Below is the text from which I spoke to the Sixth
Forum of Free Peoples of PostRussia, Washington, D.C., this past week. A Russian translation is
available at region.expert/1918-1991/.
Approaching End
of Today’s Russia More Likely to Resemble 1918 than 1991
Ever
more people around the world recognize that the Russian Federation is on its
way the dustbin of history, but most of them assume that the coming
disintegration of that country will resemble what happened in 1991. While there
are some elements likely to be in common with the events of 30 years ago, the
future disintegration of the Russian Federation almost certainly will be like
not the remarkably quick and easy divorce of 1991 and resemble instead the
vastly most complicated, difficult, and in part quickly reversed results of the
events of 1918 when Russia earlier fell apart along ethnic and regional lines only
to have much of its territory reunited under Moscow’s yoke because of divisions
among its opponents and the facility with which the Bolsheviks exploited them.
Understanding why the events
looming on the horizon are going to be fundamentally different than those of
1991 and fundamentally similar to those of 1918 is critical not only for the
peoples involved and the strategies they should adopt but also and perhaps
especially important for outside governments who are again going to face a
greater challenge than three decades ago, one that they need to meet in
radically different ways, lest the gains of disintegration be lost by a
reintegration made possible as was the case a century ago by the outsiders
doing just enough to contribute to the rise of a new kind of patriotism but not
enough to achieve what the outsiders in fact hoped for then or now.
Obviously, these differences
between now and 1991, the similarities between the present situation in 1918,
and the consequences for both those immediately involved and those who want to
help them are numerous and ramified, far too large to cover in a single
comment. But there are at least five major reasons in each case that deserve to
be mentioned and may serve as a warning against fighting the wrong war as all
too often happens with politicians as well as with generals. At the very least,
even these can serve as a cautionary notice to those who now assume that what
they hope for will be achieved easily and quickly.
Among the reasons that 2024 will
not be like 1991, the following five are especially important:
·
First, in 1991, almost everyone knew what the
prospects were as far as the numbers of countries that would emerge from the
disintegration of the USSR and what their borders would be. There were 15 union
republics, if one counts the occupied Baltic states among them, and thus there
would be 15 countries. And the administrative borders they had would become
state borders at the insistence of both Moscow and the West. Now, no one has
any idea how many states will arise from the demise of the Russian Federation,
with numbers running from one – the Kremlin’s preference – to more than a 100;
no one knows what their borders will be; and no one knows who will be in charge
of particular places. That very complexity and its dangers leads many to adopt
a status quo approach but such an approach by definition only lays a delayed
action mine under the entire situation as Putin’s moves in Ukraine and
elsewhere show.
·
Second, ethnicity is not going to be the only
factor in the future as it was in 1991. Regions and sub-ethnic groups are going
to play a role, either by separating or uniting; and that means that no one can
say in advance what the principles will be for state organization – unless and
until outsiders declare certain ideas such as democracy and non-aggression as
fundamental. State structures are going to have to be built from the bottom up
rather than simply rechristened as was the case after 1991. Again, that makes
the entire situation more uncertain and more complicated and will dispose many
to favor the status quo as perhaps the lesser evil.
·
Third, at least in principle, the disintegration
of the USSR took place according to the Soviet constitution. The future
disintegration of the Russian Federation will not have that advantage – or
alternatively that constraint. Because what happened could be presented as
“legal” and hence “legitimate,” it was far easier for those who rechristened
themselves as democratic and national leaders to win out than it will be for those
without that asset but at the same time, the new leaders who do emerge likely
will be more genuine than many of those who held on to power between soviet
times and the aftermath.
·
Fourth,
in 1991, Russia had a leader committed not to using massive force to preserve
the status quo. Gorbachev was guilty of using force on occasion, especially in
the Caucasus and the Baltics; but he was not prepared to drown opposition in
blood. Does anyone think that Putin is the same?
·
And fifth, and perhaps most important, in 1991,
the non-Russians had an ally in Boris Yeltsin who wanted to escape from Kremlin
control and was prepared to have the non-Russian republics leave in order for
the Russian Federation to be on its own. Obviously, there are some Russians who
think the same way now; but there is absolutely no one in a position of power
in Moscow who does. Moreover, there are too few even among those who are called
the Russian opposition to change this balance quickly.
Among the reasons that 2024 will
resemble in some critical ways 1918, the following five are especially
important:
·
First, in 1918, the Russian state had
disintegrated and various groups small and large sought a place in the sun,
forming their own republics and armies and both cooperating and competing with
each other. The situation in the future is likely to be far more similar to
that than was 1991.
·
Second, 1918 was about regions not just
ethnicities, with regional identities far more important in much of the country
than ethnic ones. That is also true now, and I stand by my argument that
regionalism is going to be the nationalism of the next Russian revolution.
·
Third, like in 1918, Moscow remains committed to
recapturing the entire periphery; and outsiders, including the West are divided
between those who favored a weak but single state and those who feared a strong
state that had gotten rid of what for many was ballast.
·
Fourth, because outsiders were divided, they
collectively did just enough to tar those Moscow opposed as “foreign agents”
and to develop a Red patriotism which ultimately allowed Moscow to defeat most
but not all of those who sought to form their own countries.
·
And fifth, the diversity of the structures first
created from below and then destroyed by Moscow’s reoccupation was so daunting
that many outsiders viewed the restoration of order as more useful than it was,
failing to see that the restoration set the stage for repression and imperial
revenge.
And among the reasons that those
outsiders who want to help the peoples of northern Eurasia achieve freedom,
peace and democracy need to recognize, the following five are especially
important:
·
First, the West needs to recognize its mistake
in 1991 when it proclaimed just about everyone a democrat and assumed
privatization of the economy would solve everything, including weaning leaders
from aggressive and repressive tendencies. If one wants democracy, rule of law,
and obedience to international law, one must work to promote those things; if
one assumes the economy will do that as all too many in the West did 30 years
ago, the results will be what they have been.
·
Second, for all the problems that disintegration
of the Russian Federation will inevitably involve, if the goal is to eliminate
repression and imperial revanchism, that is the only way forward in the case of
many areas. Hence being for what some call secession is in fact the best way to
achieve what are the most important goals of the West now. Short of that, the
West must promote genuine federalism for those parts that don’t go their own
way. That will require a far more interventionist approach but there is again
no other way.
·
Third, the West, as well as the non-Russians and
many regionalists, must recognize that there will be some Russian state left at
the end of the decolonizing and de-imperializing effort. That state must be a
democracy and a federation. Otherwise, it will be a threat.
·
Fourth, the West must recognize that its role
will have to be far larger than it has ever been in the past and far more invasive
as far as many in Russia will view it. Managing that will not be easy; but
failing to adopt that strategy will only postpone problems rather than prevent
their reemergence. Had the West insisted on genuine federalism in the Russian
Federation, there would have been no Putin and no war in Ukraine.
·
And fifth, the West must promote cooperation
among Russians and non-Russians rather than assuming that this is impossible;
and it must take the lead in having them talk to each other. If that doesn’t
happen, then there is a very real danger that 2024 will end not as 1991 but as
1918 – and that will be a tragedy for everyone.