Russian Foreign Policy toward the Balkans: A Situation Assessment


Here is the final version of my part of the project on Russia. I hope to be able to publish here the team’s final report, which includes an analysis of competing hypotheses on Russian Reorganization of the Civilian Nuclear Energy Sector, a cost benefit analysis of Russia – Ukraine energy security relations, and a social network analysis of Dmitry Medvedev’s Leadership Network. However, I’m waiting for the permission of the other team members and the instructor to do so.

A brief evaluation of the effectiveness of the technique in relation to the topic

Using situation assessment to analyze Russia’s foreign policy toward the Balkans has as both its principal advantage and disadvantage the flexibility and resulting breadth of scope it offers. On the positive side, this flexibility functions to fill deficiencies in more formalized methodologies, where restriction of sub-methods and limitations of scope can result in an exaggerated focus on the particular details, failing to detect an over-arching pattern or structure. On the negative side, the potentially limitless options this method offers to the analyst can result in either oversimplification through generalization, or a lack of focus altogether. One way to avoid losing the string would be to commission situation assessments not of individual analysts but of an inter-disciplinary team. I believe this would only add to the potential multi-faceted direction this method is open to, while at the same time, keep the more wild fancies on a leash of peer review.

The elements I chose to include in this situation assessment, which in retrospect were best suited to the topic were the various IR theories on power and regionalism. In this spirit, I would advocate the use of open source analyses by various think tanks, especially if the analyst is not an area specialist. The potential pitfall of arriving at politicized information could be safeguarded against by a thorough source reliability check, which would take an infinitely shorter time than self-education of the analyst on a broad theme under the duress of a deadline.

Finally, the informal, descriptive nature of a situation assessment is conducive to writing in a narrative style, which is less prone to jargon and offers the analyst the opportunity to engage and “talk” to his/her client/decision-maker as the analysis unfolds. Not only does this make the reading experience of a person tired of reading report after report with uninspiring technical and/or management, or worse, bureaucratic language, but has the potential to establish good rapport between the two sides, minimize misunderstandings hidden in vague and ambiguous language, and add a dialogue-element to the analyst’s otherwise rather lonely job.

Introduction to Situation Assessment on Russian Foreign Policy toward the Balkans

I’m having so much fun writing this! The final product should be ready by Wednesday. Last minute comments welcome as always.

Russian Foreign Policy toward the Balkans: A Situation Assessment


Situation assessment as a methodology aims to provide the context for strategic planning, decision-making and action. As such, it is primarily a descriptive methodology that examines events in the present and looks for patterns from the past. While the ultimate purpose of a situation assessment is future-oriented in that it serves as the starting point for generating hypotheses for alternative futures, the process of gathering and analyzing information that makes up a situation assessment does little in terms of logical speculation of the data by the analyst. This, at least, is the traditional approach of this methodology whether applied in the context of national security intelligence, business/competitive intelligence, assessment of military capabilities, or academic research of international relations and political science. Although the definition of situation assessment may vary slightly across disciplines – compare, for instance, Strengths, Weaknesses, Opportunities and Threats (SWOT) analysis in business, Case Study in international relations and politics, and Intelligence Preparation of the Battlefield (IPB) in military intelligence – the main characteristic of this methodology is its focus on providing a descriptive observational design.

The present situation assessment will try to demonstrate that a descriptive analytical method need not be confined to observational variables alone, but offers the analyst opportunities to present his/her decision-maker with a highly inferential, evaluative and nuanced assessment. I will argue that situation assessment is a particularly useful methodology for looking at complex, interconnected and interdependent environments, not only because it can provide simultaneously a detailed (microscopic) and big picture (telescopic) view, but also because it opens the possibility to distinguish between perception and reality.

One of the more important advantages of situation assessment as a method is its qualitative (open) rather than quantitative (restricted) selection of the variables – I prefer to call them elements – that constitute the observation. This allows the analyst the flexibility to adapt these elements as well as juxtapose them in different ways on the surface of the analytical landscape, with the gained benefit of exploring different perspectives, and by extension, make qualitative judgments about perception and reality, much in the same way one would analyze a picture.

This situation assessment begins with an introduction to why this particular methodology was chosen by the analyst to examine the topic of inquiry, namely, Russian foreign policy toward the Balkans. The first part is a discussion of the methodology itself, what elements and why they were chosen to constitute the situation assessment. In this section I examine the aptitude of applying a situation assessment technique to the study of a country’s foreign policy. Next, I attempt to determine the viability of analyzing a country’s foreign policy through international relations and political science theories by looking at both the epistemological (positivist and post-positivist) and constructivist camps. Given the distinctly regional dimension of the research topic, I focus in particular on theories with specific application to power distribution, balance of power and power transition. Having identified ‘energy’ as one of the two distinct means toward the end in Russian foreign policy toward the Balkans, I explore applications and implications of a theoretical model developed by Buzan and Weaver, known as Regional Security Complex Theory and its extension to energy security.

I then focus on Russia’s second regional power weapon – identity politics – through a descriptive analysis of historical, cultural linguistic and religious factors, with emphasis on the particularly Russian cultural ideology of Eurasianism as the counter-balancing ideology of the Anglo-Saxon “west”. This discussion concludes my traditional approach to the examination of a country’s foreign policy in a regional aspect, and I turn to alternative analysis as a complement to the more established methods of conducting a situation assessment.

Because I treat a situation assessment as a picture, i.e. as a snapshot frozen in time, or rather, in non-time, I introduce art history analysis as a possible analogy in looking at “the picture”. I believe a comparison of a situation assessment analytical landscape to 17th century Dutch still life is particularly appropriate in shedding light both on my original technique (cf.Greek ‘techne’ – art, craft) and topic for a number of reasons.

First, the significance of Dutch development and preoccupation with optic instruments such as the microscope and telescope in the 17th century bears a resemblance to current trends of strategic thinking, most notably the emphasis on “big picture”, holistic visions of reality. This offers a basis for comparison, especially where a situation assessment is concerned because its purpose is to piece together the details, so as to offer a bird-view (God-view?) of the situation. That said, I do not believe that this is entirely possible due to sheer cognitive limitations, so in my evaluation of the technique, I will argue that holistic analysis is an idealized ambition: it can open more doors, but it will not open all doors.

Second, still life as an artistic genre is comparable to a situation assessment in that it offers a picture of reality suspended in, what would appear to be the present moment, but could well be argued that it is a representation “out of time”. And third, the role of perspective and depth on the canvas is not unlike what various foreign policy tools aim to do in shaping both external perceptions of the state by other states, and creating self-perceptions of national identity. Hence, I believe, such alternative analogy could be useful to the intelligence analyst trying to distinguish between perception and reality by becoming aware of the deception inherent in the image.

Part I concludes with an evaluation of the technique in application to the particular topic.

Part II of this paper is where the technique comes “alive” in action to form the actual content of the situation assessment. It begins with an overview of Russian foreign policy, the traits and trends that define Russia’s role on the global scene. This overview borrows heavily from international relations and political science theories, and resembles what a political scientist might refer to as foreign policy analysis. This section is followed by a discussion of the soft and hard power tools available to the current administration in Moscow, and aims to answer three specific questions.

First: Is Russia aiming to regain its sphere of influence on the Balkans by building complex interdependencies among the countries in the region by means of securing bilateral pipeline deals? Second: How is Russia exploiting the issue of “common” identity in the region and why? Third: Assuming that no state on the Balkans currently holds regional leadership, can Russia fill this gap by transcending the geographical limits, which define the region and achieving political, economic and cultural hegemony on the Balkans?

The last section of the analysis uses an alternative technique, namely an art analogy, to look at the individual players on the Balkans as well as the region’s periphery (Turkey and Cyprus) as though we were looking at a still life painting. The contradiction in the title of this section, “A still life of Balkan regional dynamics” is intentional. It aims to show that while a situation assessment and a still life can be perceived as static representations out of time, each country’s perception of each other along a spatial and temporal perspective, as well as its relation to the “blank” surface, exhibits a dynamic that is not apparent from a static snapshot of the situation. Since the more traditional approach to a situation assessment is closer to a static image, I felt justified in exploring an alternative technique to supplement the assessment with a more dynamic representation of reality.

It is important for this exercise to distinguish between allegory and symbol. A detailed discussion on this topic is out of the scope of this paper; for our purposes, the Oxford English Dictionary definitions will suffice, and I hope, convincingly justify my preference for an allegorical over a symbolic representation for each country on the grounds that each has a story to tell on the still life canvas of our situation assessment, rather than function as an idealized symbol, which would doom the actor incapable of change.

Allegory – a story, play, poem, picture, etc. in which the meaning or message is represented symbolically

Symbol – a mark or character taken as the conventional sign of some object, idea, function, or process

Thus, through the process of allegory, Bulgaria, with its machinations to please and benefit from both its NATO/EU partnership and Russia, becomes Janus – the Roman god of the gate and door who looks both ways. Romania, with its long history of fending off vampires becomes the garlic that would help keep Russia away from breathing distance. Greece, with a stable record of adhering to its proverbial reputation – “don’t trust Greeks bearing gifts – becomes the Trojan horse. In the Western Balkans, Serbia’s vocal support of Russian cultural kinship and little hesitation to assert its cultural and historical claims on the region, becomes a Kalashnikov. Kosovo, with its ambition to proclaim its “otherness” has finally got its own flag to show for it if nothing else. And Bosnia and Herzegovina is sweetening its bitter wounds with a lethargically brewing Turkish coffee pot.

In the background, but gaining in proportion are the S300 missile Cyprus, loaded not only with Russian ammunition, but a fat Russian wallet, and Turkey – holding tight to its application for EU membership as sticky Turkish delight. Russia – emperor of the surface, the “blank” – space absorbs these unfolding dynamics with the anticipation of the Minotaur waiting for his royal breakfast of seven youths and maidens.

The alternative analysis section of the situation assessment draws no conclusions. As a complementing alternative technique, its aim is to raise awareness of different perspectives and “throw” the more traditional parts on their heads, so to speak. As such, it is an exercise in thinking, not a logical argument.

The paper concludes with some thoughts on methodology in intelligence analysis in general and a summary of the experience in preparing this paper.

Scenario Planning as Part of Strategy Development

In my daily work, I hear the phrase “strategic planning” with such frequency that it has become by now a signal for “switching off”, i.e. stop paying attention…here we go again…not another strategy…and not the same strategy with different words, please! What a relief to read something actually intelligently written, like Conway’s article “Scenario Planning: An Innovative Approach to Strategy Development“, in which he makes a distinction between strategic planning and strategic thinking. Sure, it’s a piece dense with “management-speak”, but given the quality of ideas, one doesn’t mind the odd “innovative approach” or “setting direction”, or “immersion in foresight concepts”.

Conway argues that traditional strategic planning, based on deductive reasoning falls short of being effective in a complex, interdependent and highly uncertain environment in that it focuses more on past experience, data and fact driven thought processes. I’d like to call this the microscope-focused approach. What he advocates instead, or rather, in addition to, is “strategic thinking” as part of the planning process, or in other words, the ability to develop foresight capacity, a “big picture” view that is less concerned with the here and now of the details and the particular but adjusts the aperture to provide a universal, telescopic view. Of course, he doesn’t say “universal” vs. “particular”, which is how a philosopher might phrase the concept; nor does he use the microscope-telescope analogy, which would be more at home in the fields of myth, anthropology and psychology. Writing for a corporate audience, global vs. local is what one might expect to hear.

I think an interesting conclusion can be drawn from this observation. I believe Conway himself reaches this conclusion even if he doesn’t explicitly say so. In an environment of growing complexity and interdependence, strategic thinking implies being able to see connections that one might not do if he/she adheres to linear logic, and what’s more, one might never see by him/herself without the contribution of others. The crisscrossing of concepts from traditionally different disciplines and the fusion of individual brains into one collective intelligence is what strategic thinking for the 21st century seems to be all about.

I concur with Conway’s take on scenario planning as a way of creating alternative future narratives, and was happy to see the Dave Snowden reference on page 12. Although Snowden has become in the past few years a household brand name in (knowledge) management and a quote by him adorns the annual or centennial  corporate strategy paper of every Tom, Dick and Harry organization that likes to talk about “innovative approaches”, Snowden does often provide food for thought. [In my capacity as CKO, I once attended a presentation of his, which sparked enough interest to add his Cognitive Edge website/blog to my RSS feeds and read a number of articles he provides there under a creative commons license.] Conway outlines Snowden’s thoughts on the irrationality of human decision processes as a way of stressing the influence of human agency in strategy development. However, the quote ends too quickly. Elsewhere, when discussing the assumption of rational choice, Snowden goes through great pains to distinguish between “objective” reality and perceptions of reality. He argues that understanding these different perceptions or perspectives of reality can lead to strategic advantages and he sees narrative techniques (scenarios for our purposes) as a way to gain greater exposure to different perspectives:

The assumption of rational choice
Relaxing this assumption means that context and perspective become as important as rationality. This is an important reason that the Cynefin framework is not about “objective” reality but about perception and understanding; it helps us to think about the ways in which different people might be perceiving the same situation. For example, there is an old folk tale from India in which a wise man decides that in order to escape an impossible royal demand, he will fake insanity in the king’s court. He is operating in complex space because he is using cultural shorthands to provoke predictable reactions but is gambling that his ruse will seed the pattern he wants to create. He knows that from the perspective of his audience, who are operating in the space where things are bound by tradition and thus known, he appears to be acting chaotically, because they can conceive of no other reason for him to act this way in front of the king (who would surely behead him if he was faking). Thus by proving that he cannot be faking, he pulls off the fake. Understanding not only that there are different perspectives on an event or situation, but that this understanding can be used to one’s advantage, is the strategic benefit of relaxing this assumption. Narrative techniques are particularly suited to increasing one’s exposure to many perspectives on a situation. In management, there is much to be gained by understanding that entrained patterns determine reactions. This realization has major implications for organizational change and for branding and marketing. Our own work on narrative as a patterning device is gaining presence in this and other areas. Speculating, one of the most significant possible applications of this understanding is a move away from incentive-based targets and formal budgeting processes—both of which, we contend, produce as much negative as positive behavior. It is a truism to say that any explicit system will always be open to “gaming.” Paradox and dialectical reasoning are key tools for managers in the un-ordered domains.

C. F. Kurtz, D. J. Snowden, IBM SYSTEMS JOURNAL, VOL 42, NO 3, 2003,

Back to Conway, the scenario planning process he outlines is the same as that of Project Horizon. I wonder if the people responsible for managing that project did so intentionally, following Conway’s model or it was more of a Snowdean serendipity moment. I also wonder if the Project Horizon team answered the model questions from the decision tree for scenario planning that Conway provides. I must confess, I put the tree to test in terms of my own work and found it extremely difficult to answer the questions with “yes” and “no”. The reason for this is that it is often impossible to speak about an organization with one voice. There are, individuals, teams, silos, middle management, senior management – all open to change and dialogue to different degrees. Should one engage in scenario planning if the staff are open to change and dialogue but management isn’t and vice versa? If I attempt to answer this question, another point Conway makes comes to mind: “The organization will need to focus its foresight work – is it about helping the organization develop its preferred future and documenting that in a plan, or is it about considering all potential futures, whether possible, plausible or probable.” (p.21) From the point of view of management, I would say the focus tends to be on the former – developing your preferred future. From the point of view of staff – considering all options. How feasible is it then to apply scenario planning in a government organization, where both planning and decisions are more likely than not to be strictly top down? It takes a certain entrepreneurial spirit, of which government institutions are devoid almost by default, to engage in this type of exercise. Strategic or visionary thinkers are hardly welcome in such environments. At best, their boldest big picture strategy is dismissed as day-dreaming; at worst, it is seen as a threat to the managing body. In this respect, I find it commendable of the US government to support a project such as Horizon and would be very curious to know at what stage the project is two years after publishing the preliminary report. In particular, it would be interesting to know the progress on the Global Hazards Planning and Response capability, the US Government Partnership framework and the Global Affairs Learning Consortium since all these are sub-projects I am also trying to pursue in my work.

Scenario planning and the national security issue I’m working on (Russia and the Balkans):

I had already considered using scenarios prior to reading Conway and the project Horizon report, however, I’m not sure if scenario planning is appropriate when developing a situation assessment, which is the overarching analytical technique I’m applying to my project. In my view, a situation assessment should be limited to objective capabilities rather than alternative futures. I don’t think a situation assessment is or should be concerned with forecasting; rather it should be based on what Conway refers to as “traditional strategic planning” – deductive not inductive.

Still, had I chosen the same topic but a different method, I would apply scenario planning to examine potential “new” alliance formations on the Balkans. Bulgaria is a particularly interesting case due to its membership in both NATO and the EU, and its historical ties to Russia. Alternative scenarios could throw light on what role the country is going to play in terms of energy security in Europe. With four planned major pipeline routes transiting the country – 2 Russian projects and 2 EU/US-sponsored ones, it would be interesting to develop a scenario exercise to determine if Bulgaria will choose to “bandwagon” to the EU/US greater powers or become a Trojan horse by strengthening its ties with Russia. Other countries in the region (Romania and Serbia for instance) are less problematic because they have expressively stronger affinities to one camp or the other, hence the relatively low uncertainty would not merit the use of scenario planning. Greece could be another potential wild card despite its long history of NATO/EU membership. Dissatisfaction with some EU policies and a prospect of becoming a regional energy power through closer alliance with Russia, Greece’s behavior will be anything but predictable. Throw in Turkey’s contested EU application and the event that it actually succeeds, and a reshuffle of alliances and spheres of influence is sure to experience some major shifts. Cyprus, for one, will open its arms toward Russia even wider than it currently does.

To sum up, I would not apply scenario planning to my national security issue as long as I’m doing a situation assessment. However, I do believe scenario planning as a technique could be a valuable addition to long-term strategic analysis, especially when used to challenge assumptions about rational choice whether on an individual or a collective level.



New Advanced Analytical Techniques Course – opportunity for collaboration

moscow.jpg   med_put.jpg   icon.jpg   pipelines1.jpg  

I’ve just started the last course of the Mercyhurst Applied Intelligence Analysis Program, which deals with the application of various structured methodologies to the analysis process. I’ve had to select a particular technique to work for in the following 2 months in relations to a topic that is of national security concern.

My chosen technique is situation assessment, and I’m working together in a team of 5 on various issues pertaining to Russia. And here is my topic:

Russia’s recent election has confirmed Dmitry Medvedev as Vladimir Putin’s heir. Western leaders are speculating as to the course and conduct of Russian foreign policy under the new leader. Medvedev has publicly stated that he will continue to assert Russia’s renewed strength on the international arena. But as events in Kosovo have shown, Russian foreign policy continues to be shaped by forces beyond its control.

Provide a current assessment of Russian foreign policy towards the Balkans in light of Dmitry Medvedev’s accession to the Russian presidency.

In the course of the next weeks, I’ll be posting thoughts and findings on this topic and some more theoretical things related to the methodology. If you are visiting my blog and have any information that you think is pertinent and you would like to share, I will be grateful and certain to acknowledge your contribution (if you wish so, of course).


You can leave your comments on the blog or email me at


This is my planned outline so far, but it is subject to change upon my instructor’s input:

The purpose of a situation assessment is to gather context specific information and evidence to inform the decision-maker. As a methodology, it resembles an analysis of the external environment in a business context. In political science, it is more frequently referred to as a case study. A case study typically focus around a singular theses. The situation assessment outlines the process of gathering and analyzing the information needed to make an explicit evaluation of the thesis (i.e. Russian FP) in its “environment” (i.e. Russia’s role in the international/regional arena).


1. Historical background of Russia’s FP toward the Balkans

This doesn’t appear to be a part of a situation assessment according to the sources I was able to find, but I think it will add value to this particular thesis, so I’m rather keen to include it. One of my reasons for doing so will be to explain later on in the analysis why the Christian Orthodox card Russia’s been flashing toward the West should not be taken at face value.

2. Collect and evaluate internal and external stakeholders’ perceptions about Russia’s FP to the Balkans

This part of the analysis will focus on Russia’s bilateral relations with the different Balkan countries, as well as the EU and the U.S. I intend to use the SWOT technique to collect this type of information, as it will bring focus to the analysis by breaking it down into four broad categories:

S – strengths of Russia’s FP toward the Balkans

W – weaknesses of Russia’s FP toward the Balkans

O – external opportunities that might move the Russian agenda forward

T – threats that might hold Russia’s ambitions back

3. Evaluate the impact of specific events on actors

Here, I’d like to discuss Russia’s position on the independence of Kosovo. Why was this position taken and did it achieve its planned results? If not, will Medvedev abandon this course of “action” or continue along the same lines?


4. Define previous implied foreign policy strategies

Here I would like to examine Putin’s legacy and a few different scenarios for change under Medvedev. Given the unique Putin-Medvedev relationship, I will attempt to ascertain the extent of influence the two actors will have on shaping future Russian FP based on a political personality assessment.


Kosovo – one month old

kosovo.jpg The first month of independence has mostly gone well, but violence in Mitrovica yesterday shows that the opponents of independence can still threaten the new state and that there is a risk that Serbian-inspired partition will harden and Kosovo become a frozen conflict.

This, and more in International Crisis Group briefing  from Pristina.

Also of interest on this topic:

1. ISN Security Watch reporter from Sarajevo predicts more violence in Kosovo: worst still to come

2. ISN alumni and DCAF fellow examines the international reaction to Kosovo’s declaration of independence in Kosovo’s Controversial Independence

See also a local site that maintains a current list of countries who have recognized Kosovo, and those pending to do so.