Hello and welcome to the Deep Dive, I’m Jacob Shapiro, and this is Uzbekistan and the Future of Eurasia.
In this episode, we’re diving deep into the geopolitics of Uzbekistan – one of only two double-landlocked states in the world. In other words – Uzbekistan is one of only two states in the entire world that whose access to the world’s oceans is blocked by two states in all directions. (The other is Lichtenstein – hopefully when COVID-19 is over that piece of trivia will be useful to our listeners.)
From the standpoint of economic opportunity, most of “Eurasia” is played out. There are very few opportunities left like the one offered by Russia after the Soviet Union collapsed, for example. Uzbekistan, however, is one of the few remaining frontier opportunities in Eurasia, and unlike other potential opportunities, like North Korea and Turkmenistan, Uzbekistan’s politics is in flux, and against all odds, and the predictions of most experts, that flux is doing good things for Uzbekistan, politically, economically and socially.
Even so, the story is not all rosy here. Uzbekistan is a crossroads, once the linchpin of the Silk Road and a necessary link in the reemergence of an interconnected Eurasian continent, if one is to emerge. That puts Uzbekistan in the middle of numerous foreign powers, each with their own interests in bending Uzbekistan’s behavior to their favor. China, Russia, the EU, Japan, India, South Korea, the United States are all deeply interested in and fighting over Uzbekistan’s and Central Asia’s future.
Hopefully, by the end of this podcast, you’ll get a sense of Uzbekistan’s opportunities, its internal and external risks, and why the future of Eurasia depends on how those opportunities and risks evolve in the coming years. So kick back, get yourself a bowl of plov (Uzbekistan’s national dish), and prepare for a six part geopolitical dive into Uzbekistan. Feel free to skip around and listen a section at a time, or to dive in for the whole story if you’ve got the time.
Section 1 introduces Uzbekistan as both a risk and an opportunity.
Section 2 focuses a little bit more on the word “Eurasia” – a murkier and more politically fraught concept than you might think.
Sections 3 and 4 look at foreign interests in Uzbekistan. Section 3 focuses on China and Russia’s interests, as these are the two powers most concerned with developments in Tashkent. Section 4 takes a more cursory view of European, American, Japanese, Indian, Iranian, Turkish, and South Korean interests.
Section 5 is all about Uzbekistan – its domestic reforms, its domestic challenges, and what Uzbekistan needs to do in order to avoid becoming another epicenter of jihadist political Islamism.
Section 6 tries to chart Uzbekistan’s path forward by laying out what Uzbekistan could do and how it will behave – and how that will impact Central Asian states at large.
Uzbekistan and the Future of Eurasia
Chapter 1: The Situation Report: A Risky Opportunity.
In this section, we answer the burning questions you’ve always had about Uzbekistan: What is it? Where is it? Why should I care about it? And what is changing?
Uzbekistan is a contradiction. On the one hand, Uzbekistan is arguably the most isolated country on the Eurasian landmass. Only tiny Lichtenstein can lay claim to sharing Uzbekistan’s status as a double-land-locked state. The country does not even share a land-border with either of its two most important trading partners, China and Russia.
And yet, despite its relative isolation, Uzbekistan is also the linchpin of the entire Central Asian region. Indeed, Uzbekistan is the only country in Central Asia that borders all four of the other Central Asian states (five if you count Afghanistan). As a result, Uzbekistan’s national interests are defined by a constant interplay between isolation and accessibility.
After the break-up of the Soviet Union in 1991 and Uzbekistan’s subsequent declaration of independence, Tashkent’s policies were primarily shaped by the former of these conditions, i.e., its insularity. Under President Islam Karimov, Uzbekistan turned inward and focused on securing the basic conditions necessary for maintaining its newfound independence.
Karimov’s death in 2016 coincided with changes in the global balance of power which made continuing down an isolationist path untenable. As in the 19th century, Central Asia is once more becoming part of a “Great Game.” But Karimov’s death also led to huge changes in Uzbekistan itself, as one of the most isolated and insular states in the world is now finally opening itself up to the world.
The original Great Game was a Eurasian competition between the British Empire and the Russian empire for who would secure the trading routes to India. The 21st century version of this Great Game is an attempt by rising Eurasian powers to more deeply connect Eurasia physically and economically overland than ever before in world history.
As a result, the future connectivity of Eurasia will hinge on political, economic, and cultural developments in Central Asia. Uzbekistan, in turn, will play a major role in determining the nature of direction of these developments.
For almost three decades, Uzbekistan has “punched below its weight” as Central Asian states have generally struggled to find stability in a post-Soviet Union world. That is no longer an option. The question now is not whether Uzbekistan will begin to exert more power in Eurasia, but how Uzbekistan will use its geographic position and relative size to shape Central Asia’s future.
As Uzbekistan does so, it will also be indirectly shaping the future direction of Eurasia’s connectivity, namely, whether it will be for the economic benefit of all Eurasian nations, or for the political and strategic benefit of a few. As a result, Uzbekistan is a land of untapped potential and opportunity – as well as an incredibly risky battleground between global geopolitical forces that are reshaping the world. As we said at the beginning: Uzbekistan is a contradiction. The Central Asian steppes have never been for the faint of heart.
Chapter 2: What is Eurasia?
In this section, we analyze what “Eurasia” is – as a word, as a continent, and as a political concept – and conclude that how you conceive of Eurasia usually says something about your own political motives.
Before we can understand Uzbekistan, we have to understand Uzbekistan’s context – its position as a double land-locked power in the center of Eurasia.
What is Eurasia? At the simplest level, “Eurasia” denotes the physical area of the combined European and Asian land masses.
A maximal definition of Eurasia in these terms might conceivably describe a vast continent stretching from Portugal in the west to China in the east; from the southern tips of Yemen and India in the south to the Arctic regions of the Russian north.
There is unfortunately, however, very little agreement that this is actually the geographic region to which the term “Eurasia” refers. The Foreign Policy Research Institute, for instance, uses “Eurasia” as a stand-in for the countries of the former Soviet Union. Professor Saul Bernard Cohen, one of the foremost American experts on geopolitics of the 20th century, defined Eurasia as all of the former Soviet Union states minus the Eastern European ones – which he instead terms the “Eurasian Convergence Zone.” The Journal for Eurasia Studies defines Eurasia as “the region that encompasses Central Asia and the Caucasus” – and throws Turkey and Southwest Asia in for good measure. That serious scholars now argue that Africa might also be included suggests the term “Eurasia” has become so malleable as to be almost meaningless.
The definitional ambiguity would be problematic enough if it was confined to a disagreement over what territory constitutes Eurasia on a map. But the situation is made even more complex by the fact that “Eurasia” is not – and never has been – a value-neutral word.
For instance, the famous English geographer Halford Mackinder wrote in his most famous work in 1919 that “Euro-Asia” – i.e., “that vast area…which is inaccessible to ships but in antiquity lay open to the horse-riding nomads,” is the “pivot region of the world’s politics.” This “pivot region,” of which Central Asia is clearly a part, was a source of great concern for Mackinder because he feared a potential Russian-German alliance that would conquer the pivot, and then, the rest of the world. As a result, MacKinder advocated for British policies to prevent this from happening as a result. The very definition of “Eurasia” for MacKinder was a manifestation of British imperialism.
Meanwhile in Russia, around the same time Mackinder was developing his ideas on “Euro-Asia,” opponents of Bolshevism, searching in vain for a rival ideology with which to contest Communism, developed their own idea of “Eurasianism.” This new ideology imagined the existence of a unique Eurasian civilization – which it only made logical sense that Russia should dominate. “Eurasianism” did not take root in the Soviet Union, but there are signs that it is increasingly defining Moscow’s world view today.
The most significant country affecting Eurasia today of course is China. China does not have a long tradition of thinking about either itself or the lands to its west as “Eurasia.” Indeed, unlike Great Britain, Russia, and to a lesser extent the United States, China does not have a history of imperial conquest outside of its immediate surrounds. The Qing Dynasty, reflecting previous Chinese dynasties, conceptualized itself as the “Middle Kingdom” – literally, the center of the world.
Historically, for China all other countries and kingdoms were, by definition, peripheral countries. China had little interest in conquering peripheral regions as long as they did not pose a security threat and paid sufficient tribute. At the height of Qing power in the 18th century, Qing Emperors defined their challenges as emanating either from the northwest or the south – or from a specific threat – missionaries. China was civilization and the rest of the world was barbarian, and as a result China had no use or need for a concept of “Eurasia.”
To a certain extent, this is still the case, but Chinese foreign policy has begun to change during the administration of President Xi Jinping, as for the first time in its long history, China is being forced to expand beyond its immediate surroundings to secure its national imperatives. China still does not view itself as a “Eurasian” country – but rather as a unique cultural and civilizational force upon whom it is incumbent to connect the far-flung regions to its west by rail, sea, and cellular networks. China’s goal is simple: to return China to its proper place at the center of the geopolitical universe by connecting Eurasia to China.
China presents this as win-win cooperation, but in practice, Chinese chauvinism has already caused a backlash in Central Asian countries like Kazakhstan, where protests against China’s unwillingness to employ local workers has plagued the country in recent months. This is to say nothing of China’s harsh and far-reaching crackdown on its own Muslim Uighurs in Xinjiang province – an area which culturally belongs more to Central Asia than to Han China.
When China uses the term “Eurasia” in the same breath as its “Belt and Road Initiative,” it is doing so with the intent to build a vast network of tributary or vassal states to its west. Eurasia, in effect, has simply become the politically correct term for “the barbarians.”
As a result, thinking about Uzbekistan’s role in Eurasia is doubly complicated. Which Eurasia and whose Eurasia? These are rarely if ever the same thing. Uzbekistan’s role in Eurasia as seen through the perspective of the United States is very different than Uzbekistan’s role in Eurasia as seen through the perspective of China. Both of these are different still from how Uzbekistan might define its
own conception of what “Eurasia” means and what kind of policies might best benefit Uzbekistan and its fellow “Eurasian” countries.
Chapter 3: Between the dragon and a bear
In this section, we look at the emerging competition between China and Russia for influence in Uzbekistan.
As a result of its recent history and its geographic position, Uzbekistan has had very little say over the development of its current role in Central Asia and Eurasia in general. This remains the case today. There are at least seven major actors present in Central Asia whose divergent interests and appetites are setting Central Asia up to be a major zone of global competition: China, Russia, the European the United States, the European Union, India, Iran, and Turkey.
China
China’s presence in Central Asia has gradually increased since Xi Jinping announced the “Silk Road Economic Belt” during a speech made in Kazakhstan in September 2013. In truth, though, China’s emergence as the second largest economy in the world had resulted in gradual expansion into Central Asia long before Xi was explicitly linking his regime’s foreign policy goals to Eurasian connectivity. In 2018, China surpassed Russia as Uzbekistan’s top trading partner in terms of both imports and exports, and the importance of China in not just Uzbekistan’s economy but in the economies of all the Central Asian states will continue to grow. As a result, the economic performance of countries like Uzbekistan will increasingly depend on maintaining a productive economic relationship with China.
China’s Belt and Road Initiative attracts most of the headlines, but the Belt and Road Initiative is mostly smoke and mirrors, a brilliant marketing campaign designed to build China’s international reputation and to mask China’s ambitions. Far more significant is China’s unnamed attempt to use its recently acquired economic heft to satisfy explicitly strategic and political ends. To be clear, not all, or perhaps even most, of China’s intentions are nefarious. China’s state-led, export-driven economy has developed major structural inefficiencies. The change in China’s behavior is at least partly reflective of an organic process of economic growth through which any country attempting to shift from an export-driven to a domestic-consumption based economy must pass.
But the high degree of control exerted by the Chinese Communist Party means that separating natural economic processes from top-down political imperatives is practically impossible. The CPC, and even President Xi himself, will remain in power only so long as they continue to guarantee China’s independence, prosperity, and societal harmony. These are not issues the Chinese government can or will leave to chance.
To that end, Uzbekistan is a major exporter of two resources China needs to secure access to: natural gas and food. China’s demand for natural gas will increase by 82 percent in the next 12 years, reaching 510 bcm in 2030. Despite the fact that China is expecting to double its annual gas production by 2040, demand is projected to outstrip domestic output by over 40 percent by 2040. (These projections assume that China will succeed in tapping into China’s own shale gas resources, an assumption which geological challenges specific to China are already undermining.) Uzbekistan cannot quench China’s thirst for natural gas – relative to some of the global heavy weights, Uzbekistan is a relatively modest producer of natural gas, with proven reserves estimated at around 1,200 bcm and production of roughly 53 bcm in 2018. Moreover, Uzbekistan still consumes most of its domestically produced natural gas – Uzbekistan exported just 17 percent of natural gas produced in 2018, as domestic demand accounted for 80 percent of consumption.
The sheer magnitude of Chinese demand however means that China cannot afford to turn down any potential source of natural gas, especially one so close by. The importance of maintaining and improving the Central Asia-China gas pipeline will only increase for China in the coming years.
China is also increasingly concerned about securing access to feed a population whose eating habits are becoming more demanding as the population becomes wealthier. Eating meat, for instance, has become a status symbol in China. The recent decimation of China’s pork industry as a result of African Swine Fever arguably posed a greater challenge to decision makers in Beijing than did U.S. tariffs. In the past, the Chinese Communist Party has emphasized food security and especially grain self-sufficiency. This has recently begun to change as China cannot feed its population with its current resources. The Chinese Academy of Agricultural Sciences and the International Food Policy Research Institute recently published a report which claimed China would achieve food security and grain self-sufficiency by 2035 – but tellingly, “food security” in this context does not just mean emphasizing structural reform on the supply side of Chinese agriculture, but also in realizing China’s Eurasian ambitions. The Uzbekistani government has attempted to taken advantage of this by making it easier for farmers to sell produce directly to foreign partners. China has also already promised to invest over $500 million in Uzbekistan’s agricultural sector, and considering Uzbekistan’s global leader as an exporter of various fruits and vegetables, there will likely be more to come.
It is not possible to overstate how significant these developments are, not just for Uzbekistan, but for Eurasia at large. China conceived of itself as the “Middle Kingdom” in large part because it
could. Centuries of Chinese dynasties did not go empire-building in the West because they did not have to. China was self-sufficient and had everything it needed at home.
That is no longer the case – and that is a historically unprecedented shift. There is very little one can glean from the past that will help inform precisely how China will manage these challenges. This is a theme we will return to constantly in future Geopolitical Dives.
In the 19th and early 20th centuries, Japan faced a similar problem that China is facing today, albeit on a much smaller scale. For Japan, managing this dependence and vulnerability manifested in a program of conquest, as Japan fused its own cultural feelings of superiority with European-style imperialism. There is a very real risk that China’s own development could mimic the Japanese model.
To its credit, China has thus far tried to resist this, perhaps in part due to its own intimate experience with European, American, Russian, and Japanese imperialism. China has instead sought to look back to its own history (e.g., “The Silk Road) for a more symbiotic system that will obviate the need for the People’s Liberation Army to go and “liberate” others. For the next decade, Central Asia, – and Uzbekistan in particular – will function as a laboratory for how China will pursue its national interests.
Russia
Russia remains the dominant foreign power in Central Asia. Even as China is displacing Russia’s economic influence in the region, in the realms of security and culture, Russia enjoys an elevated status in Central Asian states. Russia maintains military bases in Kazakhstan, Kyrgyzstan, and Tajikistan, all three of which are members of the Russian-led Collective Treaty Organization (CSTO).
Uzbekistan has been an active member of the CSTO twice, withdrawing for the second time in 2012. Rumors that Uzbekistan is considering rejoining have thus far not come to fruition.
Kazakhstan and Kyrgyzstan are both members of the Eurasian Economic Union (EAEU) as well. Uzbekistan, long eschewed interest in the EAEU, decided in April to approve observer status in the EAEU going forward. Despite the decline in its overall power, Russia remains a center of gravity for both Uzbekistan and Central Asian geopolitics.
Russia’s interests in Central Asia are less clear-cut and are at least in part vestigial. Indeed, there is evidence of an ongoing internal debate inside Russia about what the current guiding force of Russian foreign policy is.
One faction seems to emphasize Russia’s relatively limited ambitions, reflective of its ethnic homogeneity and the obsolescence of the Soviet Union’s global historical mission. This approach to Russian foreign policy emphasizes Russian nationalism – the importance of countries like Ukraine and Belarus to Russia are justified not just by their strategic import but by their significant Russian populations. (Uzbekistan, with a population that is just 6 percent Russian, hardly qualifies.)
There is also, however, a faction which views “Eurasia” as territory Russia must reclaim. This faction, like the opponents of the Bolsheviks in the 1920s, thinks of Eurasia as Russia’s natural sphere of influence and emphasizes Russia’s unique Eurasian – as opposed to European – identity. For this faction, the EAEU’s mission is to “facilitate the economic integration of former Soviet republics into a single economic entity” – to, in effect, turn back the clock of time to before the Soviet collapse, which Russian President Vladimir Putin has repeatedly referred to as the “biggest catastrophe of the century.” According to this line of strategic thinking, all Russian behavior in Central Asia is part of Russia’s “Greater Eurasia” plan.
There is some logic to this line of thinking. After all, the Soviet Union was organized to function as a single, economic whole. Central Asia’s endlessly contested borders are a direct reflection of the U.S.S.R’s attempt to create independent economic provinces that were to function as parts of a larger common good. Though it has been almost three decades since the Soviet Union collapsed, the economies of the Central Asian states still reflect elements of the synergistic relationship they were designed to have with Russia.
In addition to these strategic imperatives, Russia is still Uzbekistan’s second largest trading partner, Uzbekistan is the larger recipient of worker remittances from Russia, equivalent to roughly a third of all Russian-origin remittances, and hundreds of Russian companies, especially in the oil and gas sector, retain their leading positions in the Uzbekistani economy.
Russia has suffered as much from its dismemberment as the countries that split off have suffered from their separation from Russia. If Russia is to remain among the world’s global powers, it is imperative for Russia to be the driving force for the economic and security integration of the former Soviet states.
Where this leaves Russia’s relations with China is uncertain. Thus far, Russia and China have cooperated with each other in Central Asia. After all, both Russia and China face more pressing geopolitical challenges from the United States, and as a result, neither have the resources or will for a conflict in the Eurasian borderlands between them.
At the most basic level, howeer, Russia and China also both want the same thing: the integration of Eurasia into a broader framework that would be beneficial not just to the region, but to the Russian and Chinese economies. The issue is that both Russia and China ultimately view themselves as the center of gravity of that broader framework, and at a certain point, this strategic goal becomes a mutually exclusive one.
In the short-term, China has little interest in challenging Russia’s deep ties to Uzbekistan. China instead is playing a long-game, whereby it expects that overtime, the sheer weight of its economic heft will create a fait accompli, orienting not just Uzbekistan and the Central Asian states towards Beijing, but Moscow itself.
The deeper question is whether Russia can accept this. If history is any indication, it will be difficult for both sides to maintain the compromises necessary to prolong the current spirit of Sino-Russian cooperation. Either way, Uzbekistan is of immense importance to Russia’s overall goals for Central Asia. This has always been the case, which is why Uzbekistan more than any other Central Asia state aside from perhaps Turkmenistan has kept Russia at an arm’s length during the post-Soviet years. There is now a growing realization in Tashkent that a closer relationship with Russia could have benefits for Uzbekistan, especially as it feels the need to balance against China’s vision of Central Asia’s future.
Chapter 4: The Others
In this section, we look at the other external powers with interests in Uzbekistan: The US, the EU, Iran, Turkey, India, Japan, and South Korea.
The United States
The democratic nature of U.S. politics often reflects itself in the inconsistency of American foreign policy. New administrations often jettison the policies of the previous administration. This phenomenon has never been more prominent than in the shift from the Obama Administration to the Trump Administration, especially in their disparate approaches to dealing with Iran, China, and North Korea. Despite this inconsistency, however, U.S. grand strategy has been remarkably consistent for the last 121 years and can be summed up in a single clause: Preventing the emergence of a Eurasian hegemonic power. The U.S.’ participation in World War I, World War II, and the Cold War all took place in service of this larger goal – and it is the primary strategic impetus for the U.S.’ budding rivalry with China. For the first time since the collapse of the Soviet Union, the U.S. sees not just a potential challenger, but one that could marshal the resources of the entire Eurasian continent.
U.S. grand strategy demands that the U.S. refocus its efforts from lost causes in Iraq and Afghanistan and pivot to Asia to rein in China’s expanding economic power. The Obama Administration wanted to do this with the Trans-Pacific Partnership and the Trump Administration is attempting to do it with blunter instruments, like tariffs and trade wars. The U.S. is also pressuring allies like Japan, Germany, and Australia, to take on a greater share of the burden that comes with maintaining the security of the U.S.-led international order.
And yet, simultaneously, as a result of domestic politics, the U.S. is also demanding that U.S. friends and enemies alike completely reorient their economic relationship with the United States. The economic benefits that came with aligning one’s country with the United States are the glue that holds the U.S. alliance network together, and yet even as the U.S. needs those alliances more than it has in a generation, it is undermining their very basis with an aggressively protectionist trade policy. In that sense, President Trump is both author and symptom of the U.S.’ internal inconsistencies and their concomitant effect on American foreign policy.
What this means for Uzbekistan is that the U.S. is not a reliable partner upon which to base its national security strategy. After the collapse of the Soviet Union, the United States sought closer relations with Uzbekistan for two reasons: to cooperate and coordinate with the U.S. war on its war in Afghanistan and to lecture Uzbekistan on its human rights record.
In the future, the U.S. will have a single, overarching priority when it comes to dealing with Uzbekistan and with Central Asian stages in general: preventing the region from aligning itself too closely with China.
The U.S. however will not commit its military forces to ensuring the independence and sovereignty of Central Asian states. The U.S. will instead try to provide an alternative to Chinese investment and, to a lesser extent, Russian-led attempts at regional integration. The U.S. will be joined in this endeavor by a number of its key allies, especially Japan, South Korea, and Australia. South Korea in particular has already developed a significant economic relationship with Uzbekistan, and with the U.S.’ blessing will continue to deepen those ties and provide alternatives to China.
Why South Korea? This requires a brief tangent. The reason South Korea has such a close relationship with Uzbekistan is because Josef Stalin decided in 1930 to transfer ethnic Koreans living in the Russian Far East to Central Asia – especially to Uzbekistan. Russia was scared that ethnic Koreans would serve as Japanese spies, and so over 200,000 Russian Koreans were deported to Uzbekistan, tens of thousands of whom died along the way. A Westerner flying to Tashkent today can get there from basically three cities: Moscow, Tashkent, and Seoul.
Back to the main point however, which is that Uzbekistan has relatively little reason to align its policies with that of the United States beyond attracting investment and attention. Uzbekistan’s economy is linked to that of its neighbors. Regional integration is a good thing for Uzbekistan, and if cooperation or even coordination with China and/or Russia helps advance regional integration, that is something Uzbekistan will pursue. The U.S. is not in a position to make any serious demands on Uzbekistan because it is not willing at this point to contribute the resources and make the overall commitment that would be necessary to entice a country like Uzbekistan to turn its back on China and/or Russia.
As a result, though Uzbekistan will attempt to maintain friendly relations with the United States and use that relationship as much as possible to provide a balance against both China and Russia, there are limits to how effective a balance the U.S. can provide, especially as domestic politics will exert a deeper hold on the American psyche than foreign policy for at least the next election cycle.
The European Union
China is now the second largest national economy in the world. But the European Union, with a GDP of just slightly less than that of the United States ($18.8 trillion), has a combined economy over 40 percent larger than the Chinese economy.
The European Union offers a compelling example for the former Soviet states of the Caucasus and of Central Asia. The Eastern European states that were behind the Iron Curtain are enjoying immense economic success despite the EU’s struggles to recover from the 2008 financial crisis. Indeed, Eastern European states continue to exhibit persistently high economic growth rates relative to the overall EU average. Countries like Czechia, Poland, and Romania have succeeded at leveraging their highly motivated and well-educated labor forces to drive economic growth at home.
One of the byproducts of this success is that significant segments of the German supply chain were relocated to Eastern European economies. In that sense, the EU has been doubly successful, as it has managed to integrate Germany so deeply into the success of the European economy as to eliminate the historic geopolitical threat posed by a united Germany.
For the status quo to continue, however, the European Union must continue to grow. That is, perhaps, the EU’s greatest weakness. If the economic benefits of being an EU member disappear, the entire structure could unravel, and the economic benefits of being an EU member have become disproportionately based on an unsustainable economic model of endless export growth. Even now that the EU has realized it and is making changes, it needs new markets to help in its transitionary phase.
Unlike China and Russia, and even the United States, the European Union does not always pursue a consistent foreign policy. Even so, the EU has begun to train its focus to the east. Despite strategically fraught relationships with both Russia and Turkey, the EU feels a natural impulse to expand into Eurasia, the mirror image of China’s impulse to expand into Eurasia from the opposite direction.
When the EU looks at Central Asia, and especially at Uzbekistan, it sees a young, cheap labor force and a potentially lucrative potential export market. The EU also looks favorably on recent political reforms designed to improve the business climate and the overall predictability of doing business in Uzbekistan. The EU’s recently published “New Strategy on Central Asia” spells out the EU’s hopes for its future relations with Central Asian countries relatively bluntly. The EU wants more regional cooperation in Central Asia. It is fairly agnostic about how this regional cooperation comes about – but the EU does want to ensure that regional cooperation and Central Asian strategic contributions to promoting “Euro-Asian connectivity” are “sustainable, comprehensive, and rules-based.”
That is a fancy way of the EU expressing its suspicion toward Chinese and Russian attempts to influence Central Asia. Like China and Russia, the EU has its own political ends, which includes a insistence on strengthening things like “democracy, human rights, and the rule of law.” The EU supports “rules-based connectivity” and “free market economy” because those are the conditions under which the EU has the best chance to prosper from the enhanced connectivity of Eurasia and of greater regional cooperation in Central Asia.
In that sense, the EU looks to Uzbekistan as a potential leader, and that is why the EU agreed to open negotiations with Uzbekistan on potentially signing an upgraded Enhanced Partnership and Cooperation Agreement in November 2018, the first round of which were held in Tashkent in 2019. Unlike Russia and China, connecting Central Asia to Europe is a much harder proposition, one that must inevitably involve Russia. But even so Brussels – like Moscow and Beijing – sees immense potential in Central Asia and is attempting to solidify a relationship with Uzbekistan that will help further its own interests in the region.
The Others: Iran, Turkey, and India
There are three other minor players in Central Asia worth mentioning in passing: Iran, Turkey, and India.
Iran’s interests in Central Asia are twofold. The first and most practical is that increasing the connectivity of Central Asia could allow Iran to export oil over land to China. In the same way that China views Eurasia as a potential solution to its inability to guarantee its maritime trading routes against the threat of U.S. naval power, Iran sees alternate land routes as a meaningful way of reducing its own dependence on maritime trading routes in the Persian Gulf.
There is more at stake in Central Asia than just trading routes and markets, however. Though Iranian power in Central Asia belongs to a more distant history than Russia’s conquest of the region, Iran views itself as the heir to the great Iranian Empires of the past. Much of the land encompassing western Iran and much of Central Asia was known for centuries as “Khorasan,” Iran’s cultural capital and the home of many important medieval artists, poets, scholars, and philosophers. The Central Asian region still bears the marks of Persian influence and culture. As Iran seeks to restore what it sees as its proper place in the global order, its extension into the Shiite-majority areas of the Middle East is as important to Tehran as into the once-Persian oriented hinterlands of Central Asia.
Turkey has a similarly nostalgic desire to assert its interests in Central Asia and has been attempting to do so since the collapse of the Soviet Union, to varying degrees of success. Turkey’s ambitions in the 1990s were extensive, as Turkey imagined that its linguistic, cultural, religious, and ethnic links to the Turkic peoples of Central Asia would result in the emergence of a “Turkic community that would fall under [Turkish] leadership.”
While Turkey’s efforts failed in this regard, it has maintained an interest in the Central Asian region, reflected by its status as a top-five trading partner for every Central Asian country besides Kazakhstan. Uzbekistan and Turkey have enjoyed cordial relations in recent years, with reciprocal presidential visits and promised of investment deals in the billions of dollars and deepening trade ties.
For the time being, as much as Turkey would like to assert itself in Central Asia, Ankara has more pressing issues, including managing structural economic issues and asserting its leadership in the Middle East region, especially in Syria, where it opposes the regime of Bashar al Assad and views the interference of Russia and Iran as unwanted. As Turkey’s power in the Middle East deepens, so too will its influence in both the Balkans and Central Asia, where in the meantime, Turkey aims to preserve and deepen its current ties.
India also has geopolitical interests in developing deeper ties with Central Asia, as reflected most recently by the most serious India-China border spat since the two countries fought a war in the Himalayas in the 1960s.
In 2019, India participated in the first India-Central Asia Dialogue in Uzbekistan which featured the Foreign Ministers of all five Central Asian states. Like China, India is a voracious consumer of energy; indeed, the growth in Indian demand for energy now surpasses China’s considerable appetite. India also has a special degree of concern for managing the potential spill-over from the failed U.S. invasion of Afghanistan, which India has tried to link into its broader plans for its “Connect Central Asia” Policy, first announced in 2012.
India’s engagement in Central Asia relative to the other actors involved has been relatively paltry – but India’s interests are no less pressing in the long-term than China’s or Russia’s. India views the leadership of Uzbekistani President Shavkat Mirziyoyev as having ushered in a new energy and political will into integration projects in Central Asia, which India will support as much for its own interests as to ensure that China’s position in particular does not become overly dominant.
Chapter 5: Opportunities and Risks
In this chapter, we examine Uzbekistan’s recent political reforms, as well as its domestic challenges, especially the one posed by a young, growing, and eager Muslim population.
Uzbekistan is the most populous country in Central Asia, accounting for roughly 45 percent of the region’s population. Uzbekistan is also at the very beginning of a roughly 20-year period during which it will enjoy a substantial demographic dividend. Uzbekistan’s labor force is projected to increase by 3.9 million by 2030, which would make Uzbekistan the fifth largest labor force in Europe and Central Asia. Uzbekistan’s population is also extremely young, with almost 30 percent of its people under the age of 14.
Uzbekistan is in just its fourth-year of a wide range of market-oriented reforms that are reshaping the country’s labor market. As Uzbekistan’s working-age population has increased by roughly 3 million people in the last decade, the number of formal sector jobs has remained relatively constant. The informal sector is still responsible for employing over half of all Uzbekistani workers, and there are ongoing concerns about the quality of jobs available and the match between worker skills and job requirements.
Uzbekistani migrant workers, roughly 4 million of whom reside in Russia, make up almost a third of the Uzbek labor force. Due to an inability to find quality jobs at home as well as international demand for Uzbekistani labor, one in five Uzbekistani males is an international migrant – and the rates are higher for younger workers. This would be a problem in any country: but is especially a problem in a country like Uzbekistan, which is located at the
the center of the Eurasian landmass and the all-important land bridge and Muslim buffer zone between European and Asian civilizations. Uzbekistan is the geographic center of the Islamic world.
Uzbekistan’s young, growing, hard-working, intellectually curious population is one of its greatest assets. It is also the source of Uzbekistan’s biggest risks. Uzbekistan is a Muslim majority country where religion was banished Soviet style to the back of the bus for almost a century. Combine religious awakening, political liberalization, and lack of professional opportunities and you have the same sorts of conditions that led to the rise of the Muslim Brotherhood and the ideology of jihadism in general in the Arab world in the 1970s an d1980s.
Case in point: Economic migration is “the single most important factor for Central Asian recruiting” to jihadist and fundamentalist Islamist groups. Based on the information available, Central Asian states have accounted for the third largest source of Islamist foreign fighters in Syria and Iraq in recent years. These estimates indicate a political environment that contributes to the radicalization and subsequent recruitment of a significant number of Central Asian Muslims.
Uzbekistan’s position, however, is far from hopeless, and to understand why, we need to understand Uzbekistan’s role in Islamic history.
During the first centuries of Islam’s emergence, Central Asia was the spiritual and intellectual wellspring of the Islamic world, the source of incredible advances in mathematics, philosophy, medicine, theology, and Islamic jurisprudence. The flourishing of Central Asia in the 8th and 9th centuries was the inevitable result of the flourishing of the Islamic world in general. But this geographic centrality cut both ways – and the instability and conflict that eventually tore the Islamic world apart and brought it to its knees also had an outsize influence on events in Central Asia. The American “war on terror” has been fought mainly in Afghanistan, Iraq, and Syria – but the risk of spillover into Central Asia, and especially into Uzbekistan, which shares a border with Afghanistan – has always been high.
Uzbekistan is no stranger to the threat posed by Islamist fundamentalism. The immediate period after the fall of the Soviet Union and the first years of Uzbekistani independence were fraught with both religious and ethnic conflict, which are often inextricably linked. Uzbekistan’s independence led to a grass-roots Islamic revival, as Uzbekistani citizens were able to rediscover Islam and Muslim culture and reestablish connections with the broader Muslim world, which had for so long been blocked by the Soviet government (the Iron Curtain was not just a European phenomenon).
Indeed, 1992 marked not just the first full year of Uzbekistan’s independence, but the year that the Qu’ran was translated into Uzbek for the first time. Let that sink in for a moment. It would be like if Polish Catholics had experienced the New Testament in Polish for the first time in 1992.
On the other hand, Uzbekistan’s independence also gave space to Salafi-inspired radical groups, which had been imported by Soviet authorities to weaken local ties to the more indigenous Hanafism and Sufism that had historically defined Uzbekistan’s more tolerant Islamic religious outlook. In the late 1980s and early 1990s, the Uzbekistani city of Namangan, and the Fergana Valley in general, became a haven for foreign Islamic missionaries and for the rise of vigilante groups which attempted to challenge the power of the nascent Uzbekistani state. The Uzbekistani government had little choice but to enforce a broad crackdown, which in retrospect appears to have been largely successful if at times overzealous.
At the time, though, success was hardly a foregone conclusion. The emergence of the Islamic Movement of Uzbekistan, marked by a February 1999 bombing attack in Tashkent in which 16 were killed and over 120 were injured, seemed to suggest that Uzbekistan’s government might not be able to keep the fundamentalists at bay. Another series of attacks in March 2004, claimed by the Islamic Jihad Union of Uzbekistan, reportedly killed 47 people, and cast further doubt on whether Uzbekistan’s repressive policies were having the desired effect.
The following year, Uzbekistan’s crackdowns on potential sources of Islamic unrest, both real and imagined, led to difficulties in Uzbekistan’s relationship with United States, especially after a particularly harsh government crackdown on popular unrest in Andijon, which Uzbekistan accused of being orchestrated by a local branch of Hizb ut-Tahrira al-Islami (HTI). The same fear that caused the Uzbekistani government to crack down so hard on domestic unrest even cursorily associated with Islamic ideology also led to cooperation with the United States on its war in Afghanistan, which has played a critical in daily U.S. operations in Afghanistan for almost two decades.
Karimov’s successor, President Shavkat Mirziyoyev, has taken a different approach to managing the challenge posed by Islamist fundamentalism to the Uzbekistani state. Even as Mirziyoyev’s government has insisted on maintaining the preeminence of secular values, especially in the educational and political spheres, it has announced the formation and sponsorship of new Islamic academic and centers, like the Imam Bukhari International Scientific Research Center, the Islamic Culture Center, and the Islamic Academy of Uzbekistan.
Mirziyoyev’s new strategy sees repression as one arrow in a more well-stocked quiver – one that must be accompanied with a positive, alternative version of Islam to combat the violent, totalitarian one peddled by Wahhabist groups and ISIS. In Mirziyoyev’s own words, the goal of these measures is to “explain to the public, especially to the youth, that the essence of [Islam] is peace and compassion.” The goal appears to be to promote a uniquely Uzbekistani form of Islam, one that serves to legitimize rather than challenge the authority of Uzbekistan’s secular government.
Mirziyoyev’s strategy is both risky and bold and will require more than platitudes and sponsoring cultural and religious centers to succeed. Uzbekistan’s historical approach to Islam has indeed been more moderate and open-minded than the sorts of ideologies that have taken root in Afghanistan, Pakistan, and Syria. Uzbekistan also has centuries of authentic and indigenous traditions upon which to base a meaningful Islamic alternative to the current approaches towards balancing Islam and secularism in the political life of majority-Muslim countries.
But as crucial as the educational component of this strategy will be Uzbekistan’s ability to create jobs and prosperity for Uzbekistan’s young and growing population. For Uzbekistan’s strategy to work, it will not be enough to teach principles of peace and compassion whilst propping up the secular state – these approaches much be accompanied by a marked increase in the ability to provide realistic prospects of a more prosperous future for the country’s burgeoning young population. The battle for hearts and minds begins at the dinner table, not at the mosque. The battle only moves to the mosque when there is nothing to nourish the body and satisfy the spirit at home.
If Uzbekistan’s new strategy is successful, it could offer a potential model for not just Central Asian states, but for other Muslim countries to emulate. It is a high-stakes strategy, but Uzbekistan has little choice; the past decade in the Middle East has shown what happens to governments that respond to the demands and hopes of their people too late, if at all.
Chapter 6: The Road Ahead
In this chapter, we try to put all the pieces together to give some scenarios on how Uzbekistan will behave in the future and how this might affect the future of Central Asia.
Central Asia is a region where the interests of numerous global and regional powers are beginning to converge. Indeed, for countries like China and Russia, Central Asia has become the key to unlocking the vast economic potential of “Eurasia,” which could in turn lead to the development of a multipolar world where the power and influence of the United States and the “West” in general is reduced from its current primacy to a more equal and proportional status.
Uzbekistan is the most populous country in Central Asia. It is not the richest, nor can it lay claim to being the most powerful or the most trusted by its neighbors. Even so, Uzbekistan is the natural regional power of the Central Asian region, and Uzbekistan has a role to play as a regional leader and partner. Divided, the Central Asian states will be subject to the economic interests and political intentions of external powers, who see Central Asian geography as something to be overcome in order to realize their Eurasian ambitions. If, however, the Central Asian states can combine their resources, they stand a far greater chance at pushing back against external powers and forcing their policies and ventures to offer something to Central Asian states in return.
The relationship between states in a defined geographic region like Central Asia is often most influenced by the most powerful or most influential state(s) in the region. If a regional power is a zero-sum power looking to dominate its neighbors – other countries in the region will look to block the regional power and protect their sovereignty. If the regional power seeks a cooperative arrangement based on mutual respect of sovereignty and shared interests, even the most violent of regions (like, for example, Europe), can transform into a relatively peaceful and prosperous whole. How Uzbekistan pursues its national interests will therefore have ramifications on Central Asia as a whole, but also on how external powers interact with the region as well.
Uzbekistan’s role in Greater Eurasia faces three main challenges in this regard:
1. There is no model for how this works.
Central Asian states embraced their independence after the collapse of the Soviet Union while simultaneously recognizing the fragility of their recently gained sovereignty. Everything about political life in Central Asia – from how the borders were drawn to the quality of transportation and manufacturing infrastructure, from the organization of the security forces to the role of tradition and religion in everyday life – had to be redefined and imagined in a post-Soviet world.
This was doubly difficult because Central Asian states had no model to follow. What worked for Eastern Europe could not be copied in Central Asia because domestic conditions were simply too different. The U.S. approach to liberal democracy, while admired and perhaps even desired, could hardly be applied in such a different political and socioeconomic environment.
And so, with relatively little exception, Central Asian states relied on top-down, authoritarian political structures, seeking to safe-guard sovereignty, consolidate national identity, and defend from potential threats, whether from greedy neighboring countries, underlying socioeconomic problems, or a resurgent Russia.
Uzbekistan, long viewed internationally as one of the most repressive of the Central Asian states, is now experimenting with reforms that, if successful, could offer a blueprint for meaningful political and economic structural change in neighboring Central Asian states. The death of long-time President Islam Karimov did not upend the political stability of the country, as many outside observers feared a battle over succession might. Instead, under new President Shavkat Mirziyoyev, Uzbekistan has embarked on an extremely ambitious reform program designed to improve domestic conditions in the country by discarding the insularity of Uzbekistan’s previous policies and embracing the country’s potential as the connective tissue of the entire Central Asian region.
To that end, the power of the state security services has been downgraded. The government’s approach to religion has moderated. Visa restrictions for visitors from foreign countries have been lessened and a number of measures have been passed to make it easier for businesses to operate in the country. There is increased emphasis on embracing free market forces, on encouraging private enterprise, and educating a growing workforce with the skills they will need to secure quality jobs.
These reforms will not be easy, nor will their adoption be painless. The government’s willingness to endure criticism will need to be matched by a responsiveness to the people’s needs. By going through these growing pains, other Central Asian countries will be able to learn from Uzbekistan’s mistakes and capitalize on Uzbekistan’s successes.
There are few growth opportunities like Uzbekistan left in Eurasia. North Korea and Turkmenistan, whenever their respective regimes collapse, will offer similar opportunities but their regimes will likely last decades more. Uzbekistan has been in a protective crouch for almost three decades but now is emerging and embracing a more open and interconnected Central Asia.
2. Water is scarce and it is a problem.
The most pressing issue facing Uzbekistan and the Central Asian region as a whole is the issue of water scarcity – which provides both an excellent example of the type of regional leadership Uzbekistan can employ and an indicator of how difficult this opening-up process could be.
Central Asia, while blessed with many other natural resources, is a water-scarce region. That scarcity is being exacerbated by climate change, mismanagement, and population growth.
According to the World Bank, if Central Asia’s population continues growing at 1.5 percent annual, the region will reach the World Bank’s threshold for being designated “water stressed” and “water scarce” by the end of the century – which in practical terms three times less water per capita available per day.
According to the United Nations, Uzbekistan and Turkmenistan already meet the threshold for water stress.
Complicating matters further is that under Soviet rule, the water resources of the entire Central Asian region were part of an integrated and cooperative whole. Rather than give any one of the “stans” all the resources necessary to become a formidable modern industrial power, each Central Asian state was given one or a few important resources – but never all of them.
Uzbekistan, though it inherited population centers, natural gas, good farm land, and important trading routes, is not blessed with water resources. Uzbekistan relies on the water from the Amu Darya and Syr Darya Rivers, the sources of which are in Tajikistan and Kyrgyzstan. This creates the potential for geopolitical conflict.
Making matters worse is acceleration of the melting rates of the glaciers that provide most of the water for the Amu Darya the Syr Darya. In addition, Tajik and Kyrgyz have plans to tap into the rivers as a potentially lucrative source of hydroelectricity, which is a direct threat to viability of the Uzbek state.
Despite these threats (and unlike, say Egypt, as we discovered last month,) rather than confronting its neighbors, Uzbekistan has taken first steps towards compromise with Tajikistan and Kyrgyzstan in an effort to improve relations and smooth over water issues. Uzbekistan and Kyrgyzstan agreed to address border issues between them in a Declaration of Strategic Partnership in October 2017, and though minor border clashes continue to occur, the two sides have agreed to minor land swaps and the channels of dialogue remain open and more cooperative than ever before. Uzbekistan and Tajikistan meanwhile signed a landmark border demarcation agreement in March 2018 and the two sides are working together to find ways to improve transport links and ease visa requirements.
Uzbekistan has even hinted it could withdraw its opposition to hydroelectric dam projects like at Kambar Ata and Roghun, especially if Uzbekistan was affored an opportunity to purchased surplus hydroelectricity and reconnecting a regional power grid. These are good first steps, and Uzbekistan can continue to push the momentum forward by encouraging more regional cooperation and coordination. Central Asian states can maintain their independence and sovereignty while cooperating on shared issues that affect the entire region – and Uzbekistan showing that it is willing to do so and even make compromises because it is better for everyone will lead to more integration.
Water is the most pressing matter upon which Central Asian needs to coordinate their policies, but Uzbekistan’s policy shifts in recent years offer an example of what Uzbekistani leadership might look like on a number of different levels. Because Uzbekistan is operating from a position of relative strength, when Tashkent reaches out, it affects the behavior and possibilities in the other national capitals of the region.
3.
Starting from scratch
Uzbekistan’s most important role is also its most obvious. Because Uzbekistan is double-landlocked, it is in the unenviable position of being disproportionately affected by the political and economic developments of neighboring countries. If the countries with which Uzbekistan shares borders do well, then Uzbekistan also does well – which means that pursuing greater integration and connectivity throughout the Central Asian region is in Uzbekistan’s interests.
In order to become a major force for economic growth and political stability in Eurasia, Uzbekistan needs to invest (and needs foreign investment in) improving transportation infrastructure, creating digital infrastructure necessary for the 21st century economy, and creating transport corridors that are secure and reliable.
Because so many of the connectivity projects in Central Asia will depend on Uzbekistan, Tashkent will have a unique power and opportunity to demand that local sovereignty and traditions be respected. Central Asian countries, especially Kazakhstan and Kyrgyzstan, have already experienced difficulties at the bilateral level with China over these very sorts of issues, and Uzbekistan can work together with other states in the region to pool their resources and project a more unified front in relations with stronger and often politically motivated external powers.
This will be difficult in practice. Uzbekistan must resist aligning itself politically or economically too much with any one country, such that another country begins to interpret that relationship as a threat. Uzbekistan must try to resist zero-sum strategic calculations and instead insist that all those traversing its territory and hoping to hire Uzbekistani workers or sell to Uzbekistani consumers must look at Uzbekistan and Central Asia as neutral ground. The ancient Silk Road, after all, did not have a nationality, and its success derived from the fact that it was not possessed or owned by anyone, but rather was a valuable transportation corridor that allowed a mutually beneficial exchange of goods.
Conclusion
For understandable reasons, Central Asia states have jealously guarded their independence and sovereignty in the wake of the Soviet Union’s collapse. Even so, the geographic logic of the region pushes not towards insularity or isolation, but towards cooperation and coordination. Uzbekistan is not the largest country in Central Asia but it is the most populous. Because Uzbekistan is the only country in the region that borders all the others, it could become the circulatory system of a 21st century silk road.
There are major risks involved, some domestic, and some geopolitical, but also tremendous opportunities as well. Since Karimov’s death in 2016, Uzbekistan has undertaken major economic and political reforms that afford incredible opportunities for growth. At the same time, those same reforms come with huge domestic risks, as do the geopolitical forces that surround and threaten Uzbekistan on all sides. Thus far, things have gone well for Uzbekistan as it cautiously opens up to the world, but it has quite a long way to go, and nothing less than the future of Central Asia hangs in the balance.
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