Excerpts from

The US Grand Strategy and the Eurasian Heartland

in the Twenty-First Century

Emre İşeri

Since the United States, which is the hegemonic power of capitalist core countries, has dominance over the global production structure, it is in its best interest to expand the global market for goods and services. For

instance, free trade arrangements usually force developing (i.e., “thirdworld”) countries to export their raw materials without transforming them into completed products that can be sold in developed markets. Therefore, the global free market has long been the most viable strategy for acquiring raw materials in the eyes of the US policy-making elites. This is what Andrew J. Bacevich refers to when he talks about the US policy of imposing an ‘open world’ or ‘free world’ possessed with the knowledge and confidence that “technology endows the United States with a privileged position in that order, and the expectation that American military might will preserve order and enforce the rules.”7 In other words, the principal interest of the US is the establishment of a secure global order in a context that enables the US-controlled capitalist modes of production to flourish throughout the globe without any obstacles or interruptions.

“In oil, as more generally, the forward deployment of military power to guarantee the general openness of international markets to the mutual benefit of all leading capitalist states remains at the core of US hegemony. An attempt to break this pattern, carve out protected spaces for the US economy and firms against other ‘national’ or ‘regional’ economies would undercut American leadership.”8 Since the US imports energy resources from international energy markets, any serious threat to these markets is a clear threat to the interests of the United States. As Leon Fuerth indicates, “The grand strategy of the United States requires that it

never lose the ability to respond effectively to any such threat.”9

George Kennan, former head of policy planning in the US State Department, is often regarded as one of the key architects of US grand strategy in the post-war period. His candid advice to US leadership should be noted:

We have about 50 percent of the world’s wealth, but only 6.3 percent of its population. In this situation, we cannot fail to be the object of envy and resentment. Our real task in the coming period is to devise a pattern of relationships, which will permit us to maintain this position of disparity. To do so, we will have to dispense with all sentimentality and daydreaming; and our attention will have to be concentrated everywhere on our immediate national objectives. We should cease to talk about vague and unreal objectives such as human rights, the raising of the living standards, and democratization. The day is not far off when we are going to have to deal in straight power concepts. The less we are then hampered by idealistic slogans, the better.17 [Emphasis added.]

(T)he ultimate objective of US grand strategy is ‘primacy’ among competing visions19 and what I understand from primacy is global hegemony or leadership. This aggressive strategy of the US to expand its hegemony to the globe was outlined in The National Security Strategy of the United States of America, published by the Bush Administration in September 2002, and it has come to be publicly known as the BushDoctrine to form ‘coalitions of the willing’ under US leadership.

The United States has long maintained the option of pre-emptive actions to counter a sufficient threat to our national security . . . the case for taking anticipatory action to defend ourselves, even if uncertainty remains as the time and place of the enemy’s attack. To forestall or prevent such hostile acts by our adversaries, the United States will, if necessary, act pre-emptively.20

As Pepe Escobar notes, “The lexicon of the Bush doctrine of unilateral world domination is laid out in detail by the Project for a New American Century (PNAC), founded in Washington in 1997. The ideological, political,

economic and military fundamentals of American foreign policy – and uncontested world hegemony – for the 21st century are there for all to see.”21 The official credo of PNAC is to convene “the resolve to shape a new

century favorable to American principles and interests”.22 The origin of PNAC can be traced to a controversial defence policy paper drafted in February 1992 by then Secretary of Defense Paul Wolfowitz and later softened

by Vice President Dick Cheney which states that the US must be sure of “deterring any potential competitors from even aspiring to a larger regional or global role”23 without mentioning the European Union, Russia,

and China. Nevertheless, the document Rebuilding America’s Defenses: Strategies, Forces and Resources for a New Century24 released by PNAC gives a better understanding of the Bush administration’s unilateral aggressive foreign policy and “this manifesto revolved around a geostrategy of US dominance – stating that no other nations will be allowed to ‘challenge’ US hegemony”.25

GEO-STRATEGIC DIMENSIONS OF THE EURASIAN HEARTLAND

The Heartland Theory is probably the best-known geopolitical model that stresses the supremacy of land-based power to sea-based power. Sir Halford Mackinder, who was one of the most prominent geographers of his era, first articulated this theory with respect to ‘The Geographic Pivot of History’ in 1904, and it was later redefined in his paper entitled, Democratic Ideals and Reality (1919), in which “pivotal area” became “the Heartland.” According to Mackinder, the pivotal area or the Heartland is roughly Central Asia, from where horsemen spread out toward and dominated both the Asian and the European continents. While developing his ideas, Mackinder’s main concern was to warn his compatriots about the declining naval power of the United Kingdom, which had been the dominant naval power since the age of the revolutionary maritime discoveries of the fifteenth century. He proceeded to expand on the possibility of consolidated land-based power that could allow a nation to control the Eurasian landmass between Germany and Central Siberia. If well served and supported by industry and by modern means of communication, a consolidated land power controlling the Heartland could exploit the region’s rich natural resources and eventually ascend to global hegemony. Mackinder summed up his ideas with the following words:

“Who rules East Europe commands the Heartland: Who rules the Heartland commands the World-Island (Europe, Arab Peninsula, Africa, South and East Asia), who rules the World-Island commands the World.”28

The Heartland Theory provided the intellectual ground for the US Cold War foreign policy. Nicholas Spykman was among the most influential American political scientists in the 1940s. Spykman’s Rimlands thesis was developed on the basis of Mackinder’s Heartland concept. In contrast to Mackinder’s emphasis on the Eurasian Heartland, Spykman offered the Rimlands of Eurasia – that is, Western Europe, the Pacific Rim and the Middle East. According to him, whoever controlled these regions would contain any emerging Heartland power. “Spykman was not the author of containment policy, that is credited to George Kennan, but Spykman’s book, based on the Heartland thesis, helped prepare the US public for a post war world in which the Soviet Union would be restrained on the flanks.”29

Hence, the US policy of containing the USSR dominated global geopolitics during the Cold War era under the guidance of ideas and theories first developed by Mackinder. In the 1988 edition of the annual report on US geopolitical and military policy entitled, The National Security Strategy of the United States of America, President Reagan summarised US foreign policy in the Cold War era with these words:

The first historical dimension of our strategy . . . is the conviction that the United States’ most basic national security interests would be endangered if a hostile state or group of states were to dominate the Eurasianlandmass – that part of the globe often referred to as the world’s heartland. . . since 1945, we have sought to prevent the Soviet Union from capitalizing on its geostrategic advantage to dominate its neighbours in Western Europe, Asia, and the Middle East, and thereby fundamentally alter the global balance of power to our disadvantage.30

Extrapolating from Mackinder’s Heartland theory, I consider the Caspian region and its surrounding area to be the Eurasian Heartland. In addition to its widespread and rich energy resources, the region’s land-locked central

positioning at the crossroads of the energy supply routes in the Eurasian landmass have caused it to receive a lot of attention from scholars and political strategists in recent times. Until the dissolution of the USSR in 1991, this region had been closed to interaction with the outside world, and therefore, to external interference. Since then, the huge natural resources of the region have opened it up to the influence of foreign powers, and the Caspian region has therefore become the focal point of strategic rivalries once again in history. This has led several scholars and journalists to call this struggle to acquire Caspian hydrocarbon resources the ‘New Great Game,’32 in reference to the quests of the Russian and British empires for dominance over the region in the nineteenth century.

The United States, which politically controls the Gulf oil to a great extent, is not actually energy-dependent on oil from the Caspian region. Hence, US interests in the Caspian region go beyond the country’s domestic energy needs. The political objective of the US government is to prevent energy transport unification among the industrial zones of Japan, Korea, China, Russia, and the EU in the Eurasian landmass and ensure the flow of regional energy resources to US-led international oil markets without any interruptions. A National Security Strategy document in 1998 clearly indicates the significance of regional stability and transportation of its energy resources to international markets. “A stable and prosperous Caucasus and Central Asia will help promote stability and security from the Mediterranean to China and facilitate rapid development and transport to international markets of the large Caspian oil and gas resources, with substantial U.S. Commercial participation.”33

In line with the acknowledgement of the increasing importance of the Caspian region, Silk Road Strategy Act 34 has put forward the main features of the US’s policies towards Central Asia and the Caucasus. As Çagri Erhan

asserts, Silk Road Strategy Act has been grounded on the axis of favouring economic interests of the US and American entrepreneurs and this main line is supplemented with several components such as ensuring democracy and supporting human rights that conform to an American definition of globalisation. 35 As a matter fact, a 1999 National Security Strategy Paper emphasised economic issues and referred to the Baku-Tbilisi-Ceyhan Pipeline Project Agreement and Trans-Caspian Gas Pipeline Declaration on November 19, 1999.

We are focusing particular attention on investment in Caspian energy resources and their export from the Caucasus region to world markets, thereby expanding and diversifying world energy supplies and promoting prosperity in the region. A stable and prosperous Caucasus and Central

Asia will facilitate rapid development and transport to international markets of the large Caspian oil and gas resources, with substantial U.S. commercial participation.36

In that context, the US finds it necessary to establish control over energy resources and their transportation routes in the Eurasian landmass. Therefore, from the US’s point of view, the dependence of the Eurasian industrial economies on the security umbrella provided by the United States should be sustained. To put it clearly, US objectives and policies in the wider Caspian region are part of a larger “grand strategy” to underpin and strengthen its regional hegemony and thereby become the global hegemon in the twenty-first century.

Zbigniew Brzezinski, the former national security advisor to President Jimmy Carter, has repeatedly emphasised the geo-strategic importance of the Eurasia region. He claimed that the United States’ primary objective

should be the protection of its hegemonic superpower position in the twenty-first century. In order to achieve this goal, the United States must maintain its hegemonic position in the balance of power prevailing in theEurasia region. He underscored the vital geo-strategic importance of the Eurasian landmass for the United States in his 1997 book entitled, The Grand Chessboard: American Primacy and Its Geostrategic Imperatives:

Eurasia is the world’s axial supercontinent. A power that dominated Eurasia would exercise decisive influence over two of the world’s three most economically productive regions, Western Europe and East Asia. A glance at the map also suggests that a country dominant in Eurasia would almost automatically control the Middle East and Africa. With Eurasia now serving as the decisive geopolitical chessboard, it no longer suffices to fashion one policy for Europe and another for Asia. What happens with the distribution of power on the Eurasian landmass will be of decisive importance to America’s global primacy and historical legacy.37

Therefore, Brzezinski called for the implementation of a coordinated US drive to dominate both the eastern and western rimlands of Eurasia. Hence, he asserts that American foreign policy should be concerned, first and foremost, with the geo-strategic dimensions of Eurasia and employ its considerable clout and influence in the region.