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Policy Brief and Accompanying Report Were Drawn from Security and Livelihoods

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Policy Brief and Accompanying Report Were Drawn from Security and Livelihoods peOpLe’s peacemaKIng perspectIves may 2012 nagorny Karabakh conflict and frontline areas Over the past twO decades progress on finding a resolution to the Nagorny Karabakh Key OutcOmes (NK) conflict has proved elusive. The unresolved conflict continues to evolve and pose persistent n cBms need to happen, where and shifting challenges on the ground, including insecurity, long-term displacement, ingrained possible, independently of the mistrust and serious limits on development and regional opportunities. Since fighting ended broader more intractable political in 1994, there has been an uneasy situation of ‘no war, no peace’ between Armenians and frameworks, to help create the Azerbaijanis. conditions for a sustainable peace agreement. The geography of the NK conflict has resulted in two distinct border contexts (see map). One features a heavily militarised and entrenched Line of Contact (LOC) along a fiercely contested n the eu can and should play a de facto border deep inside internationally recognised Azerbaijani territory, where mostly one more active role in promoting the side (Azerbaijan) has a civilian population. The second features civilian populations living on practical benefits of cBms for either side of the state border between Armenia and Azerbaijan, which although also closed conflict-affected people, as part of and militarised is less tense and offers more opportunities for mutually beneficial cooperation. its support for the OSCE Minsk Group, and challenge more the use of militant This brief highlights the potential for a number of key confidence building measures (CBMs); rhetoric. both military (joint investigation, sniper withdrawal) and civilian (resource management). n Local people living near the Line of Military CBMs are clearly required and expected by the international community; without contact require special attention cooperation on them, the sides are only undermining their own international standing. from both government and Cooperation is also urgently required on issues around missing persons and the measures each international donors, as they face side needs to take when remains are found in the front-line area. a double vulnerability, related to both Findings and recommendations in this policy brief and accompanying report were drawn from security and livelihoods. consultations and interviews conducted in early 2012 among people directly affected by the n Improving governance, including in conflict, both in a number of Azerbaijani villages near the LOC and in frontline areas in Tovuz the security, justice and economic and Gazakh districts on the Azerbaijani side of the international border; and also in villages in sectors, is essential for peaceful and Tavush region on the Armenian side of the border. Consultations and discussion groups were normalised development in the region. also carried out in NK, in the same time-frame and in several locations. The European Union (EU) is a significant donor and political actor in the region and is well placed to play a key role in support of an eventual agreement mediated by the Organisation for Security and Cooperation in Europe (OSCE) Minsk Co-Chairs (France, Russia, US). The EU could do more to promote the case for CBMs, in support of and in full complementarity with the Minsk Group and the framework agreement (the Madrid principles). The People’s Peacemaking Perspectives project “Local voices in society must be heard. We hope The People’s Peacemaking Perspectives project is a joint initiative implemented by Conciliation that the authorities take Resources and Saferworld and financed under the European Commission’s Instrument for Stability. our views into account.” The project provides European Union institutions with analysis and recommendations based on the opinions and experiences of local people in a range of countries and regions affected by fragility Karabakh Armenian resident, and violent conflict. Krasniy Bazar, January 2012 peOpLe’s peacemaKIng perspectIves: nagOrny KaraBaKh cOnfLIct and frOntLIne areas Findings and Recommendations 1. cBms need to happen, where possible, independently of the broader more intractable political frameworks, to help create the conditions for a sustainable peace agreement. If CBMs are tied to progress on the wider A view expressed in the accompanying people’s lives, and such CBMs could be a political strand, they are unlikely to happen report is that by tying military CBMs vehicle for achieving such changes. and will not exercise their intended effect in the frontline to progress in political “we cannot make long-term plans, of making that progress more likely. negotiations, Azerbaijan is applying we live one day at a time. we feel Underlying the findings in this study is aspects of a ‘package’ approach, i.e. constant worry for the future of our a basic question about how the sides insisting on the simultaneous movement children.” understand CBMs, and indeed, why the across a range of tracks, rather than Interviewee, Karabakh Armenian research, authorities at least appear to believe that accepting an incremental approach, in January 2012 certain CBMs are not in their interests. relation to the implementation of CBMs. That, in turn, contributes to the prolonging For some local participants on either side recOmmendatIOns of an inherently unstable status quo, with of the conflict, for whom their day-to-day significant risks for authorities on all sides, n Reconsider current understandings of existence is a constant challenge, the case and continued losses for ordinary citizens. CBMs in order to achieve their potential for implementing CBMs is viewed, albeit as a device for establishing predictable All parties have opportunities, as evidenced implicitly, in terms of the potential for protocols of behaviour on issues and in in the current research in local areas, to practical steps to improve their situation. contexts independent of headline political engage on CBMs resulting in no significant issues. “there were seasons when we could loss of strategic advantage, while holding not harvest our crops at all [because out the possibility of strengthening their n The EU should encourage governing of the shootings]. Once they see image as credible and reliable actors. authorities to work with local government a tractor or a combine-harvester and NGOs to identify locally relevant “we need to achieve reconciliation at working in the field, they shoot it… policy areas where cooperation resulting the national level to prevent renewal in practical benefits for local populations we have to work on our lands at of hostilities. [for that to happen] may be possible; these areas may include nights, like thieves.” the foreign diplomatic policies of water sharing, reconstruction of irrigation Azeri resident, Gapanly village both parties have to function well. canals on the border, joint action against (Tartar district), January 2012 Our intentions alone are unable to environmental pollution, fighting forest Local research raises questions as to yield positive results; consent of both fires or returning each other’s grazing whether and to what extent CBMs should parties is needed.” cattle which accidentally cross the border. be explored as a strategy in the Armenia- Armenian resident, Berdavan village n The governments of Armenia and Azerbaijan international border context (Tavush region), January 2012 Azerbaijan, in cooperation with the OSCE irrespective of whether they could apply in monitoring mechanism under the A particular point in the Azerbaijani the LOC context. Clearly, what is needed is Chairman-in-Office Personal Representative analysis is that confidence-building a more evolved and defined understanding, and his team, should agree to jointly measures involving militaries and civilian on both sides, of what CBMs mean. On the investigate incidents which involve the administrations on both sides of the one hand, the sides have at least affirmed, targeting of civilians and their property. Armenia-Azerbaijan border, aimed primarily on several occasions, a degree of support n The governments of Armenia and at supporting the safety and security of for CBMs. But part of a more defined Azerbaijan may benefit from an internal the local civilian populations, could be understanding should entail a combination process of reconsidering the possible relatively easier to realise. If these work, the of the more ‘legalistic’ approach (holding value and benefits of CBMs. The specific cooperative relationship that could stem politicians to their words) and the context of the international Armenia- from such military CBMs on the Armenia- persuasive approach, highlighting the Azerbaijan border may offer opportunities Azerbaijan border could then be used to potential benefits. to pilot certain kinds of measures and set up similar arrangements in the NK initiative with no loss of strategic military “the water from the artesian wells in context as well. This idea does not emerge advantage. the village is salty. we want to go and in the same way from the interviews and repair the pipeline at night, but our discussions held in Armenia, yet this does military does not let us, because the not mean that the idea should be ruled area is mined.” out: there is a clear need for steps that Azeri resident, Kemerli village lead to concrete improvements in ordinary (Gazakh district), January 2012 2. the EU can and should play a more active role in promoting the practical benefits of cBms for conflict-affected people, as part of its support for the OSCE Minsk
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