Comment by Sergey Markedonov
Special to Russia Profile
Despite Having Been Affected by the Russo-Georgian Squabble, Both Armenia and Azerbaijan Cautiously Abstain From Taking Sides
The events of the “five-day war” in South Ossetia demonstrated that countries of the Southern Caucasus largely act according to their own national interests, and not on the assurances of “eternal friendships.” Thus, both Armenia and Azerbaijan behave in a careful and calculated manner, realizing that getting involved in the Russian-Georgian conflict bears a lot of “hidden reefs” which could prove to be more dangerous than the status-quo that is so despised by Baku and so cherished by Yerevan.
Georgia’s attempts to “restore the constitutional order” in South Ossetia and the harsh Russian response have altered the politico-legal and power configurations in the CIS, and not only in the two “hot spots.” They had a serious impact on the entire ethno-political situation in Eurasia. In this regard, it is crucial to consider the consequences of this “security deficit” in the South Caucasus, especially because in recent weeks, Armenia and Azerbaijan have remained in the shadows. What lessons were Baku and Yerevan able to draw, having been brought to a conflicted state by the events in South Ossetia and Abkhazia in the “hot August” of 2008?
Let’s consider the horizontal links among the three former Caucasus republics, all of them now independent states in the South Caucasus region. Georgia considered Azerbaijan its natural ally. Baku was ready to reciprocate the sentiment. Let’s recall that the day before the new escalation in South Ossetia, Georgian President Mikheil Saakashvili called Azerbaijan no less than the “guarantor of independence” of his country. Typical theatrics of the Georgian leader aside, we should recognize a few important points. First, Georgia and Azerbaijan are members of an organization whose stated goal is to play a peculiar anti-CIS role—GUAM. After Georgia officially left the CIS, GUAM remains the sole structure in which Tbilisi can realize its integration projects (another question is how successfully) within Eurasia.
Secondly, Azerbaijan has always supported the territorial integrity of Georgia. Unlike Ukraine, Azerbaijan itself lost some 13 percent of the land that is recognized as its integral part, and hence its support, along with political reasons, has emotional and psychological grounds (which in politics, especially in the Caucasus, is extremely important). Thirdly, there is the economic cooperation. In 2005, during the energy crisis, it was Azerbaijan that provided gas for Georgia. “The Georgian people will never forget this,” Saakashvili said in a statement during the groundbreaking opening ceremony for the Turkish section of the “Baku-Tbilisi-Akhalkalaki-Kars” railway on July 24 (only two weeks remained before the Tskhinvali tragedy). The two Caucasian states were also united by two pipelines (oil and gas). Baku also often served as a profitable and reliable sponsor for Tbilisi.
Unlike Azerbaijan, Georgia never considered Armenia as a strategic partner and even less as a “guarantor of security.” There have been a lot of sensitive issues in their bilateral relations. These include the position of Armenians in Georgia (in the Armenian populated Samtskhe-Javakheti and in Tbilisi itself, considered to be an important cultural center for all Armenians), and the role of the Armenian community in the Abkhaz events. During the Georgian-Abkhazian war of 1992-1993, the Bagramyan battalion fought on the side of the “aggressive separatists” (as they call them in Tbilisi). There were far fewer Armenian participants on the Georgian side (largely from the aforementioned Tbilisi). In present-day Abkhazia, the Armenian community is represented both in the government and in business, and is generally loyal to the leadership of the de facto state. The irritating factors are compounded by the military partnership between Armenia and the Russian Federation (particularly the military base in Gyumri, to which, among others, Russian military units from Georgia were moved). Prior to the withdrawal of the Russian military base from Akhalkalaki, there were many local ethnic Armenian residents employed there. Also, Georgia (along with Iran) is Armenia’s window to the world (because of the land blockade by Turkey and Azerbaijan). Hence, Yerevan does not want to move past certain milestones in its relations with Tbilisi. Armenia also realizes that its gateway to Russia is through Georgia, and that is why the dependence on the dynamics of Russian-Georgian relations is an extremely sore point for Armenia. In turn, given the secession of Abkhazia and South Ossetia, Tbilisi is more cautious in dealing with the “Armenian question.” The Georgian leadership cannot ignore that, unlike the Abkhazians or Ossetians, Armenians have strong support in the United States and the EU (similarly from France).
Indeed, the given dispositions have determined the attitude that Georgia’s neighbors have toward the “hot August” events. Despite its commitment to a strategic alliance with Russia, Armenia preferred to abstain from sudden moves and categorical statements. There are many reasons for this. There is a reluctance to either clearly align their actions with the Russians or to spoil their relations with the West. They are already uneasy in connection with the events of March 1 in Yerevan. It is understandable that Serzh Sargsyan is no Alexander Lukashenko, to whom the United States and the EU have long ago given their “blessing” of more freedom in his interpretation of events.
Armenia, which has such a vulnerable place as the Karabakh, was also not overly interested in anchoring the Nagorno Karabakh Republic (NKR) and the Armenian-Azerbaijani conflict to Russian-Georgian relations. Besides, even earlier, both Armenia and the NKR leadership distanced themselves from an openly pro-Ossetia and pro-Abkhazia position. This is why representatives of Armenia’s Ministry of Defense hastened to declare on August 10 that raids on the Georgian airbases were not being conducted from the Russian base located in Armenia: “The 102nd military base in the city of Gyumri has no military aircraft capable of committing acts such as these bombings,” they claimed.
The position of Armenia in connection with the heated Russian-Turkish relations is another sensitive issue. Mild support by Turkish Prime Minister Recep Erdogan for the Russian Federation’s position is creating a feeling in Yerevan (as well as in the Armenian Diaspora in the West) that the two great powers can agree with each other to the detriment of Armenia (in particular, on the Karabakh issue). Recall that on August 13 Erdogan stated: “The situation in South Ossetia gives us cause to review the relationship between our countries, whose solidarity in this region is of great importance.” Here is what Karapet Kalenchyan, an expert at the Armenian Center for National and International Studies, wrote on this matter: “Seeing that Russia is once again entering the South Caucasus, Turkey gives it its full support in exchange for certain concessions on the part of Russia. What kind of concessions could these be? Armenians have often worried that such concessions might be made at the expense of our interests.”
Prudence (only in the opposite direction) is also what set apart Azerbaijan’s position. Representatives of various political parties of the republic (including the ruling party) were more open in expressing their positions. According to Mubariz Gurbanly (the ruling “Yeni Azerbaijan” party), the “Georgian authorities’ actions to restore the country’s territorial integrity are fully merited. These actions were undertaken in accordance with the UN Charter.” Note that this idea (the legality of actions to punish separatists) had so far been far more popular in Azerbaijan than in Georgia. The chairman of the Supreme Majlis of the “Musavat” (opposition forces) party, Sulhaddin Akper, stated that Georgia “was forced to conduct the operation against the separatists in South Ossetia.” However, Baku was officially much more cautious than, for instance, Ukrainian President Viktor Yushchenko and the Foreign Ministry of his country (which, unlike Azerbaijan, does not have such serious interests in the region).
The statement by the Azerbaijani Ministry of Foreign Affairs from August 8 in support of Georgia’s territorial integrity (approved by the Georgian diplomats) contained general statements on the validity of the Georgian operation under “international law,” but was not further clarified.
Five leaders of states that expressed their solidarity with Georgia were present at a rally in Tbilisi on August 12. There were leaders of the three Baltic countries, Poland, and Ukraine, but Ilham Aliyev, the head of the state which Saakashvili called the “guarantor of independence” less than a month earlier, was not there. Baku preferred caution, given their interest in maintaining stable relations with Russia. Unlike Georgia, Azerbaijan’s foreign policy is not based on a rigid confrontational manner. In Baku, they consider Russia to be a counterweight to the West (which does not have such unambiguous relations with Azerbaijan as it does with Georgia). Azerbaijan is also afraid of being drawn into the “Iran game,” where it is destined to play a role as either a runway or the target of “Tehran’s retaliatory shot.” Hence the desire to appreciate the generally friendly, albeit difficult, relations with Russia.
The opposition is trying to take advantage of this situation. Isa Gambar, the leader of the “Musavat” party (who received second place in the last presidential elections) believes that the official Baku reaction to the events in South Ossetia is inadequate. But what level of influence does Isa Gambar, or other opposition figures (Eldar Namazov or Ali Keremli), enjoy today that he can alter the position of the president’s team? That is a rhetorical question. Let’s consider a hypothetical situation. Tomorrow either Gambar or Namazov replace Ilham Aliyev. I think that they would also strictly separate rhetoric and realistic politics, guided by the national interests of Azerbaijan. Note that if such a scenario were to be repeated in Nagorno-Karabakh, Baku would receive a much tougher reaction from the West. There would even be talk of the consolidated opinion of the United States, Russia, and leading EU countries. And that is why the Azerbaijani police prohibit protests at the Russian embassy in Baku, and prevents anti-Russian hysteria from sweeping the country.
Sergey Markedonov Ph.D., is the head of the Interethnic Relations Department at Moscow’s Institute of Political and Military Analysis.
