战略与国际研究中心-PONARS-Policy-Memo-201_3页_72kb

U.S.-Russia Cooperation on Afghanistan: An Exception or a Model?

Core Content

The document "U.S.-Russia Cooperation on Afghanistan: An Exception or a Model?" by Ekaterina Stepanova, published in September 2001 as a PONARS Policy Memo, examines the unique and notable cooperation between the United States and Russia on the issue of Afghanistan, particularly in the context of counterterrorism. Despite the generally strained relations between the two countries on a variety of global and regional issues, their collaboration on Afghanistan stood out as a rare exception.

Main Points of Cooperation

• Bilateral Working Group: In 2000, Presidents Clinton and Putin established a bilateral working group focused on counterterrorism in Afghanistan, reflecting a shared interest in addressing the threat posed by Al Qaeda and Osama bin Laden.
• Pressure on the Taliban: Both countries exerted pressure on the Taliban, the de facto government of Afghanistan, to change its policies on terrorism and narcotics.
• UN Sanctions: The U.S. and Russia were the most active advocates for UN sanctions against the Taliban, despite differences with other members.
• Use of Force: The U.S. bombed Al Qaeda's terrorist bases in Afghanistan in 1998, while Russia threatened missile attacks in 2000, indicating a willingness to use force if necessary.
• Regional Security Interests: Russia's interest in Afghanistan was closely tied to its security in Tajikistan, where the Taliban's presence posed a direct threat. The U.S. viewed the Taliban's influence as a potential catalyst for the resurgence of radical Islam in Central Asia.

Key Factors Influencing Cooperation

• Shared Security Concerns: Both countries had a vested interest in preventing the spread of terrorism and radical Islam, which were seen as significant threats to their respective national interests.
• Regional Stability: The civil war in Afghanistan had a direct impact on the security of neighboring states, particularly Tajikistan and Central Asia, making regional stability a shared priority.
• Historical Context: The U.S. and Russia had both used Afghanistan as a Cold War arena, with the U.S. indirectly and Russia directly. This historical context contributed to their mutual understanding of the region's complexities.
• Unofficial Contacts: The U.S. maintained unofficial contacts with the Taliban, despite not officially recognizing them as a terrorist organization, while Russia sought to support the Northern Alliance to maintain stability in the region.

Broader Implications

• Post-Cold War Security Threats: The U.S. increasingly viewed international terrorism as a substitute for traditional security threats, with bin Laden and Al Qaeda serving as the primary targets.
• Unilateral vs. Multilateral Approaches: The document highlights the risks of unilateral military action, such as the potential for destabilizing the region and eroding international support.
• Future Cooperation: The question of whether this cooperation is a one-off or a model for broader Western-Russia collaboration is raised, especially in light of the U.S. response to the September 11 attacks.

Conclusion

The document argues that U.S.-Russia cooperation on Afghanistan was driven by shared concerns and overlapping interests, particularly in the fight against terrorism. However, it also warns that such cooperation may not be sustainable if the U.S. continues to pursue unilateral actions without considering the broader regional implications. The long-term goal should be to develop multilateral strategies that address the root causes of terrorism and promote stability across Eurasia.

Summary

U.S.-Russia Cooperation on Afghanistan

• Context: Afghanistan was a rare case of U.S.-Russia cooperation on a regional security issue, despite broader tensions.
• Forms of Cooperation: Included pressure on the Taliban, UN sanctions, and the formation of a bilateral working group on counterterrorism.
• Regional Impact: Russia's interest was linked to its security in Tajikistan, while the U.S. focused on preventing the spread of radical Islam.
• Historical Role: Both countries had a history of using Afghanistan as a Cold War battleground.
• Terrorist Threat: The U.S. and Russia shared a concern about the Taliban's potential to foster radical Islamic movements.
• Post-9/11 Relevance: The September 11 attacks intensified the need for cooperation, but the nature of U.S. retaliation raised concerns about the sustainability of such collaboration.

Implications for Future Cooperation

• Unilateral Actions: The U.S. response to 9/11 highlighted the risks of unilateral military operations.
• Multilateral Solutions: The document advocates for a more comprehensive, multilateral approach to counterterrorism.
• Model for Collaboration: The cooperation on Afghanistan may serve as a model for future collaboration on regional security issues, but only if it is based on mutual respect and strategic alignment.

This cooperation, while significant, was shaped by specific regional concerns and the evolving nature of global security threats in the post-Cold War era.