и обеспечении свободы действий в Сирии; диалог с Россией, особенно в технологической и разведывательной сферах, носит ограниченный характер;
— израильское руководство осведомлено о намерении России уменьшить влияние США на Ближнем Востоке, что противоречит его основным интересам, и что Израиль видит связь между отношениями с Россией и отношениями с США.
- Израильский премьер-министр должен чутко относиться к характеру своих контактов с президентом Путиным, повышая уровень доверия в отношениях с Вашингтоном.
- Необходимо расширить официальные консультации по вопросам конкуренции великих держав и ее последствий для Ближнего Востока и американо-израильских отношений. Соединенные Штаты и Израиль не могут ограничивать свой диалог возможностями и кризисами на Ближнем Востоке. Они должны обязательно увязать ситуацию на Ближнем Востоке с растущей ролью России и Китая в мире.
- Соединенным Штатам следует демонстрировать свою поддержку Израилю. Сохранение американского присутствия на Ближнем Востоке в интересах Израиля. Вашингтон мог бы рассмотреть возможность появления своих официальных лиц в местах, которые указывали бы на поддержку США Израиля и его операций по противодействию Ирану в регионе, как официальные лица США часто делают в Европе по отношению к России. Высокопоставленным американцам, прибывающим в Израиль, следует иметь в виду Россию, которая отслеживает их выступления, встречи и фотосессии.
- Израиль и Соединенные Штаты должны помнить, что Россия наблюдает за американо-израильскими отношениями и их взаимодействием, чтобы избежать неоднозначных посланий в публичных выступлениях.
- В долгосрочной перспективе, в случае прекращения военных действий в Сирии, Соединенные Штаты, ЕС и арабские страны могут сыграть роль в политическом восстановлении Сирии, используя финансовые ресурсы в качестве рычага для достижения желаемых результатов, таких как сокращение иранского присутствия и влияния на сирийской территории (при этом рекомендуется принять во внимание введенные США ограничения в рамках «Закона Цезаря»). Экономический рычаг может послужить кнутом или пряником, или одновременно кнутом и пряником.
- Консультации с Россией по иранскому ядерному досье могли бы закрепить положения, по которым обе стороны согласны, в частности, по инспектированию и мониторингу МАГАТЭ, а также допустимости использования ядерных технологий в гражданских целях.
- Продажа Россией передовых систем вооружений странам Ближнего Востока, например, зенитно-ракетных комплексов и противокорабельных ракет Ирану или истребителей ПВО Су-35 Египту, может нарушить баланс сил на Ближнем Востоке. Единая позиция Израиля и США по оказанию давления на Россию может снизить вероятность таких продаж.
- Координация с суннитскими арабскими государствами для ограничения российского влияния на Ближнем Востоке должна быть направлена на предотвращение или сокращение российских продаж передовых систем вооружений Ирану, которые могут попасть в руки иранских прокси и потенциально стимулировать технологическое развитие Ирана.
- Руководству США и Израиля следует рассмотреть возможность создания двусторонней американо-израильской рабочей группы по России, предназначенной для обсуждений в общественной и частной сферах, в том числе для облегчения рабочих отношений между правительствами двух стран с целью максимального использования возможностей и минимизации угроз со стороны России.
В заключении подчеркивается, что Израиль проводит четкую грань между своим прагматическим взаимодействием с Россией, с которой у него серьезные стратегические разногласия, и своим стратегическим союзом с Соединенными Штатами. При этом в Вашингтоне эту грань иногда воспринимают неверно, подозревая, что Израиль помогает России проецировать свою мощь на Ближний Восток за счет Америки. Предотвращение недопонимания в этой ситуации имеет решающее значение для американо-израильских отношений, особенно с администрацией Байдена. Соединенные Штаты и Израиль должны использовать свои тесные отношения для объединения имеющихся у них возможностей и координации своей политики в противодействии России на Ближнем Востоке. Американо-израильская координация и коммуникация через совместную американо-израильскую рабочую группу по действиям России в регионе имеет решающее значение именно потому, что Россия в стратегии США занимает одно место, а в стратегии Израиля – другое. Центр Вильсона и Университет Райхмана заявляют о готовности оказать содействие и внести свой вклад в деятельность такой рабочей группы.
[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
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[450] => WP_Term Object
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POST QUERY:
POST QUERY RESULTS