Opinion Editorials & Interviews
Russia and the U.S.: Cooperation is more important than competition
William J. Burns, U.S. Ambassador to Russia
Izvesitya, December 12, 2007
The 200th anniversary of formal diplomatic ties between Russia and the United States is a natural moment to reflect on where we've been, and where we're going. That is not exactly an easy thing to do these days. In our broader relationship, mutual frustration often obscures mutual interest. Russians think that Americans tend to take Russia for granted, and are too quick to lecture and mentor, and too prone to double standards. Americans think that Russians tend to assume the worst about American motives, and are too consumed with the centralization of power, and too quick to see enemies at the gate.
I don't for a minute underestimate the problems between us, nor am I naive about the road ahead, especially as we each navigate political transitions. The truth remains, however, that the United States and Russia matter to one another in important ways — and how well or how poorly we manage our relationship matters greatly to the rest of the world. While we will have moments of competition and rivalry, as well as cooperation and partnership, in the years ahead, the one thing we will not have is the luxury of ignoring one another.
U.S.-Russia relations at the beginning of our third century of diplomatic engagement are bound to combine cooperation with competition, and the management of difficulties with the creative expansion of areas of common ground. The United States and Russia have differences over Kosovo, missile defense, and the Conventional Forces in Europe Treaty. But I'd like to highlight briefly five areas in which we can do more together, in which we can demonstrate real leadership to the rest of the world, and in which we can serve our own interests.
First and most crucial is nuclear and global security, where Russia and the United States have unique capabilities, and unique responsibilities. Last July, our Presidents affirmed their commitment to jointly develop civilian nuclear energy. We've initialed a so-called "123" agreement on civilian nuclear cooperation. Negotiations are underway on how to maintain strategic stability after the expiration of the START Treaty in 2009. Secretary Rice and Secretary Gates are working with their counterparts to try to turn differences over possible missile defense sites in Central Europe into a strategic opportunity for joint early warning and missile defense. We have together launched an important new global initiative against nuclear terrorism. Nothing in our relationship with Russia matters more than how we handle this whole set of security issues.
A second priority is economic cooperation. American investment in Russia increased by more than 50% last year, and 40% of total Russian investments outside Russia went to the United States. Companies ranging from Boeing to ConocoPhillips are helping to fuel Russia's economic resurgence — with more than 100,000 jobs in Russia today connected to American business and investments. We continue to strongly support Russia's integration into global economic institutions, especially the World Trade Organization.
A third area of common ground involves our efforts together to resolve some of the world's most difficult regional conflicts. Russia and the U.S. worked closely and effectively to ensure the success of last month's Annapolis peace conference on the Middle East. We have made significant progress on the North Korean nuclear issue. Despite tactical differences, we continue our crucial diplomatic collaboration to persuade Iran to meet its international nuclear obligations. Our record of cooperation on regional conflicts is not perfect, and sometimes involves real disagreement, but it represents a huge leap beyond the zero sum competition of the Cold War.
Fourth is growing partnership in other global challenges. We continue intelligence and law enforcement cooperation against terrorism and violent extremism, from which both of us have suffered. The fight against HIV-AIDS and other deadly infectious diseases is a critical priority for the United States, and Russia is also doing more in this common struggle. We share many views about how best to reduce greenhouse gas emissions; and Russia and the United States continue to lead efforts in space exploration, as we have since Sputnik was launched, almost exactly fifty years ago.
And finally, we both have a stake in expanding ties between our societies, outside formal relations between our governments. Innovative exchange programs have produced more than 60,000 Russian alumnae over the past 15 years, and their experiences do as much as anything in our relationship to keep Americans connected to the next generation of Russians. We recently launched several new university partnership programs, and are working hard to make exchanges more of a two way street.
There will certainly be moments in the months and years ahead when doubts and disappointments and differences between us will seem to crowd out possibilities and opportunities. This is not likely to be an easy period. But those opportunities for cooperation do exist, if we both keep a sense of perspective and remain persistent enough to take advantage of them. The first two centuries of our relationship have often been hard work — but hard work and mutual respect can unlock opportunities, for both of us. At the dawn of our third century of diplomatic ties, I can think of few challenges that matter more to America, or to Russia, or to the rest of the world.