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The Punishedrimer on Russia's North Caucasus V
Summary
Historical enmities, interethnic rivalries, and territorial disputes have combined to make the North Caucasus currently the most volatile area in Russia. The collapse of central control and the breakup of the union have induced the ethnic minorities of these four autonomous republics and one autonomus oblast to step up demands for redress of their territorial claims and compensation for past repression. Russia is now faced with the twin challenges of containing growing inter-ethnic violence and an increasing threat to the unity of the Federation, f
Scope Note: This paper provides background Information on the history, ethnography, and politics oforth Caucasus region. It is oneumber or papers now underway in the Office of Slavic and Eurasian Affairs on the different regions of Russia. I
The Current Crisis
With the rise of ethnic nationalism and lhe revival of Islam in lhe former Soviet Union, the ethnic minorities of the Caucasus region have begun to demand redress of their territorial claims and compensation for their repression. The Russian government is confronted with the dual problems of inter-ethnic rivalries and challenges to Russian authority. Yel'tsin hasargely hands off approach in hopes that economic and politicaltinued diplomacy, and progressederation treaty between the Russian government and the autonomous republics will keep regional separatism under control. He remains under heavy fire from nationalist opponents, however, including Vice-President Rutskoy, who charge the government with contributing to the disintegration of* I
The Foundations of Unrest
The current unstable situation in Russia's North Caucasus region has its rootsomplex ethnic mix exacerbated by Tsarist Russian imperialism and Soviet nationalities policies. The region encompasses four autonomous republics and one autonomous oblast containingillion people, divided Intoozen distinct ethnic groups. The mountainous, heavily Islamic region was never successfully Russified prior to the Soviet era, and the indigenous ethnic minorities continued to rebel following7 revolution. In an attempt to divide non-Russian ethnic groups and extend central control in, Stalin deliberately merged the North Caucasus's nationalities into new administrative regions with dissimilar ethnic minorities.3talin deported the entire Chechen, Ingush, Balkar, and Karachayeople-to Central Asia and Siberia after labeling them Nazi collaborators. Official data now being released shows thai in the first five years roltowing deponaiion at leastercent oreople perished due to starvation, exposure, and harsh treatment. It was not until thes that these ethnic minorities were rehabilitated and allowed to return io the area. During their exile ethnic Russians and other local ethnic groups were relocated to the area; on the exiles' return, many found themselves deprived of traditional homelands. All of tbe region's republics, except Dagestan, nowubstantial ethnic Russian presence of up to one-third of the
popirmmin
Etimolinguistic Groups in the Caucasus Region
population. Subsequent Soviet regimes continued to suppressand claims of minority rights.
Today, the people of the North Caucasus continue to resist Russian domination and assimilation. They are buttressedtrong clan system, still pervasive in North Caucasus society, which shapes regional politics. Recently, the revival of Islam has led to greater political influence of local religious leaders and the use of Islam by nationalists to rally support For example, Chechen President Dudayev symbolized his break from Russia by taking his oath of office on the Koran, and local Muslim leaders have played an active role in encouraging mediation of local inter-ethnic unrest. Islamic influence is strongest in conservative Dagestan.
The North Caucasus is probably Russia's most economically depressed and least developed region.hole, the region's per capita income is among the lowest in Russia and the standard of living in many of the ethnic autonomous regions is significantly lower than neighboring Russian regions such as Rostov oblast and Stavropol kray. The two autonomous republics with the greatest amount of internal social and political unrest, Checheno-Ingushetiya and Dagestan, rank the lowest on key indicators such as infant mortality and wages. The same two autonomous republics have the lowest levels of urbanization and arc the least modernized of the North Caucasus republics. [" |
Last spring, the Russian legislature responded to pressure by approving the Law on Repressed Peoples which would provide material compensation to deported peoples of Russiaeturn of historic lands. In February, Yel'tsinigh-level commission headed by Russian legislator Sergei Shakhray to examine these claims. So far, however, the Russian government has not acted on the provisions of the law-in part because of the nearly irresolvable nature of many territorial claims. Several Caucasus ethnic groups-including the Ingush and the Karachay-have pledged to take unilateral action if Russia continues to delay implementation. Minority nationalists continue to raise the stakes by increasing their demands and building up military capabilities. Widespread resentment of outside domination, fueled by historic claims and Russia's attempt to intervene militarily against Checheno-Ingushetiya last fall, has led to attempts to build regional coalitions, but these efforts have not developed beyond the talking stage and-barring the emergenceositive force for unify-the differences between the participantstrong future association unlikely.
KEY SOCIOECONOMIC INDICATORS OF THE NORTH CAUCASUS
9 Census Figures) AVERAGE MONTHLY WAGES '
RURAL POPULATION
ToUl housing tqmem pm capita {square mmm%)
MORTALITY
The North Caucasus in Profile
illion
= 3%
= 9%
- 5%
Dagestan was briefly independent after the breakup of the Russian Empire, but Soviet rule was quicklyajor revolt against Soviet rule broke out from0 until it was finally put down inn recent years, an Islamic resurgence has been on the rise in Dagestan where, last June, the Dagestani governmenttate of emergency in the capital after thousands rioted and stormed the Council of Ministers building protesting the high cost of making the pilgrimage to Mecca. The republic also is currentlyerious battle against organized crime.1earlyssassination attempts have been made against Dagestani political leaders including Prime Minister Abdurazak Mirzabekov. These attacks were likely coordinated by the Dagestani crime
Government
The Dagestani government is the most traditionalist in the North Caucasus and is characterized by intense ethnic lobbying for governmental positions and high levels of corruption. The government is led by an executive committee elected by the Dagestani Supreme Soviet. The number of significant ethnic groups and resentment at the political dominance of the Avar minority have made common action either to reform the government or to press for sovereignty difficult. After prolonged debate, the Dagestani parliament finallyovereignty declaration inhis delay was caused by widespread concern among the republic's diverse ethnic groups over ensuring minority |
Ethnic and Territorial Issues
The Turkic Kumyks haveopular front movement, Tengtik, and recently staged ralliesovereign national territory. Inumyk activists blocked railways and roads, demanding the
'Mf-iriniiTiiTTitT.
resignation of the parliament, new elections, and an end to the practicerather than electing republican leaders.
TheCaucasian group located in Southern Dagestan and Northern Azerbaijan-are demanding the creation of an autonomous Lezgin national homeland which would include territory in both republics. ( |
Ethnicec/iti-Akitis--who settled just inside the Dagestani border during the repatriation period in theontinue to be involved in sporadic clashes with Laks and Avars living in the region despite numerous negotiation attempts. Beginning4 some Laks were relocated from north-central Dagestan and resettled along the Chechen-Ingush border on lands vacated by deported Chechens. Inel'tsin met with Chechen representatives andussian parliamentary study of the problem. After continued fighting, Supreme Soviet Chairman Khasbulatov-an ethnic Chechen-traveled to the region in1 and attempted toettlement but failed to resolve the issue.
Checheno-Ingushetiya
illion
%
The heavy outflow of Russians from the republic in response to the Chechen nationalist takeover has likely lowered this figure substantially.
Background
The Chechens and the Ingush are of almost identical ethnicity with the distinction between the two dating only fromh century Caucasian wars. More than the other Mountain peoples, they resisted both Tsarist Russian and Soviet rule,eparate Chechen and Ingush autonomous obtasts were created, and4 these were merged to become the Chechen-Ingush autonomous republic.hechen and Ingush nationals-then numberingillion-were both accused of collaboration with the Nazis by Stalin and takenurprise deportation to northern Kazakhstan. Those in remote villages were reportedly forced into buildings which were then set on fire. The Chechen-Ingush ASSR was subsequently dissolvednder Khrushchev, the Chechens were
rnrinnirrmriii _
allowed to return to the North Caucasushile prior tothey lived in the mountainous region of Chechenya, theyin the foothills and the plains (itommon practice bygovernment to locate ethnic groups away from mountainouswhich they could mount an armedollowingappeared between Chechens, Ingush and other ethnic groupsbeen resettled to the region during the deportation period Theconflict is over historic Ingush territory that was ceded toOssetia-including the Prigorodnyi rayon and part of thecapital, Vladikavkaz.
Government
The Chechen government is headed by President Djokharormer Soviet Air Force Generalember of the Chechen National Congress Movement, who is committed to obtaining full Chechen independence. Dudayev and the new Chechen parliament were popularly elected inn proceedings declared illegal by the Russian legislature. These elections followed the resignation-under pressure of mass rallies organized by the Chechen National Congress Movement-of the previous Chechen-Ingush government for supporting the August coup. Dudayev has since ruled the self-proclaimed Chechen republic primarily by executive decree, r
The Chechen parliament declared independence from Russia in the fall1 following the election of president Dudayev. The Chechen government has so far refused to negotiate with the Russian government until its independence is recognized. Since November, the Chechens have been building what appears toell-armed republican military and have claimed for themselves all CIS and Russian military equipment stationed in the region and demanded all troops swear loyalty to Dudayev. CIS troops were withdrawn from the region in
The Ingush have no officially recognized governing body apart fromdominated Supreme Soviet. Their interests are represented bybodies-the Ingush Peoples Council and the Ingush CouncilThe Ingush voted overwhelminglyanuary referendumpart of the Russian Federationovereigndisputed territory in North Ossetia.
Ethnic and Territorial Issues
Ethnic Russians have been leaving the areaigh rate since last falls declaration of independence due to their fear of inter-ethnic violence.
Russian press reports claim as many0 refugees have left Checheno-Ingushetiya for neighboring Russian provinces.
In January, the Chechen parliament laid claim to majority Ingush areas by unilaterally voting to extend Chechen territory to the republic'sorders-prior to its merging with the Ingush nation-and declaring presidential rule in affected regions. The earlier Ingush decision to remain part of Russia probably contributed to the Chechen claims. This action-nominally disavowed by Dudayev-affects areas heavily populated by Ingush and Cossacks, and if enforced, would wipe most of the traditional Ingush land off the map.
North Ossetia
%
Background
The Ossetians are descendants of the Iranian Alans who were forcedmountains by Mongol invaders inh century. The OssetiansRussian rule in theh century.6 North Ossetiafrom an autonomous oblast to an autonomous republic andRussia's geographically smallest autonomous republic. It hasethnic problems due to the homogeneity of its population andgood relations between Ossetians and Russians. In the summergrowing Ossetian nationalism spurred the adoption of theof its capital, Vladikavkaz.
Government
North Ossetia is one of the few Russian autonomous republics that has not yeteparate" post of president, and continues to be governed by an executive committee elected by its Supreme Soviet. North Ossetia's relatively high standard of living, its position as an isolated Christian region surrounded by Muslims, and its need for Russian support against Ingush territorial claims have blunted sentiment for independence.
CONSIftSNTIAL
Ethnic and Territorial Issues
The North Ossetians are becoming increasingly concerned about their territorial dispute with the neighboring Ingush over the eastern region of the republic, including part of the North Ossetian capital, Vladikavkaz. In response to the fearorcible takeover of the land by the Ingush, North Ossetia has begun the registration and trainingational guard,
The region has been under extreme pressure since0 owingheavy influx of tens of thousands of Ossetian refugees fromOssetian conflict. The legislature has called on Russiauniting it with neighboring South Ossetia, which is now pan
Kabardino-Balkaria
=%
1 %
The Balkars were one of the most resistant ethnic groups to both Tsarist rule and the Soviet occupation.1 they were merged with the ethnically dissimilar Kabard population into the Kabardino-Balkar autonomous oblast, later made an autonomous republic. During World War II, the Kabardino-Balkar ASSR was reduced to the status of autonomous oblast and cut in size. The Balkars, thenercent of ihe population, were deponed from the mountainous region of the North Caucasus to Central Asiaf the0 who were deported died in transit. The Balkars were repatriated8 to the foothillseconstituted Kabardino-Balkar ASSR. The Kabards, who were not deponed, have been charged by some Balkars with conspiring in the Balkar deponation so as not to have to share territory with them, f
Inhe first Congress of the Balkar people voted toeparate Balkar republic within Russia. This decision was supponedote ofercent of the Balkar population2 referendum. Inhe Kabard Peoples' Congress declared that the Balkar decision was ill'conceived and would lead to worsening ethnic tensions. However, they subsequently voted to restore Kabard statehood and return to itsorders, before the merger with the Balkars.
Government
The parliament of Kabardino-Balkariaeclaration of sovereignty in1 following heated debate over drafts calling for complete independence from Russia and restoration ofalkar borders. The president of the Kabardino-Balkaria republic-elected by popular voteanuary-is the former Chairman of the Supreme Soviet. The elections were partially blocked in Balkar populated areas. In response to the rise in separatist sentiments in the region, in November Yel'tsinresidential representative to the area, Aziratali Akhmetov. Appointment of presidential representatives to autonomous republics was not provided for in the legislation creating these positions. The only other instance of this was the appointmenthechen-Ingush representative prior to President Dudayev's elecnon. The Kabardino-Balkar government has begun the formationepublic army. | |
Autonomous Oblast
%
The Karachuy's ancestors settled in the region five centuries ago.came under Russian rulehe Karachay immediatelyrevolt that reached its penk in.he Karachay enjoyedperiod of independence. Although Soviet rule was imposed byKarachay resistance continuedarachay and Balkanshotesult of an uprising as lateheregion was established2 as pan of Stavropol Kray.were deported from the southern region of the North Caucasusto Central Asia. Before their deportation the Karachay numberedbut during their fifteen years in exile theyoss in population.6 the Karachay were rehabilitated byinstead of having their autonomous homeland restored, werethewere not deponed-into an autonomous oblastto the foothillsThe majority of the Cherkessto Turkey following un unsuccessful rebellion against.
Government
The Karachay-Cherkess autonomous oblast is under the political authoriy of Stavropol kray and does not have the developed governmental structure of an autonomous republic. It is one of four autonomous oblasts that are being upgraded to the level of autonomous republic by the Russian government, giving them increased rights including the right to adopt their own constitution.
Ethnic and Territorial Issues
Both the Karachay and Cherkess in the past six months have stepped up demands for the restoration of individual republics. Ethnic Karachay have been participating in ongoing rallies since1 calling for the return of their republic, and inarachay peoples congress voted unanimously to support the recreationeparate nationalherkess congress proclaimed the creationeparate republic of Cherkessiya in
Original document.
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