Armenia, Azerbaijan, and Georgia: Political Developments and Implications for U.S. Interests

Publication Date: April 2009

Publisher: Library of Congress. Congressional Research Service

Author(s):

Research Area: Government

Type:

Coverage: Georgia (Republic)

Abstract:

The United States recognized the independence of all the former Soviet republics by the end of 1991, including the South Caucasus states of Armenia, Azerbaijan, and Georgia. The United States has fostered these states' ties with the West in part to end the dependence of these states on Russia for trade, security, and other relations. The United States has pursued close ties with Armenia to encourage its democratization and because of concerns by Armenian-Americans and others over its fate. Close ties with Georgia have evolved from U.S. contacts with its proWestern leadership. The Bush Administration supports U.S. private investment in Azerbaijan's energy sector as a means of increasing the diversity of world energy suppliers and to encourage building multiple energy pipelines to world markets. The United States has been active in diplomatic efforts to end conflicts in the region, several of which remain unresolved.

The FREEDOM Support Act of 1992 (P.L. 102-511) authorizes assistance to the Eurasian states for humanitarian needs, democratization, creation of market economies, trade and investment, and other purposes. Section 907 of the act prohibits most U.S. government-to-government aid to Azerbaijan until its ceases blockades and other offensive use of force against Armenia. Until the September 11, 2001, terrorist attacks on the United States, this provision had been altered only to permit humanitarian and democratization aid, border security and customs support to promote non-proliferation, Trade and Development Agency aid, Overseas Private Investment Corporation insurance, Export-Import Bank financing, and Foreign Commercial Service activities.

In the aftermath of the September 11 attacks, the Administration appealed for a national security waiver for Section 907, in consideration of the country's support to the international coalition to combat terrorism. In December 2001, Congress approved foreign appropriations for FY2002 (P.L. 107-115) that granted the President authority to waive Section 907, renewable each calendar year under certain conditions. President Bush exercised the waiver most recently in February 2006. As part of the U.S. Global War on Terror, the U.S. military in 2002 began providing equipment and training for Georgia's military and security forces. Azerbaijani and Georgian troops participate in stabilization efforts in Afghanistan and Iraq, and Armenian personnel serve in Iraq.

Some observers argue that developments in the South Caucasus are largely marginal to global anti-terrorism and to U.S. interests in general. They urge great caution in adopting policies that will heavily involve the United States in a region beset by ethnic and civil conflicts. Other observers believe that U.S. policy now requires more active engagement in the region. They urge greater U.S. aid and conflict resolution efforts to contain warfare, crime, smuggling, and Islamic extremism and to bolster the independence of the states. Some argue that energy resources in the Caspian region are a central U.S. strategic interest. This CRS report replaces CRS Issue Brief IB95024, Armenia, Azerbaijan, and Georgia, by Jim Nichol.