Government, Foreign Policy

After World War II (1939-1945) the Cold War dominated Soviet foreign policy. All issues were seen from the
perspective of a global ideological and political struggle with the United States and its allies. Under Mikhail
Gorbachev, who led the country from 1985 to 1991, the USSR sought to end the Cold War. Relations with the
West improved dramatically.

After independence in 1991 Foreign Minister Andrey Kozyrev and President Yeltsin at first maintained a strongly
pro-American foreign policy. Yeltsin and Kozyrev initially had a relaxed attitude toward the eastward expansion
of NATO, which had been the main military alliance of Western nations during the Cold War.

Domestic pressure prompted a foreign policy shift. In particular, strong support for the ultranationalist candidate
Vladimir Zhirinovsky in the December 1993 parliamentary elections convinced the government that the public
demanded a more nationalistic, less pro-Western approach to foreign policy. As a result, Russia resumed sales
of arms and civil nuclear technology to developing countries, including Iran, which elicited disapproval from the
United States. More importantly, Russia began expressing loud support for Russians in the "near abroad" (as
Russians call the outlying areas of the former USSR) and strong opposition to NATO expansion, and was at
odds with NATO countries over how to resolve the ethnic turmoil in the former Yugoslavia. NATO’s support for
Muslims and Croats drew disapproval from Russia, which had historical ties to the competing ethnic Serbs.

Much of this shift in policy was more a question of rhetoric than one of practice, however. By 1997 Russia’s
support for Russian-speaking secessionists in the Trans-Dniester region of Moldova had become more
moderate. The Russian government never encouraged Russian secessionists in Crimea; their strength in 1993
and 1994 threatened both political stability in Ukraine and Ukraine’s territorial integrity. In 1997 Russia signed a
friendship treaty with Ukraine, settling the long-standing dispute over the Soviet Black Sea Fleet and confirming
its recognition of Ukraine’s postindependence borders.

There were multiple reasons for Russia’s restraint. The country was conscious of its economic and military
weakness, and it was also aware of the potential for conflict within the former USSR if national borders were
challenged or ethnic conflicts encouraged. Furthermore, Yeltsin recognized that Russia needed to integrate itself
into the world economy and Western-dominated institutions, such as the World Trade Organization, if it was to
regain economic prosperity and effective global influence. Russia’s long-running dispute with Japan over the
Kuril Islands also reduced the country’s room to maneuver in international affairs.

In 1999 Russia’s relations with Western nations suddenly worsened as NATO admitted the Czech Republic,
Hungary, and Poland, thus expanding into central and eastern Europe, and also attacked Yugoslavia to compel
the Yugoslav government to halt military operations against Albanian separatists in that country’s Kosovo
province. Russia denounced NATO as aggressive and expansionist and drew closer to China. However,
Russian policymakers understood their own country’s weakness and its need to attract Western investment. The
government’s rhetoric at times reflected the increasingly nationalist mood in Russian society, but its foreign
policy remained cautious. Russia’s leaders were, in fact, anxious to maintain good relations with the Western
powers. President Vladimir Putin pursued a foreign policy of closer cooperation with the West. Following the
terrorist attacks in the United States in September 2001, Russia became a key ally in the U.S.-led war on
terrorism. In May 2002 Russia and the United States reached their first arms-reduction treaty in more than a
decade. Also that month, Russia became a limited partner in NATO.

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