#35 - JRL 2007-57 - JRL Home
Russia Profile
www.russiaprofile.org
March 9, 2007
Russia Profile Weekly Experts Panel:
The Last King of Chechnya. The Prospects and Pitfalls
of the Kremlin's Policy in North Caucasus
Introduced by Vladimir Frolov
Sergei Shishkarev, Eugene Kolesnikov, Stephen Blank, Ethan S. Burger, Andrei
Zagorski
It is now official - Ramzan Kadyrov, the son of the late Chechen President
Akhmad Kadyrov, has finally ascended to his father�s throne. Last week, Russian
President Vladimir Putin nominated him for the Chechen presidency and the
republic�s parliament promptly confirmed the appointment. Ramzan Kadyrov has
just turned 30.
Two weeks before that, Putin accepted the resignation of the elected Chechen
President Alu Alkhanov, a career police officer who fought within the ranks of
the Russian army during the first Chechen war. It has long been an open secret
that Alkhanov was supported by Russian security services, which remain very
distrustful of Ramzan Kadyrov and his private army of former Chechen fighters.
But Kadyrov enjoys the only trust that matters in Moscow � that of President
Putin.
Kadyrov�s appointment was met in Moscow with both approval and resentment.
Some claimed that this is essentially the installation of a nationalist Chechen
regime, composed mostly of people who fought Russia during the two wars.
Therefore, it bodes ill to give an authoritarian figure like Ramzan Kadyrov free
reign, without any checks from competing Chechen clans, in a war-ravaged
republic. Others claimed that it was better to consolidate Chechnya under
Kadyrov who has clearly shown the ability to keep a tight reign on unruly
Chechen elites: it was preferable to end the duality of power in Chechnya and
eliminate any potential for an armed fight between the supporters of Kadyrov and
Alkhanov.
It is true that Kadyrov�s reign in Chechnya is supreme. He could claim
considerable success in bringing an end to the fighting in Chechnya, showing the
benefits of the Chechenization strategy pursued by the Kremlin.
The Russian Army is no longer fighting in Chechnya. Most of the
counterinsurgency operations are undertaken by Kadyrov�s security forces with
Russian intelligence officers embedded in their units to coordinate action. Last
year Kadyrov convinced the Russian leadership to declare an amnesty for
separatists and more that 300 men came out of the woods under Kadyrov�s personal
security guarantees.
In many ways Kadyrov achieved what the West had been urging Moscow to do �
engage the separatists in a meaningful political process and give them a chance
to reintegrate into new Chechen realities. Indeed, Magomed Hazbiyev, former
defense minister in Aslan Maskhadov�s rebel government, has been elected to the
new Chechen parliament.
Last but not least, Ramzan Kadyrov abandoned plans to negotiate a special
treaty for Chechnya with Moscow, thus agreeing that the republic should be
integrated into Russia�s common legal space.
Back in 1999, with the second Chechen war in full swing, I asked a prominent
American scholar what Russia should do about Chechnya. �Let it stew,� � was the
surprising reply. In fact, Moscow acted on this advice and it seems to be
working. Chechnya has ceased to be a major factor in Russian political life and
is no longer an irritant on Russia�s agenda with the West. It now looks like a
serious but manageable reconstruction problem that Russia is capable of dealing
with on its own.
Or is it? What does Kadyrov�s appointment tell us about the evolution of
Chechnya? Is Putin putting too much trust in a young and ruthless Chechen
leader? How will the West treat the Chechen issue in its relations with Russia?
Will it finally recognize that Moscow�s strategy in Chechnya is working? Will
the West recognize Ramzan Kadyrov as the legitimate leader of Chechnya? Will
Putin go down in history as the Russian leader who pacified Chechnya?
Sergei Shishkarev, Deputy Chairman, Committee on Energy, Transportation and
Communications, the Russian State Duma, Moscow:
Putin�s decision to nominate Ramzan Kadyrov as the next president of Chechnya
is not surprising. It is highly logical and consistent.
On all counts, Ramzan Kadyrov has demonstrated that he is up to the job. He
showed qualities of a capable military commander, tough administrator and, most
importantly, a trustworthy political leader, capable of uniting the Chechen
people.
Kadyrov managed to convince most separatists to give up their armed struggle
and join him in reconstructing a peaceful Chechnya. He even persuaded some
important separatists to join the new Chechen government and to work in his
administration or in the State Council of Chechnya. Maskhadov�s former Defense
minister is now a member of the Chechen parliament. This is his highest
achievement. Ramzan Kadyrov brought peace to Chechnya, and this is most
important.
In addition, he reconciled the warring Chechen clans, acting on the premise
of a Russian proverb that bad peace is better than good quarrel. He worked with
Moscow to declare and carry out an amnesty for those militants who were not
engaged in murders and atrocities. More than 300 former separatists came out of
the woods under the amnesty in 2006.
Kadyrov demonstrated good negotiating skills not only with his military and
political opponents. He managed to establish solid working relations with the
federal government and the Russian military and security forces in Chechnya. No
doubt, he is firm when standing for the interests of Chechnya. But these are
exactly the qualities that qualify him for the Chechen presidency.
Finally, he took the historical decision to abandon demands for a special
treaty on delimiting authority between the federal center and Chechnya. This was
a treaty his predecessors insisted upon. Doing without such a treaty means that
there will be no exceptions or special treatment for Chechnya; this republic
will be treated like any other subject of the Russian Federation. This means
that Chechnya is back within the common legal and economic space of Russia. One
cannot overestimate the importance of this fact.
Even if Kadyrov were to be elected not by parliament but through a popular
ballot, there is little doubt he would breeze to an easy victory. In the
beginning, Ramzan Kadyrov relied heavily on the authority of his late father.
Akhmad Kadyrov was a prominent figure in the republic, enjoying well-earned
authority in Chechnya and solid connections in the Islamic world. Alkhanov
resigned of his own will, since he was not very effective as president and most
of the work was being done by Kadyrov.
Is Kadyrov too young to be elected President? We all know that youthfulness
is a drawback that lessens with time. At present, his age does not prevent him
from acting energetically and responsibly. He has the trust of his people and
that�s what counts.
There are allegations from human rights activists that Kadyrov�s security
forces might be behind kidnappings and torture of Kadyrov�s political opponents.
But since Chechnya is back in the Russian legal space, any such allegations
should be pursued through Russia�s system of law enforcement. There is no sense
in commenting on the alleged crimes or violations of the law until there are
official indictments and court decisions. As far as I know, Ramzan Kadyrov has
not been charged with any crime.
Eugene Kolesnikov, Private Consultant, The Netherlands:
The appointment of Ramzan Kadyrov as president of Chechnya is not a
circumspect and popular move by Putin in his quest for stabilization in this
republic. It was a decision made in large part on the basis of Putin's personal
trust, demonstrated openly on numerous occasions.
This trust is not widely shared by the Russian public and the political
elite. Despite all the television propaganda, a poll by Levada Center in Dec.
2006 showed that only one third of the Russian public believed that Kadyrov
could stop the bloodshed in Chechnya and less than half thought a peaceful life
was taking hold there. Many people voiced their unease about Putin's decisions
to decorate Kadyrov with medals and awards. Human rights activists must be
particularly dismayed at the prospect of a ruthless former warlord governing a
region that has been immersed in blood and suffering for many years.
This appointment, however, should be viewed in the context of a 15-year-long
struggle that saw Chechnya violently break away from Russia and come back into
the fold. I do not doubt for a moment that most people in this proud nation
still crave the full independence that they have lacked for over two centuries
of Russian rule. But what most foreign observers do not realize or accept is
that the Chechen people have put the issue of independence aside for now,
possibly for several generations.
Akhmad Kadyrov, his son Ramzan, and a majority of Chechens decided there has
been enough suffering and that the people of Chechnya would be better off
rebuilding their homeland as part of Russia. In a 2003 referendum, the
overwhelming majority of Chechens, 95 percent, confirmed this approach,
signifying a decisive turning point in the Chechen war of independence.
Although it is necessary to judge developments in Chechnya through the lens
of universal liberal values, such judgments should not obscure the harsh
realities of the war and the characteristics of the Chechen tribal culture that
have not changed much over the last 200 years. In this context, Kadyrov's
appointment is just another precarious, but probably necessary, step in
stabilizing Chechnya. It will take time to prove Putin right or wrong about this
appointment.
Chechnya needs peace and restoration, processes which are well under way, as
was recently confirmed by Thomas Hammarberg, Commissioner on Human Rights of the
Council of Europe, who said that he was stunned by the changes that have
occurred in Chechnya. These positive changes should be encouraged and the
geopolitical play with the Chechen liberation movement should be abandoned to
prevent the further suffering of the Chechen people. The chance to redraw the
map of Russia, as was envisioned by Zbigniew Brzezinski in his book "The Grand
Chessboard," is now gone.
Russia will do anything to remain whole and to keep Chechnya in the fold.
That is ultimately better for Russia, Chechnya, the North Caucasus and beyond.
New realities should be recognized and policies adjusted accordingly by
broadening cooperation with the republic and extending development aid.
Stephen Blank, Strategic Studies Institute, US Army War College, Carlisle
Barracks, PA:
These views do not represent those of the US Army, Defense Department, or the
US Government.
Putin's approach updates the classical Russian strategy of empire-building
under the tsars, in that it finds elites who are willing to cooperate with
Moscow, co-opts them by giving them power, and then uses them to bring the
province in question to heel.
Kadyrov is a particularly brutal example of this. While there is no doubt
that his Chechenization has worked better than has American strategy in Iraq
(and I know of nobody who disputes this), it may be saving up problems for the
future because Kadyrov's ruthlessness and power hunger may not be able to
confine itself to Chechnya. But it should be remembered that Chechnya is not
Iraq. Putin did what America failed to do by insulating the theater of
operations form hostile media. His army is permitted to act much more brutally
than any American force ever could. If the kind of systematic brutality applied
in Chechnya was available as a strategy to the United States, it would be a
different nation and this would be a different world.
It will be interesting to see what happens when Putin�s presidential tenure
is over. Kadyrov's reign may encounter troubles if his enemies triumph in
Moscow. It is also quite possible that the reforms which temporarily reduced
violence in North Caucasus last year will prove to be viable and endure beyond
Putin�s presidency. Violence will return, however, if the reforms are not
sustainable.
Neither should we overlook the costs of Chechnya to Russia, and not just in
terms of men and treasure or civilian lives lost and wrecked. Chechnya is the
pretext for Putin's media and federal policies that have been instrumental in
returning Russia towards an authoritarian form of rule and in further
undermining any hope of putting the armed forces and security services under any
kind of effective control. These are long-term burdens whose cost will continue
beyond Putin's tenure. While he may have put out or at least reduced the fire,
he has done so at the possible cost of a much greater crisis later on.
While scholars will undoubtedly compare and contrast the strategies pursued
by Putin and Bush, the differences between these areas of military conflict
should not be forgotten. Chechnya is smaller and more manageable; the Russian
army has much greater freedom to act brutally; there are available elites who
can impose a semblance of order; finally, there is a global media presence in
Iraq that is missing in Chechnya.
These are all significant differences between the two wars. Moreover, as
suggested in a recent paper by Pavel Baev at the annual convention of the U.S.
International Studies Association, it is by no means certain that North Caucasus
as a whole will become a secure zone any time soon or that Chechnya will find
tranquility. If Kadyrov is the sole reason for tranquility, it will remain
inherently problematic. Therefore, any prognostication about the region's
future, especially beyond 2008, must be a cautious one.
Ethan S. Burger, Adjunct Professor, Georgetown University Law Center,
Washington, D.C.:
The description of Ramzan Kadyrov as the "The Last King of Chechnya" may
prove to be prescient. Until recently, there was a consensus that the age of
monarchies had long since passed. Still, heads of states in many countries today
attempt to pass political power to their heirs.
Andrew Wilson of the University of London's School of Slavonic and East
European Studies explores in his excellent book "Virtual Politics" why heads of
states in most of the successor states of the former Soviet Union feel compelled
to legitimate their exercise of power through the holding of elections. It is a
book well worth reading, and it would be wonderful if Russian language versions
were made widely available. The irony is that such heads of state would probably
win re-election in a vote held in accords with internationally recognized norms,
provided they were willing to accept term limitations.
Monarchs can serve as a symbol of national unity. They may also be good for
tourism. Monarchs who seek to rule must rely on overwhelming force. Sometimes
this force is indigenous, and sometimes it is foreign. In most of the world,
kings and queens are symbols of national unity and do not exercise any real
power. They may have significant wealth, but usually their residences serve
merely as tourist attractions.
Kadyrov will never be able to emerge as a symbol of national unity. Perhaps
someone like Magomed Hazbiyev could fulfill this role, particularly if he is
able to prevail upon Chechen political figures in exile in Britain and elsewhere
to take part in a process of national reconciliation.
For this to be possible, Russia will have to recognize that Chechnya is
entitled to autonomy and to recognize the difference between those criminals who
kill innocent civilians and those who have targeted military and political
figures. But this may be asking too much in the short term. Tragically, more
Russians may have to die in violent, criminal terrorist actions for such a
political initiative to be politically palatable for the Russian governmental
elite.
Unfortunately, the Russian leadership does not seem to appreciate either
history or regional expertise. It can always find opportunistic individuals who
recognize that Moscow's backing is one method of gaining and holding on to
power. Such persons are mortal and Chechnya is full of people who will oppose
those they see as pawns of a foreign state.
I believe that Chechnya is entitled to self-determination. It declared
independence upon the break-up of the Soviet Union, never signed the 1992 Treaty
of the Federation nor ratified the 1993 Russian Constitution by referendum.
Legal basis is thus lacking for Chechnya's forced incorporation into the Russian
Federation.
Nonetheless, there has to be a legitimate new way out of the present
situation. The Russian political leadership should make time to read more about
how the Caucasus was incorporated into the Russian empire and about recent
history.
Many individuals in Chechnya's struggle for independence will commit
indefensible terrorist acts in the hope of furthering their cause. Sometimes
these actions are counterproductive, often motivated by a desire for revenge and
less frequently by religious extremism. Still, Chechnya represents an open wound
for Russia.
It is the only G8 country where separatists are willing to die for
independence. Russia cannot grant legitimacy to any Chechen leadership. One does
not choose those with whom one negotiates. The Kremlin leadership should seek
out Chechen political and intellectual figures who renounce terrorism to begin a
dialogue that would result in an internationally-recognized treaty, perhaps
short of granting Chechnya full independence, yet providing both sides with
legitimate security guarantees as well as protection for the Russian and other
minorities in the other's state. Furthermore, other national groups in the area
would have to be brought in to the process.
Chechnya is a failed state and certainly would be one if it were to become
fully independent. Continued Russian control of Chechnya through force is not
worth a single additional Russian or Chechen life. Perhaps the large Chechen
diaspora living in Russia can play a positive role in this process. Only a
freely negotiated political solution will avoid the continuation of a conflict
that has had tremendous costs for both Russia and Chechnya in human, financial
and political terms. Ultimately, Chechenization, like Vietnamization (or
Iraqization) is unlikely to succeed.
Andrei Zagorski, Professor, MGIMO-University, Moscow:
Chechnya is now different from what it was in 2000 or 2004. The process it
went through, however, can hardly be characterized as pacification. It was
rather a sort of tranquilization.
The recent appointment of Kadyrov Jr. as president of the republic was the
culmination of the Kremlin�s policy of the last four years which bestowed almost
total power to a single clan that has previously fought on the side of the
rebels. This clan was relatively successful in making former insurgents work for
the government and in developing an immunity vis-?-vis the Russian authorities.
By refusing to share the power with other groups, especially those loyal to
Moscow, it failed to consolidate Chechen society. On the contrary, it further
alienated it through corrupt reconstruction management, unaccountability and a
lack of remedies to put a limit on its arbitrariness.
Those who emphasize that the Kadyrovs have reduced the intensity of
insurgency are right. They are wrong, however, if they ignore other worrying
developments. The self-assertive government in Grozny again generates
animosities inside Chechnya and with Moscow. There is a growing opposition to
the almost unlimited power of a single clan serving its own interests.
This inner opposition now includes Chechen groups that have often shown
loyalty to Moscow. Finding themselves in opposition to Kadyrov, these groups,
however, also find themselves in opposition to the Kremlin which has installed
Kadyrov and his regime. At the same time, Ramzan Kadyrov, like his father, has
many powerful enemies in Moscow who are unhappy with his growing supremacy.
The emerging new lines of conflict within and between Grozny and Moscow
promise that the tranquilization effect is unlikely to last long. Indeed, the
legitimacy of Kadyrov�s regime is now more of a problem than it has been over
the past four years. The presidential elections held in Chechnya in recent years
were anything but free and fair. However, they gave the installed regime at
least an illusion of legitimacy. Now the factual appointment without proper
elections has deprived Ramzan Kadyrov even of this fragile legitimacy. It now
rests exclusively on the trust of the current president of Russia.
This may easily change after 2008, however, resulting in a new conflict.
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