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1 1 (February 2018)

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Key  Points

  *  The threats Russia poses in Latvia vary from ongoing, low-level political support for pro-
     Russian candidates to unlikely but possible outright invasion aimed at creating a land bridge
     between  the Russian mainland and the exclave of Kaliningrad.
  *  Even with current NATO forces stationed in Latvia, Moscow may still believe it can
     delegitimize NATO  by conducting an attack that Western leaders do not respond to.
  *  Building up societal awareness of and resistance to Russian political subversion and
     increasing military deterrence are the best ways to resist potential Russian aggression.


To analyze how Russia could attack the Baltic States,
it is necessary to think as the Russian military does.
There are four possible scenarios for a campaign
against the Baltic States. Each one is based on one
element of the so-called New-Generation Warfare
(NGW),  which Russia employed in Crimea and eastern
Ukraine.
   The Russian strategy has eight interchangeable
elements. The first four phases of the NGW are non-
kinetic, using strategies of low-intensity conflict.
Military action starts in the fifth stage, by readying
the theater for a kinetic operation.
   Russia would probably combine different strategic
elements of NGW. For example, in Ukraine the focus
is more on low-intensity conflict, while in Syria the
focus is on noncontact warfare or sixth-generation
warfare, to use the Russian terminology.

A Conventional Operation

The first scenario is a conventional military operation.
One  of the best-known studies discussing a Russian


attack against the Baltics is Rand's zo16 report
Reinforcing Deterrence on NATO's Eastern Flank.
The main  takeaway is that Russia could reach the
outskirts of Riga and Tallinn in 6o hours, leaving
NATO   with limited options. The paper is not clear
about Russia's motivations to attack two NATO
members.  It also ignored Russia's potential tactical
objectives in the region, limitations due to terrain,
and the fact that after Russian troops reached Riga,
they would be in an urban warfare situation.
   Russia's Achilles' heel is Kaliningrad, which is
separated from the mainland by Lithuania. Therefore,
in a conventional military operation, the probable
objective would be to establish a corridor to connect
Kaliningrad with mainland Russia using the Baltic
States. In this scenario, Latvia, Estonia, and Lithuania
would lose some territory (likely that bordering
Russia) but maintain their independence. To achieve
this objective, it would be necessary to launch an
operation focusing mostly on Latvia and Lithuania
while using enough forces to keep the Estonian


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