Reconsidering ’s Foreign Policy on the 25th Anniversary of Restored Independence

Arastu HABİBBEYLİ* Abstract Key Words

2016 marked the 25th anniversary of the Azerbaijan, Independence, Energy Security, restoration of Azerbaijan’s state independence. Balanced and Multi-Vector Foreign Policy, Able to reinstate independence twice in the Transportation Corridor. past century- in 1918 and 1991- Azerbaijan carries on its ancient and prolific tradition of Introduction statehood. This also means twice ridding itself th of occupation in a single century and makes By the late 20 century, a new world state sovereignty the greatest accomplishment order had emerged in the aftermath of and asset for the country. Throughout a the Warsaw Pact’s dissolution and the 25 year journey under such complicated collapse of the . Regarding circumstances, Azerbaijan has gone from its significance, that phase can only being a country with a stagnant economy be compared to the new political to becoming the leader nation in the South Caucasus. This nation has become a reliable system that followed the Treaty of energy security partner, and has evolved from Westphalia. Changes transpiring in being a recipient of international aid to a the dawn of the 1990s predetermined donor country. Initially, an average member the establishment of the new world of the international community, Azerbaijan order. Geopolitical perturbations eventually reached the level of non-permanent accompanied the transition from member of the UN Security Council (2012- a bipolar to a unipolar world. The 2013). This article reviews the evolution of the foreign policy of the Republic of Azerbaijan unification of Germany, the breakup over the last 25 years. of Yugoslavia and Czechoslovakia as well as the geopolitical shifts caused by the Western orientation of the Central and Eastern European countries * Dr., Envoy Extraordinary and Plenipotentiary. Deputy Head of Foreign Relations Department culminated in the rise of Eurocentrism of the Presidential Administration of the and Euro-Atlantic integration. Republic of Azerbaijan, , H. sq. 59, ap.9, Azerbaijan. At the same time, the number of E-mail: [email protected] local conflicts and wars around the

29 PERCEPTIONS, Spring 2017, Volume XXII, Number 1, pp. 29-48. Arastu Habibbeyli

world was on the rise. Observations the ardent pro-Westerners along with demonstrate that these minor conflicts the political circles representing the played a vital role in the shaping of the pro-Russian population, have shown new world order. Furthermore, neglect themselves capable of influencing the of the principles of international law by country’s strategic choices. the big power centers in the course of military-political clashes and lack of a Local conflicts that erupted in the fair attitude towards the local conflicts wake of the collapse of the previous engendered doubts about the new order system have had a profound impact within the system of the international on the foreign policy of the countries relations. The 20th century was in the Central Asia and all across the characterised by an increasing number post-Soviet space. If, in Central Asia, of hotbeds around the world and the foreign policy is all about the rivalry commencement of the transition from over water resources, ethnic conflicts a unipolar to a multipolar world. rest at the heart of the problems in the Caucasus, Moldova and . It would be helpful to review the foreign policy courses of the newly- independent nations of the late 20th century. Following the collapse of the Local conflicts that erupted USSR, three of the 15 former union in the wake of the collapse of republics- Latvia, Lithuania and the previous system have had a Estonia- immediately chose the path profound impact on the foreign of Euro- Atlantic integration. All three policy of the countries in the eventually became Central Asia and all across the and NATO member states owing to post-Soviet space. the consistency of that strategic choice. Meanwhile, the rest, albeit joining the Russian-led Commonwealth of Independent States, were unable to Those were the geopolitical pursue a steady foreign policy line over circumstances under which the the next 25 years. and Ukraine Republic of Azerbaijan declared its serve as an example. There has been independence on 18 October 1991. This an absolute divergence between the nation has come a long way in those orientation poles that both nations 25 years in terms of its foreign policy. pursued in the first 15 years of their There is a direct link between gaining independence and their choices in the a deserved foothold in the system of following period. In Moldova also, international relations, proving itself

30 Reconsidering Azerbaijan’s Foreign Policy as an equal partner, and the ability to Conveying the truth about Azerbaijan pursue a foreign policy that meets the in the international arena also proved realities of the new world order. to be a challenge. The Armenian diaspora, with its over 100-year-old, The foreign policy of independent well-structured organization, and the Azerbaijan can be divided into three Armenian lobby, being its principal phases. The first stage was characterized benefactor, had managed to keep by the chaos that also characterized Azerbaijan under a kind of information the whole political life of the country isolation on the international scene. It during the early years of independence was no coincidence that during that between 1991 and 1993. The second time, at the behest of the Armenian phase covers the years Azerbaijan had diaspora, the U.S. adopted a legislative been led by its National Leader Heydar act that prohibited assistance to Aliyev between his rise to Presidency Azerbaijan- despite the latter being on 15 June 1993 and 12 December the actual victim of military aggression, 2003 when he passed away. That was a and the country whose territory was period of stabilization in the aggravated occupied. Section 907 of the Freedom relations with the country’s neighbors Support Act adopted in 1992 read, and the shaping of the founding “ assistance under this or principles of an independent foreign any other Act may not be provided to policy under Azerbaijan’s National the Government of Azerbaijan until the Leader . The third phase, President determines, and so reports to which covers the period between 2003 the Congress, that the Government and the present, is characterized by the of Azerbaijan is taking demonstrable ascending foreign policy course taken steps to cease all blockades and other as Azerbaijan has transformed itself offensive uses of force against into a leading nation of the South and Nagorno-Karabakh”.1 At the time, Caucasus and a reliable partner in that unfair and biased attitude was broader international relations. displayed by other countries as well. All of that produced enormous challenges Azerbaijan went through an incredibly for the diplomacy of a new sovereign complex and arduous period in the early subject of the system of international years of its independence. Armenia was affairs, the Republic of Azerbaijan. pushing forward with the occupation of the country’s territories while, due to In the first years of Azerbaijan’s the crumbling of the previous system, independence, the major foreign policy the economy went into a recession, obstacles were, on the one hand, ongoing thus also derailing domestic stability. pressure by the Armenian diaspora

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and the Armenian occupation and on The Phase of Developing the other hand, the incompetency and amateur performance of the duties Key Foreign Policy on behalf of the individuals that then Principles and Directions stood at the country’s helm. Due to the impulsive nature of the foreign policy The shaping of key foreign policy and the lack of a systematic approach, principles and directions commenced in the specifics of the geopolitical location 1993 with the National Leader Heydar of Azerbaijan were not taken into Aliyev’s return to power. The foreign account, and pressing issues received policy strategy that he had initiated no conceptual consideration. was aimed at rescuing the country from imminent collapse, restoring its territorial integrity and identifying future development strategies. That In the first years of Azerbaijan’s type of foreign policy completely independence, the major altered the country’s position in foreign policy obstacles were, the international arena. Escaping ongoing pressure by the international isolation, pursuing a Armenian diaspora and the balanced foreign policy, integrating Armenian occupation. into the global economy, channeling the country’s economic potential towards solidifying of its foreign policy positions, arranging a concerted The lack of conceptual approach in performance by living its foreign policy, alongside utopian abroad, and ultimately transforming and detached-from-reality objectives, the country into the region’s economic exacerbated Azerbaijan’s relationship powerhouse, constituted the conceptual with some countries, especially its pillars of that strategy. immediate neighbors. As a result, Azerbaijan found itself isolated in A balanced foreign policy, multi-vector the international arena, its ties with cooperation, equal relations, reliable most of the neighboring countries partnership and a pragmatic political aggravated, and, owing to the efforts course, underpinned by the principle of the Armenian diaspora, the of independent policy, were the factors country found itself in an information brought about by the introduction blockade. Therefore, the first phase of Heydar Aliyev’s visionary strategy of independent Azerbaijan’s foreign into the foreign policy concept of policy can be described as the lost years. independent statehood. Azerbaijan

32 Reconsidering Azerbaijan’s Foreign Policy began to conduct a balanced and imprint on the political processes in multi-vector foreign policy, taking the region. One of the eminent figures into consideration the uniqueness of of classic geopolitical thought, Karl its location in the region. Those were Haushofer, classified the Caucasus as the founding principles that shaped an historical confrontation zone, and the second phase and that continue to equated it to the Bosphorus, Gibraltar, be the case today. Azerbaijan made its and the Suez Canal regarding its 2 strategic choice in the second phase, geographic relevance. and the sustainability and consistency Owing to its strategic importance, many of that choice have been a primary analysts view the Caucasus on a par with reason for its success. the Balkans and Central Asia. Those An independent policy based on three stand out for their geopolitical national interests is the cornerstone weight, as well as for their geographic of Azerbaijan’s foreign policy. It must significance stemming from the role be noted that there is only a handful of being at the crossroads of different of nations capable of pursuing an civilizations. It is no coincidence that independent foreign policy in a all three regions are regarded as hot spots in the new world order, where the modern world in which the process of geopolitical environment is undergoing globalization is utterly saturated. transformations accompanied by persistent ethnic-religious conflicts.3

Azerbaijan began to conduct Global and regional power centers a balanced and multi-vector have always sought to keep the foreign policy, taking into Caucasus within their influence orbit. consideration the uniqueness The struggle for influence in the of its location in the region. Caucasus among the major Eurasian powers has historically occurred in the environment of ethnic and religious divergence in the region, deprived of a Meanwhile, the geopolitical significance national consolidating force. Constant of our country’s geographic location infighting between the clans and compounds that choice. The Caucasus isolationism has regularly undermined have remained a geopolitically sensitive this region, making it vulnerable to arena of perpetual rivalry throughout 4 external interference. their history. The enduring presence of the bearers of different civilizations, Therefore, it is rather challenging cultures and faiths have left a noticeable to implement an independent and

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balanced foreign policy based on and cooperation with foreign partners national interests, in a region that is is based solely on reciprocity. This so sensitive from the geopolitical point is an essential element that defined of view. This is evident in the foreign the country’s foreign policy direction policy course of the three countries in developed in the second phase. the South Caucasus. Armenia is the region’s outpost state, where most of The integration processes that the the strategic assets are foreign-owned. Republic of Azerbaijan has been Georgia encounters problems due to involved with are also economic and its orientation towards a single pole cultural, rather than military-political. and due to the inconsistency of its One of the foreign policy priorities foreign policy outline. For that reason, of the early years of independence- an independent and balanced foreign Euro-Atlantic integration- covered policy course distinguishes Azerbaijan the period of evolution of the country’s from the rest regarding its geopolitical legislature, identification of favorable relevance. trade opportunities, intensive contacts, and cooperation based on mutual interests. At the same time, Euro- The struggle for influence Atlantic integration does not conflict in the Caucasus among the with the country’s desire to join major Eurasian powers has alternative integration processes and historically occurred in the pursuit of bilateral cooperation based environment of ethnic and on an equal footing. In short, Euro- religious divergence in the Atlantic integration by no means region, deprived of a national impairs Azerbaijan’s leeway in its consolidating force. independent foreign policy. At the same time, equal partnership remains the core of that integration.

An independent foreign policy The status of being a reliable partner on primarily rests on the aspiration to the international scene is another major forge equal relations with all countries. principle of Azerbaijan’s foreign policy. Azerbaijan is affiliated with no That aim certainly requires a strong military-political block and focuses on political leader and skillful use of the beneficial cooperation with countries country’s economic potential. The place of all shapes and sizes. Azerbaijan does and role of every nation in history not tolerate the language of pressure, are determined by the extraordinary

34 Reconsidering Azerbaijan’s Foreign Policy mission of a brilliant individual who President aimed to dares to assume the responsibility of uphold the country’s national interests. playing an indispensable role in the That strategy helped Azerbaijan to fate of that nation’s history and to build secure one of the leading roles in solid traditions of statehood thanks to various regional and global projects. his or her own wisdom and vision. For Today, Azerbaijan is a steadfast partner the Russians that person was Peter the in the energy security area and plays a significant role in ensuring the energy Great, just like George Washington 6 to the Americans, Winston Churchill security of European countries. to the British, Charles de Gaulle to It all started back in 1994, with the French, Otto von Bismarck to the the signing of the “Contract of the Germans, Mao Zedong to the Chinese, Century”. For the first time in history, and Mustafa Kemal Atatürk to the Azerbaijan unlocked the Turks; to the Azerbaijanis, that man for joint development by multinational was Heydar Aliyev.5 companies, and managed to attract multi-billion dollar investments in the petroleum industry. Appropriate The status of being a reliable infrastructure connecting the partner on the international Mediterranean Sea with the Black scene is another major principle Sea was created. Back then, many of Azerbaijan’s foreign policy. considered delivery of the hydrocarbon resources of the Caspian Sea to the Western markets a fantasy. Azerbaijan, and Georgia turned the fantasy In this sense, starting from 1993, into reality, when they completed increasing interest towards our country they construction of the Baku-Tbilisi- in the international arena and the Ceyhan oil pipeline and the Baku- implementation of enormous energy Tbilisi-Erzurum natural gas pipeline. projects under the political leadership of Heydar Aliyev transformed Thus, what we call the second phase, Azerbaijan into a trustworthy partner, spanning 1993-2003, became the time first regionally and then in the wider of establishment of all of the founding geography. principles of Azerbaijan’s foreign policy. In the third millennium, Azerbaijan is The energy policy shaped by the already recognized in the international National Leader Heydar Aliyev and arena as a country that conducts an further enhanced under the incumbent independent foreign policy backed by

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national interests, a nation that pursues Our country joins integration processes equal cooperation with every nation without hindering its foreign policy and international organization, and a agenda. It was as part of this phase that dependable partner that implements Azerbaijan reaffirmed its independent multi-vector and diversified foreign foreign policy course by becoming policy. a member of the Non-Aligned Movement in 2011.7 New Foreign Policy The greatest international accomplishment of the last 25 years Horizons has undoubtedly been Azerbaijan’s election, as a non-permanent member, In the third phase, which started in to the UN Security Council for 2012- 2003, President Ilham Aliyev has 2013.8 Our country represented the continued the independence path Eastern European group and secured with the well-established traditions the seat thanks to overwhelming and managed to cement Azerbaijan’s support coming from 155 UN member international position and elevate it to states. Throughout the election process the next level. In the new millennium, Azerbaijan’s competitors were Armenia, Azerbaijan is no longer a mediocre Slovenia and Hungary. Intimidated by player on the global scene, but an Azerbaijan’s rising relevance, Armenia opted to pull out at the initial stage. initiator of and participant in many That decision was a clear manifestation regional-scale projects, as well as a of how Azerbaijan had been able country known for its international to breach the information blockade prominence. imposed by the Armenian diaspora Committed to an independent policy on the international scene in the early years of our independence. Azerbaijan course that corresponds to its national eventually secured the full support interests, Azerbaijan develops different of the European Union and finished projects; continues equal engagement ahead of Slovenia and Hungary- yet with its partners, both on a bilateral and another example of our country being multilateral basis; duly confronts the recognized as a steadfast partner.9 international pressure exerted by the Armenian diaspora; and communicates Azerbaijan added a new cooperation the truth about our country to the format to its foreign policy in the third wider global audience. At this stage, millennium. Bilateral and multilateral Azerbaijan’s foreign policy goes beyond cooperation had been the priority just one direction and targets mutually for the first years of independence. beneficial cooperation across the board. The new phase saw the introduction

36 Reconsidering Azerbaijan’s Foreign Policy of more integrated relations and trilateral cooperation formats. Given The comprehensive develop- the presence of certain trends in the ment of collaboration with region, the realization of such trilateral cooperation formats required greater its strategic partners is one flexibility. Azerbaijan is the initiator of of the priority directions for several trilateral projects. Azerbaijan- Azerbaijan’s foreign policy. Iran-Turkey, Azerbaijan-Georgia- Turkey and Azerbaijan--Iran are Among our strategic partners, relations the platforms for addressing regional with the Turkic-speaking countries matters as well as an important are of particular importance. The initiative calling for the development relationship with those countries is of cooperation ties. At the same time, determined not just by a high level of they also display the importance political and economic cooperation that Azerbaijan attaches to mutually but also by common roots, religion, beneficial relations with its neighbors, history, culture and values. Ties with the exception of Armenia.10 between Azerbaijan and Turkey are The comprehensive development of characterized by the motto “one nation- collaboration with its strategic partners two states”. No other two countries in is one of the priority directions for the world share so much affinity and Azerbaijan’s foreign policy. Since its pursue such similar foreign policy goals. independence, Azerbaijan has signed Treaties of Strategic Cooperation Azerbaijan has always proven its with 17 different countries. Along reliability in relationships with its with its traditional partners, the list partners and neighbors. No matter the also includes new countries. Eight of situation- Georgia suffering from an those countries are European nations energy crisis, the U.S. conducting anti- (Lithuania, Poland, Romania, Croatia, terrorism operations, or Russia and Italy, Hungary, Bulgaria and the Czech Iran being subjected to sanctions- all of Republic). Others include the Turkic those countries witnessed Azerbaijan’s nations with whom Azerbaijan shares worthiness. Those were the milestones historic roots (Turkey, along Azerbaijan’s journey to non- and Uzbekistan), as well as traditional permanent membership in the UN partners in the post-Soviet space Security Council. With its unique (Russia, Ukraine and Georgia). We also positioning as a member of both the enjoy strategic relations with Pakistan- Organization of Islamic Cooperation a nation that fully buttresses Azerbaijan and the , Azerbaijan in every international platform. used its presence in the Security

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Council to advocate for concerted the world’s major natural gas exporters. efforts in tackling global problems and The commissioning of the Baku- defending the rule of international law Tbilisi- Erzurum gas pipeline was a and the principle of justice. remarkable event for the region. This pipeline was the starting point for the delivery of gas to the European markets Ties between Azerbaijan and through Georgia and Turkey. The Turkey are characterized by second decade of the third millennium is witnessing the construction of the the motto “one nation- two Trans-Anatolian (TANAP) and Trans- states”. No other two countries Adriatic pipelines (TAP). If in the 20th in the world share so much century Azerbaijan required foreign affinity and pursue such similar support for the realization of such foreign policy goals. projects, nowadays, Azerbaijan carries the significant financial burden of those projects that will play a serious role in Energy policy has immensely ensuring Europe’s energy security. contributed to Azerbaijan’s ability to The choice of the Trans-Adriatic gain the status of a reliable partner. In pipeline project as the main export the first decade of the new millennium route for the delivery of the Shahdeniz Azerbaijan, together with Turkey and gas to Europe demonstrates that Georgia, managed to build a vast energy implementation of any global infrastructure. The Baku- Tbilisi- scale project in this region without Ceyhan oil pipeline commissioned in Azerbaijan’s consent and involvement 2006 was a historic project that has not is inconceivable. With an estimated just enabled Azerbaijan’s access to the price tag of US$45 billion, the world markets but also introduced a implementation of the Shandeniz-2, new globally important supply corridor. TANAP and TAP projects will ultimately redraw Europe’s energy The project was a breakthrough in 11 terms of energy infrastructure in the map. region and across the entire continent. In the first decade of the Azerbaijan also contributes to Europe’s energy security when it comes to new millennium Azerbaijan, natural gas supply. We all know that together with Turkey and development of the Shahdeniz field in Georgia, managed to build a the Azerbaijan sector of the Caspian Sea vast energy infrastructure. placed our country within the ranks of

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Azerbaijan’s energy policy has Azerbaijan. The Baku-Tbilisi-Kars solidified the country’s posture on railroad connection, which will link the international scene and also, quite different regions with the North-South naturally, enhanced the sustainability international transportation corridor, of its economy. Azerbaijan’s GDP has will provide still greater opportunities tripled over the last 12 years, resulting for bolstering economic cooperation. in budget growth by 20 times over Thus, economic diplomacy has become the course of this period. Meanwhile a primary direction of Azerbaijan’s poverty levels have dropped from 40% foreign policy. down to five.12 The country’s foreign exchange reserves today stand at 13 Reflection of multicultural around US$ 40 billion. values in the foreign policy The international community is aimed at propagating recognizes these accomplishments. the “Azerbaijani Model of The World Economic Forum Multiculturalism” around the th ranks Azerbaijan 40 in its Global world. Competitiveness Report.14 The World Bank places Azerbaijan in the “Upper Middle Income” countries One of the most important aspects group,15 and the UN Development of the country’s foreign policy is Program’s Human Development Index the presence of multiculturalism classifies Azerbaijan as a “high human principles, and this reflects its true development” country.16 essence. Indeed, multiculturalism in Azerbaijan is a mirror of the public Economically potent Azerbaijan sentiment and of a thousand- years- has become a regional center and old lifestyle. Reflection of multicultural has gained economic leverage in the values in the foreign policy is aimed at Mediterranean and Black Sea basins. propagating the “Azerbaijani Model of Today, Azerbaijan’s investments are a Multiculturalism” around the world. significant factor in Turkey, Georgia, Nowadays we see enduring clashes of Romania and Ukraine. On the different religions, cultures and overall other hand, Azerbaijan is gradually divergence. Therefore, it is very relevant transforming itself into a transit country that a lifestyle based on tolerance and a transportation hub. One of the and harmony, the one accepted as alternative transportation routes for the Azerbaijan’s state policy, is showcased Central Asian countries runs through to the world. In this sense, it would

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be helpful to review how relevant Being an integral part of the Turkic multicultural values are in Azerbaijani civilization, Azerbaijan honors society. individual values. The tradition of statehood that has endured throughout Azerbaijan sits at the crossroads every historical phase, as well as the between the East and the West, between superiority of natural customs and Islam and Christianity, and combines traditions in the society, monotheistic the legacy of different civilizations and religious views, family values, cultures. Azerbaijan serves as a bridge tolerance towards the bearers of other between the East and the West, and as civilizations, and habits of coexistence a point of convergence. Azerbaijan has make up the founding principles of our for centuries absorbed the values that 17 lifestyle. conformed to its natural peculiarities, and eventually developed a growth The traditions that have evolved model of its own, which makes this throughout the centuries are now country a bearer of both Western and an inalienable part of our lives. A Eastern values. statement by the President of the Republic of Azerbaijan, Ilham Aliyev, delivered at the opening of the 7th Azerbaijan serves as a bridge UN Alliances of Civilizations Global between the East and the West, Forum held in April 2016 in Baku, and as a point of convergence. clearly conveys the society’s stance on multiculturalism in Azerbaijan, “Azerbaijan for centuries was a place Historically, representatives of different where religions, cultures, civilizations faiths and cultures coexisted peacefully met. We are not only a geographic in Azerbaijan, and that has only bridge between East and West, but enriched this society. Azerbaijan is a also a cultural bridge. For centuries, Muslim country where the Christians representatives of religions, cultures and the Jews have lived side-by-side lived in peace and dignity in Azerbaijan. for centuries. Multiculturalism that Religious tolerance, multiculturalism implies coexistence based on mutual always was present here. There was no respect between the representatives of word “multiculturalism”, but ideas were different values is regarded as a lifestyle 18 always present”. in Azerbaijan. Throughout history, our country has remained free of religious, In the new millennium, changes in ethnic or any other discrimination. the philosophy of coexistence among

40 Reconsidering Azerbaijan’s Foreign Policy different civilizations, cultures, faiths and even peoples is one of the greatest Azerbaijan has managed to challenges. The globalization simply preserve its own historical cannot survive while being deprived of traditions against the backdrop the coexistence of different cultures. The world no longer accepts the notions of of cultural intransigence, the a monocultural or monoethnic society aggravation of West-Islam or a country. Moreover, in international relations, and the surge of relations, no country can prosper in different phobias around the an isolated environment, be it in the world. political, economic or cultural domain. Humankind can only thrive when Culture Ministers. What made that there is respect for different values. event special was that their colleagues True, there is a handful of monoethnic from the Organization of Islamic countries around the world. Some find Cooperation were also invited. As a themselves isolated for geographic, follow-up to that process, Azerbaijan historic or political reasons. Otherwise initiated and hosted another event in it is the embodiment of a chauvinistic 2009, where the ministers of culture and intolerant policy. For example, from European countries were able Armenia stands as a monoethnic to participate in the Organization of country in our region. Islamic Cooperation Culture Ministers’ Azerbaijan has managed to preserve Conference in Azerbaijan. its own historical traditions against the Since 2011, Azerbaijan’s initiative has backdrop of cultural intransigence, the become a consistent platform. Every aggravation of West-Islam relations, and the surge of different phobias around two years Azerbaijan hosts the World the world. In this sense, Azerbaijan Intercultural Dialogue Forum. Baku th has been taking appropriate steps also hosted the 7 UN Alliances of aimed at contributing to intercultural Civilizations Forum in 2016. That dialogue in the global arena, and this event demonstrated the “Azerbaijani has remained a major component of Model of Multiculturalism” to the rest our foreign policy. The foundation of the world. From this perspective, of a new cultural bridge between the multiculturalism is a new dimension of West and the East was laid in Baku Azerbaijan’s foreign policy. This is also in 2008, when the city hosted the a thought-provoking challenge for all conference of the Council of Europe’s of humankind.

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Nagorno-Karabakh: “Hot” our country to the wider international audience and expose Armenians’ Rather Than “Frozen” deceptions. Worldwide recognition of Conflict the Khojaly genocide was identified as a primary objective at the 2011 annual The biggest challenge that Azerbaijan gathering of members of the diplomatic has encountered in the independence service of the Republic of Azerbaijan. years is the Nagorno-Karabakh conflict. In the international arena, restoration of territorial integrity is our Every two years Azerbaijan primary objective. It is no secret that for over 20 years Azerbaijan’s historical hosts the World Intercultural part- Nagorno-Karabakh and its seven Dialogue Forum. adjacent provinces- have remained under occupation by Armenia. As a result of that military aggression and Since then, 13 national parliaments the policy of ethnic cleansing, 20% of (2012-Mexico, Pakistan and Columbia; our territory has been occupied and 2013-the Czech Republic, Bosnia over one million people have become and Herzegovina, Peru, Romania, refugees and internally displaced Panama and Jordan; 2014-Sudan persons. and Honduras; 2015-Guatemala; 2016-National Council of Slovenia), Azerbaijanis were subjected to genocide as well as 19 states in the U.S. and the in the active phase of the conflict. Organization of Islamic Cooperation Overnight, on 25-26 February 1992, (2012) have officially recognized the armed forces of Armenia, backed the Khojaly Genocide.20 All of this by the remainders of the ex-Soviet is testimony to Azerbaijan’s having troops stationed in Khankendi, invaded succeeded in delivering the truth about the city of Khojaly and perpetrated a our country to the world. genocide. As a result, 613 civilians, The OSCE Minsk Group was including 63 children, 106 women ostensibly established in March 1992 and 70 elderly were brutally murdered, 19 for the resolution of the conflict. As of some tortured to death. December 1996, three countries had Since the early days of independence performed the duties of the Minsk the most important task that Group as co-chairs- Russia, the U.S. Azerbaijan’s foreign policy faced has and . Regrettably, the conflict been to communicate the truth about still remains unresolved. Although

42 Reconsidering Azerbaijan’s Foreign Policy there has been a ceasefire in place since Azerbaijan’s territorial integrity, with 1994, armed incidents along the Line many documents passed to that end. of Contact have regularly happened. The UN Charter, the Helsinki Final No progress has yet been made in Act, UN Security Council Resolutions the negotiations process. Armenia is 822, 856, 874 and 884, the UN General not interested in the resolution of the Assembly Resolution of 2008, as well problem and aims to keep it frozen. as decisions and resolutions adopted by Apparently, both Armenia and the co- the Non-Allied Movement, the OSCE, chairs are satisfied with the situation as the Council of Europe, NATO, the long as a large-scale war is avoidable. European Parliament, the Organization However, recent tensions in April 2016, of Islamic Cooperation, and other provoked by Armenia, which entailed international institutions constitute the significant loss of life, and armed legal grounds for the resolution of this clashes with both sides using heavy conflict and are underpinned by the weaponry, once again demonstrated norms and principles of international that the conflict is not in fact frozen, law. All of these documents reaffirm and could ignite at any moment. This Azerbaijan’s sovereignty, territorial event prompted immediate action on integrity and the inviolability of its behalf of the co-chairs and riveted internationally recognized borders. the attention of the international However, the lack of a fair attitude in community to this dispute. the system of international relations continues to obstruct the resolution Worldwide recognition of of this conflict. The present day world the Khojaly genocide was order is governed not by international identified as a primary objective law but at the behest of the big power at the 2011 annual gathering centers. For them, application of double standards concerning the Armenia- of members of the diplomatic Azerbaijan, Nagorno-Karabakh service of the Republic of conflict is, of course, a standard practice Azerbaijan. and the scales are tipped in one side’s favor due to Azerbaijan being a Muslim nation and Armenia representing the Azerbaijan has international law on Christian world. From this perspective, its side with regards to the Nagorno- the Nagorno-Karabakh conflict can be Karabakh conflict. The international considered a geopolitical fault line in community and all of the international light of resurging Islamophobic trends organizations buttress the idea of around the world.

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missions in foreign countries and Azerbaijan’s foreign policy international organizations, while 62 has focused on building a foreign diplomatic missions operate in solid legal base for the just Baku. resolution of the conflict Despite its complex geopolitical in line with the country’s location and tumultuous development territorial integrity, across all path, for all these years, Azerbaijan has the international platforms, managed to conduct an independent and the documents passed are and balanced foreign policy backed by a clear demonstration of the its national interests. Equal engagement country’s success in doing this. with all parties has enabled Azerbaijan to implement a mutually beneficial cooperation, transforming our country Over the course of these years, into an initiator of main regional-scale Azerbaijan’s foreign policy has focused projects and a trustworthy partner. on building a solid legal base for the just resolution of the conflict in line with the country’s territorial integrity, across all the international platforms, Despite its complex and the documents passed are a clear demonstration of the country’s success geopolitical location and in doing this. Protraction of the tumultuous development path, resolution of the conflict stems from Azerbaijan has managed to the lack of efficient mechanisms within conduct an independent and international law and the conflicting balanced foreign policy backed geopolitical interests of the global by its national interests. powers.

The Republic of Azerbaijan celebrated the 25th anniversary of its independence in 2016. In this quarter Conclusion century, the country has succeeded in taking its rightful place in the When Azerbaijan restored its system of international relations. To independence from a collapsing Soviet date, Azerbaijan has established Union in 1991, the country faced diplomatic ties with 177 countries enormous challenges as the old system and is represented with 91 diplomatic crumbled and the new one was yet

44 Reconsidering Azerbaijan’s Foreign Policy to be established. At the same time, to power, and was characterized by a neighbouring Armenia was waging an stabilization of aggravated relations all-out warfare against Azerbaijan, and with neighbors and the shaping of the trying to occupy Azerbaijan’s Nagorno- founding principles of an independent Karabakh region. In 2016, Azerbaijan’s foreign policy. The third phase has independence and independent spanned from 2003 to the present, foreign policy marked its 25th year. A and through this period, under the retrospective analysis of this quarter- leadership of President Ilham Aliyev, century-long policy reveals that, Azerbaijan has transformed itself into despite early challenges, Azerbaijan a leader nation of the South Caucasus has successfuly managed to not and a reliable partner in international only strengthen its fragile statehood relations. and enter into a path of sustainable development, but also pursue a very skillfully crafted foreign policy that has When Azerbaijan restored made the country a regional leader and its independence from a globally respected actor. collapsing Soviet Union Thus, the last 25 years of foreign policy in 1991, the country faced of independent Azerbaijan can be enormous challenges as the old divided into three phases. The first one, system crumbled and the new between 1991-1993 was characterized one was yet to be established. by the chaos that was the result of both objective difficulties generated by the collapse of the Soviet Union While analysing the last 25 years and the war in Nagorno-Karabakh of Azerbaijan’s independent foreign against Armenia (supported by a well- policy, particular attention should also established international diaspora), and be placed on the Armenia-Azerbaijan subjective problems generated by the Nagorno-Karabakh conflict that incompetence of the country’s early has resulted in the deaths of about political leadership, whose decisions 30,000 people and the occupation of frequently failed to take into account 20% of the internationally recognized harsh geopolitical realities in our region. territories of Azerbaijan. Throughout The second phase covered the years the last 25 years, Azerbaijan has between 1993 and 2003. This period repeatedly declared the restoration of was launched by Azerbaijan’s National the country’s territorial integrity as Leader, Heydar Aliyev, after his return the key priority of its foreign policy.

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Azerbaijan gives preference to a While analysing the last peaceful resolution of the conflict, but 25 years of Azerbaijan’s also maintains the right to resort to independent foreign policy, military power to restore its territorial particular attention should also integrity as international peace efforts be placed on the Armenia- visibly fail due to the ineffectiveness Azerbaijan Nagorno-Karabakh of mediations and to Armenia’s conflict that has resulted in the uncompromising position. As the rise deaths of about 30,000 people of tensions in early April of 2016 once and the occupation of 20% of again demonstrated, the conflict is not the internationally recognized frozen and could ignite at any time. territories of Azerbaijan. Current efforts to maintain the status- quo are no longer sustainable.

46 Reconsidering Azerbaijan’s Foreign Policy

Endnotes

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