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CONFLICT and
RECONSTRUCTION
n Multiethnic Societies
Proceedings
.
a Russian-American Workshop
.
Committee on Conflict and Reconstruction in Multiethnic Societies
Office for Central Europe and Eurasia
Development, Security, and Cooperation
Policy and Global Affairs
NATIONAL RESEARCH COUNCIL
TIFF NATIC)NAI ACADFMIF.S
In cooperation with the Russian Academy of Sciences
THE NATIONAL ACADEMIES PRESS
Washington, D.C.
www.nap.edu
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THE NATIONAL ACADEMIES PRESS · 500 Fifth Street, N.W. · Washington, DC 20001
NOTICE: The project that is the subject of this report was approved by the Gov-
erning Board of the National Research Council, whose members are drawn from
the councils of the National Academy of Sciences, the National Academy of Engi-
neering, and the Institute of Medicine. The members of the committee responsible
for the report were chosen for their special competences and with regard for
appropriate balance.
This study was supported in part by Grant No. 000-63-925-GSS between the Na-
tional Academy of Sciences and the John D. and Catherine T. MacArthur Founda-
tion. Any opinions, findings, conclusions, or recommendations expressed in this
publication are those of the authoress and do not necessarily reflect the views of
the organizations or agencies that provided support for the project.
International Standard Book Number 0-309-08939-5 (Book)
International Standard Book Number 0-309-51687-0 (PDF)
A limited number of copies of this report are available from:
Office for Central Europe and Eurasia
Policy and Global Affairs
The National Academies, Keck Center
500 Fifth Street, N.W.
Washington, DC 20001
202-334-2644
Additional copies of this report are available from
The National Academies Press
500 Fifth Street, N.W., Lockbox 285
Washington, DC 20055
(800) 624-6242 or (202) 334-3313 (in the Washington metropolitan area)
Internet, http://www.nap.edu
Copyright 2003 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America
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THE NATIONAL ACADEMIES
Advisers to the Nation on Science, Engineering, and Medicine
The National Academy of Sciences is a private, nonprofit, self-perpetuating soci-
ety of distinguished scholars engaged in scientific and engineering research, dedi-
cated to the furtherance of science and technology and to their use for the general
welfare. Upon the authority of the charter granted to it by the Congress in 1863,
the Academy has a mandate that requires it to advise the federal government on
scientific and technical matters. Dr. Bruce M. Alberts is president of the National
Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter
of the National Academy of Sciences, as a parallel organization of outstanding
engineers. It is autonomous in its administration and in the selection of its mem-
bers, sharing with the National Academy of Sciences the responsibility for advis-
ing the federal government. The National Academy of Engineering also sponsors
engineering programs aimed at meeting national needs, encourages education
and research, and recognizes the superior achievements of engineers. Dr. Wm. A.
Wulf is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of
Sciences to secure the services of eminent members of appropriate professions in
the examination of policy matters pertaining to the health of the public. The
Institute acts under the responsibility given to the National Academy of Sciences
by its congressional charter to be an adviser to the federal government and, upon
its own initiative, to identify issues of medical care, research, and education. Dr.
Harvey V. Fineberg is president of the Institute of Medicine.
The National Research Council was organized by the National Academy of Sci-
ences in 1916 to associate the broad community of science and technology with
the Academy's purposes of furthering knowledge and advising the federal gov-
ernment. Functioning in accordance with general policies determined by the Acad-
emy, the Council has become the principal operating agency of both the National
Academy of Sciences and the National Academy of Engineering in providing
services to the government, the public, and the scientific and engineering commu-
nities. The Council is administered jointly by both Academies and the Institute of
Medicine. Dr. Bruce M. Alberts and Dr. Wm. A. Wulf are chair and vice chair,
respectively, of the National Research Council.
www.national-academies.org
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NRC COMMITTEE ON CONFLICT AND RECONSTRUCTION
IN MULTIETHNIC SOCIETIES
Robert McC. Adams (Chair)
Adjunct Professor
University of California at San Diego
Charles Tilly
Joseph L. Buttenwieser Professor of Social Science
Columbia University
John L. Comaroff
Harold H. Swift Distinguished Service Professor of Anthropology and
Social Science
University of Chicago
Fiona Hill
Fellow, Foreign Policy Studies Program
The Brookings Institution
RUSSIAN ORGANIZING COMMITTEE
Valery A. Tishkov
Director
Institute of Ethnology and Anthropology
Russian Academy of Sciences
Yury K. Shiyan
Foreign Relations Department
Russian Academy of Sciences
Leakadia Drobizheva
Institute of Sociology
Russian Academy of Sciences
Vitaly Naumkin
Institute of Oriental Studies
Russian Academy of Sciences
International Center for Strategic and Political Studies
v
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NRC STAFF
Glenn E. Schweitzer
Project Director
Kelly Robbins
Senior Program Officer
A. Chelsea Sharber
Program Associate
Sara Gray
Program Associate
Rita S. Guenther
Program Associate
Al
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Preface
n February 2000 the Russian Academy of Sciences (RAS) proposed to
the National Academy of Sciences (NAS) that the academies initiate a
joint project on conflicts in multiethnic societies. The RAS suggested
that such a project take into account lessons learned in Chechnya when
addressing ethnic conflicts in other areas of the former Soviet Union.
Western specialists with broad international experience in addressing eth-
nic relations who were consulted believed they could contribute impor-
tant perspectives that would complement the extensive expertise of Rus-
sian colleagues in addressing problems in the former Soviet Union. The
NAS Council thereupon agreed that an interacademy project would be of
mutual interest.
When the project was initiated 18 months before the events of Sep-
tember 11, 2001, western scholars did not view violence in Chechnya or
other ethnic enclaves of Russia as manifestations of or responses to terror-
ism despite the use of the term by the Russian authorities to characterize
the situation in Chechnya. It was evident that there existed a wide diver-
sity of situations prone to possible conflict within the territory of the
former Soviet Union. Beyond descriptive case studies of individual in-
stances, however, little analysis had been devoted to identifying causal
relationships or prescriptions for remediation that could be drawn from
the divergent events and outcomes as a guide to Russian policy. A sys-
tematization of much international as well as Russian experience with
state-level responses to the threat of conflict, together with analyses of
successes or failures of reconstruction programs, would clearly be a step
. .
V11
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vIll
PREFACE
forward. A deepened theoretical understanding should also result. This
was an opportunity for an international collaborative effort in the social
sciences of a new and unusually intensive kind, building on expanded
possibilities for Russian-American cooperation after the end of the Cold
War. It was only dimly foreseen that there would soon be significant new
international dimensions to manifestations of violence such as those seen
within the former Soviet Union.
Consistent with this understanding, by mid-2000 the academies had
begun planning for an international symposium on ethnic conflict to be
hosted by the RAS in Moscow in the fall. The purpose of the symposium
was to survey experiences in different geographical settings concerning
ethnic conflicts of particular relevance to problems in Russia and in other
former Soviet republics.
In preparation for the symposium, a small team of American special-
ists visited Rostov-on-Don where they discussed ethnic relations with
officials and specialists who came to Rostov from a number of republics
and oblasts in the North Caucasus, including Chechnya. These consulta-
tions provided an opportunity for local specialists to have direct input
into the project in general and the symposium in particular. In addition,
the American specialists met on several occasions with officials and schol-
ars in Moscow in designing the symposium. The symposium was held in
December 2000 with 12 American and more than 50 Russian participants
in attendance, and several contributions from that symposium are in-
cluded as appendixes to this volume.
Plans for a next phase of project activities took shape during the spring
of 2001, and in tune 2001 an interacademy workshop was scheduled for
December. The terrorist attacks on the World Trade Center and the Penta-
gon three months later clearly signaled a radical departure in world pat-
terns of multiethnic violence that might be expected in the future. But the
project's basic objective of systematizing existing knowledge of prior cases
and developing a more adequate theoretical base remained a valid start-
ing point for coming to grips with the new, still virtually unknown pat-
terns that might emerge.
Three working groups were established, on the topics of collective
violence; culture, identity, and conflict; and comparative study of identity
conflict. The task was to develop lists of research priorities in the three
areas. The members of these U.S.-Russian working groups initially com-
municated among themselves by e-mail.
Also in preparation for the workshop, a small team of American spe-
cialists traveled to Moscow and Nizhny Novgorod in November 2001. In
Moscow they consulted with members of the Duma as well as with scien-
tific colleagues. In Nizhny Novgorod they held discussions with special-
ists from republics and oblasts throughout the Volga region on the state of
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PREFACE
ethnic relations and research needs. They also met with Sergey V.
Kirienko, the representative of President Putin for the region. His deputy,
Vladimir Yu. Zorin, who became minister of nationalities in December
2001, was the host of the visit and played an active role in the project both
in Nizhny Novgorod and later in Washington, D.C. In December 2001
members of the three working groups met in Washington, D.C., to com-
plete their deliberations and to present their findings at the workshop.
There were interrelationships among the topics assigned to the working
groups, and therefore there is some redundancy in the working group
reports. While the working groups were in session, three Russian policy
officials who were part of the Russian delegation discussed broader policy
concerns with U.S. government officials and local scholars interested in
ethnic conflict.
These proceedings present an overview of the discussions during the
workshop, followed by the reports of the working groups, background,
and papers developed by working group members. In addition, several
general papers on ethnic relations in Russia are included.
The three working groups were not appointed by the National Re-
search Council or the National Academies. Therefore, their findings re-
flect the views of the individuals comprising the working groups, not
necessarily those of this institution or the appointed study committee. All
of their individually authored papers were presented or distributed at the
workshop and likewise reflect the views of the individual authors based
on the state of affairs in December 2001.
The appendixes present significant papers considered in Rostov and
Nizhny Novgorod, presentations at the Moscow symposium of special
interest, and background documents developed by Russian specialists
during the course of the project. The appendixes help provide the context
within which the workshop in Washington was held.
ACKNOWLEDGMENTS
Many scholars and officials in Russia and the United States partici-
pated in this activity. They are identified in the appendixes to the pro-
ceedings, and their contributions are greatly appreciated. Valery A. Tish-
kov, Director of the Institute of Ethnology and Anthropology in Moscow,
deserves particular recognition for his continuous efforts in ensuring that
the activities would be both professionally rewarding for the participants
and useful for government officials.
Special appreciation is extended to the Council of the National Acad-
emy of Sciences and the John D. and Catherine T. MacArthur Foundation,
which provided the funding for this initial phase of an important inter-
academy project.
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x
PREFACE
The papers in these proceedings have been reviewed in draft form by
individuals chosen for their expertise, in accordance with the procedures
approved by the NRC's Report Review Committee. The purpose of the
independent review is to provide candid and critical comments that will
assist the authors and the institution in making the papers as sound as
possible and to ensure that the proceedings meet institutional standards
for quality. The review comments and draft manuscript remain confiden-
tial. In addition to the members of the NRC Committee, we wish to thank
the following individuals for their review of selected papers in these pro-
ceedings: Rogers Brubaker, University of California, Los Angeles; Chris-
tian A. Davenport, University of Maryland; George Demko, Dartmouth
College; Zvi Y. Gitelman, University of Michigan; Alexander I. Motyl,
Rutgers University; and Uri Ra'Anan, Boston University. Although the
reviewers listed above have provided many constructive comments and
suggestions, they were not asked to endorse the content of the individual
papers, nor did they see the final draft of the proceedings before its re-
lease.
We wish to thank Kelly Robbins, Rita Kit, and Rita S. Guenther for
their translations of the Russian language papers into English. Special
thanks also to Ian Dee Summers, Kelly Robbins, and A. Chelsea Sharber
for their editing of the proceedings.
Robert McC. Adams
Chair, NRC Committee on
Conflict and Reconstruction in
Multiethnic Societies
Glenn E. Schweitzer
Director, Office for Central Europe
and Eurasia, NRC
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Contents
Priorities for Research on Conflict in Multiethnic Countries
Charles Tilly
Reports of Working Groups
Priorities for Research on Collective Violence
Charles Tilly, Valery A. Tishkov, Stathis N. Kalyvas,
Mark R. Beissinger, Viktor V. Bocharov, Lev D. Gudkov,
Larissa L. Khoperskaya
Priorities for Research on Culture, Identity, and Conflict
Anatoly M. Khazanov, Aleksey Miller, Leokadia Drobizheva,
Matthew Evangelista, Yoshiko M. Herrera, Aleksandr Kamensky,
Valikhan Merzikhanov, Eduard D. Ponarin
Priorities for Research on the Comparative Study of
Identity Conflicts
Paul C. Stern, Vitaly Naumkin, Andrew Bennett,
Edward W. Walker, Ludmila Gotagova, Emil Pain,
Aleksandr Shubin
Supporting Analyses Presented at the Interacademy
Workshop on December 7, 2001
The State of the Art in Understanding Violence
Valery A. Tishkov
1
9
17
21
33
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X11
Priority Themes for Research on Collective Violence
Mark R. Beissinger, Stathis N. Kalyvas
Violence in Ethnonational Conflicts in the Post-Soviet Space
Lev D. Gudkov
The Anthropology of Collective Violence
Viktor V. Bocharov
State, Ethnocultural Identities, and Intergroup Relations
Anatoly M. Khazanov
The Effects of Globalization on Russia: An Analysis of New
Russian Nationalism
Eduard D. Ponarin
Culture, Identity, and Conflict: Suggested Areas for
Further Research
Yoshiko M. Herrera
Culture, Identity, and Conflict: The Influence of Gender
Matthew Evangelista
A Typology of Identity Conflicts for Comparative Research
Andrew Bennett, Paul C. Stern, Edward W. Walker
Comments on the Design and Direction of the Comparative
Study of Identity Conflicts Project
Edward W. Walker
General Analyses Presented at the Interacademy
Workshop on December 7, 2001
Multiethnic States and Conflicts After the USSR
Valery A. Tishkov
Problems of Maintaining Ethnopolitical Stability and the
Prevention of Conflicts in the Volga Federal District
Venaly V. Amelin
The Dynamics of the Ethnopolitical Situation and Conflicts
in the North Caucasus
Larissa L. Khoperskaya
Organizational Aspects
Working Group Members and Charges to the Three Working
Groups: Interacademy Workshop on Conflicts in
Multiethnic Societies, December 2001
Agenda for Russian Policy Officials, December 5-6, 2001
Plenary Session Agenda and Participants: Interacademy
Workshop on Conflicts in Multiethnic Societies,
December 7-8, 2001
CONTENTS
40
49
55
63
69
77
81
86
93
99
112
120
133
136
138
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CONTENTS
Appendixes
A Selected Documents from the Interacademy Symposium
in Moscow, December 18-20, 2000
A-1 Postconflict Chechnya: Analysis of the Situation and
Reconstruction Problems (Political Aspects)
Dzhabrail Gakoev
A-2 Ethnic and National Conflicts in the Age of
Globalization
Anatoly M. Khazanov
A-3 Transition and Conflict in Multiethnic Postsocialist
Societies: The Case of Bosnia-Herzegovina
Tone Bringa
A-4 States in Transition and the Challenge of Ethnic
Conflict: Russian and International Perspectives
B Documents Concerning the Southern Federal District
(North Caucasus)
B-1 Chechnya from Conflict to Stability: Problems of
Postconflict Reconstruction
B-2 Officials and Specialists from the North Caucasus
Consulted in Rostov-on-Don, October 10-11, 2000
Documents Concerning the Volga Federal District
C-1 Program for Strengthening Ethnoreligious Accord in
the Volga Federal District
C-2 Officials and Specialists Concerned with the Volga
Federal District Consulted in Moscow and Nizhny
Novgorod, October 28-November 3, 2001
D Other Documents
D-1 The Dynamics of Factors of Ethnopolitical Conflicts
in Post-Soviet States
Valery A. Tishkov
D-2 Other Russian Officials and Specialists Consulted
During the Project
D-3 Chronology of Events Throughout the Project
. . .
X111
145
162
168
182
189
195
201
209
215
218
220
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