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Alma-Ata Protocol

The Alma-Ata Protocol, formally the Protocol to the Agreement on the Establishment of the Commonwealth of Independent States, was signed on 21 December 1991 in Alma-Ata (now Almaty), Kazakhstan, by representatives of eleven former Soviet republics, thereby expanding the initial Commonwealth of Independent States (CIS) framework agreed upon days earlier in Belovezha and confirming the USSR's dissolution as a geopolitical entity.^[1]^[2] The signatories included Armenia, Azerbaijan, Belarus, Kazakhstan, Kyrgyzstan, Moldova, the Russian Federation, Tajikistan, Turkmenistan, Ukraine, and Uzbekistan, each affirming their commitment to the CIS as a loose association for coordinating economic, foreign policy, and security matters without supranational authority.^[3]^[4] The protocol explicitly stated that the USSR had ceased to exist as a subject of international law and as a geopolitical reality, designating the Russian Federation as the continuing state for USSR's international obligations, including UN Security Council membership and nuclear arsenal control.^[5]^[2] It also enshrined the inviolability of existing borders among the new states as they stood at the moment of independence, a provision rooted in uti possidetis principles but later contested in ethnic conflicts such as those in Nagorno-Karabakh and Transnistria.^[6]^[7] This agreement marked the formal endpoint of the Soviet era, enabling the rapid emergence of sovereign states while attempting to mitigate chaos through CIS mechanisms for joint command of strategic forces and economic ties, though the organization's effectiveness waned amid diverging national interests and geopolitical realignments in subsequent decades.^[8]^[5]

Historical Context

The Soviet Political Crisis of 1991

The Soviet political crisis of 1991 stemmed from profound economic failures under Mikhail Gorbachev's perestroika reforms, which disrupted the command economy without establishing viable market mechanisms. Intended to enhance efficiency through limited decentralization and enterprise autonomy, perestroika instead triggered acute shortages of food, consumer goods, and raw materials, as production incentives faltered amid disrupted supply chains and hoarding. Gross national product declined by approximately 13 percent in 1991 compared to 1990, reflecting stalled industrial output and agricultural shortfalls that left urban populations queuing for basics. Inflation, officially understated due to price controls, effectively exceeded 160 percent, eroding savings and fueling public alienation from central planning's rigidities.^[9]^[10]^[11] Compounding these woes was the "parade of sovereignties," a cascade of republican declarations asserting primacy of local laws over union statutes, which eroded Moscow's fiscal and administrative control. The Russian Soviet Federative Socialist Republic (RSFSR) initiated this on June 12, 1990, with its Declaration of State Sovereignty, proclaiming resource ownership and legislative supremacy within its territory; Ukraine followed on July 16, 1990, and by mid-1991, nine of fifteen republics had issued similar proclamations, often redirecting taxes and exports away from the center. These actions, motivated by ethnic nationalism and economic self-preservation, created a causal breakdown in inter-republic coordination, as union ministries lost leverage over republican executives like Boris Yeltsin in Russia.^[12]^[13] A March 17, 1991, union-wide referendum sought to gauge support for retaining the USSR as a "renewed federation of equal sovereign republics," yielding 76.4 percent approval among participating voters—equivalent to 113 million yes votes—despite boycotts by six republics (Armenia, Georgia, Estonia, Latvia, Lithuania, and Moldova). In the RSFSR, turnout reached 75.2 percent with 71.3 percent yes, underscoring empirical public preference for reformed unity over fragmentation. Yet republican leaders, including Yeltsin, dismissed the results to advance sovereignty agendas, revealing a disconnect wherein elite maneuvers for autonomy prevailed over expressed popular will, further delegitimizing Gorbachev's authority.^[14]^[15] The crisis culminated in the August 19–21, 1991, coup attempt by hard-line State Committee on the State of Emergency members, who isolated Gorbachev in Crimea to halt his planned union treaty devolving powers to republics. Yeltsin, from the RSFSR's White House, condemned the plotters, mobilized crowds and defecting military units, and issued decrees assuming control of Russian forces, exposing the coup's internal divisions and minimal elite backing. Its swift collapse—marked by zero casualties from resistance and the plotters' surrender—irrevocably weakened Gorbachev, prompting his Communist Party resignation on August 24 and Yeltsin's seizure of party assets, thereby empowering republican separatism and central paralysis.^[16]^[17]

Belavezha Accords and Initial CIS Formation

On December 8, 1991, the leaders of Russia, Ukraine, and Belarus—Boris Yeltsin, Leonid Kravchuk, and Stanislav Shushkevich, respectively—convened at the Viskuli residence in the Belovezhskaya Pushcha nature reserve in Belarus to negotiate the future of the Soviet Union amid escalating separatist pressures.^[18]^[19] The resulting Belavezha Accords consisted of three documents: the Agreement on the Establishment of the Commonwealth of Independent States (CIS), a protocol on strategic forces, and the Alma-Ata Declaration, which collectively proclaimed that the USSR "as a subject of international law and a geopolitical reality no longer exists" and established the CIS as a loose association of sovereign states committed to cooperation in economic, foreign policy, and security matters without supranational authority.^[1]^[20] The CIS framework emphasized voluntary membership, equal rights among participants, and openness to accession by other former Soviet republics, explicitly excluding centralized governance structures that had characterized the USSR.^[21] The accords deliberately limited initial participation to the three signatories, reflecting their shared stance against preserving the Soviet federation following Ukraine's recent independence referendum, while proposing an expansion mechanism by inviting the remaining eight republics to a summit in Alma-Ata (Almaty), Kazakhstan, to broaden the CIS framework.^[22] This exclusion underscored the accords' role as a foundational act driven by the largest republics' leaders, who prioritized national sovereignty over Gorbachev's ongoing efforts to salvage a reformed union via a new treaty.^[23] Soviet President Mikhail Gorbachev vehemently opposed the accords, denouncing them as unconstitutional and a "coup" that undermined his authority without parliamentary ratification or broader consultation, while he continued advocating for a voluntary union treaty to retain elements of economic and military integration.^[24]^[25] Gorbachev's resistance highlighted underlying elite conflicts over power distribution, as the signatories effectively sidelined the central Soviet executive in favor of republican autonomy, though he lacked the military or political leverage to enforce reversal after the August 1991 coup weakened his position.^[26]^[23] Immediate reactions included Yeltsin's notification to U.S. President George H. W. Bush, affirming the USSR's dissolution, which accelerated international recognition of the new arrangement.^[18]

The Alma-Ata Summit

Convening the Meeting

Following the signing of the Belavezha Accords on December 8, 1991, by the presidents of Russia, Ukraine, and Belarus, which declared the dissolution of the Soviet Union and established the Commonwealth of Independent States (CIS) among those three republics, efforts immediately turned to broadening participation to avert further fragmentation.^[27] The Alma-Ata summit was convened in Almaty, Kazakhstan, on December 21, 1991, hosted by Kazakh President Nursultan Nazarbayev, whose republic had not been part of the initial agreement but sought to play a central role in the post-Soviet transition.^[5] This location was chosen to facilitate attendance from Central Asian leaders and to symbolize inclusivity beyond the Slavic core.^[28] The three Belavezha signatories—Russian President Boris Yeltsin, Ukrainian President Leonid Kravchuk, and Belarusian leader Stanislav Shushkevich—extended invitations to the presidents of eight other former Soviet republics: Armenia, Azerbaijan, Kazakhstan, Kyrgyzstan, Moldova, Tajikistan, Turkmenistan, and Uzbekistan.^[29] Yeltsin, in particular, exerted diplomatic pressure to secure their endorsement, viewing widespread adherence as essential to legitimizing the CIS framework and preventing unilateral secessions that could exacerbate regional instability.^[30] Prior coordination among Central Asian states, including a December 12 meeting in Ashgabat, Turkmenistan, had already inclined several toward joining, smoothing the path for the summit.^[28] The rapid organization of the meeting, just 13 days after Belavezha, was driven by the acute urgency to fill the power vacuum left by the USSR's impending collapse, particularly concerning the allocation of Soviet military command, nuclear weapons control, and shared economic assets.^[31] Without prompt multilateral agreement, risks of conflicting claims over strategic resources and borders loomed large, potentially leading to chaos in the vast post-Soviet space.^[27] The summit's logistical setup emphasized efficiency, convening leaders for a single day of deliberations to produce the Alma-Ata Protocol, which would integrate the invitees into the CIS structure.^[5]

Participants and Key Signatories

The Alma-Ata summit on December 21, 1991, convened leaders from eleven former Soviet republics to sign the protocol expanding the Commonwealth of Independent States (CIS), originally formed by Russia, Ukraine, and Belarus via the Belavezha Accords. The participating republics were Armenia, Azerbaijan, Belarus, Kazakhstan, Kyrgyzstan, Moldova, the Russian Federation, Tajikistan, Turkmenistan, Ukraine, and Uzbekistan.^[3]^[7] Key signatories included Boris Yeltsin, President of Russia, who advocated for the USSR's dissolution; Leonid Kravchuk, President of Ukraine; Stanislav Shushkevich, Chairman of the Supreme Soviet of Belarus; and Nursultan Nazarbayev, President of Kazakhstan, who hosted the summit and facilitated consensus among the diverse republics. Other leaders present were Levon Ter-Petrossian (Armenia), Ayaz Mutalibov (Azerbaijan), Askar Akaev (Kyrgyzstan), Mircea Snegur (Moldova), Rahmon Nabiyev (Tajikistan), Saparmurat Niyazov (Turkmenistan), and Islam Karimov (Uzbekistan).^[1]^[29] Notably absent were Soviet President Mikhail Gorbachev, whose authority had been undermined by the republics' actions, and representatives from the three Baltic states—Estonia, Latvia, and Lithuania—which had asserted independence earlier in 1991 and declined participation. Georgia also did not attend, citing internal political instability, including a coup against President Zviad Gamsakhurdia. These absences underscored the republics' de facto assertions of sovereignty outside central Soviet control.^[32]^[33] The signatories represented divergent interests: leaders from resource-rich Central Asian states like Kazakhstan and Uzbekistan prioritized economic linkages to mitigate post-Soviet disruptions, while Yeltsin and Kravchuk emphasized rapid independence from union structures to consolidate national authority.^[28]

Provisions of the Protocol

Declaration on USSR Dissolution

The Declaration on the USSR Dissolution, incorporated into the Alma-Ata Protocol signed on December 21, 1991, by leaders of eleven former Soviet republics, explicitly stated that the Union of Soviet Socialist Republics ceased to exist as a subject of international law and as a geopolitical reality effective from that date.^[3] This core assertion marked the formal termination of the Soviet federal structure, which had been maintained through constitutional mechanisms that subordinated republican sovereignty to central authority in Moscow.^[34] The declaration's language underscored the republics' exercise of self-determination, dissolving the compulsory union and establishing independent states unbound by prior federal obligations.^[1] In its preamble, the declaration affirmed the signatory states' commitment to constructing democratic, law-governed entities with relations predicated on mutual recognition of sovereignty, equality, and non-interference in internal affairs.^[3] This framework reflected a causal shift from enforced unity to voluntary association, recognizing that the USSR's persistence relied on the republics' acquiescence rather than inherent perpetuity.^[35] By declaring the USSR's non-existence, the document invalidated its claims to continuity as a unified entity, prioritizing the empirical reality of republican independence over nominal federal continuity.^[34] The declaration further pledged adherence to the principle of non-use of force in interstate relations and respect for territorial integrity based on borders as they existed on the date of the USSR's dissolution in 1991.^[3] This commitment aimed to stabilize post-Soviet geography by anchoring boundaries to the status quo at the moment of state formation, thereby mitigating risks of revisionist claims grounded in historical or ethnic pretexts.^[1] Such provisions derived from first-principles of sovereignty, where newly independent states define their integrity through mutual agreement rather than inheritance from a defunct union.^[35]

Establishment of the CIS

The Alma-Ata Protocol, signed on December 21, 1991, by the heads of state of eleven former Soviet republics—Armenia, Azerbaijan, Belarus, Kazakhstan, Kyrgyzstan, Moldova, the Russian Federation, Tajikistan, Turkmenistan, Ukraine, and Uzbekistan—formalized the expansion of the Commonwealth of Independent States (CIS) beyond its initial three founding members from the Belavezha Accords.^[3]^[4] This protocol defined the CIS as a voluntary association of sovereign states committed to cooperation in economic, political, and security matters without any delegation of sovereign authority to a supranational entity.^[3]^[8] The foundational principles underscored equal sovereignty, territorial integrity, non-interference in internal affairs, and resolution of disputes through peaceful means, explicitly rejecting any structure that could impose centralized control or erode national independence.^[3]^[4] Coordinating bodies were established, including the Council of Heads of State as the supreme political authority and the Council of Heads of Government for executive coordination, but these operated solely on consensus-based decisions without enforcement powers or obligatory compliance mechanisms.^[3]^[1] This design limited the CIS to facilitative roles, such as joint consultations on foreign policy alignment and economic space development, ensuring participation remained optional and reversible.^[4]^[36] Objectives focused on fostering an integrated economic framework to promote free movement of goods, services, capital, and labor, alongside coordinated approaches to defense and human rights protection, all while prioritizing the preservation of democratic governance and international peace without compromising state autonomy.^[3]^[37] The emphasis on voluntary engagement was intended to mitigate risks of supranational overreach, reflecting the signatories' intent to maintain full control over domestic and foreign policies post-Soviet dissolution.^[4]^[36] The protocol's provisions thus positioned the CIS as a loose confederation, distinct from federal or union models, with institutional weaknesses—such as the absence of a permanent secretariat or judicial oversight—reinforcing its role as a forum for dialogue rather than a binding alliance.^[3]^[1] This framework facilitated initial post-Soviet coordination on practical issues like border management and trade, but its non-coercive nature ensured no member was compelled to align policies against national interests.^[4]^[37]

Agreements on Military and Security Coordination

The Alma-Ata Declaration, adopted on December 21, 1991, by the leaders of eleven former Soviet republics, committed to preserving the allied command over military-strategic forces and maintaining unified control over nuclear weapons to ensure continuity and prevent proliferation risks.^[3] This arrangement placed strategic nuclear forces under temporary joint command of the Commonwealth of Independent States (CIS), with operational decisions on their use vested in the President of the Russian Federation, requiring agreement from the heads of state of Belarus, Kazakhstan, and Ukraine, alongside consultations with other members.^[7] Nuclear arsenals located in Ukraine, Belarus, and Kazakhstan remained subject to this unified command, with specific timelines established for the dismantlement of tactical nuclear weapons by July 1, 1992, and strategic ones in Ukraine by the end of 1994, emphasizing coordinated disarmament to avoid unilateral actions that could destabilize regional security.^[7] Concurrent with the declaration, signatories affirmed the right of each republic to form its own national armed forces while pledging coordination of general-purpose forces and border troops to avert post-dissolution chaos, such as unauthorized deployments or breakdowns in command structures.^[7] To facilitate this, I. Ya. Kalinichenko was appointed as Commander-in-Chief of the CIS Border Troops, with mechanisms for their operation to be developed within two months in alignment with national legislations.^[7] Procedures for controlling conventional armed forces were to be finalized within the same timeframe, supporting a transitional framework that balanced sovereignty with collective security needs.^[7] The agreements further outlined coordinated policies on international security, disarmament, and arms control through CIS bodies, including councils of heads of state and government, without subordinating national militaries to a supranational authority.^[3] States expressing intentions for non-nuclear or neutral status were to be respected, underscoring the provisional nature of these pacts as a bridge from Soviet-era structures to independent defense postures.^[3] These provisions effectively positioned Russia to assume primary responsibility for nuclear stewardship, given its territorial concentration of command facilities and expertise, while allowing other republics to build distinct military capabilities.^[7]

Ratification and Immediate Aftermath

Domestic Legislative Processes

The parliaments of the signatory republics ratified the Alma-Ata Protocol and its associated declarations with notable procedural efficiency in late December 1991, reflecting broad elite consensus amid the USSR's collapse, though not without pockets of resistance from conservative factions. In Russia, the Supreme Soviet endorsed the protocol's provisions on December 24, 1991, by a substantial majority, overcoming objections from hardline communists who argued it undermined Soviet unity; the vote aligned with prior ratification of the Belavezha Accords on December 12. Similarly, in Belarus, the Supreme Soviet had swiftly approved the foundational Belavezha framework on December 10, extending support to the Alma-Ata expansions without significant delay or debate, underscoring the initiating republics' alignment.^[6]^[28] Ukraine's legislative process drew legitimacy from the preceding independence referendum on December 1, 1991, where 90.32% of participants—over 28 million voters—affirmed sovereignty, contrasting with Belarus's executive-driven pace and providing a popular mandate for Verkhovna Rada endorsement of the protocol by December 26. This referendum's overwhelming approval, including majorities in Russian-speaking regions, facilitated parliamentary acquiescence to CIS coordination despite lingering pro-union sentiments among some deputies. Other republics, such as Kazakhstan and Uzbekistan, followed suit with prompt supreme soviet approvals in the days following the signing, often by lopsided margins exceeding 90%, enabling coordinated implementation of border and asset provisions.^[38]^[39] Turkmenistan presented minor procedural hurdles, as its supreme soviet, under President Saparmurat Niyazov, ratified the protocol amid internal consolidation of power but later eschewed deeper CIS commitments, prioritizing declared neutrality; this reflected cautious domestic politics rather than outright rejection, with initial compliance ensuring protocol activation across the 11 states. Uzbekistan and Kyrgyzstan parliaments navigated analogous elite debates but achieved ratification without derailing the process, marked by high vote tallies and minimal public dissent. These domestic approvals, varying in enthusiasm yet uniformly effective, activated the protocol's framework by early 1992, averting legal vacuums in post-Soviet governance.^[40]

Gorbachev's Resignation and Formal USSR Termination

Following the Alma-Ata Protocol signed on December 21, 1991, by leaders of 11 Soviet republics declaring the USSR had ceased to exist and establishing the Commonwealth of Independent States (CIS), Mikhail Gorbachev's attempts to negotiate a new union treaty proved futile, as the protocol's provisions rendered the Soviet central authority obsolete.^[41] On December 25, 1991, Gorbachev delivered a televised address to the Soviet people, announcing his resignation as President of the USSR effective immediately, stating that a policy of dismembering the country had prevailed despite his opposition, and that he could no longer influence events as the republics pursued independent paths.^[42] In the speech, Gorbachev explicitly referenced the Alma-Ata meeting as the point at which he ceased his activities in the presidential post, emphasizing the irreversible nature of the dissolution while handing control of strategic nuclear forces to Russian President Boris Yeltsin via a formal order.^[42] The following day, December 26, 1991, the Supreme Soviet of the USSR convened in its final session, where the upper chamber—the Soviet of the Republics—voted unanimously to dissolve all union-level institutions, thereby formally terminating the existence of the Soviet state.^[41] This legislative act ratified the de jure end initiated by the Alma-Ata signatories, with no viable opposition remaining after the protocol's broad republican endorsement.^[43] With Gorbachev's resignation and the Supreme Soviet's dissolution, executive authority over residual Soviet functions transferred directly to Yeltsin as President of the Russian Soviet Federative Socialist Republic (RSFSR), which had already positioned itself as the administrative successor through prior decrees assuming control of non-military central operations.^[41] This handover ensured continuity in governance, with Russia inheriting the USSR's domestic apparatus, including the presidential powers Gorbachev vacated, amid the rapid decentralization triggered by the Alma-Ata framework.^[42]

Legal and International Dimensions

Recognition of 1991 Borders

The Alma-Ata Protocol, signed on December 21, 1991, by the leaders of eleven former Soviet republics—Armenia, Azerbaijan, Belarus, Kazakhstan, Kyrgyzstan, Moldova, Russia, Tajikistan, Turkmenistan, Ukraine, and Uzbekistan—explicitly affirmed the inviolability of the existing borders among these states, transforming the internal administrative boundaries of the USSR into international frontiers.^[3]^[4] This clause stated: "recognizing and respecting each other's territorial integrity and the inviolability of the existing borders," providing a foundational legal commitment to border stability amid the USSR's dissolution.^[35] This recognition served as a bulwark against irredentist claims that could have fragmented the post-Soviet space further, establishing de jure boundaries based on the 1991 administrative lines inherited from the Soviet era.^[6] In practice, it has been invoked in territorial disputes, such as the Nagorno-Karabakh conflict, where the signatories' commitment upheld Azerbaijan's control over the region's 1991 borders despite ethnic tensions.^[44] The protocol's border affirmation, endorsed by multiple states, lent multilateral legitimacy to these lines, countering unilateral revisionism and aligning with principles of territorial integrity under international law.^[45] Empirically, the clause contributed to averting immediate widespread border wars in the early 1990s by deterring large-scale revanchist actions and fostering diplomatic resolutions over armed annexations, though it did not eliminate localized conflicts or frozen disputes in areas like Transnistria and Abkhazia.^[46] Over time, adherence to these borders has underpinned bilateral delimitation efforts, as evidenced by recent references in Armenia-Azerbaijan talks, where the 1991 lines form the baseline for negotiations.^[47] While tensions persisted due to ethnic and historical factors, the protocol's framework initially stabilized the geopolitical map, preventing a cascade of territorial revisions that might have ensued without such collective endorsement.^[48]

Debate on USSR Successor State

The Alma-Ata Protocol, signed on December 21, 1991, by representatives of eleven former Soviet republics, declared the USSR ceased to exist as a subject of international law and affirmed the equal sovereignty of each signatory state, with collective responsibility for the USSR's international obligations but without designating a single successor entity for institutional memberships like the United Nations.^[3] Despite this framework of equality, Russian President Boris Yeltsin unilaterally notified UN Secretary-General Javier Pérez de Cuéllar on December 24, 1991, that the Russian Federation would continue the USSR's membership, assuming all rights and obligations under the UN Charter, including the permanent seat on the Security Council.^[49] The UN Secretariat circulated this notification to member states, and the Russian delegation seamlessly occupied the Soviet seat without formal objection or procedural challenge from the General Assembly or Security Council, effectively endorsing continuity by acquiescence.^[32] This assumption of continuity has faced counterarguments emphasizing the absence of a singular successor under the protocol's terms. Ukrainian officials, particularly in statements post-2022, have contended that the protocol's dissolution of the USSR required all former republics to apply anew for UN membership, rendering Russia's notification an invalid substitution rather than legitimate inheritance, as no provision in the Belavezha Accords or Alma-Ata Protocol explicitly granted Russia exclusive continuator status.^[50] Some international legal scholars support this view, arguing that the multilateral dissolution created multiple co-successors, with Ukraine and Belarus—already UN members as Soviet republics—highlighting the multipolar nature of succession and questioning the legality of unilateral continuity claims absent multilateral consent or UN Charter amendment.^[51] These perspectives draw on Vienna Convention principles on state succession, positing that full dissolution precludes automatic continuity for any one entity without explicit agreement. In practice, however, the UN's acceptance reflected pragmatic considerations for global stability, as fragmenting the USSR's permanent seat among fifteen republics risked paralyzing Security Council functions, complicating control over the USSR's nuclear arsenal concentrated in Russia, and disrupting continuity in treaty obligations where Russia held 76% of the territory and over 50% of the population.^[51] This de facto recognition prioritized operational continuity over strict legal formalism, a pattern in international practice for avoiding institutional vacuums during state transformations, though it has been critiqued for bypassing democratic validation among successor states.^[52] The debate persists in scholarly and diplomatic circles, particularly amid Russia's post-2014 actions, but the unchallenged occupation since 1991 underscores the binding effect of UN acquiescence in matters of representation.^[32]

Controversies and Criticisms

Legality and Democratic Legitimacy

The Alma-Ata Protocol of December 21, 1991, extended the Belavezha Accords by incorporating eleven republics into the Commonwealth of Independent States, effectively dissolving the USSR through decisions made by republican leaders and ratified by their respective legislatures, without holding a subsequent USSR-wide referendum to affirm the breakup.^[1] This process relied on parliamentary approvals amid acute economic crisis and post-August 1991 coup instability, bypassing broader public consultation at the federal level.^[27] Critics, including former USSR President Mikhail Gorbachev and communist legislators, condemned the accords as a hasty and unconstitutional maneuver that ignored the March 17, 1991, referendum, in which 76.4 percent of participating voters across nine republics endorsed preserving the USSR as a renewed voluntary federation of sovereign states.^[53] Although Article 72 of the 1977 USSR Constitution permitted republics to secede freely, it outlined no mechanism for the Union's collective dissolution, and a 1990 law required secession referendums within republics—procedures not uniformly followed for the federal entity's termination, prompting claims of procedural illegitimacy.^[54]^[55] Gorbachev specifically argued that the elite-driven accords breached the popular will expressed in the earlier vote, undermining democratic legitimacy.^[53] Despite these flaws, the top-down approach facilitated a relatively orderly transition, averting the scale of violence seen in Yugoslavia's dissolution, where ethnic conflicts from 1991 onward resulted in over 100,000 deaths and millions displaced.^[56]^[57] Empirical outcomes indicate lower human costs in the USSR's case, as centralized military subordination to Russia and lack of entrenched inter-republican armed forces prevented widespread civil war, prioritizing stability over exhaustive procedural democracy during crisis.^[57]

Handling of Nuclear and Strategic Assets

The Alma-Ata Protocol, signed on December 21, 1991, by leaders of eleven former Soviet republics, established unified control over nuclear weapons and joint command of strategic forces under Russian auspices to maintain international stability.^[3] This arrangement positioned Russia as the sole operator of the Soviet nuclear arsenal, with non-Russian republics agreeing not to claim independent control, thereby averting immediate proliferation risks amid the USSR's dissolution.^[58] Ukraine, Belarus, and Kazakhstan inherited portions of the Soviet strategic nuclear forces—Ukraine possessing approximately 1,900 warheads, making it temporarily the third-largest nuclear power globally; Belarus around 81 warheads; and Kazakhstan about 1,410 warheads—yet committed to denuclearization through the 1992 Lisbon Protocol to the START I Treaty, which required their accession to the Nuclear Non-Proliferation Treaty as non-nuclear states.^[59] Transfers of tactical and strategic weapons to Russia for dismantlement proceeded, with Ukraine completing its handover by 1996, Belarus by 1996, and Kazakhstan by 1995, facilitated by U.S. Cooperative Threat Reduction programs that provided funding and technical assistance.^[28] The 1994 Budapest Memorandum formalized these commitments, with Russia, the United States, and the United Kingdom extending security assurances to Ukraine, Belarus, and Kazakhstan in exchange for their relinquishment of nuclear arms and adherence to non-proliferation norms; the document affirmed respect for their sovereignty and borders while promising to refrain from force or economic coercion.^[59] This process empirically succeeded in consolidating the arsenal under one state and preventing the emergence of additional nuclear powers, though critics argue it centralized formidable destructive capacity in Russia without robust enforcement mechanisms for the assurances, potentially incentivizing future aggression.^[60] Parallel controversies arose over conventional strategic assets, notably the Black Sea Fleet based in Sevastopol, Crimea, where initial post-dissolution claims led to joint operation agreements in 1992 before evolving into a 1997 partition accord allocating 81% of vessels to Russia and 19% to Ukraine, with Russia securing a 20-year lease on base facilities extended to 2042.^[61] These tensions highlighted disputes over naval inheritance but were resolved without escalation, preserving operational continuity while underscoring the challenges of dividing a unified military structure.^[62]

Long-term Impact and Legacy

Geopolitical Realignments

The Alma-Ata Protocol, signed on December 21, 1991, by leaders of eleven former Soviet republics, confirmed the dissolution of the USSR and the emergence of fifteen independent states, fundamentally altering the global geopolitical landscape by ending the bipolar Cold War order centered on U.S.-Soviet rivalry.^[27] This shift enabled a unipolar moment dominated by Western institutions, prompting NATO's eastward enlargement beginning with Poland, Hungary, and the Czech Republic in 1999, followed by seven more states including the Baltic republics in 2004.^[63] Similarly, the European Union expanded to incorporate many post-Soviet states, integrating economies and aligning foreign policies away from Moscow's orbit.^[64] In response, Russia positioned the newly formed Commonwealth of Independent States (CIS)—established concurrently with the protocol—as a mechanism to coordinate defense, economic, and foreign policies among former republics, serving as a buffer against rapid Western encroachment into the post-Soviet space.^[65] The CIS facilitated Russia's retention of influence through collective security arrangements and border controls, though its loose structure limited deeper integration.^[66] This arrangement reflected Russia's initial Eurasian pivot, prioritizing ties with Slavic and Central Asian neighbors over full Western alignment, amid concerns over losing strategic depth post-dissolution.^[67] The protocol's recognition of 1991 administrative borders enabled ethnic self-determination by allowing titular nationalities to form sovereign states, addressing Soviet-era suppressions of national identities that had fueled resentments under forced multiculturalism.^[68] However, the CIS weakened over time, exemplified by Georgia's withdrawal effective August 18, 2009, following Russia's 2008 intervention in South Ossetia and Abkhazia, which Tbilisi cited as aggression by a fellow member state.^[69] This exit underscored fractures in post-Soviet alliances, as diverging orientations—toward NATO/EU for some, Eurasian integration for others—eroded the CIS's buffering role, contributing to a fragmented multipolar order.^[70] Following the dissolution formalized by the Alma-Ata Protocol, the successor states experienced severe economic contraction as centrally planned systems transitioned to markets, with aggregate GDP across the former Soviet republics declining by approximately 40-50% during the early 1990s. In Russia, GDP fell by around 40% from 1991 to 1998, while Ukraine and Azerbaijan saw drops exceeding 60% by 1995, driven by supply chain disruptions, loss of inter-republican trade, and the collapse of state subsidies. This transformational recession stemmed from the abrupt end of inefficient Soviet resource allocation, though it was exacerbated by institutional weaknesses and delayed structural reforms.^[71]^[72] Hyperinflation compounded these shocks, particularly in Russia where annual inflation reached 2,520% in 1992 after price liberalization, eroding savings and wages amid monetary overhang from Soviet-era deficits. Social indicators deteriorated sharply; Russian male life expectancy plummeted from 63.4 years in 1991 to 57.4 years by 1994, attributable to surges in cardiovascular diseases, alcohol-related deaths, and suicides linked to economic stress and weakened public health systems. Crime rates also escalated, with officially reported offenses rising uniformly post-1991 and homicide victimization reaching nearly 30 per 100,000 by 2000, fueled by economic desperation, organized crime's expansion into privatized assets, and the erosion of Soviet-era policing.^[73]^[74]^[75] Privatization programs, intended to foster market efficiency, instead enabled the rapid rise of oligarchs in states like Russia through vouchers and "loans-for-shares" schemes in the mid-1990s, concentrating control of key industries—such as oil and metals—in the hands of a small elite connected to political insiders, often at the expense of broader wealth distribution. This process dismantled communist monopolies but perpetuated inefficiencies via corruption and asset-stripping, hindering equitable entrepreneurship. Nonetheless, it liberated economies from state directives, spurring private initiative in sectors unviable under socialism, though unevenly across states.^[76]^[77] Recovery trajectories diverged markedly by reform speed and resources. Resource-endowed states like Kazakhstan, leveraging oil and gas exports, achieved robust growth in the 2000s after an initial 40% GDP contraction, with commodity booms enabling infrastructure investment and GDP per capita surpassing pre-dissolution levels by the late 2000s. In contrast, the Baltic states—Estonia, Latvia, and Lithuania—pursued aggressive "shock therapy" including rapid liberalization and EU integration, rebounding to growth within two years of independence and sustaining higher rates than the EU average, with Estonia reaching 8.1% growth by 2011 through institutional reforms and foreign investment.^[78]^[79] Debates over shock therapy versus gradualism highlight causal factors in outcomes: empirical evidence indicates faster reformers like the Baltics avoided prolonged stagnation by swiftly dismantling barriers to trade and property rights, whereas gradual approaches in Russia and Central Asia prolonged recessions amid policy reversals and rent-seeking, though resource windfalls mitigated some dependencies in the latter. Central Asian economies, excluding Kazakhstan, remained vulnerable to commodity fluctuations and authoritarian controls, underscoring how escaping Soviet inefficiencies required not just decollectivization but credible institutions to channel entrepreneurship beyond elite capture.^[80]^[81]

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[PDF] UNITED : NATIONS t General Assembly Security Council
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The Alma-Ata declaration - Karabakh.org
Signed by eleven heads of state on December 21, 1991. PREAMBLE. The independent states: The Republic of Armenia, the Republic of Azerbaijan, the Republic of ...
[8]
Protocol to the Agreement establishing the Commonwealth of ...
Dec 21, 1991 · On 8 December 1991, in Minsk, the Republics of Russia, Belarus and Ukraine sign the Treaty establishing the Commonwealth of Independent States (CIS).<|separator|>
[9]
Reversing the Soviet Economic Collapse - Brookings Institution
In 1990, official gross national product had fallen 2 percent relative to 1989. By the first quarter of 1991, GNP had fallen 8 percent relative to a year ...
[10]
Russia Inflation Rate in 1991 - StatBureau
Oct 7, 2019 · Inflation rate in Russia was 160.40% in 1991. It is 2348.44% less than in the following year of 1992. Month over month inflation rate is ...Missing: exact figure
[11]
Why perestroika failed - Niskanen Center
Sep 14, 2022 · Decontrol of prices early in 1992 led immediately to hyperinflation. Over the course of the year, prices rose by more than a factor of 20. The ...
[12]
Eltsin and Russian Sovereignty - Seventeen Moments in Soviet History
Close observers in late 1990 would have noted that declarations of sovereignty came not only from Soviet republics, which were in theory federal subjects ...
[13]
[PDF] The Parade of Sovereignties - CORE
cascade of sovereignty declarations issued by republics of the USSR as well as by autonomous republics and other subunits of the Russian republic, in 1990-1991.
[14]
Russian Referendum Results - Seventeen Moments in Soviet History
Referendum on the Preservation of the Soviet Union . March 17, 1991 ; Altay, Sib West, 77.92 ; Amur, Far East, 76.66 ; Arkhangelsk, North, 73.68 ; Astrakhan, Volga ...
[15]
Referendum in the Soviet Union - CSCE - Helsinki Commission
Mikhail Gorbachev's March 17, 1991 referendum on maintaining the USSR as a “renewed federation” was the first in Soviet, or Russian, history.
[16]
The Collapse of the Soviet Union - Office of the Historian
The unsuccessful August 1991 coup against Gorbachev sealed the fate of the Soviet Union. Planned by hard-line Communists, the coup diminished Gorbachev's ...
[17]
The Moscow coup(s) of 1991: Who won and why does it still matter?
Aug 17, 2021 · The August 1991 coup by hard-line conservatives against the reformist Soviet president, Mikhail Gorbachev, ended in failure after three days.
[18]
The Belavezha Accords signed | Presidential Library
Dec 8, 1991 · 8 December 1991 the heads of the Russian Federation (RSFSR), the Republic of Belarus and Ukraine signed the Agreement on the establishment of the Commonwealth ...
[19]
Three Men in a Forest: Shushkevich Remembers the Meeting that ...
Dec 9, 2016 · BELOVEZH FOREST, BELARUS—December 8, 1991. Signing the Agreement to eliminate the USSR and establish the Commonwealth of Independent States.
[20]
The Belovezha Accords: Not the Worst Option for Soviet Dissolution
Dec 9, 2016 · The Belovezha Accords became a very mild path through the USSR's collapse. They can be viewed as the start of the new post-Soviet Russia's ...
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https://www.encyclopediaofukraine.com/display.asp?linkpath=pages%5CB%5CE%5CBelavezhaAgreement.htm
[22]
The Dissolution of the Soviet Union: Then and Now - Atlantic Council
Nov 21, 2016 · They were written and signed on December 8, 1991, in Belarus's Belovezhskaya Pushcha. Shushkevich told the story of how the accords came to be.
[23]
USSR's death blow was struck 30 years ago in a hunting lodge
Dec 8, 2021 · After signing the agreement, Yeltsin and Kravchuk asked Shushkevich to tell Gorbachev about the deal. Yeltsin also called Soviet Defense ...
[24]
Gorbachev explains why he did not arrest signatories to Belavezha ...
"I think the coup attempt (in August 1991) had most serious consequences," Gorbachev said. Stressing that he was "defending the USSR till the very end," ...
[25]
The Soviet Union Died 30 Years Ago Because Mikhail Gorbachev ...
Dec 12, 2021 · Complained Gorbachev: “What they so hastily and stealthily did in Belavezha was like a plot to kill an injured but still living person by ...
[26]
How three men signed the USSR's death warrant - BBC News
Dec 24, 2016 · The three men had signed a treaty 17 days earlier dissolving the Soviet Union - a momentous decision which appears to have been taken with very little planning.
[27]
History in the Making: The Agreement That Ended the Soviet Union
Dec 7, 2016 · On Dec. 21, the three Belavezha signatories met with the leaders of eight other Soviet republics in Alma-Ata Kazakhstan, and they all signed a ...
[28]
Cooperative Threat Reduction Timeline | Russia Matters
December 21, 1991. The CIS holds a summit in Alma-Ata, Kazakhstan, at which eight more Soviet republics join the grouping: Armenia, Azerbaijan, Kazakhstan ...Missing: convening | Show results with:convening
[29]
Signatories of the agreement enlarging the CIS (Alma-Ata, 21 ...
Dec 21, 1991 · On 21 December 1991, in Alma-Ata (now Almaty), Kazakhstan, the Russian President, Boris Yeltsin, welcomes the signing of the agreement ...
[30]
SOVIET DISARRAY; Broad Turnout for Republics' Summit
Dec 21, 1991 · The broad representation made the Alma-Ata meeting the largest gathering of republic leaders since the failed hard-line Communist coup in ...
[31]
YELTSIN TO CONTROL MOST NUCLEAR ARMS
Dec 21, 1991 · The Alma-Ata agreement effectively deprives Gorbachev of his final symbolic role as the man with ultimate control over the Soviet Union's 27,000 ...Missing: summit pressure
[32]
Russia Takes Over the Soviet Union's Seat at the United Nations - EJIL
The delegation of the Russian Federation took over the Soviet seat in the UN General Assembly, in the Security Council and in other organs of the United ...Missing: Nazarbayev | Show results with:Nazarbayev
[33]
Coup, Gorbachev, 1991 - Soviet Union - Britannica
Of the former Soviet republics, Estonia, Latvia, Lithuania, and Georgia refused to join. Gorbachev resigned as Soviet president on December 25, and all Soviet ...
[34]
[PDF] United Nations Digital Library System
Dec 30, 1991 · The present Protocol forms an integral part of the Agreement establishing the Commonwealth of Independent States. DONE at Alma Ata on 21 ...
[35]
Text of Accords by Former Soviet Republics Setting Up a ...
Dec 23, 1991 · Following are the texts of declarations signed Saturday in Alma-Ata, Kazakhstan, at the formation of the Commonwealth of Independent States.
[36]
Commonwealth of Independent States (CIS) - President of Russia
The Commonwealth's member-states are independent and equal subjects of international law. Interaction between nations within the framework of the Commonwealth ...
[37]
Commonwealth of Independent States (CIS)
The CIS is an association that coordinates the facilitation of free movement of goods, services, labor force, and capital between member states. It also ...
[38]
[PDF] The December 1, 1991 Referendum/Presidential Election in Ukraine
In an historic referendum/presidential election on December 1, 1991, residents of Ukraine overwhelm- ingly voted for independence and chose Leonid Kravchuk, the ...
[39]
Ukrainian Independence Referendum
Ukraine held a referendum on the Act of Declaration of Independence on 1 December 1991. An overwhelming majority of 92.3% of voters approved the declaration.
[40]
Small State Foreign Policy in Central Asia: The Cases of Kyrgyzstan ...
Dec 19, 2022 · Although Turkmenistan was one of the signatories of the Alma-Ata Protocol, the preparatory document of the CIS, it did not ratify the CIS ...
[41]
The End of the Soviet Union 1991 | National Security Archive
Dec 21, 2021 · Gorbachev had been attempting to work out a new Union Treaty for a more decentralized system giving the various Soviet republics more autonomy – ...
[42]
M. S. Gorbachev (1991): Resignation Speech.
Dec 25, 1991 · Addressing you for the last time in the capacity of president of the U.S.S.R. I consider it necessary to express my evaluation of the road we ...
[43]
Dissolution of the USSR | History of Western Civilization II
The Alma-Ata Protocol addressed issues such as UN membership following dissolution. Notably, Russia was authorized to assume the Soviet Union's UN membership, ...
[44]
Commentary on the misinterpretations and manipulations of the ...
Apr 22, 2025 · Recognition and respect for the territorial integrity of the states that signed the Declaration is linked to the inviolability of the borders ...Missing: Protocol | Show results with:Protocol
[45]
Not Yet a Peace Treaty: Understanding the Border Delimitation ...
Apr 22, 2024 · The Alma-Ata Declarations of 1991- the founding declarations and principles of the Commonwealth of Independent States (CIS) after the ...
[46]
The Cost of Russia's Friendship With Azerbaijan
May 7, 2024 · In particular, a consensus that the two sides will seek to agree on a common border based on the Alma-Ata Protocols of 1991 (which regulated the ...<|control11|><|separator|>
[47]
Pashinyan: Alma-Ata Declaration Basis for Peace - ReOpen Media
PM Pashinyan told CIS leaders that the Alma-Ata Declaration is the basis for peace with Azerbaijan. The TRIPP project offers new opportunities.Missing: Almaty | Show results with:Almaty
[48]
Almaty Declaration cannot be considered confirmation of Armenia's ...
Oct 5, 2024 · It is well-known that the provisions regarding respect for territorial integrity and the inviolability of borders, as stipulated in the 8 ...
[49]
Where can I find the letters of 24 December 1991 ... - Ask DAG!
[footnote 5] The Russian Federation did not apply for membership. ... The President of the Russian Federation requested that the name “Russian Federation” be used ...
[50]
Ministry of Foreign Affairs of Ukraine - Statement of the MFA of ...
Dec 26, 2022 · In December 1991, the appeal of the Russian Federation regarding the intention to continue the membership of the USSR in the UN had to be ...
[51]
[PDF] Russia Takes Over the Soviet Union's Seat at the United Nations
Dec 19, 1991 · 4 (December 1991) 49. 7. Georgia attended the Alma-Ata conference as an observer and has not yet joined the Commonwealth of Independent States.Missing: Protocol | Show results with:Protocol
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https://brill.com/display/book/9789004480506/B9789004480506_s005.pdf
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Soviet Collapse Violated the People's Will, Gorbachev Says
Mar 17, 2021 · Mikhail Gorbachev, the last leader of the USSR, believes that the country's collapse was a violation of "the will of the people" and a referendum to preserve ...
[54]
[PDF] CONSTITUTION
Article 5. Major matters of state shall be submitted to nationwide discussion and put to a popular vote (referendum).Missing: dissolution | Show results with:dissolution
[55]
1990 USSR Law on Secession - NKR Office in Washington, DC
Article 1. The procedure of secession of a Soviet Republic from the USSR is conducted in accordance with the Article 72 of the Constitution of the USSR under ...
[56]
The Conflicts | International Criminal Tribunal for the former ...
It is estimated that more than 100,000 people were killed and two million people, more than half the population, were forced to flee their homes as a result of ...
[57]
141. The Violent Dissolution of Yugoslavia: A Comparative ...
Jul 7, 2011 · Combined, these differences help explain the contrast between the violent break-up of Yugoslavia and the peaceful dismemberment of ...
[58]
Tracking Nuclear Proliferation: Nuclear Weapons States: Russia
The legal basis for Russia's sole custody of these weapons was agreed on December 21, 1991, at Alma-Ata (now Almaty), Kazakhstan, where leaders of eleven ...
[59]
Ukraine, Nuclear Weapons, and Security Assurances at a Glance
The protocol sought to return the nuclear weapons in Belarus, Kazakhstan, and Ukraine to Russia. ... Budapest Memorandum on Security Assurances on December 5, ...
[60]
The Budapest Memorandum 1994 After 30 Years: Non-Proliferation ...
Dec 5, 2024 · Budjeryn shows that Ukraine chose denuclearization for many reasons, not least its own sovereignty and international standing, the traumatic ...
[61]
Crimea and the Black Sea Fleet in Russian- Ukrainian Relations
Sep 1, 1995 · In this paper, I discuss the role and significance of the disputes over the Black Sea Fleet and Crimea within the context of Russian-Ukrainian relations.
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Ukraine, Russia, and the Black Sea Fleet Accords, - DTIC
Ukraine and Russia reached an agreement, signed by Ukrainian Prime Minister Pavlo Lazarenko and Russian Prime Minister Viktor Chernomyrdin on May 28, 1997.Missing: dissolution | Show results with:dissolution
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Topic: Enlargement and Article 10 - NATO
Oct 3, 2024 · Since 1949, NATO's membership has increased from 12 to 32 countries through 10 rounds of enlargement. Sweden became the latest country to join ...Aspirant countries · Study on Enlargement · Accession process
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The Evolution of NATO, 1988–2001 - Office of the Historian
The subsequent collapse of the Warsaw Pact and the reunification of Germany ended the threat of Soviet-led invasion that had been the centerpiece of NATO's ...
[65]
Commonwealth of Independent States (CIS) - Britannica
Sep 13, 2025 · The CIS's functions are to coordinate its members' policies regarding their economies, foreign relations, defense, immigration policies, ...
[66]
[PDF] The Commonwealth of Independent States: An Emerging ...
respect for the Member State's sovereignty, the inalienable right of peoples to self- determination rod the right to determine freely their destiny without an ...
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Russia's Evolving Grand Eurasia Strategy: Will It Work?
Since the dissolution of the Soviet Union in 1991, Moscow's principal foreign policy objective was to join the West, as an integral player in Greater Europe and ...Missing: collapse | Show results with:collapse<|separator|>
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[PDF] Self-Determination Movements in the Former Soviet Union
Post-Soviet self-determination movements that can no longer be called “internal matters” suggest a new class of politi- cal entities whose distinct features ...
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Georgia Finalizes Withdrawal From CIS - RFE/RL
Aug 18, 2009 · Georgian President Mikheil Saakashvili announced his intention to withdraw Georgia from the CIS, which he blamed for failing to prevent the ...
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Russia's Strategy to Revitalize the CIS - Geopolitical Futures
Oct 16, 2024 · An emphasis on economic cooperation and conciliation could breathe new life into the post-Soviet organization.
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End of the USSR: visualising how the former Soviet countries are ...
Aug 17, 2011 · GDP fell as much as 50 percent in the 1990s in some republics, Russia leading the race to the bottom as capital flight, industrial collapse, ...
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[PDF] 8-- After the Fall: Building Nations out of the Soviet Union
World Bank estimated that per capita GDP in Azerbaijan fell by about 60 percent from 1989 to 1995. Though much less steep than the income decline in Armenia,.
[73]
Price Liberalization in Russia in: IMF Working Papers Volume 1992 ...
Inflation following the price jump was also relatively high in Russia, remaining in the double digits throughout the first semester of 1992, whereas it subsided ...
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Mortality in Russia Since the Fall of the Soviet Union - PMC
Oct 29, 2021 · Male life expectancy at birth in Russia fell by six years between 1991 and 1994, from an already-low 63.4 years to 57.4 years over that period, ...
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Social structure and homicide in post-Soviet Russia - ScienceDirect
The 2000 overall homicide victimization rate in Russia of nearly 30 per 100,000 residents (Russian Mortality Database, 2003) was among the highest in the world ...Missing: surge | Show results with:surge
[76]
How 'shock therapy' created Russian oligarchs and paved the path ...
Mar 22, 2022 · In the 1990s, reformers adopted a radical economic program in Russia. It devastated ordinary Russians and created a new class of oligarchs.
[77]
The Piratization of Russia: Russian Reform Goes Awry - Wilson Center
The nomenklatura oligarchs were the Soviet economic elites who took advantage of their positions to privatize the industries that they regulated. For example, ...
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Central Asia — twenty-five years after the breakup of the USSR
After a painful transition period, growth picked up in 2000s, largely driven by growing exports of commodities such as oil and natural gas (Kazakhstan, ...
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[PDF] Why Have the Baltic Tigers Been So Successful? - ifo Institut
All three returned to economic growth after only two years of recession and have persistently maintained a much higher growth rate than the rest of the EU ever ...
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(PDF) Shock Therapy versus Gradualism Reconsidered
Aug 10, 2025 · Those economies in the Eastern European bloc that adopted shock-therapy reforms barely achieved the expected economic outcome. Most of them ...
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Central Asian Economies: Thirty Years After Dissolution of the Soviet ...
Aug 30, 2021 · 4 Kazakhstan's economy pulled away from the others and the countries that were poor in oil and gas, Kyrgyzstan and Tajikistan, fell behind; ...