Russian Peacekeeping Strategies in the CIS. The Cases of Moldova, Georgia and Tajikistan by Dov s> Lynch (review)

Abstract

REVIEWS I9I Lynch,Dov. Russian Peacekeeping Strategies intheCIS.TheCases ofMoldova, Georgia and Tajikistan. The Royal Institute of International Affairs. Macmillan, Basingstoke and London, and St Martin's Press, New York, 2000. Xi+ 265 pp. Notes. BibliographicalReferences. Index. ?45.00? THIsbook is a revised version of Dov Lynch's D Phil thesis submittedto the University of Oxford in I997. This book can safely be said to be the first comprehensive study of Russian peacekeeping in the CIS. Any study of this subjectrequiresconsideration of the general concept of peacekeeping and of the evolution of Russian foreign and securitypolicy towardsthe near abroad. The authorusefullycommences hisworkwith abriefoverviewof international peacekeeping and its development since both I945 and the end of the Cold War. This places the phenomenon of Russian peacekeeping within a comparative context, enabling one to compare it with the experience of peacekeeping as practisedsince the end of the Second WorldWar.The book then goes on to discuss the development of Russian foreign and military towards the near abroad in the I990s, before discussing the Russian debate over peacekeeping, along with a considerationof three 'case studies',namely the Russian involvement in the peacekeeping operations in Moldova, Abkhaziaand Tajikistan. Russianpeacekeepingin the nearabroadhasbeen an importantinstrument of Russian foreignpolicy towardsthe formerSoviet states. Lynch arguesthat the Russiangovernmenthas pursueda strategyof armed suasionin Moldova, Georgia and Tajikistan, using coercive intervention, 'peacekeeping' operations and various forms of political pressure in an attempt to restore clear hierarchical relations in the the CIS region by means of short of war. In Lynch's view, suasion is the key concept in Russia's approach towards the conflicts in these three states that led to the deployment of Russian peacekeeping forces, suasion itself denoting both persuasion and dissuasion by using force on a limited scale along with other tools of pressure by one external state against a target state or other actor in order to influence the actions and perceptions of that target, but without entering into large-scale armed conflict. The study of the evolution and effettiveness of Russia'sstrategyof suasion requiresthe consideration of the development of Russia'spolicy towardsthe near abroad.This Lynch does admirablyin the course of two chapters,which tracethe developmentof foreignministryand themilitaryapproachestowards the otherformerSoviet states.The roleplayed by differentinstitutionalactors, such as the presidential administration, Security Council, parliament, the intelligence services, armed forces and the ministriesof defence and foreign affairs are all discussed, underlining the fact that Russia's foreign policy processhasbeen subjectto theconflictingoutlooksofthesevariousinstitutions. The evolution of attitudestowards the near abroad, namely the shift from a liberal approach towards a more assertive nationalist-centrist approach is well-traced.The state of the Russian armed forces and the impact of military reformon theevolutionof Russianpolicyarealsodiscussed.Russianeconomic and military weakness has forced Russia to look more to political means of resolving disputes. She has also had to accept that her economic weaknesses 192 SEER, 79, I, 2001 have forced her to concentrate on developing relationswith key states in the CIS (Georgia, Armenia, Belarus and Kazakhstan), rather than attempt to create a sphereof influencethroughoutthe entire Commonwealth. From an overview of Russia'spolicy toward the near abroad, Lynch then discussesthe development of Russianviews on peacekeeping, again noting the differentperspectives of differinginstitutions involved in the formulation of policy. In referring to the case studies, Lynch notes the emergence of two operational patterns. In Abkhazia and Moldova, Russian forces created conditions for the deployment of peacekeeping forces which have frozen the conflicts. In Tajikistan, Russian forces have been engaged in a collective securityoperationsupportingthe Tajikgovernment. These forceshave been supportingborderforces in a conflicton the TajikAfghan border. Russia has endeavoured to make these peacekeeping operations CIS operations, but the inability of other CIS members to contribute forces means that these operations have been in effect solely Russian operations.In the second partof the book Lynchprovidesbriefhistoriesof the Moldovan, Abkhazand Tajikpeacekeeping operations. This book is an excellent study of peacekeeping in the near abroad, and is also more thanjust that. It is also a studyof Russianforeignpolicy towardsthe formerUSSR, and a studyof the makingof foreign and securitypolicy in the Russian Federation. The author has moreover produced a most useful bibliography.It would have been interestingif the peacekeeping operation in South Ossetia could also have been considered. More attention could also havebeen paidto thereactionof the...