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Article, The American Interest, May 2, 2017

Svante E. Cornell, 

The Raucous Caucasus

The United States must restore its leverage and credibility in the restive region caught between Russia, Turkey, and Ira

Svante

The news from the Caucasus that reaches the United States these days is mainly bad news. We hear reports of widespread corruption, human rights violations, or clashes between warring nations. In the case of the Russian North Caucasus, jihadi terrorists fight regional governments run by pro-Russian thugs. Why, then, should such a small sliver of territory, with perhaps 20 million people, deserve treatment in a net assessment survey? The answer is that the importance of the Caucasus has never lain in its numbers or size, but rather in its role as a geographic, cultural, and geopolitical crossroads. As in the days of the Mongols or Tamerlane, or of the rivalries between the Czarist, Ottoman, and Safavid empires, so today the Caucasus is a meeting point, a bridge or a barrier, between east and west and north and south—between Europe and Asia, and between Russia and the Middle East.

Locked up under Russian rule since the early 19th century, the Caucasus has slowly but surely regained its place on the world scene. That process remains mired in a series of unresolved conflicts between its component nations, which seem increasingly to flare up at the least opportune moment. And given the growing volatility of the surrounding region, these conflicts have increasingly become part and parcel of the great-power politics not only of Russia, Turkey, and Iran, but also of Europe and America.

Despite deep divisions and differences among themselves, the three states of the Caucasus—Armenia, Azerbaijan, and Georgia— all seek close relations with the United States. Indeed, in the 15 and a half years since the September 11 terrorist attacks, these countries have provided a reliable access route to Central Asia and beyond. Today, the region is sandwiched between several of the key challenges reshaping the European security environment: Russia's aggressive expansionism, the Islamic radicalism emanating from the Levant, Iran's ambitious meddling in the Middle East, and the turmoil tearing Turkey apart. Surely, all of this should lead the United States to pay attention to the region, and to develop coherent policies toward it.

Yet in the past decade, the opposite has happened. While the United States had considerable influence in all three states ten years ago, Washington no longer has anything remotely resembling a policy toward the Caucasus as the Obama era gives way to the Trump period. As a result, U.S. interests and desiderata no longer feature prominently in the decision-making of regional leaders. The results speak for themselves: In 2013, Armenia ditched a draft agreement that would have brought it closer to the West for Vladimir Putin's Eurasian Union. As for Azerbaijan, the U.S. relationship with the only country bordering both Russia and Iran deteriorated almost to the breaking point in 2015. Even in Georgia, only recently a success story and the darling of U.S. Democrats and Republicans alike, the country's leader no longer finds it necessary to include tried and trusted pro-Western figures in his electoral coalition.

Simply put, the United States has all but disengaged from the Caucasus. Predictably, nothing in the region has gotten better as a result, and many things are worse. The most obvious example was the large-scale fighting that erupted between Armenia and Azerbaijan in April 2016, leading to several hundred casualties and prompting fears of a new all-out war. Indeed, if the current trajectory is not reversed, no one in Washington should be surprised if events in the Caucasus bring further trouble, affecting the stability of and America's long-time interests in the broader region.

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Svante E. Cornell is the director of the American Foreign Policy’s Central Asia-Caucasus Institute, and co-founder of the Institute for Security and Development Policy in Stockholm.

Image attribution: www.the-american-interest.com, accessed on May 31, 2017

Read 11122 times Last modified on Monday, 05 October 2020 08:05

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News

  • New Article Series on Changing Geopolitics of Central Asia and the Caucasus
    Wednesday, 24 November 2021 11:53

    Eurasia

  • CACI Initiative on Religion and the Secular State in Central Asia and the Caucasus
    Sunday, 24 January 2021 13:53

    In 2016, the Central Asia-Caucasus Institute & Silk Road Studies Program launched an initiative on documenting the interrelationship of religion and the secular state in the region. This initiative departed from the fact that little systematic reserch had been undertaken on the subject thus far. While there was and remains much commentary and criticism of religious policy in the region, there was no comprehensive analysis available on the interrelationship of religion and the state in any regional state, let alone the region as a whole. The result of this initiative has been the publication of six Silk Road Papers studying the matter in regional states, with more to come. In addition, work is ongoing on a volume putting the regional situation in the context of the Muslim world as a whole.

     

    Case Studies

    Each study below can be freely downloaded in PDF format.

    az-formula-SRSP

    Azerbaijan's Formula: Secular Governance and Civil Nationhood
    By Svante E. Cornell, Halil Karaveli, and Boris Ajeganov
    November 2016   




    2018-04-Kazakhstan-SecularismReligion and the Secular State in Kazakhstan
    By Svante E. Cornell, S. Frederick Starr and Julian Tucker
    April 2018

     

     

     

    1806-UZ-coverReligion and the Secular State in Uzbekistan
    Svante E. Cornell and Jacob Zenn
    June 2018

     

     

     

    2006-Engvall-coverReligion and the Secular State in Kyrgyzstan
    Johan Engvall
    June 2020

     Event video online

     

    2006-Clement-coverReligion and the Secular State in Turkmenistan
    Victoria Clement
    June 2020

    Event video online

     

     

     

    Articles and Analyses

    Svante E. Cornell, "Religion and the State in Central Asia," in Ilan Berman, ed., Wars of Ideas: Theology, Interpretation and Power in the Muslim World, Lanham, MD: Rowman & Littlefield, 2021.

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

  • Basic Principles for the Rehabilitation of Azerbaijan's Post-Conflict Territories
    Wednesday, 07 October 2020 09:01

    Rehab-coverIn 2010, the CACI-SRSP Joint Center cooperated with Eldar Ismailov and Nazim Muzaffarli of the Institute for Strategic Studies of the Caucasus to produce a study of the methodology and process for the rehabilitation of the occupied territories in Azerbaijan. The study was written in the hope that it would prove useful in the aftermath of a negotiated solution to the conflict.

    Such a resolution nevertheless did not materialize. At present, however, it appears that some of these territories are returning to Azerbaijani control as a result of the military conflict that began in late September, 2020. While it is regrettable that this did not come to pass as a result of negotiations, it is clear that the challenge of rehabilitating territories is as pressing today as it would be in the event of a peaceful resolution - if not more, given the likelihood that such a solution would have included a time-table and provided the Government of Azerbaijan and international institutions time for planning.

    It is clear that the study is a product of a different time, as much has changed since 2010. We fully expcect many updates and revisions to be needed should the recommendations in this study be implemented today. That said, we believe the methodoloy of the study and its conclusions remain relevant and would therefore like to call attention to this important study, published in English, Russian and Azerbaijani versions.

    Click to download:

    BASIC PRINCIPLES FOR THE REHABILITATION OF AZERBAIJAN’S POST-CONFLICT TERRITORIES

     

  • Resources on the Armenia-Azerbaijan Conflict
    Monday, 05 October 2020 08:19

    Resources on the Armenia-Azerbaijan Conflict

     

    The Central Asia-Caucasus Institute & Silk Road Studies Program have a long track record of covering the Armenia-Azerbaijan Conflict. This page presents the key resources and most recent analysis. 

    In 2017, Palgrave published the first book-length study of the International Politics of the Armenia-Azerbaijan Conflict, edited by Svante Cornell. The book concluded by arguing that if international efforts to resolve the conflict are not stepped up, “the ‘four-day’ war of April 2016 will appear a minor skirmish compared to what is sure to follow”.

    In 2015, CACI & SRSP released the Silk Road Paper  “A Western Strategy for the South Caucasus”, which included a full page of recommendations for the U.S. and EU on the Armenia-Azerbaijan conflict. These are reproduced below:

    ------------------

    Develop a substantial and prolonged Western initiative on the Armenian-Azerbaijani conflict.

    o This initiative must be led by the United States, in close consultation with its European partners – primarily the EU Commission and External Action Service, and France. Barring some process to reinvigorate the Minsk Process – a doubtful proposition given Western-Russian relations in the foreseeable future – Western leaders must be prepared to bypass that process, utilizing it where appropriate but focusing their initiative on developing direct negotiations between the Armenian and Azerbaijani leaders.

    o The U.S. and its European partners must abandon the practice of relying solely on the Minsk Group co-chairs to resolve the Karabakh conflict. These diplomats have contributed greatly to formulating a workable framework agreement. However, strong and sustained U.S. Government leadership from the top level is needed to complement or, failing that, to replace the Minsk Process. In practice, this means the expressed support of the President, involvement of the White House, and leadership manifested in the appointment of a distinguished citizen as Special Envoy for the resolution of the conflict.

    o The EU must take a more clearly defined and substantial role in the process, by integrating to the highest degree possible the French co-chairmanship of the Minsk Group with EU institutions. While Washington will need to take the lead on the political side, it would be natural for the EU to take the lead in organizing an international development program for the currently occupied Azerbaijani provinces and Karabakh itself. That effort, too, would need to be led by a senior EU figure.

    --------------------------------------------

    In 2011, CACI & SRSP helped launch an extensive study of the steps needed for the post-conflict rehabilitation of Azerbaijan's occupied territories, in cooperation with Eldar Ismailov and Nazim Muzaffarli of the Institute for Strategic Studies of the Caucasus. The monograph "Basic Principles for the Rehabilitation of Azerbaijan's Post-Conflict Territories" can be accessed here

     

    More background resources:

    Svante E. Cornell, "Can America Stop a Wider War Between Armenia and Azerbaijan?", The National Interest, October 2020

    Brenda Shaffer and Svante E. Cornell, Occupied Elsewhere: Selective Policies on Occupation, Foundation For Defense of Democracies, January 2020. 

    Brenda Shaffer and Svante E. Cornell, "The U.S. Needs to Declare War on Proxies", Foreign Policy, January 27, 2020

    Svante E. Cornell, “The Raucous Caucasus”, American Interest, May 2017

    Svante E. Cornell, Small Nations and Great Powers: A Study of Ethnopolitical Conflict in the Caucasus, RoutledgeCurzon, 2001.

    Svante E. Cornell, The Nagorno-Karabakh Conflict, Uppsala University, 1999

    More recent analysis:

    Turkey Seeks to Counter Russia in the Black Sea-Caucasus Region,” Turkey Analyst, 10/5/20, Emil Avdaliani

    Turkey’s Commitment to Azerbaijan’s Defense Shows the Limits of Ankara’s Tilt to Moscow,” Turkey Analyst, 9/25/20, Turan Suleymanov & Bahruz Babayev

     “Cross-Border Escalation between Armenia and Azerbaijan,” Central Asia-Caucasus Analyst, 9/25/20, Natalia Konarzewska

    Russia and Turkey: Behind the Armenia-Azerbaijan Clashes?”, Central Asia-Caucasus Analyst, 8/31/20, Avinoam Idan

    Armenia and the U.S.: Time for New Thinking?”, Central Asia-Caucasus Analyst, 10/2/19, Eduard Abrahamyan.

    Why Washington Must Re-Engage the CaucasusCentral Asia-Caucasus Analyst, 7/8/19, Stephen Blank

    Azerbaijan’s Defense Industry Reform”, Central Asia-Caucasus Analyst, 5/7/19, Tamerlan Vahabov.

    Military Procurements on Armenia's and Azerbaijan's Defense Agendas”, Central Asia-Caucasus Analyst, 3/27/19, Ilgar Gurbanov

    Armenia's New Government Struggles with Domestic and External Opposition,” Central Asia-Caucasus Analyst, 3/20/19, Armen Grigorian.

    Bolton's Caucasian Tour and Russia's Reaction”, Central Asia-Caucasus Analyst, 12/17/18, Eduard Abrahamyan.