Foreign Policy

Foreign Policy

From the onset of independence, President Nazarbayev sought international support to secure a place for Kazakstan in the world community, playing the role of bridge between East and West, between Europe and Asia.

Almost immediately upon its declaration of independence, the republic gained a seat in the United Nations, membership in the CSCE, and a seat on the coordinating council of the North Atlantic Treaty Organization (NATO--see Glossary). The United States and other nations also gave Kazakstan quick recognition, opening embassies in Almaty and receiving Kazakstani ambassadors in return. Its status as an apparent nuclear power got Kazakstan off to a fast start in international diplomacy. President Nazarbayev became a signatory to the Strategic Arms Reduction Treaty (START) and its so-called Lisbon Protocol by which Belarus, Kazakstan, and Ukraine pledged to eliminate nuclear weapons in the 1990s. In addition, Nazarbayev was able to negotiate US$1.2 billion in prepayment by the United States against sale of the enriched uranium contained in Kazakstan's warheads, as well as another US$311 million for maintenance and conversion of existing missile silos. Equally important was that the nuclear warheads prompted the United States to become a party to negotiations concerning the warheads between Kazakstan and Russia. The United States eventually became a guarantor of the agreement reached by the two countries. In May 1995, the last nuclear warhead in Kazakstan was destroyed at Semey, completing the program of removal and destruction of the entire former Soviet arsenal and achieving the republic's goal of being "nuclear free."

Under the leadership of Nazarbayev, who maintained personal control of foreign policy, Kazakstan eagerly courted Western investment. Although foreign aid, most of it from Western nations, began as a trickle, significant amounts were received by 1994. In practice, however, Nazarbayev was ambivalent about moving too fully into a Western orbit.

Turkey

In the period shortly after independence, policy makers often discussed following the "Turkish model," emulating Turkey in incorporating a Muslim cultural heritage into a secular, Europeanized state. Turkey's president Turgut zal made a state visit to Kazakstan in March 1991 and hosted a return visit by Nazarbayev later the same year. Soon afterward Nazarbayev began to echo Turkish talk of turning Kazakstan into a bridge between Muslim East and Christian West. In practice, however, the Turks proved to be more culturally dissimilar than the Kazakstanis had imagined; more important, Turkey's own economic problems meant that most promises of aid and investment remained mostly just statements of intentions.

China

As Turkey proved itself a disappointment, President Nazarbayev began to speak with increasing enthusiasm about the Asian economic "tigers" such as Singapore, the Republic of Korea (South Korea), and Taiwan. Among the republic's first foreign economic advisers were Chan Young Bang, a Korean American with close ties to South Korea's major industrial families, and Singapore's former prime minister, Li Kwan Yew.

The most compelling model, however, was provided by China, which quickly had become Kazakstan's largest non-CIS trading partner. The Kazakstani leadership found the Chinese combination of rigid social control and private-sector prosperity an attractive one. China also represented a vast market and appeared quite able to supply the food, medicine, and consumer goods most desired by the Kazakstani market.

However, the relationship with China has been a prickly one. Kazakstan's fears of Chinese domination remain from the Soviet era and from the Kazaks' earlier nomadic history. A large number of Kazaks and other Muslims live in the Xinjiang Uygur Autonomous Region of China, just over the border. Direct rail and road links have been opened to rmqi in Xinjiang, and Chinese traders in Kazakstan are prominent in the thriving barter between the two nations. However, China is plainly nervous about any contact that would encourage separatist or nationalist sentiments among its own "captive peoples." For its part, Kazakstan has expressed unease about the large numbers of Chinese who began buying property and settling in the republic after the end of Soviet rule. Kazakstan also has reacted angrily but without effect to Chinese nuclear tests at Lob Nor, China's main testing site, located within 300 kilometers of the common border.

The Middle East

Nazarbayev was hesitant to court investment from the Middle East, despite high levels of Turkish and Iranian commercial activity in Central Asia. Unlike the other Central Asian republics, Kazakstan initially accepted only observer status in the Muslim-dominated ECO, largely out of concern not to appear too "Muslim" itself. Over time, however, the president moved from being a professed atheist to proudly proclaiming his Muslim heritage. He has encouraged assistance from Iran in developing transportation links, from Oman in building oil pipelines, from Egypt in building mosques, and from Saudi Arabia in developing a national banking system.

Russia and the CIS

Most of Kazakstan's foreign policy has, not unnaturally, focused on the other former Soviet republics and, particularly, on the potential territorial ambitions of Russia. Since Gorbachev's proposal for a modified continuation of the Soviet Union in late 1991, Kazakstan has supported arrangements with Russia that guarantee the republic's sovereignty and independence, including a stronger and institutionally complex CIS.

As the CIS failed to develop a strong institutional framework, Nazarbayev attempted to achieve the same end in another way, proposing the creation of a Euro-Asian Union that would subordinate the economic, defense, and foreign policies of individual member states to decisions made by a council of presidents, an elective joint parliament, and joint councils of defense and other ministries. Citizens of member nations would hold union citizenship, essentially reducing the independence of the individual member republics to something like their Soviet-era status. The proposal, however, met with little enthusiasm, especially from Russia, whose support was crucial to the plan's success.

Nazarbayev pursued bilateral trade and security agreements with each of the former republics and in September 1992 unsuccessfully attempted to have Kazakstan broker a cease-fire between Armenia and Azerbaijan that also would set a precedent for settling interrepublic and interregional strife in the former republics. Nazarbayev also participated in the fitful efforts of the five Central Asian leaders to create some sort of regional entity; the most promising of these was a free-trade zone established in 1994 among Uzbekistan, Kyrgyzstan, and Kazakstan (see Foreign Trade, ch. 2).

Kazakstan also has contributed to efforts by Russia and Uzbekistan to end the civil war in Tajikistan. Kazakstani troops were part of a joint CIS force dispatched to protect military objectives in and around the Tajikistan's capital, Dushanbe. Although Nazarbayev and Uzbekistan's President Islam Karimov warned in 1995 that their countries soon would consider withdrawal if peace talks made no progress, the multinational CIS force remained in place in early 1996.

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