Overview of U.S. Policy Concerns

By the end of 1991, the United States had recognized the independence of all the former Soviet republics. The United States pursued close ties with Armenia, because of its profession of democratic principles, and concerns by Armenian Americans and others over its fate. U.S. policy toward the South Caucasus states has included promoting the resolution of conflicts between Armenia and Azerbaijan over Azerbaijan's breakaway Nagorno Karabakh (NK) region and between Georgia and its breakaway regions of Abkhazia and South Ossetia (resolving these latter conflicts became much more difficult following the August 2008 conflict; see " The August 2008 Russia-Georgia Conflict ," below). They urge great caution in adopting policies that will heavily involve the United States in a region beset by ethnic and civil conflicts, and some argue that, since the European Union has recognized the region as part of its "neighborhood," it rightfully should play a major role. Other observers believe that the United States should be more actively engaged in the region. They urge greater U.S. aid and conflict resolution efforts to contain warfare, crime, smuggling, and Islamic extremism and to bolster the independence of the states. While Azerbaijan may have followed such policies, it continued troop support for NATO operations in Afghanistan (see below, " Regional Support for Military Operations in Iraq and Afghanistan ") and played a significant role as part of the Northern Distribution Network for the transit of U.S. and NATO supplies to and from Afghanistan. Armenia's 46 personnel were pulled out in late 2008. According to some observers, the Charter aimed to reaffirm the United States' high strategic interest in Georgia's fate, to counter perceptions that the United States (and the West) had acquiesced to increased Russian dominance in the South Caucasus. At the same time, most observers advise against extending diplomatic recognition to the breakaway regions without an international consensus. Azerbaijan has been concerned about Russia's ties with Armenia and has eliminated Russia's military presence. Armenia pays a share of gas to Georgia as a transit fee. Separatist NK relies on economic support from Armenia, and Abkhazia and South Ossetia from Russia. The United States and others in the international community raised concerns when the Russian foreign and defense ministries announced on April 29, 2008, that the number of "peacekeepers" in Abkhazia would be boosted up to the maximum permitted under ceasefire accords. Some members of the security forces continued to commit human rights abuses with impunity. EUCOM continues vigorous engagement across the Caucasus, given the region's strategic importance as a global energy corridor, key node on the NDN, source of national contributions to ISAF, potential for narcotics and illicit weapons trafficking, interest area for both Russia and Iran, and location of frozen conflicts that have potential to flash into wider and more destabilizing wars.... Security cooperation program priorities in the South Caucasus are focused on developing and sustaining relationships that: ensure U.S. access and freedom of action (focused in the near term on NDN areas); counter regional and transnational threats, especially violent extremist organizations, counter-WMD proliferation, and illicit trafficking; solidify defense institutional reforms; and sustain partner capacity to enhance regional security ...
EUCOM initiatives in the region have included the Georgia Deployment Program and the Caspian Regional Maritime Security Cooperation program. Troops from all three regional states have served as peacekeepers in the NATO Kosovo Force (KFOR). In October 2013, Rasmussen called for Russia to remove fences and other obstacles it was constructing in South Ossetia and to reverse the recognition of the independence of the breakaway regions. U.S. Trade and Investment

Successive U.S. U.S. investment is highest in Azerbaijan's energy sector, but corruption in the three regional states and regional instability have appeared to discourage investors. In August 2007, the U.S. Trade Development Administration granted Azerbaijan $1.7 million to fund feasibility studies on building both oil and gas pipelines across the Caspian Sea to link Central Asia to Azerbaijani pipelines. 113th Congress Legislation

S.Res. Declares U.S. support for Georgia's territorial integrity and concern over the occupation of Abkhazia and South Ossetia; encourages enhanced defense cooperation with Georgia; reaffirms support for Georgia's NATO membership aspirations; commends Georgia's ongoing support in Afghanistan; commends Georgia for holding a peaceful and democratic presidential election; and encourages Georgia to protect the rights of the political opposition and to refrain from politically motivated arrests.
The United States recognized the independence of Armenia, Azerbaijan, and Georgia when the former Soviet Union broke up at the end of 1991. The United States has fostered these states' ties with the West in part to end their dependence on Russia for trade, security, and other relations. The United States has pursued close ties with Armenia to encourage its democratization and because of concerns by Armenian Americans and others over its fate. Close ties with Georgia have evolved from U.S. contacts with its pro-Western leadership. Successive Administrations have supported U.S. private investment in Azerbaijan's energy sector as a means of increasing the diversity of world energy suppliers. The United States has been active in diplomatic efforts to resolve regional conflicts in the region. As part of U.S. global counter-terrorism efforts, the U.S. military in 2002 began providing equipment and training for Georgia's military and security forces. Troops from all three regional states have participated in stabilization efforts in Afghanistan and Iraq. The regional states also have granted transit privileges for U.S. military personnel and equipment bound to and from Afghanistan.
Beginning on August 7, 2008, Russia and Georgia warred over Georgia's breakaway regions of Abkhazia and South Ossetia. Russian troops quickly swept into Georgia, destroyed infrastructure, and tightened their de facto control over the breakaway regions before a ceasefire was concluded on August 15. The conflict has had long-term effects on security dynamics in the region and beyond. Russia recognized the independence of Abkhazia and South Ossetia, but the United States and nearly all other nations have refused to follow suit. Russia established military bases in Abkhazia and South Ossetia—in violation of the ceasefire accords—that buttress its long-time security presence in Armenia. Although there were some concerns that the South Caucasus had become less stable as a source and transit area for oil and gas, Kazakhstan and Turkmenistan are barging oil across the Caspian Sea for transit westward. Also, the United States and the European Union still support building more east-west pipelines through Turkey to bring Azerbaijani and perhaps other gas to European markets.
Issues of concern in the 113th Congress regarding the South Caucasus may include Armenia's independence and economic development; Azerbaijan's energy development; and Georgia's recovery from Russia's August 2008 military incursion. At the same time, concerns have been raised about the status of human rights and democratization in the countries; the ongoing Armenia-Azerbaijan conflict over the breakaway Nagorno Karabakh region; and ongoing threats posed to Georgia and the international order by Russia's 2008 incursion and its diplomatic recognition of South Ossetia and Abkhazia. Congress has continued to oversee the region's role as part of the Northern Distribution Network for the transit of U.S. and NATO military supplies to and from Afghanistan. Georgia's aspirations for NATO membership have received ongoing congressional support. Many Members of Congress have evinced interest in recent political trends in Georgia following the peaceful transfer of party control in the October 2012 legislative election and in the wake of an October 2013 presidential election.
Some Members of Congress and other policy makers believe that the United States should provide greater support for the region's increasing role as an east-west trade and security corridor linking the Black Sea and Caspian Sea regions, and for Armenia's inclusion in such links. They urge greater U.S. aid and conflict resolution efforts to contain warfare, crime, smuggling, and terrorism, and to bolster the independence of the states. Others urge caution in adopting policies that will increase U.S. involvement in a region beset by ethnic and civil conflicts.