Paul
Goble
Staunton, January 29 – The
conventional wisdom is that Moscow’s insertion of its peacekeepers into
Qarabagh in the wake of the Armenian-Azerbaijani fighting last fall represents
an unqualified victory for Russia and a defeat that might have been avoided by
Azerbaijan. But in fact, Aleksandr Samarsky says, just the reverse is the case.
Samarsky, who represented Ukraine in
the OSCE mission in Qarabagh in 1997-1998 and again from 2004 to 2006 and later
was Kyiv’s ambassador to Iran between 2010 and 2014, says that not only did
Baku win and Moscow lose but that Moscow also has suffered a loss in its
relations with Armenia and must now bear new burdens because of its
peacekeeper.
“The overwhelming majority of experts
considers that as a result of the war, the balance in Azerbaijani-Russian
relations shifted in favor of the Russian Federation,” the Ukrainian diplomat
says. “At first glance,” there is some reason for doing so; “but in fact,” the
notion that this was “an unqualified diplomatic victory for Russia and a defeat
for Azerbaijan is mistaken.”
As the winner in the war, “Baku in
principle has significantly reduced its dependence on external influence by any
international mediator in such talks, including Moscow, which has traditionally
taken part in them,” Samarsky says.
Moreover, the appearance of Russian
peacekeepers changes little because “a large part of the territory populated by
Armenians which now is under a Russian protectorate was not controlled by Baku
earlier. There isn’t that big a difference as to who controls an occupied
territory if it isn’t you.”
And the notion that Moscow has suddenly
acquired the ability to engage in provocations is overstated. There were
Russian agents in Qarabagh before; and if Moscow wants to provoke something, it
has had and retains enough levers to do so. But it really hasn’t acquired a
large new capacity, Samarsky continues.
In fact, and leading to a very
different conclusion about the impact of Russian peacekeepers, “Baku received a
definite benefit from the deployment of ‘peacekeepers’ of the Russian
Federation in Qarabagh.” Indeed, at least one analyst, Farkhad Ibragaimov, says
that Baku asked for them even before Moscow offered them.
Had Azerbaijan retaken all of
Qarabagh, it would have faced serious problems as far as its international
image is concerned; and it would have had to administer a large and hostile
population for which it would have had sold responsibility and would have had
to train large numbers of officials to handle.
Now, Baku has avoided those problems
“at least for the medium term,” and thus can enjoy its victory without those
costs.
“Another positive moment for
Azerbaijan is that in the package with ‘the peacekeepers,’ it was able to
obtain additional preferences connected with the unblocking of transportation
links connected the western districts of Azerbaijan with Nakhichevan,” Samarsky
says. The peacekeepers were a price worth paying for that.
“And so,” he argues, “Baku’s initiative
about the introduction of Russian peacekeepers, the result of which is the
formation in Qarabagh of a Russian protectorate really has brought Azerbaijan
obvious benefits.”
And if Moscow did not achieve a
victory over Baku in the settlement process, it lost ground both during the
conflict and after with Armenia, the Ukrainian diplomat continues. Moscow had
to try three times to get a ceasefire, thus highlighting its weakness in the
region, and while Armenian dependence on Russia has increased, Armenians are
increasingly angry at what they see as Russia’s failure or even betrayal.
Armenia is to be sure a Russian
vassal, but “the status of being a vassal does not mean automatic friendly and positive
attitudes by the vassal to the suzerain More than that, it lays specific
obligations on the suzerain relative to his vassal. Moscow has failed in that,
and Armenians, a historically obsessed people, aren’t going to forget.
What that means is this, Samarsky
says. “The long-term prospects for the development of Armenian-Russian
relations are not so positive for the Russian Federation as they may seem
today. And the situation may change sharply if Ankara is able to make Yerevan
such attractive proposals that it simply won’t be able to refuse them.”
Moreover, and this is not a
negligible factor, the diplomat continues, putting peacekeepers in Qarabagh not
only makes Russia more dependent on Azerbaijan for the supply route it needs
but also imposes real costs, finance and image. The money costs may seem small
but they add up, and the image of a protectorate is not an unalloyed good.
“Thus,” Samarsky concludes, “as we
see, the results of the Russian pseudo-peacemaking
look sufficiently contradictory even from the point of view of the defense and
advancement with their help of its interests in bilateral relations with the
sides of the Qarabagh conflict. Moscow has not been able to achieve here any
essential advantages.
And that in turn means that no one
should be talking “about any ‘effective management of resolving conflicts’” in
this case.