Armenia, Azerbaijan, and Georgia: Security Issues and Implications for U.S. Interests

Publication Date: January 2009

Publisher: Library of Congress. Congressional Research Service

Author(s):

Research Area: Government

Type:

Coverage: Georgia (Republic) Georgia (Republic) Georgia (Republic)

Abstract:

The South Caucasus region has been the most unstable in the former Soviet Union in terms of the numbers, intensity, and length of ethnic and civil conflicts. Other emerging or full-blown security problems include crime, corruption, terrorism, the proliferation of weapons of mass destruction, and narcotics trafficking. The regional governments have worked to bolster their security by combating terrorism, limiting political dissent they view as threatening, revamping their armed forces, and seeking outside assistance and allies.

The roles of neighbors Iran, Russia, and Turkey have been of deep security concern to one or more of the states of the region. These and other major powers, primarily the United States and European Union (EU) members, have pursued differing interests and policies toward the three states. Some officials in Russia view the region as a traditional sphere of influence, while Turkish officials tend to stress common ethnic ties with Azerbaijan and most of Central Asia. EU members are increasingly addressing instability in what they view as a far corner of Europe. Armenia has pursued close ties with Russia and Iran in part to counter Azerbaijan's ties with Turkey, and Georgia and Azerbaijan have stressed ties with the United States in part to bolster their independence vis-a-vis Russia.

The United States has supported democratization, the creation of free markets, conflict resolution, regional cooperation, and the integration of the South Caucasian states into the larger world community. The Administration has backed regional energy and pipeline development that does not give Iran and Russia undue political or economic influence. U.S. aid has been provided to bolster the security and independence of the states. Some critics have asserted that the region is not a top strategic priority for the United States and have advocated limited U.S. involvement sufficient to ensure general U.S. goals of fostering stability and reforms.

Congress has been at the forefront in supporting U.S. assistance to bolster independence and reforms in the South Caucasus, but debate has continued over the scope, emphasis, and effectiveness of U.S. involvement. Congressional support for the security of Armenia and Nagorno Karabakh (NK; a breakaway region of Azerbaijan mostly populated by ethnic Armenians) led in 1992 to a ban on most U.S. government-to-government aid to Azerbaijan. Congress authorized a presidential waiver to the ban after the terrorist attacks on the United States on September 11, 2001, to facilitate U.S.-Azerbaijan anti-terrorism cooperation. Congressional support for U.S. engagement with the region also was reflected in "Silk Road Strategy" legislation in FY2000 (P.L. 106-113) authorizing greater policy attention and aid for conflict amelioration, humanitarian needs, economic development, transport and communications, border control, democracy, and the creation of civil societies in the South Caucasus and Central Asia. Congress regularly has earmarked foreign aid to Armenia and upheld a South Caucasus funding category to encourage conflict resolution, provide for reconstruction assistance, and facilitate regional economic integration.