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Bishkek Protocol

The Bishkek Protocol was a ceasefire agreement signed on 5 May 1994 by representatives of the parliaments of Armenia, Azerbaijan, and the self-proclaimed Nagorno-Karabakh Republic, formally halting active hostilities in the First Nagorno-Karabakh War after nearly six years of conflict.^[1]^[2] The protocol, mediated under the auspices of the Commonwealth of Independent States (CIS) Inter-Parliamentary Assembly in Bishkek, Kyrgyzstan, called for an immediate cessation of military actions effective from 10 May 1994, though minor delays occurred in implementation.^[3]^[4] While the agreement succeeded in ending large-scale combat and stabilizing front lines—with Armenian and Nagorno-Karabakh forces controlling the disputed territory and surrounding areas—it did not address core political issues such as the status of Nagorno-Karabakh, leading to a protracted frozen conflict marked by periodic violations and no comprehensive peace treaty.^[5]^[6] Russia played a key brokering role, positioning itself as a mediator, though the ceasefire's fragility was evident in subsequent escalations, including the 2020 Second Nagorno-Karabakh War that ultimately dismantled the de facto independence established post-1994.^[5]^[4] The protocol's legacy includes enabling relative calm for decades but also entrenching territorial disputes without international recognition of Nagorno-Karabakh's independence by any state, including Armenia.^[6]^[5]

Historical Context

Origins of the Nagorno-Karabakh Conflict

The origins of the Nagorno-Karabakh conflict trace to early Soviet nationalities policies in the 1920s, when Bolshevik authorities, under Joseph Stalin's direction as People's Commissar for Nationalities, assigned the ethnically Armenian-majority region of Nagorno-Karabakh to the Azerbaijan Soviet Socialist Republic (SSR) despite its population being approximately 94% Armenian in the 1921 census. This 1923 decision to create the Nagorno-Karabakh Autonomous Oblast within Azerbaijan disregarded local ethnic demographics and Armenian administrative control established briefly after the 1917 Russian Revolution, prioritizing instead geopolitical calculations, including countering Armenian irredentism in neighboring Syunik and fostering alliances with Turkey by bolstering Azerbaijan's territory. Soviet border delimitation often incorporated ethnic minorities into neighboring republics to prevent homogeneous nation-states and maintain central control, sowing latent territorial disputes that would erupt upon the USSR's weakening.^[7]^[8] Throughout the Soviet era, the region's Armenian population—remaining around 75-80% by the 1979 census—faced policies of cultural Russification and Azeri settlement promotion by Baku authorities, which suppressed Armenian identity and economic development while fostering resentment over perceived discrimination. These grievances intensified under Mikhail Gorbachev's perestroika reforms from 1985, which relaxed censorship and enabled nationalist mobilizations; by late 1987, Armenians in Nagorno-Karabakh circulated petitions for administrative reunification with Soviet Armenia, amassing over 75,000 signatures addressed to Gorbachev. On February 20, 1988, the Nagorno-Karabakh Regional Soviet formally voted to secede from Azerbaijan and join Armenia, citing USSR constitutional provisions for self-determination and ethnic cohesion, a resolution echoed by the Armenian SSR Supreme Soviet on July 12, 1988.^[5]^[9] The petition ignited reciprocal ethnic mobilization in Azerbaijan, where opposition to territorial loss framed the issue as a threat to sovereignty, leading to outbreaks of violence including Armenian-Azerbaijani clashes in Armenia's Gugark district in late 1987. Escalation peaked with the Sumgait pogrom from February 27 to 29, 1988, in the Azerbaijani industrial city of Sumgait, where crowds of Azerbaijanis, inflamed by rumors and nationalist agitation, targeted Armenian neighborhoods, killing at least 26 ethnic Armenians and injuring dozens more amid reports of rape, mutilation, and arson, according to Soviet investigations; unofficial Armenian accounts claim over 100 deaths, with Soviet forces delaying intervention for two days. This event, often cited as the conflict's first major ethnic cleansing episode, prompted the exodus of over 100,000 Armenians from Azerbaijan and mirrored pogroms against Azerbaijanis in Armenia, fracturing interethnic coexistence and propelling sporadic skirmishes toward the full-scale First Nagorno-Karabakh War amid the USSR's 1991 dissolution.^[10]^[7]

Escalation to Full-Scale War (1988–1994)

The conflict escalated from ethnic unrest to open warfare following the Nagorno-Karabakh Regional Soviet's adoption of a resolution on February 20, 1988, petitioning for the transfer of the oblast from Azerbaijan to Armenia, which sparked widespread protests and intercommunal clashes across Azerbaijan and Armenia.^[11] This triggered retaliatory violence, including the Sumgait pogrom from February 27 to 29, 1988, during which Azerbaijani mobs systematically attacked Armenian residents in the industrial town of Sumgait, resulting in the deaths of at least 26 to 32 Armenians through beatings, rapes, and arson, with Soviet authorities initially failing to intervene effectively.^[12] Similar pogroms occurred in Gandzak (Kirovabad) in November 1988, exacerbating the exodus of Armenians from Azerbaijan and prompting Armenian self-defense militias to form in Nagorno-Karabakh.^[13] Tensions intensified with the Baku pogrom from January 13 to 19, 1990, where organized mobs targeted Armenian neighborhoods, killing approximately 90 Armenians and displacing nearly all of Baku's 200,000-strong Armenian population amid widespread looting and murder; this violence, occurring against the backdrop of Azerbaijani nationalist fervor and perceived Armenian provocations in Karabakh, culminated in a Soviet military crackdown known as Black January on January 19-20, which killed over 130 Azerbaijani civilians but halted the anti-Armenian attacks.^[14] By mid-1990, Soviet internal troops had deployed to enforce order, but sporadic fighting continued, including Armenian guerrilla operations to secure supply lines. The dissolution of the Soviet Union in December 1991 removed central authority, allowing both newly independent Armenia and Azerbaijan to mobilize regular armies, transforming localized skirmishes into a full-scale interstate war by early 1992.^[5] Armenian forces, bolstered by local Karabakh militias and superior motivation despite initial numerical disadvantages, launched offensives that captured strategic positions, including the Lachin corridor in April 1992 to link Nagorno-Karabakh with Armenia, and the ancient fortress city of Shusha in May 1992, a symbolic blow to Azerbaijani morale.^[11] Azerbaijan's counteroffensives, supported by former Soviet weaponry and mercenaries, faltered due to internal disarray and corruption, enabling Armenian advances into seven adjacent Azerbaijani districts (including Kalbajar, Aghdam, and Fuzuli) by mid-1993, effectively encircling and displacing over 600,000 ethnic Azerbaijanis in what amounted to near-total ethnic cleansing of those territories.^[5] The war inflicted approximately 30,000 deaths on both sides, including 16,000-20,000 Azerbaijani military personnel and civilians, alongside heavy Armenian losses, while generating over 1 million total refugees and internally displaced persons.^[15] ^[5] By spring 1994, battlefield exhaustion and Russian mediation pressure led to truce talks, culminating in the Bishkek Protocol ceasefire on May 12, though underlying territorial grievances persisted without resolution.^[11]

Negotiation Process

Prelude to Bishkek Talks

By early 1994, the First Nagorno-Karabakh War had reached a military stalemate following Armenian forces' capture of Nagorno-Karabakh and seven adjacent Azerbaijani districts, including Kelbajar in April 1993 and Agdam in July 1993, which secured a land corridor to Armenia but exhausted both combatants amid ongoing skirmishes.^[16]^[6] The conflict, which began with ethnic clashes in 1988 and escalated after the Soviet Union's dissolution, had resulted in approximately 30,000 deaths and displaced over a million people by this point, with Azerbaijani forces unable to mount effective counteroffensives due to internal political turmoil, including the 1993 ousting of President Abulfaz Elchibey and the ascension of Heydar Aliyev.^[7] Armenia, meanwhile, faced severe economic strain from blockades and reliance on irregular fighters, prompting mutual recognition that further offensives risked unsustainable losses without decisive victory.^[4] Prior mediation efforts had repeatedly failed to halt the fighting, with over ten ceasefire attempts collapsing since 1992, including the January 1992 Bishkek meeting under Kazakhstani auspices and subsequent OSCE Minsk Group initiatives that stalled amid territorial disputes.^[4] From January to March 1994, small-scale battles persisted along the line of contact, accompanied by parallel diplomatic pushes from Russia and the OSCE, but these yielded only temporary truces violated by both sides' accusations of aggression.^[17] Azerbaijan's fragmented military command and Armenia's defensive consolidation created a "hurting stalemate," where neither could achieve strategic dominance without external intervention, heightening the urgency for a broader agreement.^[18] Russia, leveraging its position as the primary arms supplier to both parties and its influence within the Commonwealth of Independent States (CIS), intensified mediation to prevent regional spillover and assert post-Soviet dominance.^[5] In April 1994, amid fears of Azerbaijani mobilization with Turkish support and Armenian advances toward Fizuli, Russian diplomats coordinated with CIS counterparts to draft a ceasefire framework, culminating in a proposal presented on May 4, 1994, during consultations in Moscow that emphasized immediate halt to hostilities without preconditions on territorial status.^[19] This built on Russia's earlier bilateral engagements, including arms embargoes and shuttle diplomacy, positioning the Bishkek talks as a CIS-endorsed venue in Kyrgyzstan's capital to formalize the truce under neutral auspices.^[17]

Participants, Mediators, and Venue

The Bishkek Protocol was negotiated and initialed on May 5, 1994, by high-level representatives from the Republic of Armenia, the Republic of Azerbaijan, and the self-proclaimed Nagorno-Karabakh Republic, reflecting the three primary belligerents in the First Nagorno-Karabakh War.^[20] The signatories included the parliamentary chairmen Babken Ararktsyan of Armenia, Makhmud Mamedov of Azerbaijan, and Arkady Ghukasyan of Nagorno-Karabakh, who formalized the provisional ceasefire terms following intense military engagements.^[4] This trilateral participation underscored the direct involvement of the conflicting parties without formal recognition of Nagorno-Karabakh's status by Azerbaijan or the international community.^[20] Mediation was led by the Russian Federation, which played a pivotal role in brokering the agreement amid its influence within post-Soviet structures.^[5] Key Russian figures included Defense Minister Pavel Grachev, Foreign Minister Andrei Kozyrev, and special envoy Vladimir Kazimirov, who facilitated the talks and ensured alignment with prior CIS protocols from February 1994.^[20] The process occurred under the broader framework of the Commonwealth of Independent States (CIS), with Russia leveraging its military and diplomatic leverage to halt hostilities, though without resolving underlying territorial disputes.^[21] The venue for the core negotiations and signing of the protocol was Bishkek, the capital of Kyrgyzstan, selected as a neutral site within the CIS hosted by Kyrgyz parliamentary speaker Apas Jumagulov.^[20] This location facilitated rapid convening of delegates, leading to the ceasefire's entry into force at 00:01 on May 12, 1994, after separate ratifications by defense ministers Serzh Sargsyan (Armenia), Makhmud Mamedov (Azerbaijan), and Samvel Babayan (Nagorno-Karabakh) in their respective capitals between May 9 and 11.^[20]^[3] The choice of Bishkek highlighted Kyrgyzstan's emerging role in regional diplomacy, though the agreement's implementation relied heavily on Russian enforcement mechanisms.^[20]

Content of the Agreement

Core Provisions of the Ceasefire

The Bishkek Protocol established a permanent ceasefire effective from 00:01 on May 12, 1994, requiring all parties—Armenia, Azerbaijan, and the Republic of Nagorno-Karabakh—to issue immediate orders halting all military actions, including offensive operations, artillery fire, and troop movements across the line of contact.^[20] This provision aimed to enforce strict observance of the ceasefire regime, with the parties committing to mutual non-aggression and refraining from any escalation that could undermine the truce.^[20] ^[1] Parties were obligated to exchange the full texts of their ceasefire orders by 23:00 on May 12, 1994, to verify compatibility and address potential discrepancies, ensuring coordinated implementation across fronts.^[20] The protocol also mandated the prompt issuance of these orders to subordinate units by May 11, 1994, with an emphasis on verifiable compliance through direct communication channels between military commands.^[20] Beyond the immediate halt to hostilities, the agreement called for Russian mediation to convene an urgent meeting in Moscow no later than May 12, 1994, to negotiate phased troop withdrawals from advanced positions and the potential deployment of international observers along the ceasefire line.^[20] It further targeted the conclusion of a binding, comprehensive cessation-of-hostilities treaty by May 22, 1994, though this deadline was not met, leaving the initial protocol as the operative framework for the indefinite truce.^[20] The provisions deliberately omitted detailed territorial or political resolutions, prioritizing de-escalation over substantive concessions.^[1] Supporting declarations in the protocol endorsed prior CIS statements, including calls for gradual demilitarization, refugee repatriation, and restoration of economic ties, but these were framed as aspirational rather than enforceable ceasefire terms.^[1] The agreement's brevity—lacking mechanisms for verification or penalties—reflected its ad hoc nature amid ongoing hostilities, with enforcement relying on bilateral assurances and external diplomatic pressure.^[20]

Additional Commitments and Omissions

Beyond the immediate ceasefire declaration effective at midnight on May 8–9, 1994, the protocol urged the parties to negotiate a legally binding agreement encompassing several key elements: refraining from any resumption of military or hostile actions; withdrawal of troops from recently occupied territories; restoration of rail, road, and air communications; and the return of refugees to their places of permanent residence.^[1] These provisions extended the agreement's scope to post-ceasefire stabilization measures, implicitly acknowledging the need for phased de-escalation tied to territorial adjustments, though without specifying sequences or deadlines.^[22] Additionally, the signatories suggested that parliaments of CIS member states consider establishing CIS peacekeeping contingents to monitor compliance, an initiative proposed by Russian and Kyrgyz representatives, signaling a commitment to multilateral involvement in enforcement.^[1] The protocol also pledged ongoing inter-parliamentary meetings to facilitate a comprehensive peaceful resolution, framing the ceasefire as a preliminary step toward broader diplomatic engagement aligned with UN Security Council resolutions (822, 853, 874, and 884).^[22] Notably absent were robust enforcement mechanisms, such as independent verification observers or penalties for violations, beyond a vague reference to allocating observers under the prior February 18, 1994, protocol.^[1] The document deferred detailed implementation of troop withdrawals and refugee returns to future negotiations without timelines or modalities, leaving these processes vulnerable to unilateral interpretations.^[22] It omitted any provisions addressing the political status of Nagorno-Karabakh, including self-determination claims or autonomy arrangements, focusing instead on halting hostilities without resolving underlying sovereignty disputes.^[5] Humanitarian aspects, such as immediate aid corridors or demilitarization zones, received no elaboration, and the protocol did not incorporate guarantees from external powers beyond CIS consultative roles, contributing to its reliance on goodwill amid entrenched positions.^[1] These gaps perpetuated a frozen conflict, as subsequent adherence hinged on parallel trilateral understandings rather than the protocol's standalone terms.^[23]

Implementation and Short-Term Effects

Initial Ceasefire Adherence

The Bishkek Protocol, signed on May 5, 1994, by parliamentary representatives and followed by a trilateral ceasefire agreement on May 12, 1994, between Armenia, Azerbaijan, and Nagorno-Karabakh, effectively ended large-scale combat operations in the First Nagorno-Karabakh War after over six years of fighting.^[3]^[17] The agreement stipulated an immediate halt to hostilities along the established line of contact, with no provisions for demilitarization or international monitoring mechanisms, relying instead on mutual compliance and Russian diplomatic pressure.^[24] This initial cessation allowed for a de facto freeze in territorial gains, with Armenian forces controlling Nagorno-Karabakh and surrounding districts, while averting an imminent Azerbaijani counteroffensive that had been underway.^[17] Implementation faced slight delays, as the protocol had called for a ceasefire effective May 9, 1994, but full adherence was not achieved until May 12 amid ongoing negotiations.^[3] By May 17, 1994, U.S. congressional records noted early reports of ceasefire violations, including sporadic artillery fire and infantry probes along the front lines, attributed by each side to the other.^[25] Despite these incidents, no major escalations occurred in the immediate aftermath, with compliance sufficient to prevent resumption of full-scale war; conflict data indicate that battle-related deaths remained below thresholds for classifying the war as active through 1997.^[26] In the ensuing months of 1994 and into 1995, adherence manifested as a reduction in organized offensives but persistent low-intensity violations, such as sniper activity and artillery duels, averaging dozens of incidents monthly according to contemporary monitoring by Russian intermediaries.^[17] Both parties routinely accused one another of initiating breaches—Azerbaijan claiming Armenian provocations to consolidate gains, and Armenia countering with Azerbaijani attempts to test defenses—yet these did not derail the overall truce, which transitioned the conflict into a frozen state.^[24] The absence of verification mechanisms exacerbated mutual distrust, allowing minor transgressions to erode trust without triggering broader confrontation.^[27] This pattern of tenuous observance underscored the protocol's role as a pragmatic halt rather than a durable peace, sustained primarily by exhaustion on both sides and external mediation.^[25]

Territorial and Humanitarian Outcomes

The Bishkek Protocol, effective from May 12, 1994, froze the front lines established during the First Nagorno-Karabakh War, leaving Armenian forces in control of the self-declared Nagorno-Karabakh Republic and seven adjacent Azerbaijani districts: Kalbajar, Lachin, Agdam, Füzuli, Jabrayil, Qubadli, and Zangilan.^[16]^[5] This occupation encompassed roughly 20% of Azerbaijan's sovereign territory prior to the conflict, creating a de facto buffer zone around the disputed enclave without addressing underlying sovereignty claims.^[6] Humanitarian consequences were severe and enduring, with the ceasefire failing to facilitate returns or reparations. Over one million individuals were displaced in total, including approximately 600,000 to 800,000 Azerbaijanis who fled or were expelled from the occupied regions and became internally displaced persons (IDPs) in Azerbaijan proper.^[16]^[28] An estimated 200,000 to 350,000 ethnic Armenians were similarly displaced from other parts of Azerbaijan, contributing to refugee flows into Armenia and Nagorno-Karabakh.^[29] These population movements exacerbated ethnic homogenization in the affected areas, with minimal repatriation occurring in the short term due to persistent insecurity and lack of enforcement mechanisms in the protocol.^[28]

Violations and Erosion

Post-1994 Incidents and Skirmishes

The Bishkek Protocol's ceasefire was violated almost immediately and persistently along the 180-kilometer Line of Contact separating Armenian-controlled territories from Azerbaijani forces, with both sides exchanging sniper fire, mortar rounds, and artillery shells in a pattern of low-intensity attrition warfare.^[5] The OSCE Minsk Group, tasked with monitoring, documented thousands of such incidents annually, though attribution of initiators remained contested as each party blamed the other for provocations amid mutual military buildups and nationalist rhetoric. These skirmishes resulted in steady casualties, averaging dozens of soldiers killed per year through the 2000s and early 2010s, eroding trust and incentivizing trench fortifications reminiscent of World War I frontlines. A notable escalation occurred in March 2008 near Mardakert, where intense clashes involving infantry assaults and heavy weaponry marked the heaviest fighting since 1994, killing at least 10 Azerbaijani and several Armenian/Nagorno-Karabakh soldiers over several days.^[30] Azerbaijani officials attributed the outbreak to Armenian aggression coinciding with post-election unrest in Armenia, while Armenian sources claimed defensive response to Azerbaijani probes.^[30] Between 2008 and 2010, cumulative crossfire and raids claimed 74 lives across both militaries, including a 2010 Azerbaijani incursion attempt repelled with five fatalities. Incidents intensified in the early 2010s, with April 2011 border clashes near Chinarli killing three Nagorno-Karabakh defenders and prompting mutual accusations of sabotage.^[5] By 2014, cross-border violence had surged to around 60 deaths, highlighted by Azerbaijani forces downing an Armenian Mi-24 helicopter with man-portable air-defense systems near the Armenia-Azerbaijan border on November 12.^[31] The most severe pre-2020 flare-up erupted on April 2, 2016, in the so-called Four-Day War, where Azerbaijani offensives captured minor heights and villages like Lele-Tepe, resulting in 200-350 total fatalities and temporary territorial gains before Russian-mediated halt.^[16] Azerbaijan hailed the operation as reclaiming sovereign soil, while Armenia viewed it as aggressive revisionism enabled by oil-funded arms imports, foreshadowing full-scale resumption.^[32] These events underscored the protocol's fragility, as neither side demilitarized disputed areas nor pursued verifiable de-escalation.

Factors Undermining the Protocol

The Bishkek Protocol of May 12, 1994, established a ceasefire without provisions for a comprehensive political settlement, leaving the status of Nagorno-Karabakh unresolved and perpetuating underlying territorial disputes between Armenia, Azerbaijan, and the self-proclaimed Republic of Artsakh.^[33] This omission fostered a frozen conflict dynamic, as neither side conceded on core demands—Azerbaijan's insistence on territorial integrity versus Armenian and Artsakh claims to self-determination—impeding progress in parallel OSCE Minsk Group negotiations that yielded no final agreement over subsequent decades.^[5] Without addressing these fundamentals, the protocol could not transition from truce to enduring peace, allowing revanchist sentiments to build domestically in Azerbaijan amid economic recovery and in Armenia tied to ethnic ties.^[34] Enforcement mechanisms were notably absent or inadequate, with no binding verification regime or international guarantees to deter breaches, rendering the agreement reliant on goodwill amid mutual distrust.^[33] The OSCE Minsk Group's limited monitoring presence—often fewer than a dozen observers along a 200-kilometer line of contact—proved insufficient to prevent or investigate incidents, as evidenced by recurrent sniper fire and artillery exchanges reported annually post-1994.^[34] Russia's role as primary mediator introduced further inconsistencies, as it supplied arms to both parties, including advanced systems to Azerbaijan, which undermined incentives for de-escalation and prioritized Moscow's regional leverage over strict adherence.^[35] Persistent low-intensity violations eroded the protocol's credibility, with over 3,000 ceasefire breaches documented by international monitors between 1994 and 2016 alone, escalating to major clashes like the April 2016 four-day war that killed hundreds and captured strategic heights.^[17] These incidents, including the 2020 Tovuz border clashes, demonstrated a pattern where tactical gains—such as Azerbaijani advances—reinforced perceptions of vulnerability, prompting fortification rather than withdrawal along the line of contact.^[33] Parallel militarization intensified the erosion, as Azerbaijan leveraged post-1994 oil revenues to increase defense spending from $163 million in 2004 to over $2 billion by 2015, acquiring Israeli and Russian weaponry, while Armenia relied on Russian-supplied systems without demobilizing occupied territories.^[36] This arms race, absent protocol-mandated confidence-building measures like troop pullbacks, created a powder keg where perceived imbalances—exacerbated by external patrons like Turkey's support for Baku—rendered the ceasefire a mere pause, culminating in full-scale resumption in 2020.^[5]

Criticisms and Perspectives

Azerbaijani Viewpoint

Azerbaijan viewed the Bishkek Protocol, signed on May 5, 1994, as a pragmatic but temporary cessation of hostilities amid acute military disadvantages during the First Nagorno-Karabakh War, where Armenian forces had occupied not only the disputed Nagorno-Karabakh region but also seven adjacent districts, comprising roughly 20% of Azerbaijan's internationally recognized territory and displacing approximately 600,000 Azerbaijani civilians.^[36]^[37] The agreement, mediated by Russia under CIS auspices and ratified by Azerbaijani Defense Minister Surat Huseynov on behalf of President Heydar Aliyev, established a ceasefire effective May 12, 1994, but Azerbaijan insisted it neither recognized the status quo nor relinquished claims to territorial integrity, aligning with UN Security Council resolutions demanding unconditional Armenian withdrawal (e.g., Resolutions 822, 853, 874, and 884 of 1993).^[3]^[38] From the Azerbaijani standpoint, the protocol's core provisions—such as phased troop pullbacks, prisoner exchanges, and confidence-building measures—were systematically undermined by Armenia's refusal to vacate occupied lands beyond Nagorno-Karabakh, perpetuating a frozen conflict that favored the occupier while Azerbaijan endured economic sabotage and demographic engineering in the liberated areas.^[36] Azerbaijani authorities documented over 35,000 ceasefire violations by Armenian and Nagorno-Karabakh forces from 1994 to 2020, including sniper fire, artillery shelling, and incursions that killed hundreds of civilians and soldiers, contrasting with Azerbaijan's restraint to preserve diplomatic leverage through the OSCE Minsk Group.^[37] President Ilham Aliyev later articulated that Azerbaijan upheld the ceasefire unilaterally for decades, investing oil revenues into military reforms not to initiate aggression but to enforce self-defense rights under Article 51 of the UN Charter when negotiations stalled due to Armenian maximalism.^[39] Azerbaijani analysts and officials critiqued the Russian-brokered deal as imbalanced, enabling Armenia to entrench positions with de facto Russian support via arms supplies and border deployments, while Azerbaijan channeled post-ceasefire stability into national reconstruction, rejecting any settlement conceding sovereignty over Nagorno-Karabakh as historically Azerbaijani soil per Soviet administrative delineations and pre-1918 demographics showing an ethnic Azerbaijani majority.^[38] The protocol's legacy, per this view, underscored the futility of indefinite truces without enforcement, culminating in Azerbaijan's 2020 counteroffensive that reclaimed substantial territories and the 2023 operation restoring full control, vindicating a strategy of patient buildup over premature capitulation.^[37]

Armenian and Artsakh Perspectives

From the perspectives of Armenia and the Republic of Artsakh (Nagorno-Karabakh Republic), the Bishkek Protocol of May 5, 1994, marked the culmination of successful defensive operations against Azerbaijani offensives launched earlier that year, enabling the consolidation of control over Artsakh and seven adjacent districts previously occupied by Armenian forces.^[2] The agreement, formalized by defense ministers including Artsakh's Samvel Babayan alongside Armenia's Serzh Sargsyan and Azerbaijan's Mamedraffi Mamedov on May 12, 1994, was viewed as a pragmatic cessation of active combat that preserved territorial gains without requiring territorial concessions, thereby averting further immediate losses after six years of war that had resulted in tens of thousands of deaths.^[2] Armenian officials praised the protocol as a diplomatic milestone that spared additional lives and institutionalized a trilateral negotiation format involving Armenia, Artsakh, and Azerbaijan, as facilitated by subsequent OSCE frameworks.^[4] Former Armenian Foreign Minister Vahan Papazyan described it as a major achievement, attributing its success to Azerbaijan's military exhaustion and the strategic positioning secured by Armenian and Artsakh forces.^[4] In Artsakh, leaders such as parliamentarian Manvel Sargsyan emphasized the role of a robust local defense army in compelling the ceasefire, framing it as a historic validation of self-defense rights in the post-Soviet context where Artsakh had declared independence amid ethnic violence initiated in 1988.^[4] The protocol was not regarded as a comprehensive peace treaty but an indefinite armistice pending political resolution, particularly Artsakh's status and self-determination claims, with no expiration clause until mutually agreed final terms.^[2] Perspectives highlighted its limitations, including the absence of robust enforcement mechanisms and reliance on Russian mediation, which allowed sporadic violations such as sniper attacks along the line of contact; these incidents persisted, contributing to casualties like the 2010 death of soldier Narek Margaryan and injuries in 2012.^[4] Serzh Sargsyan later defended the signing against domestic critics, asserting that detractors lacked full situational awareness and that holding additional territory was infeasible given logistical and military realities at the time.^[40] Artsakh viewpoints underscored the protocol's affirmation of their direct participation as a belligerent party, reinforcing de facto sovereignty and the buffer zones established to enhance security for frontline communities, though economic hardships and perpetual vigilance remained defining features of the ensuing frozen conflict.^[2]^[4] Overall, both Armenian and Artsakh narratives portrayed the agreement as a necessary pause that bought time for reconstruction and deterrence, while attributing subsequent instability to Azerbaijani non-compliance rather than flaws in the protocol itself.^[4]

Role and Critiques of Russian Mediation

Russia played a central role in mediating the Bishkek Protocol, convening representatives from Armenia, Azerbaijan, and the Nagorno-Karabakh Republic in Bishkek, Kyrgyzstan, on May 4–5, 1994, under the auspices of the CIS Inter-Parliamentary Assembly.^[41] Through its Plenipotentiary Representative Vladimir Kazimirov, head of the Russian Mediation Mission, Russia facilitated the agreement among parliamentary leaders—Arkady Ghukasyan for Nagorno-Karabakh, Mger Ordyan for Armenia, and Isa Gambar for Azerbaijan—alongside Russian endorsement by Federation Council Chairman Vladimir Shumeyko.^[41] The protocol outlined immediate cessation of armed actions, phased withdrawal of forces to pre-offensive positions, prisoner exchanges, and establishment of a ceasefire line, with hostilities formally halting on May 12, 1994, following bilateral confirmations.^[5] This mediation ended the most intense phase of the First Nagorno-Karabakh War, preventing further immediate casualties estimated at over 30,000 dead by war's end.^[5] Critiques of Russia's mediation center on its perceived lack of neutrality and failure to secure a comprehensive settlement. Azerbaijani perspectives, including from officials like President Ilham Aliyev in later reflections, have faulted the protocol for entrenching Armenian control over Nagorno-Karabakh and seven adjacent districts—comprising about 20% of Azerbaijan's territory—without mechanisms for enforcement or status resolution, effectively freezing the conflict in a manner advantageous to Armenia, Russia's CSTO ally.^[42] Russia's arms supplies to both combatants during the war, documented at $940 million to Armenia and $65 million to Azerbaijan from 1993 data by the U.S. government, undermined claims of impartiality, as Moscow provided more advanced weaponry to Yerevan while brokering the truce amid Azerbaijan's military setbacks.^[43] Analysts have argued that Russia's approach prioritized short-term de-escalation over sustainable peace, omitting international oversight like OSCE verification until later and avoiding commitments to demilitarization or refugee returns, which allowed periodic violations—over 3,000 incidents by 2016 per UN estimates.^[44] This positioned Russia as the indispensable regional broker, enhancing its leverage in the South Caucasus without resolving underlying territorial disputes rooted in Soviet-era delineations.^[45] Armenian views, while acknowledging the mediation's role in consolidating battlefield gains, later critiqued Moscow's inaction on violations, though initial reception emphasized Russia's utility in compelling Azerbaijan's acquiescence.^[4] Overall, the mediation's provisional nature, lacking binding arbitration, contributed to the conflict's persistence, with Russia benefiting from sustained dependency rather than incentivizing concessions.

Legacy and Impact

Contribution to Frozen Conflict Dynamics

The Bishkek Protocol, signed on May 5, 1994, and effective from May 12, 1994, halted active hostilities in the First Nagorno-Karabakh War but institutionalized a frozen conflict by failing to resolve core disputes over territorial integrity and self-determination.^[27] This arrangement preserved Armenian forces' control over Nagorno-Karabakh and seven adjacent Azerbaijani districts comprising approximately 20% of Azerbaijan's territory, without a formal peace treaty or mechanisms for refugee repatriation and border demarcation.^[5] The resulting stalemate exemplified post-Soviet frozen conflict dynamics, where ceasefires enforce temporary halts to violence but entrench de facto entities like the self-proclaimed Nagorno-Karabakh Republic, fostering prolonged low-intensity tensions rather than diplomatic closure.^[4] By prioritizing an immediate truce over comprehensive negotiations, the protocol—mediated by Russia through the Commonwealth of Independent States—contributed to a pattern of externally imposed stability that deferred accountability for war crimes, displacement of over 600,000 Azerbaijanis, and economic blockades, allowing both sides to militarize without external enforcement.^[42] Azerbaijan's subsequent military modernization, fueled by oil revenues, and Armenia's reliance on Russian arms supplies exemplified how frozen statuses incentivize arms races and deterrence postures over compromise, with annual military spending in the region exceeding $1 billion by the 2010s.^[5] Russian involvement, while credited with averting total collapse, prioritized geopolitical leverage—evident in the protocol's lack of international verification—over sustainable peace, mirroring dynamics in other post-Soviet disputes like Transnistria and Abkhazia where Moscow-backed truces sustain influence without resolution.^[27] This framework perpetuated a cycle of sporadic violations, including the 2016 Four-Day War that killed hundreds, underscoring the protocol's fragility and its role in normalizing indefinite suspension of sovereignty claims.^[46] Ultimately, the Bishkek arrangement's endurance until Azerbaijan's 2020 offensive demonstrated how frozen conflicts, absent enforced demilitarization or third-party adjudication, accumulate grievances and capabilities for escalation, rendering them latent theaters for proxy influences rather than resolved disputes.^[47]

Influence on Later Peace Efforts and Wars

The Bishkek Protocol's establishment of a ceasefire without addressing core territorial disputes or mechanisms for enforcement created a protracted frozen conflict, which stymied subsequent diplomatic initiatives under the OSCE Minsk Group co-chaired by Russia, France, and the United States.^[5] Negotiations from the mid-1990s onward, including proposals like the 1997 Basic Principles, repeatedly stalled due to Armenia's refusal to relinquish control over occupied territories beyond Nagorno-Karabakh and Azerbaijan's demands for full sovereignty restoration, perpetuating the status quo enshrined by the 1994 agreement.^[48] This dynamic fostered mutual distrust, as the protocol's lack of verification mechanisms allowed over 30,000 ceasefire violations documented between 1995 and 2016, eroding confidence in mediated talks.^[45] The protocol's fragility influenced Azerbaijan's long-term strategy of military modernization and economic leverage from oil revenues, viewing diplomatic stagnation as evidence that force offered a more reliable path to reversing 1994 losses.^[4] Skirmishes, such as the 2016 Four-Day War, tested the ceasefire's limits and highlighted its ineffectiveness, emboldening Azerbaijan to launch the 2020 Second Nagorno-Karabakh War on September 27, which shattered the frozen lines and resulted in the recapture of significant territories like Shusha and Hadrut within 44 days.^[5] Russia's subsequent November 9, 2020, trilateral ceasefire—deploying 1,960 peacekeepers—echoed Bishkek's model but addressed immediate battlefield realities rather than root causes, introducing new enforcement elements like monitoring centers yet failing to prevent further escalations.^[45] By 2023, the protocol's legacy of unresolved grievances culminated in Azerbaijan's September 19 offensive, which dismantled the Republic of Artsakh in 24 hours and prompted the exodus of over 100,000 ethnic Armenians, effectively terminating the de facto independence sustained since 1994.^[5] This outcome underscored how Bishkek's incomplete framework incentivized Azerbaijan to exploit military asymmetries, rendering prior peace efforts like the Madrid Principles obsolete and shifting focus to bilateral Armenia-Azerbaijan talks under frameworks such as the 2022 Almaty Declaration, which prioritizes border delimitation over the Minsk Group's multilateral approach.^[3] The protocol's influence thus transitioned from enabling stalled diplomacy to justifying unilateral military resolutions, highlighting the perils of ceasefires absent binding political settlements.^[4]

References

[1]
[PDF] The Bishkek Protocol - UN Peacemaker
The Bishkek Protocol. 5 May 1994. Participants of the meeting held in. May 4-5 in Bishkek on the initiative of the CIS Inter-Parliamentary.
[2]
The Cease-Fire Agreement - NKR Office in Washington, DC
On May 5, 1994 official delegates from in Azerbaijan, Nagorno Karabakh and Armenia met in the Kyrgyz capital of Bishkek to sign a protocol (the Bishkek Protocol) ...
[3]
Opinion: Bishkek Protocol that established 1994 Karabakh cease ...
May 12, 2024 · The 5 May declaration, known as the Bishkek Protocol, instructed the sides to introduce a ceasefire on 9 May though slight delays followed. A ...
[4]
Twenty Years of Cease-Fire | AGBU
... Nagorno-Karabakh signed what later became known as the “Bishkek Protocol,” which called for a cease-fire effective May 9. The same day, Vladimir Kazimirov ...
[5]
Tensions Between Armenia and Azerbaijan | Global Conflict Tracker
In 1994, Russia brokered a ceasefire known as the Bishkek Protocol, leaving Nagorno-Karabakh de facto independent, with a self-proclaimed government in ...
[6]
Complete Defeat and the End of the Non-Recognized State of ...
Sep 16, 2024 · However, no country, including Armenia, recognized it. The belligerents agreed to a ceasefire in 1994 known as the Bishkek Protocol. Still ...
[7]
Stalin's Legacy: The Nagorno-Karabakh Conflict - ADST.org
The present-day conflict has its roots in the decisions made by Joseph Stalin when he was the acting Commissar of Nationalities for the Soviet Union during the ...
[8]
A Postcard from Nagorno-Karabakh | Origins
Aug 29, 2017 · In February 1921, an anti-Soviet rebellion broke out in the neighboring Armenian region of Syunik. Hoping to crush this rebellion and gain ...
[9]
Karabakh Movement 88: A Chronology of Events on the Road to ...
Jan 26, 2018 · The events of 1988 ... Approximately 75,000 Armenians from Nagorno Karabakh and Soviet Armenia sign a petition addressed to Mikhail Gorbachev.
[10]
EDOC7182 - Parliamentary Assembly of the Council of Europe
On 20 February 1988 deputies from Nagorno-Karabakh appealed to the Supreme Soviet of the USSR to transfer control of Nagorno-Karabakh from Azerbaijan to ...<|separator|>
[11]
Nagorno-Karabakh: The Crisis in the Caucasus
By 1993, Armenian forces had occupied nearly 20 percent of the Azerbaijani territory surrounding Nagorno-Karabakh and expelled hundreds of thousands of ethnic ...Missing: bbc. | Show results with:bbc.
[12]
The Nagorny Karabakh conflict: Origins, dynamics and misperceptions
Dec 17, 2005 · The first major Armenian-Azerbaijani tensions can be traced to the end of the nineteenth century. Armenians and Azerbaijanis were the two major ...Missing: composition | Show results with:composition
[13]
Why Nagorno-Karabakh? The history (both ancient and modern ...
Oct 1, 2020 · ... pogroms, including in the area of Karabakh. During World War I ... In January 1990, in response to a pogrom carried out by Azerbaijani ...
[14]
Baku pogroms
Jan 31, 2020 · commemorate the memory of the Baku pogroms victims;; condemn any manifestation of racism and xenophobia;; reaffirm that crimes against ...
[15]
Nagorno-Karabakh profile - BBC News
Jan 30, 2024 · 1992-94 - First Karabakh war: During the fighting up to 30,000 people are estimated to have lost their lives. Armenians gain control of the ...Missing: 1988-1994 | Show results with:1988-1994
[16]
The Nagorno-Karabakh Conflict: A Visual Explainer
Sep 16, 2023 · Although Russia helped broker a ceasefire on 5 April, ending the worst of the violence, flare-ups continued through 11 April. The escalation ...
[17]
Brief History of Ceasefire in the Nagorno-Karabakh Conflict - Ifimes
Nov 5, 2020 · On 19 September 1992, with the mediation of Russia, defense ministers of Armenia, Azerbaijan, Georgia and Russia signed an agreement in Sochi.<|separator|>
[18]
Is Escalation Necessary for Peace over Nagorno-Karabakh?
Tensions between Armenia and Azerbaijan reached the point of a mutual hurting stalemate in 1994, when the objective ground for ceasefire emerged.
[19]
21 years pass since declaration of ceasefire between Azerbaijan ...
May 12, 2015 · Russia offered Azerbaijan and Armenia to sign an agreement on ceasefire on May 4, 1994. Russia presented the draft agreement on ceasefire at the ...
[20]
Ceasefire Agreement Signed in Bishkek | PA-X
... Bishkek Protocol of May 5, 1994, and based on the Protocol of 18 February 1994, the conflicting Parties agreed on the following: 1. Ensure the full cease-fire ...
[21]
The Paradoxical Role of Mediators in the Armenia-Azerbaijan Conflict
Dec 30, 2023 · Thereby, Russia mediated and brought the two states to an agreement, by signing the Bishkek Protocol in 1994.11 This truce was presented by ...Missing: venue | Show results with:venue
[22]
NKR Office in Washington, DC
The Bishkek Protocol, May 5, 1994; CSCE, Budapest Summit, December 5-6, 1994 ... whereas the cease-fire has generally been respected since 1994,. D ...Missing: details | Show results with:details
[23]
The Nagorno-Karabakh Cease-Fire at 25 - The National Interest
May 14, 2019 · ... Bishkek Protocol (Azerbaijan joined the document three days later ... On July 26–27, 1994, signing an additional agreement, all three ...
[24]
[PDF] The Nagorno Karabahk-Conflict: A Deeper Analysis of the Stalemate
Dec 21, 2006 · Known as the “Bishkek Protocol,” the agreement ... Since 1994, there has been a tenuously held peace but violations of the ceasefire occur.
[25]
Congressional Record, Volume 140 Issue 61 (Tuesday, May 17, 1994)
May 17, 1994 · ... protocol that may finally signal a winding down of the Nagorno-Karabakh conflict. The provisions of the agreement include a cease-fire ...Missing: ceasefire core
[26]
UCDP - Uppsala Conflict Data Program
Comment on Termination: In 1998 the conflict was resumed as the parties violated the 1994 ceasefire to the extent that more than 25 deaths were reported.The ...
[27]
[PDF] Frozen Conflicts and International Law
On May 5, 1994, a ceasefire agreement, the Bishkek Protocol, was adopted by ... allowed to suppress violations of the agreement and ceasefire, but these .
[28]
[PDF] Humanitarian Action and Politics: The Case of Nagorno-Karabakh
In the interim, the needs of over a million refugees and internally displaced persons and the economic develop- ment of the entire region hang in the balance.
[29]
REPORT on the humanitarian situation of the refugees and ...
The conflict over Nagorno-Karabakh has produced over a million refugees and displaced persons and caused untold suffering since it broke out in 1988.Missing: Bishkek Protocol
[30]
of azerbaijan, demanding withdrawal of all armenian forces
Mar 14, 2008 · The most dangerous development, however, had occurred on 4 March 2008, when the Armenian occupying forces had grossly violated the ceasefire ...
[31]
Tensions reignite in the Nagorno-Karabakh conflict - Al Jazeera
Mar 9, 2015 · In 2014, 60 people died in cross-border violence, with one of the more serious incidents involving the downing of an Armenian helicopter by ...
[32]
The four-day war in Nagorno-Karabakh
Apr 6, 2016 · The clashes continued until 5 April, and ended with both sides unexpectedly announcing a ceasefire. At the same time a resumption of peace talks was announced.Missing: skirmishes | Show results with:skirmishes
[33]
Why the Nagorno-Karabakh Cease-Fire Won't End the Conflict
Nov 25, 2020 · The cease-fire agreement that ended the 1990s war was known as the Bishkek Protocol. It had no expiration date and was meant to remain in ...<|separator|>
[34]
The History Behind the Violence in Nagorno-Karabakh - Lawfare
Oct 19, 2020 · In addition, the group has struggled to prevent violations of the cease-fire agreement due to the lack of an enforcement mechanism and the ...Missing: ceasefire | Show results with:ceasefire<|separator|>
[35]
Russia's role in Nagorno-Karabakh questioned after renewed tensions
Sep 20, 2023 · Moscow backed Armenia in the conflict over Nagorno-Karabakh but also sold sophisticated weaponry to Azerbaijan. The Kremlin brokered a truce ...
[36]
Bishkek Protocol of 1994 never saw light of day - Anadolu Ajansı
May 12, 2020 · Signed between Azerbaijan and Armenia to end armed conflicts, treaty has solely remained on paper for past 26 years - Anadolu Ajansı.
[37]
Conflict in Nagorno-Karabakh: The Azerbaijani perspective on the ...
Oct 21, 2020 · The reality is that Azerbaijan signed the ceasefire agreement in 1994 because it was completely defeated militarily and would have incurred ...
[38]
23 Year Later, Bishkek Protocol Remains Unfulfilled - Caspian News
May 5, 2017 · Today marks the 23 year anniversary of the Bishkek protocol, a document that was signed in Kyrgyzstan's capital on May 5, 1994 and called for an end to the war.Missing: talks | Show results with:talks
[39]
Azerbaijan to observe 1994 ceasefire in occupied-Karabakh
Apr 3, 2016 · Azerbaijani President İlham Aliyev has said that his country will observe the 1994 ceasefire which ended violent clashes with separatist ...
[40]
Sargsyan: We couldn't hold more territory - Axar.Az
May 4, 2025 · Those who claim that the signing of the ceasefire in 1994 was a mistake were not deeply familiar with the situation.
[41]
[PDF] The Bishkek Protocol
May 4, 2025 · The Bishkek Protocol. Bishkek, 5 May 1994 ... Source: As Published by the Nagorno Karabakh Republic – Ministry of Foreign Affairs.
[42]
Armenia and Azerbaijan Reshape their Future through Direct ...
Feb 21, 2025 · The year 2024 saw a shift away from external mediation in the Armenia–Azerbaijan conflict, to direct bilateral negotiations. Despite widespread ...
[43]
Russia in Nagorno Karabagh Conflict: A Mediator or an Arms Dealer
One of the most controversial issues of Russia's mediation in the Nagorno Karabagh conflict settlement process is that of Russia's supply of weapons to both ...Missing: critiques | Show results with:critiques
[44]
Problem or Solution? Russia's Role in the Nagorno-Karabakh Conflict
Oct 19, 2015 · While, as already discussed earlier, Russia contributed significantly to ending hostilities and brokering a ceasefire in 1994, it is often ...<|separator|>
[45]
Russia's Foreign Policy Towards and Influence on the Nagorno ...
Nov 9, 2020 · This article aims at analysing the evolution of Russia's foreign policy toward and influence on the Nagorno-Karabakh conflict.Missing: prelude | Show results with:prelude
[46]
A Comparative Analysis of Turkish Foreign Policy on the Azerbaijan ...
Jun 25, 2023 · In May 1994, the Bishkek Protocol (a provisional ceasefire agreement) was signed by the representatives of Azerbaijan, Armenia, the ( ...Missing: venue | Show results with:venue<|separator|>
[47]
The Nagorno-Karabakh Conflict 2.0. - Foreign Policy Association
The fighting outbreak in Nagorno-Karabakh was the largest since the 1994 Bishkek Protocol ceasefire. However, the situation has now "normalized."
[48]
Statement by the Co-Chairs of the OSCE Minsk Group on the ...
May 11, 2014 · The ceasefire agreement did not, however, resolve the underlying conflict. It left the territories surrounding Nagorno-Karabakh occupied and ...Missing: impact | Show results with:impact<|separator|>