This article examines the INF treaty negotiations and seeks to capture the dynamics of domestic and international factors that affected the reorientation of Soviet foreign policy. This article contends that radical changes in the international environment prompted by the first Reagan administration played a substantial role in provoking domestic debate within the Soviet Union over the direction of its foreign policy. This article focuses on the changes in Soviet perceptions at two turning points in the negotiation process: the interruption of the negotiations in late 1983 and the decision to de-link the INF negotiations from the Strategic Defense issue after the Reykjavik Summit.
In the first section, the author argues that while fear of a nuclear first strike by the U.S. loomed large among the Soviet ruling elites, the political cohesion among the Western allied countries regarding the deployment of US missiles, along with the discontinuation of the negotiations, created a sense of failure and weakness within the Soviet leadership. This contributed to a change in climate within the Soviet leadership and helped to convert a general sense of anxiety into a concrete desire among some members of the CPSU hierarchy, particularly in the International Department of the Central Committee, to move away from the Soviet Union's confrontational and unyielding posture.
The second section focuses on the motivating factors behind the Soviet Union's sudden and radical reorientation in its INF negotiation policy in early 1987. Although the Soviet domestic debate over the issue experienced some fluctuation, members of the old ruling elite, such as Gromyko, stated that the SS-20 deployment had been a ‘terrible failure’ for past Soviet foreign policy at a Politburo meeting before the Reykjavik Summit. The delinking of the INF negotiations from other negotiating issues was proposed by Gromyko himself, while Gorbachev was rather cautious, at least until late 1986. Gorbachev's final decision to de-link the INF negotiations reflected an altered strategic purpose for concluding the treaty—namely, to signal to the world the Soviet Union's sincerity in ending the Cold War. From this point onward, the change in INF negotiation policy extended beyond simple reactions to past foreign policy failures, enabling the immediate conclusion of the treaty.
In fact, the direct causal strength of the international (Reagan-induced) factors is limited in that these factors did not determine the eventual outcome. However, any evaluation of the origins and meanings of Gorbachev's bold attempt to end the Cold War should not ignore the role of the prior recognition of the Soviet Union's weakness and quest for foreign policy change by its ruling elite.
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