Foreign Policy Research Institute

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Report in Short: A “Frozen Conflict” Boils Over

Report in Short: A “Frozen Conflict” Boils Over

On September 19, 2023, Azerbaijani forces initiated a massive attack on Nagorno-Karabakh, an Armenian-populated and effectively self-governing region inside internationally recognized Azerbaijani territory. Within 24 hours, the Nagorno-Karabakh leadership gave in, and, for the first time, Baku could claim full control over the contested territory. Despite being portrayed in the West as a “frozen conflict,” there had long been a risk of renewed violence in Nagorno-Karabakh. In this episode of Report in Short, Walter Landgraf and Nareg Seferian join Aaron Schwartzbaum to discuss their recent report “A ‘Frozen Conflict’ Boils Over: Nagorno-Karabakh in 2023 and Future Implications.

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A “Frozen Conflict” Boils Over: Nagorno-Karabakh in 2023 and Future Implications

A “Frozen Conflict” Boils Over: Nagorno-Karabakh in 2023 and Future Implications

Walter Landgraf, Nareg Seferian

This report has two objectives: first, to present an account of the conflict with an emphasis on analytically useful categories and context up to the present, and second, to discuss local, regional, and global consequences of the latest developments of the dispute, including policy implications and recommendations.

An Account of the Conflict

  • Azerbaijan’s lightning attack on Nagorno-Karabakh in September 2023 ended three decades of de facto independence for the breakaway region. Previously, the Armenian-populated Nagorno-Karabakh Republic had shown remarkable durability, enabled by support from Armenia and Russia, the latter more after the Second Karabakh War of 2020. However, changed regional and global power dynamics since Russia’s full-scale invasion of Ukraine in early 2022 encouraged an opportunistic Azerbaijan, backed by Turkey, to deliver the death knell to Nagorno-Karabakh.
  • Prior to Azerbaijan’s latest assault, two wars had been fought over Nagorno-Karabakh. The first began as a limited conflict, which turned into a larger-scale war when the USSR dissolved. Its ceasefire in 1994 resulted in the establishment of the de facto independent Nagorno-Karabakh Republic. The second war, in 2020, resulted in Azerbaijan reversing the gains of the Nagorno-Karabakh Armenians and further isolating the territory. Russia mediated the ceasefire and thereafter stationed peacekeepers in the region.
  • Many issues are still unresolved in this long-running conflict. The biggest concern is directing much-needed humanitarian aid to those displaced by the latest violence. There also remains potential for future Azerbaijani incursions into Armenia to secure a path to its exclave of Nakhchivan.

Consequences of the Dispute’s Latest Developments and Implications

  • Nagorno-Karabakh has important implications for other international conflicts grappling with the competing principles of territorial integrity and national self-determination. The principle of nonuse of force is also affected by the fall-out of this dispute, risking the normalization of international violence with impunity.
  • The US has limited foreign policy options to affect the current situation on the ground. One approach is to expand the American diplomatic footprint in the region to reinforce its influence. More consequentially, it should work with the European Union and regional players to implement an enduring monitoring mechanism to prevent renewed escalation. This effort should focus on reducing human suffering while improving the quality of life of people displaced by violence, and be pursued with a presence on the ground in Armenia and Nagorno-Karabakh to facilitate the potential return of refugees to their homes.

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The Eagle in the South Caucasus: Armenia Tests Alternative Geopolitical Waters

The Eagle in the South Caucasus: Armenia Tests Alternative Geopolitical Waters

Walter Landgraf, Nareg Seferian

  • The US-Armenia “Eagle Partner” joint military exercise from September 11–20 may signal the beginning of a shift in the foreign policy direction of Armenia, historically a close ally to Russia.
  • Armenia has been growing frustrated at the lackluster response of the Collective Security Treaty Organization to its appeals for assistance in the deepening conflict with Azerbaijan.
  • However, it would be difficult to imagine a wholesale change in the geopolitical orientation in Yerevan, given the strong military, economic, energy, and cultural ties between Armenia and Russia.

On September 11, US and Armenian troops kicked off the “Eagle Partner” joint military exercise at the Zar and Armavir training sites near Yerevan. The exercise is set to run for ten days and is relatively low-key, involving only 175 Armenian troops and eighty-five US soldiers—that is about the size of a very small US Army company. According to the US Army Europe and Africa, the command responsible for overseeing Army operations there, the soldiers are from the 1st Brigade, 101st Airborne Division and the Kansas Army National Guard. The latter has had a bilateral partnership with Armenia under the National Guard Bureau’s State Partnership Program since 2003. The stated goal of the exercise is to enhance US-Armenian interoperability and prepare Armenian troops for possible future peacekeeping operations.

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