By Valeriy Dzutsev (09/17/2014 issue of the CACI Analyst)

Russia’s rapidly changing economic and political landscape is affecting relations between the peripheral North Caucasus region and the central government. As Moscow’s resources dwindle or are projected to diminish significantly, its ability to support an elaborate system of dependencies and allegiances in its semi-colonial periphery plummets. The central government seeks to reap more revenues from the regions and to decrease the appetites of local elites in order to finance its expansionist policies abroad. As a result, political uncertainty is growing and the previously muted criticism of Moscow’s policies from the North Caucasus’ ruling elites is coming to the forefront.

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Published in Analytical Articles
Wednesday, 03 September 2014 14:23

Mixed Reception of Sochi Talks in Azerbaijan

By Mina Muradova (09/03/2014 issue of the CACI Analyst)

The Sochi talks on settlement of the Nagorno-Karabakh conflict initiated by President Valdimir Putin has not met the hopes of many Azerbaijanis for a breakthrough in peace negotiations. The meeting reached only its immediate aim – a decrease in deadly skirmishes on the line of contact between Armenian and Azerbaijani troops, which resulted in the deaths of at least 20 soldiers in early August. Many in Baku believe that the clashes were provoked by Moscow to justify its influential position in the region. 

According to Yerevan, the fighting was a result of repeated small-scale Azerbaijani attacks to which Armenia responded. Baku for its part said that Azerbaijani troops forcibly prevented provocations by “Armenian sabotage groups.”

The recent clashes were the gravest since the 1994 ceasefire agreement was signed between the two sides with mediation of the Kremlin.

“The nature of the clashes is totally unprecedented,” said Lawrence Sheets, a Caucasus analyst told Bloomberg. “What has changed is that over the past weeks, we have seen the first instances of the use of high-caliber weapons, not just small arms as had previously often been the case. The verbal threats have also hit an unprecedented peak.”

Over past weeks, images of military vehicles and equipment most likely headed toward the frontline have spread in social networks. Controversial information about serious and deadly clashes gave rise to aggressive rhetoric from both sides, even in the virtual world. On Facebook, a number of Azerbaijani users called on the authorities to show “all our military power to Armenian side.” One Baku resident posted: “Now it is time to demonstrate all our military power. Our military aircraft have to destroy all territories along the line of contact, where the ceasefire was constantly violated in order to demonstrate Armenians how serious we are….”

Before President Ilham Aliyev left for Sochi, around 60 tweets threatening Armenia were posted via his official account. “We will restore our sovereignty. The flag of Azerbaijan will fly in all the occupied territories, including Shusha and Khankandi [in Nagorno-Karabakh],” he wrote. “Just as we have beaten the Armenians on the political and economic fronts, we are able to defeat them on the battlefield”.

Although Azerbaijan seems to the side that is most interested in changing the status-quo in the conflict, many in Baku believe that Armenia, a strategic ally of Russia in the South Caucasus, provoked clashes at the behest of the Kremlin. The theory is that Moscow wanted to use the situation in order to change of Vladimir Putin’s image from an intriguer and aggressor to a peacemaker in the region.

Vafa Guluzade, a former state advisor on foreign policy, said that Putin wanted to show that “Russia still plays a decisive role in the South Caucasus,” and therefore, Putin called for a summit on August 10 with his Azerbaijani and Armenian counterparts in order to show the world his “peaceful, mediating face.”

Guluzade also noted in an interview to Interfax that the Kremlin tried to force Azerbaijan to join the Moscow-led Customs Union, an economic entity that Azerbaijani officials have declined to join. “The meeting with Putin’s mediation was organized just for show, demonstrating that Russia is a key actor in settling the Nagorno-Karabakh problem … Russia tried to compel Azerbaijan, up to the last moment, to join the Customs Union. But Azerbaijan today is a confident and military strong country, so it gave no result,” Guluzade added.

While the presidents were watching a sambo tournament in Sochi following the trilateral meeting, Armenian and Azerbaijani troops continued breaching the ceasefire agreement and taking hostages.

After the summit, President Aliyev said “We discussed the settlement of the Armenian-Azerbaijani conflict in Karabakh which has been going on for too long and needs to be resolved.” The president stressed that the main mission of the international mediators was to settle the conflict, not to freeze it or strengthen the confidence-building process. “I believe that the latest events will stir international mediators into action,” he said. “Azerbaijan wants peace, the neither war nor peace situation can’t last forever.”

Russia’s Foreign Minister Sergei Lavrov told reporters that the talks with Aliyev and Sargsyan, were “useful,” with both presidents reaffirming their commitment to seeking a solution exclusively on the basis of a peaceful approach. “There are only few uncoordinated aspects of the conflict settlement, the overwhelming majority of agreements are already clear.” According to Lavrov, several specific points will be finalized: “As they say, the devil is in the details, and the most complex issues are not solved yet.”

After Sochi, the rhetoric coming from Baku and Yerevan became even louder. Sargsyan stated that his country had missiles with a 300-km-radius, which could turn Azerbaijani towns into “Aghdam” referring to the ruined Azerbaijani city under Armenian control. Aliyev stated on August 30 that “…The position of Azerbaijan in Sochi sounded even stronger, thanks to the courage of the heroic Azerbaijani soldiers and officers and the enemy was dealt a devastating blow that they still can’t get over … Of course, Azerbaijan and the Azerbaijani army is strong, and heroic Azerbaijani soldiers are a constant source of fear for them.”

According to Lawrence Sheets, “With all the current violent upheavals in the world, from Ukraine to Iraq and beyond, unfortunately some are not taking the current major escalation between Azerbaijan and Armenia seriously enough … This is a war, and we are now only a step away from any of the sides deciding to resort to the use of highly destructive and sophisticated missile systems they have acquired, capable of causing massive casualties and destruction.”

The U.S. called on Yerevan and Baku to take steps in order to reduce tensions and respect the ceasefire. U.S. Ambassador to Armenia John Heffern delivered a video message stressing that threats and militant rhetoric will not help resolve any conflict. Heffern repeated that there can be no military solution to the Karabakh conflict and called on the parties to start talks, since revenge and further escalation will make it difficult to achieve peace. “The best way to honor the memory of those killed is to stop clashes right now,” - he noted.

Published in Field Reports

By Eka Janashia (09/03/2014 issue of the CACI Analyst)

On August 27, Abkhazia’s newly elected president Raul Khajimba met with Russian President Vladimir Putin to discuss the possibility of signing a comprehensive cooperation treaty between Moscow and Sokhumi.

The meeting took place three days after the snap presidential elections on August 24, when Khajimba eventually became Abkhazia’s de facto leader after three failed attempts since 2004. His predecessor Alexander Ankvab stepped down on July 1 in response to street protests by Khajimba-led opposition groups in late May, 2014.

Khajimba was able to oust Ankvab and narrowly avoided a runoff by gaining 50.57 percent of the votes. The former head of the state security service Aslan Bzhania was second with 35.91 percent, followed by former defense minister Merab Kishmaria and former interior minister Leonid Dzapshba with 6.4 and 3.4 percent respectively.

Before the elections, Abkhazia’s parliament declared the “Abkhaz passports” held by most ethnic Georgians residing in the region illegal, preventing 16,411 residents of Gali, 5,504 of Tkvarcheli and 872 of Ochamchire districts from participating in the elections (see the 06/18/2014 issue of the CACI Analyst).

Reportedly, one of key reasons for Ankvab’s departure was controversy over the “passportization” issue. Khajimba-led ultra-nationalists blamed Ankvab for deliberately distributing “Abkhaz passports” to ethnic Georgians in efforts to secure their support. Khajimba insisted that districts predominantly populated by ethnic Georgians were a menace to “Abkhaz statehood.” Such rhetoric proved effective both in ousting Ankvab and in preventing a sizeable part of the region’s population from casting ballots.

Whereas the EU, NATO, and the U.S. Department of State condemned breakaway Abkhazia’s presidential elections, Putin was quick to congratulate Khajimba on the election victory and restated his readiness to buttress “friendly” relations with Abkhazia.

Khajimba has been the Kremlin’s favorite candidate for almost a decade. In the mid-1980s he graduated from Minsk’s KGB academy and served at Tkvarcheli’s KBG unit in Abkhazia until 1992. Moscow actively promoted Khajimba during the 2004 presidential elections, where he was nevertheless defeated by Sergey Bagapsh. To eschew an anticipated political crisis, Khajimba took the post of vice president with direct support from the Kremlin. In the 2009 elections, Bagapsh repeated his success while Khajimba scored only 15.4 percent of the votes. Finally, Ankvab gained a landslide victory over Khajimba in the 2011 polls.

Khajimba eventually became Abkhazia’s new leader after the political standoff in May, and almost immediately declared the need for signing a comprehensive cooperation treaty between Moscow and Sokhumi in order to elevate bilateral cooperation to a substantially new level and ensure “clearer” security guarantees for “Abkhazia’s independence.”

According to Khajimba, one aspect of the treaty could be the establishment of joint command over Abkhaz forces and Russian military bases in Abkhazia. “The new document should take into consideration those difficulties which Abkhazia and Russia now face on the international arena, which exist in relationship with Georgia, Europe and the United States,” he said.

This statement reflects several political shifts taking place locally as well as regionally. Locally in Abkhazia, the results of the recent elections should be perceived as a long-expected victory of a Kremlin favorite who, unlike previous leaders, will be more amenable to the Kremlin’s interests. In early May 2014, the Ankvab-led government strongly condemned the proposition for a formal association with Russia aired by the head of the International Association of the Abkhaz-Abazin People, Professor Taras Shamba. Abkhazia’s foreign ministry claimed that such a move would rid Abkhazia of the “signs of an independent state.”

What happened next was the overthrow of Ankvab’s government and the political deactivation of ethnic Georgians, which considerably limits the number of voters who would oppose Abkhazia’s accession to Russia.

These local changes mirror the regional convulsions triggered by Russia’s annexation of Crimea and its military escalation in eastern Ukraine. In this broader spotlight, regime change in Abkhazia might imply a tactical move on Moscow’s part to prepare the ground for a complete absorption of the region or at least to gain additional levers there. In Moscow’s perspective, bringing Khajimba to power in Abkhazia will imply fewer risks of unexpected clashes and weaker objections to the region’s direct integration with Russia. Unlike in South Ossetia, independence is a critical issue for large parts of the Abkhaz population, which pushes the Kremlin to proceed more cautiously. The Kremlin’s success, however, hinges on its ability to maintain at least its status of a regional power in Eurasian geopolitics. 

Published in Field Reports

By Avinoam Idan (09/03/2014 issue of the CACI Analyst)

The return of open fire in the Nagorno-Karabakh (NK) conflict recently brought about a meeting between the presidents of Azerbaijan and Armenia in Sochi, under the auspices of President Putin, on August 10, 2014. The growing tension in the conflict and the Sochi meeting take place against the background of the crisis in Ukraine. The Karabakh conflict serves as Russian leverage in influencing and promoting Russia’s geostrategic aims in the Caucasus and beyond, and Russia’s new initiative in the conflict meant to improve Russia’s stance in its confrontation with the U.S. and EU and its hegemony over the gateway to Eurasia.

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Published in Analytical Articles

By Erik Davtyan (08/14/2014 issue of the CACI Analyst)

On August 10, a trilateral meeting took place between the presidents of Russia, Armenia and Azerbaijan. After the Kazan meeting in 2011, this was the first such meeting hosted by a Russian president. On August 8, Presidents Sargsyan and Aliyev had both paid a working visit to Sochi in order to discuss a wide range of issues, concerning Armenian-Russian and Azerbaijani-Russian relations respectively. Since both parties had expressed their willingness to hold a trilateral meeting, their official visits to Sochi presented a good opportunity for the dialogue between Armenia and Azerbaijan. The last meeting of the two presidents took place on November 19, 2013, in Vienna and was conducted with the participation of the Co-Chairs of the OSCE Minsk Group and the Personal Representative of the OSCE Chairman-in-Office Andrzej Kasprzyk.

The meeting focused on the situation in Nagorno-Karabakh, as well as the recent clashes on the Armenian-Azerbaijani border and the line of contact. While the working visit also pursued some other important issues (e.g. Armenian-Russian relations), the concerns among Armenia’s population over the events on the borderline and the possibility of a state-level discussion of that situation became the main point of interest during the trilateral meeting. Many Armenians attached great importance to the Sochi meeting due to the tense situation on the line of contact, which has since early August caused the deaths of over 20 soldiers. The recent skirmishes were the bloodiest fighting in two decades, and the proceedings at Sochi were therefore followed closely in Armenia.

In the first week of August, the developing situation on the frontline raised concerns among the Armenian public, fearing a possible escalation of the conflict. While clashes on the line of contact have occurred from time to time in past years, the massive breach of the cease-fire for a relatively long period of time, and the everyday news on the tense situation triggered perceptions that a return to large-scale military operations could be imminent. The death of 18 20-year-old soldiers in a week raised deep concerns among almost all Armenians, in Armenia as well as in the diaspora.

On August 7, President Aliyev’s military rhetoric on Twitter raised additional concerns in Armenia. Aliyev stated that Azerbaijanis “have beaten the Armenians on the political and economic fronts,” hence they “are able to defeat them on the battlefield.” These statements, which were actually made on the level of president, where received with a deep anger among Armenia’s population.

Both the borderline situation and Aliyev’s statements received reactions from Armenia’s Ministry of Foreign Affairs and were widely covered in Armenian mass media. Moreover, the international reactions to the events served to further underline the seriousness of the situation. The U.S. Department of State and the Russian Ministry of Foreign Affairs both expressed their stances towards the situation on the line of contact, which was one of the rare cases when the co-chairing states expressed their opinion not on the level of co-chairs, but foreign offices.

Russia’s mediation attempt was largely in line with the expectations of the Armenian public. Hence, most Armenians welcomed the chance for a meeting between the Armenian and Azerbaijani presidents. Despite the fact that Armenian society has an ambiguous attitude towards Russia and its relationship with Armenia, there was a relative unanimity towards the necessity of the Sochi meeting. Russia is considered to be Armenia’s strategic partner, and to secure part of Armenia’s state borders. Besides, Russia is one of the three members of the OSCE Minsk Group, as well as Armenia’s most significant arms supplier.

As the working visits of the Armenian and Azerbaijani presidents started on August 8, some Armenian experts are inclined to link that circumstance with the 6th anniversary of the August war between Russia and Georgia, thereby implying that there is an indirect message to Georgia’s neighboring states, Armenia and Azerbaijan. Nevertheless, the Sochi meeting drew the attention of Armenia’s population primarily due to its consequences for the acute situation on the frontline, rather than the prospects for approaching solutions to the Nagorno-Karabakh conflict itself. Therefore, this meeting, followed by a 10-month pause, largely satisfied the expectations of the Armenian public.

Published in Field Reports

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Silk Road Paper Svante E. Cornell and S. Frederick Starr, Modernization and Regional Cooperation in Central Asia: A New Spring, November 2018.

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Article Svante E. Cornell, “Turkish-Saudi Rivalry: Behind the Khashoggi Affair,” The American Interest, November 6, 2018.

Article Mamuka Tsereteli, “Landmark Caspian Deal Could Pave Way for Long-Stalled Energy Projects,” World Politics Review, September 2018.

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Article S. Frederick Starr and Svante E. Cornell, “Uzbekistan: A New Model for Reform in the Muslim World,” Central Asia-Caucasus Analyst, May 12, 2018.

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Book S. Frederick Starr and Svante E. Cornell, The Long Game on the Silk Road: US and EU Strategy for Central Asia and the Caucasus, Lanham, MD: Rowman & Littlefield, 2018.

Article Svante E. Cornell, “Central Asia: Where Did Islamic Radicalization Go?,” Religion, Conflict and Stability in the Former Soviet Union, eds Katya Migacheva and Bryan Frederick, Arlington, VA: RAND Corporation, 2018.

 

The Central Asia-Caucasus Analyst is a biweekly publication of the Central Asia-Caucasus Institute & Silk Road Studies Program, a Joint Transatlantic Research and Policy Center affiliated with the American Foreign Policy Council, Washington DC., and the Institute for Security and Development Policy, Stockholm. For 15 years, the Analyst has brought cutting edge analysis of the region geared toward a practitioner audience.

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