09 May 2002
Chechnya Conflict Threatens Caucasus Region, U.S. Official Says
(May 9: State's Pifer statement to Helsinki Commission hearing) (3030)
The continuing conflict in Chechnya "not only constitutes a drain on
Russian development and a living nightmare for innocent Chechens, but
it poses a threat to the entire Caucasus region," Ambassador Steven
Pifer told a hearing of the Commission for Security and Cooperation in
Europe (CSCE) May 9 in Washington.
Pifer, the deputy assistant secretary of state for European and
Eurasian affairs, said the United States remains committed "to doing
all that we can to bring about an end to this conflict and to relieve
the suffering of the civilian population."
"Our objectives for Chechnya today are the same as they have been in
the past. We seek a political settlement that will end the fighting,
promote reconciliation, and recognize the territorial integrity of the
Russian Federation.
"We also seek accountability for human rights abuses committed by all
sides, and unimpeded access to the displaced by humanitarian
organizations," Pifer told the CSCE, which is also known as the
Helsinki Commission.
He emphasized that the United States does not "ask the Russian
Government to try to reach accord with terrorists" but said "there are
those with whom discussions can be undertaken," pointing specifically
to Aslan Maskhadov as "a leader who has sufficient credibility with
the broader Chechen population to speak for them in a political
dialogue with Moscow."
Taking issue with some media reporting on the situation, he said: "We
have not seen evidence of extensive ties between Chechens and Al-Qaida
in Chechnya, but we have seen evidence of individuals or certain
factions linked to terrorist elements."
"Some Chechen forces with links to international terrorists are
supported through groups operating in the Pankisi Gorge in Georgia,
which borders Chechnya," Pifer acknowledged. "While we agree that the
Russians have a legitimate concern, we have urged them not to take
action themselves," and he described how the United States is helping
to train and equip Georgian military units "so that Georgia will have
the capacity to deal with this problem itself."
Regarding the humanitarian situation in Chechnya, Pifer said that,
while the Russian government has "generally provided" access for the
delivery of relief, several government actions have recently been
taken that put pressure on the displaced to return to Chechnya despite
the lack of improvement in the security situation.
In the area of human rights, Pifer said that, although Russian
officials have acknowledged that Russian soldiers have committed
crimes against civilians, "investigations and prosecutions have not
kept pace with the scope of the human rights violations that have been
reported."
In conclusion, he said that as the United States embraces the
opportunity to develop stronger relations with the Russian Federation
-- referring to the upcoming summit between Presidents Bush and Putin
-- "we do so without compromising our principles and commitments to
promote peace and the strengthening of human rights in Chechnya."
The CSCE is an independent agency of the U.S. government mandated to
monitor and encourage compliance by participating States with the
Helsinki Final Act. It is composed of nine members each from the U.S.
Senate and House of Representatives, and one member each from the
Departments of State, Defense, and Commerce.
Following is the text of Pifer's statement as prepared for delivery:
(begin text)
Department of State
Washington, D.C.
May 9, 2002
STATEMENT OF AMBASSADOR STEVEN PIFER, DEPUTY ASSISTANT SECRETARY OF
STATE FOR EUROPEAN AND EURASIAN AFFAIRS, BEFORE THE CONGRESSIONAL
CONFERENCE ON SECURITY AND COOPERATION IN EUROPE HEARING ON CHECHNYA
MAY 9, 2002
Chairman Nighthorse Campbell, Co-Chairman Smith and CSCE
commissioners, thank you for the invitation to speak today on
Chechnya. The Administration welcomes this opportunity to discuss U.S.
policy on Chechnya and the events of the past several months.
As you all know, the current conflict in Chechnya in a few months will
begin its third year. Coming on the heels of the first conflict in
Chechnya from 1994-1996, this latest conflict has dragged on nearly
twice as long but with a similarly tragic price in human lives,
people's homes, and Chechen society. The casualties mount every day --
for both sides, Chechen and Russian alike -- and the pain and
suffering of innocent civilians resulting from the fighting see no end
in sight. There are few places in the world that have borne such
devastation as Chechnya. Continuation of the conflict not only
constitutes a drain on Russian development and a living nightmare for
innocent Chechens, but it poses a threat to the entire Caucasus
region.
Sadly, this tragic situation shows no signs of ending soon. The
fighting goes on. Russian forces conduct sweeps, sealing towns and
villages and searching house to house for fighters. Often these sweeps
are subsequently followed by reports of the beatings and torture of
civilians, of extortion, or the disappearances of young men. Russian
convoys are ambushed daily by Chechen fighters using landmines, and
Russian blockposts or administrative buildings are often attacked in
hit-and-run raids. Pro-Moscow Chechen administrators are assassinated.
The economy is in shambles. Housing and infrastructure are destroyed,
especially in Grozny where thousands still live, struggling from day
to day in the most difficult conditions.
The United States Government is committed to doing all that we can to
bring about an end to this conflict and to relieve the suffering of
the civilian population. Through our humanitarian assistance programs
and our diplomatic efforts, the United States remains engaged on
Chechnya.
Our objectives for Chechnya today are the same as they have been in
the past. We seek a political settlement that will end the fighting,
promote reconciliation, and recognize the territorial integrity of the
Russian Federation. We also seek accountability for human rights
abuses committed by all sides, and unimpeded access to the displaced
by humanitarian organizations. As we have always done, we are working
toward these objectives in our on-going discussions with the Russian
Government, in concert with our friends and allies, and in partnership
with international and non-governmental organizations.
A Political Settlement
On September 24, 2001 President Putin made a speech describing Russian
readiness to assist the United States in the war on terrorism in the
aftermath of September 11. But he went further on Chechnya, drawing a
distinction between the "historic roots" of the conflict in Chechnya
and the presence of foreign terrorists. We saw in this distinction the
basis for the possibility that talks could begin. We were thus pleased
when on September 25 Chechen leader Maskhadov welcomed President
Putin's speech and opened the door for a political dialogue.
After weeks of jockeying and phone contacts, a face-to-face meeting
between a Russian Government official and a Chechen representative
took place in late November. Unfortunately, there have been no
meetings to follow up on that, and we understand that contacts have
been suspended. But as we have said repeatedly, a political settlement
is the only way that this conflict can be ended, peace and stability
can be returned to Chechnya and the process of rebuilding can be
started. Russian Government officials have noted progress in
re-establishing government structures and say they are working toward
"normalizing" the situation. Without some settlement with those forces
engaged in the fighting, however, we do not believe this will be
enough to end the fighting.
Clearly, the causes and motivations of Chechens fighting the Russians
differ. There are those who see this as a struggle to protect their
homeland. And there are others in Chechnya who have been linked to
international terrorist circles.
We do not ask the Russian Government to try to reach accord with
terrorists. But we do believe that there are those with whom
discussions can be undertaken, such as Mr. Maskhadov -- a leader who
has sufficient credibility with the broader Chechen population to
speak for them in a political dialogue with Moscow. We intend to
continue to make this point to the Russian Government, as we have
consistently in the past, and we encourage our allies to do so as
well. We hope that contacts will be resumed in the near future.
However, while we see some indications of interest on the Russian side
in launching a dialogue, we are not able to offer a reliable
prediction as to when Russian-Chechen political contacts might be
resumed.
At the same time, we have called on Mr. Maskhadov and other moderate
Chechens to disassociate themselves with terrorists. Contrary to some
media reporting, we have not seen evidence of extensive ties between
Chechens and Al-Qaida in Chechnya, but we have seen evidence of
individuals or certain factions linked to terrorist elements. A clear
demonstration by Mr. Maskhadov that he does not maintain such ties is
appropriate as a gesture to show he is a credible interlocutor for the
Russians. And we intend to continue to make that point to the Chechens
as well.
We have taken action on this point. Some Chechen forces with links to
international terrorists are supported through groups operating in the
Pankisi Gorge in Georgia, which borders Chechnya. Last fall, Russian
aircraft conducted several air strikes against the Pankisi Gorge.
While we agree that the Russians have a legitimate concern, we have
urged them not to take action themselves. Instead, we are working with
President Shevardnadze and the Georgian Government to train and equip
Georgian military units, so that Georgia will have the capacity to
deal with this problem itself.
Despite the death of field commander Khattab, an Arab linked to
terrorists and commander of the foreign mujahidin in Chechnya, and the
rumored death of field commander Shamil Basayev, another of those
linked to terrorists, the conflict is likely to continue at its
present level. We believe that more than one thousand Chechen fighters
remain. The Chechens' ability to recruit new fighters is aided in part
by the animosity created by the harsh tactics of Russian security
forces. As we have said repeatedly and continue to believe, there is
no military solution to this conflict.
The Humanitarian Situation
An estimated 300,000 Chechens have been displaced by the fighting.
More than half of the displaced -- 160,000 -- remain in Chechnya. The
displaced account for more a third of Chechnya's estimated population
of 440,000. Of the rest, the largest concentration is in Ingushetiya,
with others in Dagestan and other areas of Russia, or in Georgia,
Azerbaijan or Kazakhstan. The United Nations estimates that 140,000
Chechens are in Ingushetiya now, and 65 percent of them are living in
private homes, with relatives or others who would take them in. The
rest live in camps or spontaneous settlements. These people are
largely dependent on aid provided by the international community.
The United States has been the largest single provider of humanitarian
aid to the North Caucasus. Since 1999 we have contributed more than 30
million dollars, an amount that is roughly a quarter of all aid given
under the United Nation's consolidated humanitarian appeals. In
FY2001, the United States contributed a total of 22.1 million dollars
to the United Nations and its agencies, to the International Committee
of the Red Cross, and non-governmental organizations. Included in that
sum is 9.6 million dollars of monies earmarked by Congress for
American non-governmental organizations to carry out projects in the
region.
Much of contribution has been in the form of food aid, such as wheat,
flour and cooking oil. In FY2001, our funds helped feed 335,000
people. Our contributions also have funded much needed emergency
health care, water and sanitation projects, education and shelter, as
well as mine awareness programs. All of our contributions, except
earmarked funds, are provided directly to the UN and the Red Cross for
distribution through their agencies and implementing partners.
Beyond our contributions, we have assigned a refugee coordinator to
our Embassy in Moscow who works with the international community and
Russian officials in the delivery of our humanitarian assistance and
reporting on further needs. The coordinator is a liaison with
international and non-governmental organizations working in the field
and federal and local governments. The coordinator also serves to
monitor the situation on the ground, to observe the plight of the
displaced and to identify where U.S. assistance programs should best
be targeted.
In the North Caucasus, the security situation makes access to the
region difficult. As you may know, there is a ban on U.S. Government
personnel traveling to the region without the specific permission of
the U.S. Ambassador to Russia. But the priority we place on the
humanitarian situation has required that we send our refugee
coordinator to the region on several trips.
Our policy has emphasized that humanitarian organizations be given the
necessary, unimpeded access to the region to reach the displaced. The
Russian Government has generally provided this access for the delivery
of relief, but there have been occasional problems with changing
administrative requirements and lack of coordination by Russian
federal authorities and the local Chechen administration. The security
situation in Chechnya makes delivery of humanitarian assistance
particularly difficult, however.
We have also stressed in our discussions with the Russian Government
that the return of the displaced to Chechnya be voluntary. Russian
authorities have assured us that is the case, but the local pro-Moscow
Chechen administration has undertaken a campaign to convince the
displaced to return. As long as the security situation shows no
improvement, however, most will not. In addition, Moscow has cut
payments to the government of Ingushetiya that had been used to
support benefits to displaced Chechens. The cuts in food and other
programs in Ingushetiya create pressure on Chechens to return despite
the risky security situation. Finally, the Russian government has
suspended registration of new displaced persons in Ingushetiya since
February 2001, making new arrivals ineligible for social benefits --
food, housing, even education for their children.
Human Rights
The danger to civilians in Chechnya remains our greatest concern. The
human rights situation is poor, with a history of abuses by all sides
and little or no accountability by either. As we discuss in detail in
our most recent human rights report, and as both Russian and
international human rights NGOs have reported, civilians in Grozny and
other towns and villages in areas where there is rebel activity are
subject to security sweeps, or zachistki, by Russian forces.
These sweeps may be planned or occur spontaneously if Russian troops
in the area are attacked. The result is that the village is sealed off
and troops conduct house to house searches, checking identity
documents. Usually, these sweeps are swiftly followed by new reports
of serious human rights abuses, such as summary execution, arbitrary
detention, torture, beatings, or extortion. Frequently, some of those
taken into detention disappear, and sometimes their bodies are found
days later. There are reports of rape. According to the Russian human
rights group Memorial, at least 600 people have disappeared since the
conflict began, although Russian official statistics put the total
reports of disappearances between 1,200 and 2,000.
Russian officials have acknowledged that Russian soldiers have
committed crimes against civilians, but investigations and
prosecutions have not kept pace with the scope of the human rights
violations that have been reported. Russian commanders in Chechnya
have issued orders intended to prevent these abuses. Under these
orders, sweeps may only be conducted with the permission of the
Russian commander in Chechnya, General Moltenskoi. Vehicles are to be
clearly marked, and troops are to identify themselves before entering
homes. Masks are not to be worn. Lists of detainees are to be
circulated to local civilian administrators. But it appears that these
orders have not been effectively implemented. Much more needs to be
done to instill discipline in Russian security forces, to prevent
abuses, and to prosecute those who commit them.
Publicly and privately, we have made this point to the Russian
Government at all levels. As the Secretary said in his recent
testimony before the House and Senate, "We have not forgotten about
Russian abuses of human rights. We raise Chechnya at every
opportunity." The conduct of Russian forces in Chechnya must be
improved. That is why we again supported the resolution on Chechnya
before the United Nations Commission on Human Rights this year. The
rights of the civilian population must be respected. In his recent
State of the Federation speech, President Putin said that "Everyone
resident in Chechnya or originally from there must feel they are full
citizens of the Russian Federation."
The Chechen fighters are not without blame. There have been repeated
attacks on local officials who work for the pro-Moscow Chechen
Administration. The landmines and other explosives fighters have used
against convoys have also wounded, maimed or killed innocent
civilians. There are other reports of kidnapping and execution of
Russian prisoners held hostage. Chechen fighters must also be held to
account.
Chechnya and U.S.-Russian Relations
Russia is cooperating with us in the war on terrorism, and we are
embarked on building a new, more cooperative bilateral relationship.
President Putin has made clear that he sees a partnership with the
United States and the West as the best course for Russia. President
Bush has made clear that partnership with Russia is in our interest.
In just two weeks, Presidents Bush and Putin will meet in Moscow to
discuss how to further strengthen relations between our two countries.
We hope that they will be able to record concrete progress on a number
of parts of the bilateral agenda, including security issues, economic
relations and people-to-people exchanges.
As part of this new relationship, however, there remain issues on
which we disagree. Chechnya is one of those issues, and it is an issue
that we have raised regularly and candidly with the Russians.
President Bush discussed it with President Putin in November, as did
Secretary Powell with President Putin in Moscow in December. In the
last two weeks, Chechnya has figured prominently on the agenda during
Deputy Secretary Armitage's discussions in Moscow with Deputy Foreign
Minister Trubnikov and during the meeting last Friday between
Secretary Powell and Foreign Minister Ivanov. As we embrace this
opportunity we now have to build a stronger relationship with Russia,
we do so without compromising our principles and commitments to
promote peace and the strengthening of human rights in Chechnya.
(end text)
(Distributed by the Office of International Information Programs, U.S.
Department of State. Web site: http://usinfo.state.gov)
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