Manohar Parrikar Institute for Defence Studies and Analyses
मनोहर पर्रिकर रक्षा अध्ययन एवं विश्लेषण संस्थान

Russia’s Re-Engagements in Africa

Kamala Kumari
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Commentary

Africa is a geopolitical arena where many big powers have been engaging either due to their own strategic interests or due to the changing dynamics of geopolitics. Russia is no exception. Russia’s interests in Africa are mainly due to heavy investments in raw resource megaprojects and as one of the major suppliers of arms. However, Russia needs to unveil an ambitious and new vision that could satisfy the requirement of African countries and subsequently could be leveraged for tangible rewards for Russia, and the year 2019 set the tone for such actions.

Historical Background

Russia has had links with Africa since centuries. Russians, several times in their history had interacted with Africa, even though Africa was never a Russian colony. It is believed that Russian explorers, sailors and merchants did visit Africa including Afanasy Nikitin, who visited Ethiopia in the 1470s. Orthodox missionaries from Russia met Ethiopian and Coptic Christians numerous times.  Even Peter the Great had engagements in Madagascar and Ethiopia. The first diplomatic relationships were established in 1898 with Ethiopia and South Africa however, Cairo and Alexandria had consulates even in the 18th century.1

In the Soviet era, Russia had been a significant supplier of arms to Africa. At that time, Soviet arms trade was largely confined to countries that were ideologically aligned, or at least friendly to USSR (Union of Soviet Socialist Republics), giving the commercial relationships clear Cold War overtones.2 The relationship between Soviet Russia and African countries was basically “an exchange in all sectors: political (socialist policy), economic, social (sending Soviet teachers and doctors to work in those countries and (on the other hand), reception of African students in Soviet schools) and military (sending weapons and technicians)”.3

The Soviet Russia-Africa engagement in the real sense commenced at an opportune time in the early 1950s.  Change of power in Soviet-Russia due to Stalin’s death coincided with the independence movements in Africa, generating interest in Soviet Russia for the possibilities of engagement “with the newly independent states and the anti-colonial movements across the continent”. However, the first major arms transfer by Soviet Union took place in 1955, to Egypt. Ten years later, Soviet Union established diplomatic ties with the newly-independent African countries namely Algeria, Ghana, Guinea, Mali, Sudan, Morocco and Libya. These countries were invited to Moscow in 1961; “to attend the Twenty-Second Congress of the Communist Party of the Soviet Union (CPSU) with the aim to outline the vision…, of how the developing African countries could bypass capitalism and advance straight to socialism, fostered by the USSR”.

Subsequently, “one of the most prestigious schools in Moscow bore the name of Patrice Lumumba, the Soviet-supported Congolese independence leader brutally executed in 1961; and till 1992, the Patrice Lumumba University recruited and educated generations of foreign leaders, especially African leaders, (and was just one of the many such ways in which the Soviet Union cultivated ties with Africa)”.4 Transcending its brief strategic hibernation during the last years of the Soviet era and in the initial year’s post-1991, Russia has managed well in the new scenario, giving a new direction to its bilateral relations with different African countries. When Vladimir Putin became the president in 2000, he created a new dynamic for foreign policy making and foreign policy that was holistic. He systematically restored the position Russia had lost after the disintegration of Soviet Union and the turbulent decade that followed.

President Vladimir Putin became the first ever Russian leader to visit Sub-Saharan Africa in 2006. This visit was followed by series of ministerial level bilateral visits to South Africa, Angola and Ethiopia, resulting in surge of Russian investments.  President Dmitry Medvedev accompanied by a delegation of 300 businessmen visited Nigeria, Angola, and Namibia in June 2009. This visit indicated “Russia’s intensifying desire to foster investment and involve and engage with the region. For example, with South Africa, the political initiatives included, a Treaty of Friendship and Cooperation, covering joint work in healthcare and intellectual property rights”.5

Russia’s interests in Africa are not new however, to compete with other major powers and keeping the current geopolitical realities in mind, Russia must make sound investments so as to have access to natural resources and other business opportunities.

Russia-Africa Relationship Today

For Russia, Africa is strategically and geopolitically important, as the developing economies could emerge as significant markets for Russia’s arms and its strategic interests. Post the sanctions on Russia imposed by the West after the Ukrainian crisis; the Russo-African relationship has become an important aspect of their international engagements. The economic sanctions constrict Russia’s trade with the West, making Africa an attractive alternative opportunity for investment. Apart from trade and commerce, the fifty-four countries of Africa are potential supporters for Russia in the UN as “three of the 54 countries sit in the Security Council; … and form the largest and most coherent voting bloc”6 .  Also, Russia’s presence in Africa provides credibility to its status as a global power.

Besides, Russia’s trade with Africa increased tenfold between 2000 and 2012. Russia, in fact, is a better alternative to US weaponry, as US weaponry is costly, both politically and monetarily.  In 2014, when the Nigerian request for Cobra attack helicopters was rejected by US, Nigeria cancelled the U.S. military training program to fight Boko Haram and instead opted for Russia. Till date Russia continues to train Nigerian Special Forces. The Russian soldiers involved in peace peacekeeping operations in Africa, surpass those of France, the United Kingdom, and the United States combined. Apart from these, Russia has invested heavily in raw resource megaprojects. It, signed “a $4 billion deal with Uganda, to build and operate a crude oil refinery; and $3 billion deal with Zimbabwe, to develop platinum mine”.7  

Russia has also expanded its ties with Egypt, the bilateral trade already doubled to $5.5 billion in 2014; in June 2015 they held their first joint naval drills and in October 2016, military exercises. Later, Russia negotiated with Egypt to build its first nuclear power plant. Russia also deployed Special Forces to Egypt on the Libyan border, signaling, Russia’s growing role in Libya, a country with the world’s ninth largest reserves of oil. Relations with Tunisia and Algeria have also deepened. For the first time, in the history of Russia-Tunisia relations, a Memorandum of Understanding on nuclear cooperation with Tunisia was signed in June 2015 which grew into a nuclear cooperation agreement in September 2016. Algeria has been a favourite of Russia as it remains a “top buyer of Russian arms and also signed a $1 billion arms deal, supposedly the largest export contract for main battle tanks in the world.8 The two countries also have agreements on energy and counterterrorism. The draft proposal to legalise ‘private military companies’ (PMCs, meaning ‘mercenaries’), in Russia, could give Russia, a competitive edge over its rivals and consequently also, enable Russia to leverage its strategic advantage; by “helping Russia carve out a niche as a reliable security provider in Africa and to reap energy, mineral, economic, and other ‘rewards’ in incentivising Russia, to undertake a full-on ‘Pivot to Africa’ policy”.9

By February 2018, “nine planes with weapons were sent by Russia along with contractors to train local soldiers; and secure mining projects; marking the beginning of highest-profile military foray in Sub-Saharan Africa”.10 Since the 2014 economic sanctions, in sub-Saharan Africa, alone, Russia has signed 19 military cooperation deals, with Ethiopia, Nigeria and Zimbabwe; and simultaneously reviving some of the so called lapsed relationships due to the Soviet Union’s disintegration. Russia further aims, like many others such as Turkey and the United Arab Emirates to set up bases that will facilitate so as to “mediate in diplomatic stand-offs and strike business deals”.11

Russia’s push into Africa is broadly for arms sales and economic influence, as it has great potential for cooperation based on mutual interest. However, Russia’s objective is also geopolitical and geostrategic in nature. The North African countries on the Mediterranean’s southern coast could potentially favour Russia, a traditional land power, in its military moves in the Middle East and North Africa, which would eventually, limit the West’s ability to maneuver; and also give access to additional warm water ports.12 Speaking at Russia’s premier annual Valdai conference in October 2016, President Putin said, “Africa cannot be on the periphery of international relations”.13 In fact, Russia, with help from its trusted partner China, could have more robust engagement, as it will be able to partner to protect China’s dream project, the Belt and Road Initiative (BRI) – particularly the ones which fall in Africa, in exchange for lucrative commercial contracts in energy or mining deals, as China controls ‘a sizeable amount of extractive industries’ in Africa.14

The prospects of deepening the Russia Africa engagement are huge and in the process, it might face some challenges as well, or there may encounter concerns in terms of competition, but nothing serious that can hamper the process of this engagement process entirely.

Exploring New Areas of Cooperation  

Times have changed significantly for Russia, as its efforts to regain its Soviet-era influence in Africa have achieved success. Moreover, “Russia is clearly showing that, open partnership with and support of Africa remains a priority”.15

On January 14, 2018, marking the 60th anniversary of Russia-Ghana diplomatic relations, Foreign Ministers of Russia and Ghana, exchanged congratulatory messages and “emphasized the traditionally friendly nature of Russia-Ghana relations hinting of an active political dialogue on key international and African affairs, and agreed to improve mutually beneficial cooperation in economy, trade and culture as well as other areas”.16

African countries have been eager to find a viable third balancing partner and Russia seems far better suited than any other country, to play the role. The ultimate ‘reward’, of making Russia their strategic partner is to counterbalance any real or imagined fears of, or from China.17 It is anticipated that, Russia and China may create an environment for ‘friendly’ and complementary multipolar competition in Africa benefiting and diversifying relationships and solidifying stability in the continent.18

Russia sees lot of potential in Africa, given the concerns about rising Islamist extremism, in some countries and defense spending across Africa. Russia being the second-largest arms exporter in the world, after the United States, already sells billions of dollars in weapons annually across Africa. And in mid-December 2017, an exemption to arms embargo on Central African Republic was granted by UN following a petition from Russia to supply the country’s embattled military with light arms and ammunition.19 Russian arms are cheaper than American and other West-produced arms, and have a comparative advantage over their competitors. Hence, keeping the importance of the African market for the Russian arms industry, Russia since 2013, has built several service centers in Africa, to maintain and repair Russian helicopters and other arms exports. It also offers modernization programs for existing weapons stocks, providing relatively inexpensive ways to enhance military readiness, suggesting sales are part of a broad package of military technical cooperation and assistance.20

Bearing the external political and economic challenges in mind, Russia needs Africa and Africa also needs Russia. Since 2014, Russia has signed several deals for cooperation with governments in Sub-Saharan Africa such as 19 military deals, valid for five years and further renewable and also stepped up its efforts to diversify its economic and diplomatic partnerships. Apart from these, there are agreements regarding training as well as coordination for counter-terrorism and piracy.21 In October 2018 Russia indicated that it will send more equipment and military trainers to Central African Republic, intensifying its military engagement in Africa.22 Russia’s trade with Africa increased from $5.7 billion in 2009 to $20 billion in 2018.23 Also, Russia would continue support in reforming the security sector, for strengthening combat effectiveness and training of the armed forces.24 In October 2019 Russia once again stated its ambition to expand its existing power with the first-ever Russia-Africa Summit in Sochi, Russia.25 Putin held back-to-back bilateral meetings, and $12.5 billion worth of deals were signed 26 with an emphasis on creating more opportunities and posturing to be seen as a global power.27

In addition, being a part of BRICS too would enable Russia to play an active role in the future engagements in Africa. President Vladimir Putin met the South African President Cyril Ramaphosa on the sidelines of the 2019 G20 Summit in Osaka. “BRICS remains important as a kind of a balance within the G20 to balance the influence of the G7 grouping… In 2017, BRICS countries’ joint contribution to the world economy was 23.6 percent, and according to IMF predictions this is set to rise to 26.8 percent by 2022”.28 The power balance has been affected due to the presence of BRICS countries in African market. As the BRICS member-countries, account for 30% of foreign exchange (over $ 200 billion), with total investments estimated at 50-60 billion dollars… Subsequently, further consolidation of BRICS and other International implications, are most likely to further shape the Russian-African relations.29

There is further potential for cooperation at multilateral level as well, particularly with India, as India is strategic partner of Russia and would be comfortable working together with Russia in Africa. However, this needs to be further explored.

Conclusion

The impression of Russia’s political influence is embedded in African society and is being further nurtured by Russia. With president Putin assuming power in 2000, Russia’s re-engagement in Africa has grown manifold and Russia is again ready to be a major player in Africa. Political and economic compulsion for Russia and Russia becoming a reliable ‘third party’ for Africa make the Russia-Africa engagement strong  and long lasting and is expected to remain so for a long time. In the process, the engagement would deepen and expand and the year 2019, has already set the tone in this regard. In the times to come, Russia, as part of BRICS, could also play significant role in paving way for multilateral cooperation, including along with India

*Ms. Kamala Kumari is Assistant Professor and Guest Faculty, University of Delhi.

Keywords: Africa, Russia
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